SR-02-01-2011-4A
~;tYOf City Council Report
Santa Monica
City Council Study Session: February 1, 2011
Agenda Item: 4-A
To: Mayor and City Council
From: Eileen Fogarty, Director of Planning and Community Development
Barbara Stinchfield, Director of Community and Cultural Services
Martin Pastucha, Director of Public Works
Andy Agle, Director of Housing and Economic. Development
Stephanie Negriff, Director of Transit Services
Carol Swindell, Director of Finance/City Treasurer
Kate Vernez, Assistant to the City Manager for Community and
Government Relations
Subject: Coordinated Planning, Management, Construction Phasing and
Communications for Approved and Proposed Projects in the Civic Center
and Downtown Area.
Recommended Action
Staff recommends that the City Council review and comment on the potential
approaches for the coordination of projects approved and proposed for development in
the Civic Center and Downtown Areas during the next few years.
Executive Summary
The City is moving forward to realize the vision
Circulation Element (LUCE), Civic Center Specific
Center planning efforts. In the next several year
exciting opportunities in the form of proposed capital
coming of the Exposition Light Rail. Those proposal
the City to realize the community vision for investn
the City's civic future.
developed in the Land Use .and
Plan, and focused Downtown/Civic
s, the community will have many
projects and in conjunction with the
s constitute a unique opportunity for
ent in the vibrancy and success of
The vision covers a broad spectrum of the proposed projects that represent open
space, civic facilities, major transit improvements, new facilities for pedestrians and
bicyclists, as well as ensuring that cars can continue to move through and park within
the Downtown. The vision also includes new uses brought forward through private
development. Generally, the proposed projects can be divided into three geographic
areas that are interconnected:
The Gateway Proiects would provide access and .linkages between the Civic Center,
Downtown and Coastal areas, which include:
• The Colorado Avenue Esplanade from 4m Street to Ocean Avenue
• Freeway Capping -Phase 7 Sidewalk Widening at Ocean Avenue
• California Incline and Pier Bridge Replacement Projects
• The Exposition Light Rail Downtown Station
The Civic Center Area consists of a wide range of approved and proposed projects
that were envisioned, originally through the Civic Center Specific Plan, and more
recently through the 2009 Civic Center/Downtown integration planning, including:
• Palisades Garden Walk and Town Square Parks
• The Village Mixed-Use Housing Project
• Olympic Drive Extension from Main Street to Ocean Avenue
• Renovation of the Landmark Civic Auditorium
• Early Childhood Education Center with Santa Monica College
• Santa Monica High School shared sports, cultural and/or parking facilities
The Downtown Area includes the recently completed Santa Monica Place renovation
that opened up the mall, offering-new views; connecting 3~d Street Promenade to the
Civic Center area, and providing a new sense of vibrancy and excitement through new
stores, restaurants and public spaces. As Downtown moves forward, there are a
number of projects that would complement the recent investments, including:
• Public Parking Structure 6 Re-build and Expansion
• A Bike Center/Clean Mobility Center in Parking Structures 7 and 8
• AMC Theater Re-build and Expansion
• Community Visioning for the City-owned 4t~'/5th and Arizona Site
• Several Proposed Hotel Projects
Additionally, proposed circulation enhancements will help to realize the LUCE No Net
New PM Peak trips goal, while also facilitating economic and cultural vitality in the
Downtown and Civic Center areas. These enhancements to pedestrian connections,
bicycle facilities, transit infrastructure, wayfinding and parking management represent
the integration of the City's long standing commitment to sustainability and the LUCE,
resulting in:
• Reduced greenhouse gas emissions through vehicle trip reduction
• Increased opportunities and access to alternative forms of transportation
including walking, biking and transit
• Creation of complete neighborhoods where housing, office and daily services are
all within walking distance
It is essential that as the Downtown and Civic Center evolve, that there are a variety of
transportation options for residents, employees and visitors, that this network functions
smoothly, and that it is easy for people to find their way.
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This exciting vision requires that implementation is carefully planned and managed. The
City has a host of unique and transformative opportunities that few cities are fortunate to
have. With the reality that a range of projects may be constructed in near proximity and
within a close time frame, it is important to ensure that the act of "placemaking" allows
the "place" to continue to function. The City will focus on the details of implementation
to ensure minimal disruption. The challenge for the City will be to ensure that the
components of this transformation are brought forward in a way that is tightly managed
and phased to allow Downtown and the Civic Center to continue to flourish. Innovative
communication strategies, messaging and online information tools will be developed to
stay in contact with community members. It is also essential that a two-way
communication system be successfully maintained so that stakeholders can articulate
their needs and obtain information.
