sr-042710-8c~~
City of
Santa Monica°
City Council Report
City Council Meeting: April 27, 2010
Agenda Item:
To: Mayor and City Council
From: Eileen Fogarty, Director of Planning & Community Development
Lee E. Swain, Director of Public Works
Subject: Concept Design for 20th Street &Cloverfield Boulevard Improvement
Project
Recommended Action
Staff recommends that the City Council:
1. Approve the proposed refined. streetscape concept designs for 20th Street and
Cloverfield Boulevard; and
2. Authorize the City Manager to negotiate and execute a modification to Contract
No. 8581 (CCS) with Ahbe Landscape Architects in an amount not to exceed
$175,000, for a total contract amount not to exceed $625,000.
Executive Summary
At the request of City Council, the concept design for 20th Street and Cloverfield
Boulevard between the Santa Monica Freeway (I-10) and Pico Boulevard has been
evaluated and assessed from both an urban design perspective and along-term
traffic/transportation strategy. Staff has completed the transportation system and traffic
impact analysis, an independent urban design peer review, and a review of the selected
tree species by the new Urban Forest Task Force. Staff has also broadened the scope
of the project to incorporate key Draft Land Use and Circulation Element (LUCE)
principles relating to bicycle and pedestrian connectivity, open space and landscaping,
sustainability, and the role of streets as places for social interaction, gathering and
recreation.
The recommended concept for 20th Street provides improvements in the existing
sidewalk parkway area, while maintaining the existing street and parking configuration.
The pedestrian experience would be enhanced with new human-scaled lighting,
landscaping and sidewalk accessibility modifications. The existing street trees would be
replaced by three new tree species that provide canopy, color and promote biodiversity.
The recommended concept incorporates several bicycle treatments including shared
bicycle/automobile lane markings known as "sharrows."
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The recommended concept for Cloverfield Boulevard maintains the existing street and
parking configuration, while providing areas for ground-level landscaping in curb
extensions and at the median near the I-10 freeway. The curb extensions would occur
at areas currently marked as no parking zones. To enhance the pedestrian experience,
a limited number of new street trees would be added in the sidewalk area through a
modular underground bio-retention system. These areas would add a sustainable
element by increasing permeability. The pedestrian experience would be enhanced with
new human-scaled lighting and sidewalk accessibility modifications.
Because the proposed concepts include additional street lighting circuit upgrades and
traffic signal modifications, the contract with Ahbe Landscape Architects must be
amended in the amount of $175,000. for a total not to exceed $625,000. Funds are
available in the project budget for the proposed contract modification.
Background
On December 11, 2007, March 11, 2008, and January 27, 2009 staff presented
recommended concepts for the 20th Street and Cloverfield Boulevard Improvement
Project (Project) to City Council. At its March 11.2008 meeting, City Council requested
that staff investigate including the installation of landscape medians on both streets and
bicycle lanes on 20th Street. On January 27, 2009, City Council reviewed the
recommended concept design for the Project. While there was general agreement on
the Cloverfield concept, the City Council did not reach consensus on the proposed
concept for the 20th Street segment. Instead, Council requested that staff from Planning
and Community Development initiate a peer review to evaluate and assess the
proposed design options as they relate to the City's long term vision for streets, which is
set forth in the Draft LUCE. Specifically, City Council requested that staff explore ways
to improve bicycle and pedestrian facilities, where possible, and revisit previous urban
design strategies to broaden the potential benefit of streetscape improvements to the
adjacent neighborhoods.
Discussion
Staff solicited input and participation of additional expertise to obtain fresh perspectives
on issues relating to bicycle and pedestrian amenities, tree selection, transportation
strategies, and urban design. Staff also created an interdepartmental team to evaluate
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ways to incorporate important Draft LUCE principles into the streetscape design. The
following diagram summarizes the scope of the peer review:
• Nefinrork approach
• Complete Streets
• Sustainablity
* ~ramcca~mmg
• Benefrtsto travel times
- Impacts
rsicycae
• Pedestrian
Landscape
• Tree species recommendation
• Additional Canopy
Incorporation of LUCE Principles
The Draft LUCE provides guidance on integrating streets into the fabric of daily life. In
addition to providing networks for moving pedestrians, bicycles, transit, and goods,
streets are also part of the neighborhoods and districts they cross, and provide open
space for gathering and recreation. Strategies for additional greening, pedestrian and
bike connectivity, added quality and sustainability were reviewed. From this exercise, a
number of short- and long-range improvements were identified, and are recommended
in the revised concept plans.