This is the first of periodic reports providing an update on our progress. The report
describes the key areas of proposed significant investment over the next five years,
followed by the proposed framework for construction phasing and temporary
transportation mitigation strategies. A report on Expo Light Rail will be provided
separately in the near future for discussion. The report also highlights communication
approaches to ensure ongoing public awareness and feedback. It describes
management strategies that would ensure proactive. and aggressive management of
construction to minimize impacts to residents, businesses and visitors. Finally, it
provides an understanding of the ultimate vision that will yield significant long-term
benefits.
Background
This study session will focus on the "big picture", the next five years of integrated
implementation for proposed public and private projects in the Civic Center and the
Downtown. This report updates the comprehensive review provided to City Council on
March 24. 2009. At that time, Council confirmed the following goals for the area:
• Connect the Civic Center and Downtown
Create a vibrant downtown Light Rail Transit (LRT) gateway
• Enhance and expand open space and parks
Resolve circulation issues for pedestrians, bicycles, transit and other vehicles
• Address parking needs comprehensively, identifying shared use opportunities
Following this initial direction, the City held a workshop with the community on May 11,
2009, and identified Redevelopment Agency (RDA) funding priorities at a May 12, 2009
City Council meeting. These priority proposed projects included:
• Expo Green Streets and Pathways for roadway, pedestrian, bike and transit
improvements, including a pedestrian Esplanade from the new Light Rail station
to the Pier
• A Phase One freeway cap to create an improved entrance to Palisades Garden
Walk
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• The Downtown Parking Strategic Plan
• Expo Station Area Enhancements
• Specific Civic Center allocations for:
o The Civic Center parks (PGW & Town Square, the Civic Auditorium Park)
o Civic auditorium renovations
o Early Childhood Education Center
o Joint Uses with Santa Monica High School
o Shared civic center parking
The Council's direction resulted in a number of coordinated planning and design
initiatives. A Civic Center/Downtown circulation analysis has identified critical timing and
resource requirements, such as optimal phasing of the Olympic Drive extension, the
parameters for the Colorado Esplanade, improvements to ensure access to the bicycle
station in Santa Monica Place, as well as circulation options through the Civic Center
Auditorium site. The comprehensive Civic Center shared parking analysis has evaluated
interim and long-term solutions to retain an adequate .and flexible parking supply.
Additionally, the community and City Commissions have identified the need to ensure
optimal pedestrian and bicycle connections to the Village, Palisades Garden Walk, other
parts of the Civic Center and to the Light Rail Station.
Discussion
DOWNTOWN AND THE CIVIC CENTER - A SIGNIFICANT INVESTMENT
The wide range of proposed projects in the Downtown and Civic Center are grouped in
this report into areas that reflect their relationships and interdependencies as well as
coordination strategies. This discussion covers significant proposed projects that are
anticipated to begin construction within the next five years, that are organized into the
following sections:
A. Downtown/Civic Center Project Discussion
• Gateway Projects
The Civic Center Area
Downtown Projects
B. Parking and Circulation Improvements and Management Strategies -describing
necessary access and connectivity for these areas, including parking access and
pedestrian, bicycle, bus and transportation demand management strategies.
C. Project Construction Timing, Phasing and Management Strategies
D. Communication and Outreach: "Be Excited, Be Prepared"
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A. DOWNTOWN/CIVIC CENTER PROPOSED PROJECTS
Gateway Proiects
The Gateway Projects would create a welcoming entry to the City and provide linkages
between Downtown and the Civic Center and the coastal area to the west.
• Colorado Avenue Pedestrian
Esplanade: A newly-designed
promenade for pedestrians and
pathway for bicyclists would be
created co nnecting the LRT
station to Ocean Avenue, the
Pier, Main Street Bridge and
Downtown. The reconfigured
roadway will expand bicycle and
pedestrian facilities, increase
landscaping and public art to
create a vi sual and functional
focal point between the
Downtown and Civic Center. Procurement of the designer is currently underway.
The project construction is partially funded by a grant from Metro.
• The Pier Bridge Replacement: The project would replace the Pier Bridge, improving
safety and access for pedestrians and bicycles, while accommodating vehicles. The
community outreach process in 2005 revealed a clear community prioritization for
pedestrian and bike access. The City is preparing the necessary design information
to apply for federal funding for the bridge replacement.
• Freeway Capping: Bridge widening, sidewalk improvements and freeway capping
would stitch together parts of the Downtown/Civic Center separated by the I-10
freeway. A feasibility and phasing study was initiated last year, along with
preliminary engineering of a first phase. The feasibility study will evaluate the
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opportunities and challenges to various freeway capping alternatives, identify rough
costs, measure potential benefits to the City and surrounding property owners, and
identify potential funding strategies for short and long-term phasing options.