Transportation Systems and Traffic Impact Analysis for 20th Street
The scope of work included analyzing multiple street configuration scenarios to broaden
the potential benefit for bicyclists and pedestrians. From this work, staff developed a
"road diet" concept, which proposed the elimination of one northbound lane on 20th
between Pico Boulevard and the Freeway thereby creating additional roadway space for
dedicated bicycle lanes that could connect at Michigan Avenue to a planned bike
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boulevard and to the larger bicycle network. A Traffic Impact Analysis for 20tH. Street
assessed the benefits and impacts of changing the roadway configuration to
accommodate dedicated bike lanes as well as other modifications like the installation of
medians. The report concluded that a loss of at least one travel lane would potentially
shift up to 800 peak hour vehicles to parallel and neighborhood streets (e.g., 17rn
Avenue, Cloverfield Blvd.). Additionally, while there would be less car volume on 20tH
Street as a result of the -lane reduction, travel times would be slightly increased. It
should be noted that any potential impacts associated with reducing traffic lanes on 20tH
would need to be documented in an Environmental Impact Report.
Urban Design Review
An urban design professional was retained to provide an independent review of the
proposed streetscape improvement plans. This scope of work included reviewing
existing conditions and proposed design concepts to determine potential-improvements
to biking, walking, crossing both boulevards, sustainability features, landscaping and
overall aesthetics. Working with both staff and the project designer, the peer reviewer
identified several potential refinements to the recommended concept design for both
20tH Street and Cloverfield Boulevard, most specifically in the area of addressing
greening and permeability.
Urban Forest Task Force Review
The newly formed Urban Forest Master Plan Task Force reviewed the Project at their
February 2010 meeting and provided input and direction on the proposed tree species.
Members of the Urban Forest Task Force expressed the need for additional canopy
trees on both streets to balance against the width of the roadway. The Task Force
recommended that the 20tH Street concept include a third species of tree that would
provide year-round canopy. The Task Force recommended that the Cloverfield
concept involve additional trees, where possible, to provide larger canopy and shade for
pedestrians.
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Public Outreach
A public workshop was held at Virginia Avenue Park on March 15, 2010 to obtain
community feedback on the revised concept plan,. A total of 18 community members
attended the meeting. Several media sources were used to inform the residents,
businesses, and property owners about the public workshop including:
• Radius Mailer. A bilingual (English/Spanish) meeting postcard was mailed to
approximately 2,350 residents, businesses, and property owners.
• Newspaper. The meeting postcard was advertised in the Santa Monica Daily
Press.
• Phone calls and email: Outreach to the community members that participated in
previous community meetings including the Pico Neighborhood Association, the
Pico Improvement Organization, and bicycle and pedestrian advocates via phone
calls and email
• Flyers and postcards: Marketing materials were placed at Virginia Avenue Park,
the Main Library, the Ken Edwards Center, City Hall and other public buildings.
The peer review process and findings were presented and the proposed concept plan
was discussed with the community during the meeting. Meeting feedback was
generally positive, and participants expressed support for additional greening
opportunities, as well as the use of "sharrows" and roadway detection devices for
bicycles. A summary of workshop comments are included as Attachment C.
Recommended Concept for 20th Street
Staff recommends that City Council approve the attached Alternative Conceptual Plan
for 20th Street (Attachment 1).
Main Features:
• New trees (3 species)
• Bicycle Enhancements
• New pedestrian lighting
• New sidewalks and driveway aprons
• Additional pedestrian and bicycles connections through modifications to existing
traffic signals and roadway improvements
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New Trees
The proposed concept involves the removal
of 36 existing bottlebrush trees and
replacement with approximately 107 new
trees to provide more substantial canopy.
The recommended tree species are Crape
Myrtle (Lagerstroemia indica `Muskogee'),.
Evergreen Madrona (Arbutus 'Marina') and
Firewheel Tree (Stenocarpus sinuatus). The tree species were selected by the project
designer based on their suitability to the site, performance under the site conditions, and
nursery availability. The recommended species were reviewed by the Urban Forest
Task Force, accepted by the community, and approved by the City's Community
Forester for their appropriateness to the existing growing conditions.