Phase 1 Sidewalk Widening Project. The first phase would create public space
at the Colorado and Ocean intersection, improving a critical nexus between the
Downtown, Civic Center, Pier, and Palisades Park, and creating an improved
entrance to Palisades Garden Walk. The intersection's southeast corner would
be extended over the Caltrans right-of-way at the McClure Tunnel. It is subject
to Caltrans approval and an expedited schedule is being requested in order to
synchronize completion with Palisades Garden Walk if possible.
Additional Phases Freeway Capping.
The City has held initial discussions
with adjacent property. owners about
future site improvements and the
potential for a partnership to create
expanded. open space adjacent to
Palisades Garden Walk or
connections across the freeway.
Sidewalk improvements to the
existing bridges at 4th and Main
Streets would be likely early phases
to improve connections.
• California Incline: In cooperation with the California Department of Transportation
(Caltrans), the City is proposing to reconstruct the California Incline Bridge to meet
current seismic standards. The 1,400-foot long bridge would be replaced in the
same location, and feature wider sidewalks and bicycle lanes in addition to the
vehicle lanes. Construction would require full closure and temporary re-routing of
traffic. A comprehensive construction traffic management plan is being developed in
coordination with Caltrans and City of Los Angeles to guide the timing and location
of construction period detours. Motorists would be directed to alternate streets such
as 7th Street, Moomat Ahiko Way, or Lincoln Boulevard with the goal of distributing
traffic, avoiding the addition of vehicles to already busy streets and routing vehicles
away from residential areas. Other contemplated measures in the plan include
providing closed circuit television cameras at intersections to enable real-time traffic
conditions to be monitored and managed from the traffic management center.
• Expo Lipht Rail Downtown Station: The station, located on the former Sears
Automotive site., is anticipated to be a center of activity and hub of bicycle,
pedestrian and transit traffic in the Downtown/Civic Center. The City has requested
that the Expo Construction Authority provide a second entrance at the south end of
the station to serve the Civic Center and Santa Monica High School. Concurrent with
the Expo station planning, the City is evaluating different options for joint partnership
for development on the remainder of the station site.
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The Civic Center Area
The combination of uses in the Civic Center would create a vibrant cultural center and
mixed-use district as envisioned in the Civic Center Specific Plan and the LUCE that is
activated by residential, educational, civic and open space components. Work, play and
services in the combined Downtown/Civic Center would be easily accessible by foot,
bicycle, or transit creating a truly sustainable environment. A shared parking program
would address both event and day-to-day parking needs.
o The Village: The Village mixed-use housing project will create 160 units of
affordable housing and 160 market-rate units. Ground floor space is dedicated to
retail uses along Olympic Drive and Ocean Avenue. The Village exemplifies the
LUCE principles of a complete neighborhood with housing, open space and
green connections, public art, retail services and transit all within walking
distance.
o Olvmaic Drive Extension:
Completion of Olympic Drive
from Main Street to Ocean
Avenue is part of construction
of The Village, including a
signalized. intersection at
Ocean Avenue, a pedestrian
crosswalk to the park, and a
bicycle route. The streetscape
improvements will support
active recreation and retail
uses.
o Palisades Garden Walk & Town Square: These parks would create seven acres
of new public open space that will serve both as a destination and a link between
the Oceanfront, Civic Center and Downtown. Palisades Garden Walk would build
upon the original arroyo landscape of the area so that the public could enjoy
walks through a series of braided pathways, enjoying watercourses, "hills" and
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"bays" that highlight
horticultural species and
provides areas for exploration
and relaxation. The Town
Square would honor the
original design of the
landmark City Hall and
provide enhanced
opportunities for public
discourse and engagement.
o Civic Auditorium Re-Use:
Negotiations are underway
with the Nederlander
Organization to partner in
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realizing the community's
vision for a lively future .for the Landmark Civic Auditorium. Necessary
renovations are proposed to support a full roster of cultural events including
concerts and theater, and address disabled access and seismic upgrade needs.
o Early Childhood Education Center: This partnership with Santa Monica College is
proposed to provide childcare services and be a lab school for the College's early
childhood education program. Once final siting decisions are made, an
implementation plan and operating agreement would be developed with the
College who will be responsible for construction and overall management.
o Santa Monica High School Joint Use Opportunities: the Santa Monica/Malibu
School District proposed a joint use project for the Santa Monica High School
campus that includes sports, cultural and parking facilities that can be used by
the community when not in use by the high school. Within the constraints of the
available Redevelopment Agency funding, joint use opportunities would be
further refined as the school district proceeds with its planning process.