BicYCle Enhancements
A citywide bicycle network that features 20tH
Street as a high priority route is included in
the Draft LUCE. To facilitate integrating 20tH
Street into the larger bicycle network, a
menu of solutions was analyzed to improve
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cyclist visibility, and to connect to both
neighboring and citywide bicycle facilities.
The proposed design incorporates a shared lane marking, or "sharrow," which is a
symbol painted on the roadway to alert road users of the location that- bicyclists are
likely to occupy within the traveled way. The concept plan also proposes the use of new
intersection treatments such. as "bike boxes" and bicycle detection devices. The use of
these tools to improve the bicycle .environment was supported by the community at the
March 15th meeting. "Sharrows" and "bike boxes" area relatively new concepts in
California and permission to incorporate them into. street design must be granted from
the California Traffic Control Devices Committee (CTCDC). However, cities like
Berkeley, Chicago, Long Beach and many others are already using "sharrows" and/or
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"bike boxes" successfully. Attachment D illustrates the process for- acquiring State
approval.
Creating dedicated bicycle lanes between Pico Blvd. and Michigan Avenue could be
accommodated by eliminating one northbound travel lane. Analysis of this scenario
concluded that a potential shift of approximately 800 peak hour vehicles to parallel and
neighborhood streets was likely. Additionally; the analysis concluded that significant,
unavoidable traffic impacts would occur at several intersections necessitating further
environmental analysis. The bike lanes were presented at the community meeting and
got a mix of positive and negative comments. Because of negative community
comments on the subject, potential neighborhood impacts caused by diversion traffic,
and the short stretch of dedicated facilities between Pico Blvd. and Michigan Ave., staff
recommends that dedicated bicycle lanes on 20th Street not be incorporated into this
project. Instead, staff recommends the use of "sharrows," signage, signal modification
and roadway detection devices to enhance the bicycle network on 20th Street.
New Pedestrian Liphtinp and Sidewalk Replacement
Improving the quality, character, and functionality of the streetscape requires updating
and enhancing the sidewalk environment. Several upgrades are recommended in the
final concept plan:
• Pedestrian-Oriented Lighting: new 13-17 foot pedestrian lighting poles are
intended to encourage pedestrians and bicyclists to use the street in the evening.
• Sidewalk Replacement: portions of the existing sidewalks on both sides of the
street do not comply with current pedestrian accessibility guidelines due to the
sloped driveways. These driveways will be reconstructed to comply with current
accessibility guidelines.
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Additional Pedestrian and BicVCle Network Connections through Modifications to Traffic
Sipnalization and Roadway Improvements
Improving north/south and east/west pedestrian and bicycle connections citywide are
long-term objectives proposed by the Draft LUCE. Limited crossings and available
roadway width provide immediate challenges to modifying the existing conditions on
20t" Street, particularly in the area near the I-10 freeway. In order to gradually improve
connectively, improvements to the traffic signal and intersection configuration at the 20rn
Street off-ramp at Michigan Ave. are recommended to facilitate an east/west crosswalk.
This will provide a vital link to access Michigan Avenue (a future potential bicycle
facility), and will serve to promote increase circulation in the area.
Recommended Concept for Cloverfield Boulevard
Staff recommends that City Council approve the attached Alternative Conceptual Plan
for Cloverfield Boulevard (Attachment 2).
Main Features:
• New trees (3 species)
• New pedestrian lighting
• New sidewalks and driveway aprons
• Modification to existing traffic signals and streetlight circuit upgrades
• Improvements to pedestrian accessibility.
New Trees
Currently, no street trees exist in the
Cloverfield Boulevard project area. The
proposed concept involves adding three
species of tree: the Pink Trumpet Tree
(Tabebuia impetiginosa), Chinese. Fringe
Tree (Chionanthus retusus) and Variegated
Brisbane Box (Lophostemon confertus
`Varigata'). The tree species were selected
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by the project designer based on their suitability to the site, performance under the site
conditions, and nursery availability. The recommended species were reviewed and
accepted by the community and approved by the City's Community Forester for their
appropriateness to the existing growing conditions. In several locations throughout the
project area, the trees will be added to the landscaped portions of proposed "bump-
outs" which will be placed in areas currently
marked as red zones. In order to
accommodate additional street trees that are
to be placed in the existing narrow sidewalk,
an innovative modular underground bio-
retention system known as a "Silva Cell" is
recommended. This subsurface system
would be placed at up to sixteen locations,
depending on the available construction funding, to support imposed pedestrian and
vehicle loads, address sustainability, promote tree growth, reduce future sidewalk root
damage and reduce urban runoff. The use of this system enhances the greenery of the
street by increasing tree canopy without significantly reducing the amount of existing
street parking.
New Pedestrian Liphtinq and Sidewalk Replacement
Improving the quality, character, and functionality of the streetscape requires updating
and enhancing the sidewalk environment. Several upgrades are recommended in the
final concept plan:
• Pedestrian-Oriented .Lighting: new 13-17 foot pedestrian lighting poles are
intended to encourage pedestrians and bicyclists to use the street in the evening.
Sidewalk Replacement: portions of the existing sidewalks on both sides of the
street do not comply with current pedestrian accessibility guidelines due to the
sloped driveways. These driveways will be reconstructed to comply with current
accessibility guidelines.
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Modification of Professional Services Agreement
An upgrade to the existing series streetlight circuit is necessary to provide enhanced
lighting in the project area. Additionally, traffic signal equipment in the project area
requires upgrades to be consistent with the future Citywide Advanced Traffic
Management System. The traffic signals at the intersection of the I-10 off-ramp and 20th
Street and the intersection of Pico Boulevard and 20th Street require complete
upgrades. Minor traffic signal modifications are also required at the intersections of
Delaware Avenue and 20th Street, I-10 on-ramp and Cloverfield Boulevard, and Virginia
Avenue and Cloverfield Boulevard.. Streetlight circuit upgrades and traffic signal
modifications were not part of the original scope of work for this project. Staff
recommends modifying the professional services agreement with Ahbe Landscape
Architects, in an amount not to exceed $175,000, for additional streetlight design
services.
Environmental Analysis
The recommended. concepts are considered to be a minor alteration of an existing
street in a three block area that will not result in any expansion of the existing use.
Therefore, the improvements recommended for 20th Street and Cloverfield Boulevard
are categorically exempt from the provisions of the. California Environmental Quality Act
(CEQA) pursuant to Section 15301 [Existing Facilities], Class 1(c) of the CEQA
Guidelines.
Financial Impacts & Budget Actions
The original budget for the project is $5,200,000 which includes all of the streetscape
improvements mentioned in this report. Funds in the amount of $175,000 are available
in account number 0010522.589000 (Feasibility & Prelim. Design 20th) for the
amendment of the contract with Ahbe Landscape Architects for services associated with
the design of street light conversions and traffic signal modifications for the project.
Funds for the construction of the street light and traffic signal upgrades are available in
existing capital improvement project accounts.
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The next step is to develop the final design plans and prepare bid documents. During
this phase,. staff will evaluate potential increased maintenance costs associated with the
improvements.
Prepared by: Peter D. James, Senior Planner
Mark Cuneo, P.E., PrincipaLCivil Engineer
Approved:
Forwarded to Council:
Rod Gould
City Manager
s~~~
Lee E. Swain, Director
Department of Public Works
Attachments:
A. 20th Street -Conceptual Plan
B. Cloverfield Boulevard -Conceptual Plan
C. Notes from March 15th Community Meeting.
D. Process for Requesting and Conducting Experimentations for New Traffic Control
Devices ("Sharrows" and Bike Boxes)
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Department
Attachment A
20t" Street Conceptual Design
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MONICA
FREEWAY
Arbutus `Marina'
25'h x 20'w, evergreen, pink
fall flowers.