Downtown Proiects
With the successful completion of the
Santa Monica Place renovation, and
the potential of the Gateway Projects
and the forthcoming Light Rail Station,
Downtown is poised for a new era of
opportunity. Several significant
projects could proceed simultaneously
with the development of the
Downtown Specific Plan. The Specific
Plan will establish the urban design
framework, balance the walking,
bicycling, transit and vehicle
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circulation, and define a healthy mix of commercial and residential uses, while
implementing the expanded boundaries and principles set out in the LUCE. Public and
private projects include:
• Public Parking Structure
6 Re-Build: A design-
build team is under
contract with the City to
demolish and rebuild
Structure 6 with a total
of approximately 715
spaces.
• The AMC Theater
Project: A state-of-the
art theater is proposed
on 4th Street between
Santa Monica Boulevard
and Arizona Avenue,
with 12 screens and 570
net new theater seats in
the Downtown. The
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project responds to along-identified need to modernize cinema facilities in
Downtown so that they are competitive. with other areas. The project would
demolish Parking Structure 3 and necessitate short term and long term
replacement parking.
• City-Owned 4th/5th and Arizona Site: The community visioning process for this
site recently acquired by the City is underway. This site presents an exciting
opportunity to enhance the Downtown with complementary uses that serve the
growing population of Downtown residents. The Council established guiding
principles for the community process at the December 14, 2010 Council hearing.
Hotels: Development Agreement negotiations continue for a hotel project at 710
Wilshire Boulevard. Construction of a new hotel, the Shore Hotel, on the former
Travelodge site started last year. Planning for the Miramar Hotel is proceeding
concurrently as well as planning for the updated Downtown Specific Plan.
These projects are in various stages of planning, design and pre-construction. The chart
below provides a chronology of the estimated time frames that projects will be under
construction.
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Downtown & Civic Center Projects -Estimated Construction Periods
2011 2012 2013 2014 2015
GATEWAYPROJECTS '` - ' '
Expo L/ght Rall
Colorado Esplanade
Freeway Capping; Phase #1:
Ocean Ave. Sidewalk Widening
Callfomla lntfine
Pier Bridge
C:1?./i'C; Cyr: fi`i/r.
Palisades Garden Walk
The Viffage 8 Olympic Center Drive
Civic Aud/todum
Early Chfftlhood Educ. Center
DoWr~aroWnfAREA
Bfke Transit Center
Parking Structure #6
AMC Theafer
S^ 8 Arizona Development
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®ConsWCfian Period 11111 PotentialConshuction Period Savings
February 7,.2011
2016
B. PARKING AND CIRCULATION IMPROVEMENTS AND MANAGEMENT
STRATEGIES
This. array of public and private projects proposed for the coming years necessitates
careful planning for long-term and construction-period parking and circulation in the
Downtown/Civic Center. It is critical that there would be only limited disruption to
businesses and residents during this time;. and that access would be maintained in
order to ensure the continued functioning of the districts. Proposed pedestrian, bicycle,
transit, roadway and parking improvements have the potential to mitigate short-term
issues, represent long-term investments in the City's future success, and work toward
achieving the LUCE goals for greenhouse gas reduction, congestion management and
No Net New Evening Peak Trips. Transportation Demand Management tools such as
shared parking, bicycle parking, and transit programs will also be key to
Downtown/Civic Center circulation.
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1. Shared and Managed Parking
The City is in the process of upgrading the Downtown parking supply in accordance with
the approved 2006 Downtown Parking Plan and the recommendations of the Walker
Parking Study. Managing the parking resources serving the Downtown/Civic Center
area will ensure capacity and flexibility as projects continue through completion. Key
parking related projects that are either proposed or underway include:
o Rebuilding Parking Structure 6, increasing the number of spaces from 342 to
715.
o Removal of 339 spaces from Parking Structure 3 as part of the AMC Theater
project
o Addition of 100-130 public parking spaces at the City owned 5~h and Arizona site
contingent on a public visioning process for the site
o Analysis of the need for additional shared parking in the Civic Center area.
Currently, there is a combined total of 7,375 parking spaces in the Downtown/Civic
Center. On average 975 spaces are available in the Downtown/Civic Center even at
peak periods (Table 1). Most available spaces are in the Civic Center and at the Main
Library, demonstrating that within 'a short distance of Downtown, there remains
sufficient parking available for current demand. Further staff analysis, based on actual
and projected use, validated this conclusion. In addition, several Walker Parking Study
recommended implementation actions to support access to Downtown are underway:
o Parking Pricing. Strategically increasing evening, maximum daily rates and
monthly rates in the Downtown core to more efficiently manage existing public
and private parking resources to meet parking needs, thereby creating greater
availability of parking for visitors to Downtown
o Shared Parking. Implementation of a program to facilitate public use of private
facilities. Additional evening and weekend parking spaces have become
available at 7 locations in Downtown and made visible through signage allowed
in the public right-of-way by agreement with the City
o Alternative Transportation. Using increased parking revenues to fund additional
programs to support employee access to Downtown by transit, bicycle and
carpooling
o Shuttle Service. Using increased parking revenues to support shuttle service to
outlying parking resources, including the Civic Center Parking Structure during
parking structure reconstruction
o Parking Management. Incorporating Santa Monica Place parking into the larger
system of Downtown parking management, with the same operator and rates to
match other structures
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Main Library 1.00. 350
Civic Auditorium Parking Lot 575 900
Civic Center Parking Structure 300 550
South Beach Lots 1500 250
5th & Arizona ` 100-130 -100-130
A Comprehensive Civic Center Parking Study is also underway to address parking
demand from existing and future Civic Center uses based on time-of-day, week and
year, including temporary Downtown replacement requirements. The study incorporates
demand from City Hall, Palisades Garden Walk, the Civic Auditorium, Samohi shared
use, the Early Childhood Education Center, large events, and a potential cultural facility.
Due to differences in peak demand and use characteristics, the analysis is indicating
that current and immediate future demand can be accommodated with a shared parking
program which may reduce the necessity for building new spaces in the near term. On
limited occasions, additional parking may be needed for large scale events or when
multiple large events are scheduled simultaneously. In those cases, additional shuttles
to beach lots or private parking facilities, along with TDM measures to manage demand
could accommodate parking need. Transit, bicycle and pedestrian access
enhancements during events would also strengthen links to parking facilities, and
further reduce total demand for parking.
The study incorporates a phasing analysis to remain flexible -and accommodate
necessary demand while addressing the fact that some Civic Center uses have yet to
be fully programmed, such as the High School remodel, and the additional cultural
facility. The ultimate parking solution will be contingent on finalizing programming
decisions. If there were to be additional parking built, the study identified the preferred
site location for new parking under the southeast corner of the Civic Center, east of the
Civic Auditorium.
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In response to comments at the December 14, 2010 City Council meeting, the
additional costs to construct parking under the Palisades Garden Walk park were
evaluated. In order to meet the structural load requirements for earthwork and plantings
on top of parking, the park would need to increase its budget by over $10 million. In
addition, it would delay completion and opening of the park by over one year, The cost
to locate subterranean parking under the .future park would be substantially higher per
space than under the Civic Auditorium lot because a large sewer line results in a
smaller footprint, iriefficient layout, and limited access. The complications add at least
$2.5 million to .the cost of the subterranean parking, over and above the base
construction costs. The reconstructed Parking Structure 6 located just one block north
of the Civic Center would include at least 715 parking spaces, which is a net increase of
350 spaces in close proximity to the park and Pier.
Interim Parking Strategies
A number of strategies for interim parking management during the period that the
Downtown Parking Structures upgrades are under way are outlined in an October 15,
2010 Information Item. The Interim Parking Plan focuses on temporary parking
replacement strategies that relocate approximately 500 monthly parking pass holders
into the Civic Center and the Main Library parking structure in order to free up short
term visitor parking in the remaining Downtown structures, consistent with the
Downtown Parking Program EIR adopted by Council on May 9, 2006.
In addition to relocation of monthly parkers, a series of other initiatives are currently
being explored in cooperation with the Bayside District Corporation to ensure that a
sufficient supply of parking is available, and includes:
• Temporary Parking: Maximizing the use of temporary parking locations at 5th and
Arizona and the Sears Automotive site (following site remediation) until projects
planned for those locations are underway. At least 200-300 spaces could be
temporarily accommodated on these two sites.
• Rate Adjustments: Further adjustment of both on-street and off-street parking
rates to incentivize parking further away from the Downtown and adjusted rates
for special events.
• New Technologies: Further implementation of new parking technologies such as
credit-card enabled parking meters, and changeable messages signs with real
time information to be installed. later this year.
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• Wayfinding Improvements: Implementing a first phase: parking wayfinding
system, real time information signage such as beach parking availability coming
this year, and other implementation beginning in 2012, smart phone and other
parking location assistance devices.
• Transportation Demand Management: Reducing demand for parking through
additional TDM programs, and bicycle and transit facilities.
• Centralized Valet: Implement either a centralized valet program throughout
Downtown, a valet location on 4~" Street across from Parking Structure 3, or valet
assist operation in the 5t"/Arizona lot.
• Relocations: Renegotiate agreements to reduce or relocate private spaces in
Parking Structures 2 and 4.