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20TH STREET
Lagerstroemia indica `Muskogee' Stenocarpus sinuatus
(Crape Myrtle) zsh x 1z•w, deciduous, (Firewheel Tree) so'r, x 1s'w,
evergreen, scarlet-yellow fall flowers
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TREE COUNT IEGENG:
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NEW TREES i0 BE PUNTED ID]
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Attachment B
Cloverfield Boulevard Conceptual
Design
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FREEWAY
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Chionanthus retusus (Chinese Lophostemon confertus `Uariegata' Tabebuia ipe (Pink Trumpet "~ mGmw»"w~.~. ,~..,, M~.:r;.,.,~~
Fringe Tree) 2o~n x 2orw, deciduous, (Variegated Brisbane Box) ssn x zo~w, Tree) zs~n x zsw, deciduous, powers ~.~ ° •~°'°°.r°~°°°
flowers In early summer evergreen, summerflowers
PARKING.CDUNT LEGEND:
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Attachment C
Notes from March 15th Community
Meeting
14
20th Street & Cloverfield Boulevard
Street Improvement Project Update
March 15, 2010
The following comments were recorded at the community workshop on the 20th and
Cloverfield Streetscape Improvement projects.
Comments on Bict~Cles:
- Explore "sharrows" [sic] & other improvements
- Safety is deterring biking
- City should lead in encouraging bike use
- Prefer bike access on 19th
- Bike lane on 17th Street is a good alternative. Cyclists know where to go & how
to navigate routes. Agree w/ sharrow alt.
- Bike lanes encourage more cycling -make it easier /safer [either lane or
sharrow] so that the mode shift happens
- Bike facilities don't fit
- sharrows don't take space -accidents are happening now -need to change the
built env't
- Like bike detection
- Increase bike detection everywhere
- Like Michigan bike connection.
- Women's sense of safety cycling is good indicator of overall -ease of use
- sharrows are good alt to bike lanes if there is opposition -motorists respond
well to them
- Bike lanes not supported by-bike use/ volume
Comments on Landscaping and Street Improvements:
- Lighten, not darken streets
- Make streets bike friendly, walking friendly, trees -.landscaping -change the
way we use our streets
- Shave median @ CloverField / Pico
- Likes added trees, not sure about lane removal -but continue to study to
understand including future large project
- Use tree species south of Pico -will e-mail
- Evergreen on Cloverfield -mitigates noise and pollution
- Use evergreen where landscape volume is lower
- Some support for evergreen but concern about natural cycles of leafing. Also
support for existing tree species
- 20`h needs pavement upgrades soon
- Coordinate street improvements w/ utilities so it is not. destroyed after
construction
Comments on Transportation Strategies:
- Should consider bus traffic on the routes -concerned lane removal will impact
bus
- 20th Street will be a connection to Expo @ Memorial Park
- Need to consider access to homes adj to Roads
- Work w/ SMC to get students on transit
- Reduce parking to reduce trips, like the concept -get it built soon
- TDM structure is not effective
- When was traffic study conducted? Should include SMC traffic [was done]
- Keep traffic .lanes -why does bike lane stop before San Vicente? Prefer it to be
marked
- Smaller buses -encourage transit use
- Red light detection - Cloverfield repetitive accidents & 20`h /Delaware
- City should focus on putting improvements to shift ratio of cars /bikes -
Portland, Copenhagen examples
Miscellaneous Comments:
- Cap development, coordinated with this project
Attachment D
Process for Requesting and
Conducting Experimentations for New
Traffic Control Devices
Exampleof Process for Requesting and Conducting Experimentations
for New Traffic Control Devicesin California
Rgeded Approv Woulda~ctorecFaveapprovalfromtheFHWA
First if it would reduce std.
Requesti ng j uri sdi di on i nst~ I s
exp~iment~ traffic control device
Evaluate experimsit~traffic ___ Requestingjurisdidionprovides
control device ----------- semi-annul report to CTCDC
Requestingjurisdidionprovides
CTCDC afin~ report
I Ya
Requesti ng j uri sdi di on submits
ra7uest to CTCDC
CTCDC will discuss& review during
the Quaterl y meeti ng
CTCDC reviews
find report
Further Experimentation
required
I No I
CTCDC recommaids Caltrans
to devil op a pol icy for the new
traffic control device
CTCDC accepts CTCDC rgeds
find report find resort
C~trans rq acts CTCDC
recommendationsaid write
bade to the CTCDC their
justifications
Juri sdi di on restores experiment
stetooriginal condition
C~trans develops the new traffic
control de/icepolicy& bringsit
bad< to the CTCDC for
discusson in an open public
/ Caltransadopts~
the pol icy
and post on the CA
MUTCD websiteuntil
the future update of
theCA MUTCD ,
Reference Amended
Contract No. 8581 (CCS).