The City and Bayside District Corporation have retained the services of Kimley-Horn &
Associates to provide review and input on the draft Interim Parking Plan, expected to be
complete by March. Throughout the course of any future construction, staff will continue
to monitor parking data and adjust the plan to ensure that the needs of the various
Downtown parking stakeholders are met to the greatest extent possible.
Incentives and Access Strategies for Interim Parking Sites
To keep short-term parking available in the Downtown and facilitate access to Civic
Center parking a number of strategies are proposed to encourage relocation of monthly
parkers to the Civic Center and facilitate access through shuttle and transit connections,
as well as pedestrian connection improvements.
• Financial Incentives: As an incentive to encourage monthly parkers to choose the
Civic Center Structure, a Big Blue Bus transit pass would be provided free of
charge when monthly parkers pre-purchase a 12-month parking pass. The 12-
month pass would already be offered at a lower rate, providing two months free,
and combined with a free transit pass, this is a significant financial incentive. In
addition, providing a free transit pass is one of most effective means to
encourage transit ridership. A shift of each parker to walking, bicycling or transit
even a few times per month will make an impact in reducing parking demand and
congestion.
• Shuttle And Transit: The City is initiating an interim shuttle service and pass
program to facilitate .connections between the Civic Center structure and
Downtown in coordination with Big Blue Bus.
o Transit Passes: The existing "smart card" monthly parking structure pass will
be enabled to also serve as a fare medium for boarding any Big Blue Bus
route at any location system-wide.
o Bus Re-routing: Lines 4 and 9 will be slightly rerouted to pick up and drop off
passengers immediately adjacent to the north and south structure entrances
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to supplement Lines. 2 and 3 that currently operate both directions on 4m
Street.
o Shuttle Service: Once Parking Structure 6 is closed, additional shuttle service
will be provided during weekday commuting periods on schedules designed
to meet travel demand. A broader study of downtown shuttle options will be
developed to address downtown transit circulation needs of the City's
business districts, which will include a discussion of how shuttle services may
encourage greater use of perimeter parking facilities.
• Pedestrian Connections to Parking Structures: Improvements to bridges over the
I-10 at Main Street, Ocean Avenue, and 4th Street are needed to foster
connections to parking resources, Expo Light Rail, and major destinations such
as Palisades Garden Walk and the Pier. These proposed improvements would
support the interim parking solutions and be long-term circulation assets.
Pedestrian enhancements to the existing bridges could be completed in the next
12-18 months following community input and if City funding is allocated.
Minimize Duration of Construction and Parking Structures Off-line
Reducing construction duration and starting the process early for Parking Structure 6
will minimize the time during which both Parking Structures 3 and 6 would be offline. A
process has been initiated for planning-the re-use of the City property located at 5th and
Arizona that would address the potential for additional temporary and long-term parking
on that site. Parking capacity and options will be evaluated as part of the 5th and
Arizona site visioning process.
2. Balanced Circulation Network
A key goal of the comprehensive strategy is to build connections between the
Downtown and Civic .Center projects with an enhanced pedestrian and bicycle
environment, while maintaining functional vehicle circulation. Proposed projects for the
Downtown network would also establish the streets as community space.
Vehicles
Opportunities to expand the vehicle network are limited, so strategies focus on
increasing efficiency and optimizing flow through signal synchronization, wayfinding,
and dynamic information sharing. Real-time information encourages people to make
informed decisions and avoid congestion. These strategies have worked effectively
during busy events, including Glow, the Pier Centennial, the LA Marathon and the Main
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Street Farmers' Market. Real time traffic and parking management and communications
tools in the works for Downtown/Civic Center include:.
• Real-time Traffic Monitoring and Control: Astate-of-the-art traffic control center
enables constant monitoring and immediate adjustment of signal timing and dynamic
directional signage. It will be connected to 97 intersections by Fall 2011.
• Signal Synchronization: Signal synchronization has improved flow on major corridors
including 4th Street and Ocean Avenue, and is being expanded to Pico, Santa
Monica Boulevard and Wilshire.
• Dynamic Directional Signage: In order to
effectively direct vehicle traffic into, through,
and out of the Downtown area, the City can
deploy a variety of signs.
o Temporary static signs for closures,
detours, or special conditions.
o Portable Changeable Message Signs
for temporary traffic control that can be
changed remotely as traffic conditions
vary.
o Permanent dynamic wayfinding signs
at key gateways into the City.
• Real Time Parking Information: Motorists can be alerted to available parking through
real-time parking availability signs.
• Public Information: Online real-time parking information system can continue to
direct motorists to available parking. Other opportunities to convey real-time parking
availability to mobile phones are being explored.
Pedestrians
Pedestrians activate the Downtown/Civic Center, and pedestrian amenities along with
direct and convenient connections to multiple destinations are key to the area's
success. Through informational materials from the City and Bayside, visitors and
residents can be encouraged to access Downtown by foot, bike or transit rather than
driving. In addition, the City is constantly in the process of upgrading the pedestrian
environment as seen with the 2nd and 4th Street improvements, and ongoing planting of
street trees, crosswalk improvements .and count-down pedestrian information. New
pedestrian connections proposed for the Downtown/Civic area include:
• The Colorado Esplanade, creating wide and inviting pedestrian sidewalks
• Proposed enhancements to the west side of Ocean Avenue from the Pier to
Moomat Ahiko Way
16
• Proposed bridge improvements to the Main Street and 4th Street bridges
between Downtown and Civic Center that also support parking solutions
• Intersection improvements on either end of the Colorado Esplanade at 4th and
Ocean would create functional pedestrian crossings.
On-going work ensures a continuous and high-quality pedestrian environment in the
Downtown/Civic Center with current efforts focused on:
• Maintaining a continuous walkway even during construction periods
• Testing an all-pedestrian "scramble" phase at 2"d and Santa Monica Boulevard
• Improvements to sidewalks adjacent to Santa Monica Place and Parking
Structures 7 and 8
• Signal timing adjustments at the Third Street Promenade crossings
• Education. efforts including Senior Walking and Pedestrian Safety workshops
Bicvcle Network
The LUCE and the Sustainable City Plan both emphasize the importance of a .safe,
comfortable cycling environment, with a goal of creating a viable alternative to auto
travel. Demand for bicycling facilities is increasing rapidly, and implementation of the
LUCE bicycle network would make a significant improvement in area mobility. The
following improvements are underway:
• Bike Center: A full service bike transit center in Santa Monica Place Structures 7
and 8 will be open by July 2011. It will include 358 secure long-term bicycle
parking spaces, short-term bicycle parking and services for people who walk,
bike or take transit.
• Bicvcle Parking: The amount of bicycle parking in the Downtown is rapidly
expanding, Parking for 50 more bikes is being installed on the Third Street
Promenade and 300 bike bollards are being distributed throughout Downtown.
Additional racks have been installed in the Library surface lot.
A comprehensive bicycle circulation program is underway that can be implemented in
2011-2012. Improved lane reconfigurations, striping/markings and even roadway
geometry would provide a more appealing bike network in the Downtown/Civic Center,
and create better bicycle access to popular destinations. These proposed improvements
will encourage visitors and residents to bike to the Farmers Market, movies and other
popular activities. The popular bicycle valet at the Farmers Market has already
increased ridership and provided a convenient bicycle parking alternative. With
additional outreach, evaluation of specific desigri challenges and additional funding, the
program can include:
17
• Upgrading intersections and bike routes that connect into the Downtown such as
Broadway, and exploration of hew routes on 2"d Street, 6th Street, and Colorado
Avenue.
• Expanding the bicycle valet program to serve the Downtown Farmers Market
Introducing bicycle parking corrals
• Consideration of a "scramble" signal timing at Colorado and 2nd Street to allow
easy bike access to the new Bike Center in Parking Structure 8.
Focusing on bicycling, transit and walking, as better alternatives to cars in the
Downtown, is key to reducing the impact of moving cars and getting them to appropriate
parking spaces.
Transit Network
Currently, an average of 29,000 people ride the Big Blue Bus or Metro to and from
Downtown Santa Monica every day. Published professional reports cite that the main
factors which induce drivers to switch to transit are the availability and price of parking,
and the travel time by transit compared with the automobile. The 2010 Big Blue Bus
survey supported these findings, with 24 percent of passengers citing parking cost as
their reason for riding the bus, and 17 percent citing a shorter travel time by bus.
To improve service reliability and travel time and attract new riders, Big Blue Bus efforts
will focus on improving the key east-west and north south transit corridors that connect
Downtown/Civic Center with the rest of the City and surrounding areas, including:
• Traffic signal priority for transit buses, the first phase of which will be completed
this year
• Potential expansion of the transit priority service coupled with an enhanced
streetscape with more inviting sidewalks, bus stop amenities and bus lanes.
Stronger incentives for employees and residents of new developments to be
supplied with transit passes.
Transportation Demand Management:
Promoting employee trip reduction measures through Bayside District Corporation
(Bayside) and Downtown businesses is an effective tool. Many Downtown businesses
already have employees who rideshare -but there is always room to do more. Starting
this Fall the City will begin utilizing atwo-year Metro grant to fund incentives such as
rolling shopping carts for residents, and fare subsidies for employees to encourage
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transit, walking and bicycling as alternatives to driving. These incentives are to be
distributed through programs that will leverage their value, and develop the capacity of
business improvement districts and community groups
City staff collaborated with Bayside to promote Rideshare Week in October 2010,
providing alternate commute information for business owners and employees via an
insert in the Bayside Beat and an information table on the Promenade. Staff is working
with Metro's consultants to market its vanpool program, and is training Bayside
Ambassadors on transportation options so they can provide information to businesses,
employees and the public.
C. PROJECT CONSTRUCTION TIMING, PHASING AND MANAGEMENT
STRATEGIES
Several goals have been identified to guide the effective management of the proposed
Civic Center/Downtown public projects, including maintaining mobility/circulation for
pedestrians, bicycles, transit and vehicles; ensuring access to business to promote
business vitality; and providing access to parking for businesses and customers. These
goals can be, accomplished through a variety of available tools and techniques
including:
• Regular and proactive communication with various stakeholders early in the
process and continuing through construction to ensure that stakeholders are
aware of construction schedule, sequence of construction, and any issues that
may impact them.
• Phasing of public projects to ensure those most critical are undertaken first (i.e.
Reconstruction of Parking Structure 6 in Downtown Projects) and sequencing
projects to reduce overlapping impact (ensuring California Incline and Pier
Bridge Occur do not overlap). In addition, phasing of work to reduce or eliminate
overlapping construction impacts, or coordination of complementary work efforts
to reduce construction impacts.
• Contractor Management tools such as early completion incentives, flexible
construction schedules, proactive management of traffic routes and construction
staging, and empowering project managers to address issues promptly and
proactively.
The project management team will be flexible, fluid, and responsive during the project
constructions schedules.
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1. Planning Construction by Building on the Successes of the Past
Within the last decade, the City has experienced the successful construction of several
large projects that can serve as models for future efforts. Each project was carefully
managed and executed in a way that minimized impacts to businesses and residents,
as well as the pedestrian, transit and vehicle network within the busy Downtown
environment.
• Santa Monica Place remodeling, including the building exterior on Parking
. Structures 7 and 8.
The Transit Mall project that covered five blocks of Broadway and seven blocks
of Santa Monica Boulevard, requiring reconstruction of the street and sidewalk.
The project was completed within the City's schedule and budget.
• The Colorado/Ocean Sewer Relief Line and Downtown Projects in 2007 including
the Fourth and Second Street improvements and the Downtown Traffic
Management System.
The projects used proactive management tools to anticipate issues and
comprehensively manage construction, temporary traffic and detours, communications
and public relations. These strategies and this experience will be essential if and when
the City moves forward with the proposed Downtown/Civic Center projects, and staff
anticipated using many of the innovative techniques from these projects including:
• Construction phasing that maintains continuous access to businesses and
residences
• Efficient sequencing and scheduling of construction to allow construction
progress while making best efforts to eliminate or reduce overlap
• Required contractor .attendance at coordination meetings to resolve any
potential issues
• Clear communications with the stakeholders and timely resolution of issues
Regular stakeholder meetings to identify concerns and coordinate events
• Holiday or special event media campaigns to promote local businesses. and
ensure smooth functioning.
For example, the City worked with a team of community stakeholders during the
Colorado/Ocean Sewer Relief Line, including the PRC, Chamber of Commerce,
Bayside District, Fire and Police Departments, and the Holiday Inn in deciding to close
Colorado Avenue during the construction to reduce the construction duration by over
three months. Simultaneously, the City implemented a traffic management and detour
plan to address access and traffic needs around the project area. Even with this
20
disruption, the proactive approach was commended by the Pier Restoration Corporation
and the Holiday Inn for swift implementation and coordination of the project.
2. Construction Phasing, Staging, and Entitlements -Project Management
City staff will provide project management oversight for all projects whether managed by
the City or other responsible agencies: As work load increases, staff's efforts will be
supplemented with .consulting services. Project managers will meet weekly with
contractors and vendors to coordinate project activities. An inter-disciplinary project
implementation team will meet with the project managers bi-weekly or as needed to
reassess and evaluate construction impacts, progress and make adjustments to the
implementation plans and resolve conflicts. In addition, regular stakeholder meetings.
with key business and resident groups within the project areas will be implemented in
order to provide status updates and coordinate any detours or local impact.
Project Entitlements, Permitting and Approvals
Staff will continue to work together to facilitate the public review and project
entitlement process, including visits to Boards and Commissions. Through early
exploration of potential issues with an interdepartmental team, and careful
scheduling of public meetings, some efficiencies in project schedule may be
realized. Additionally, past projects have shown that a proactive approach to plan
check including consultation with the Building Official has enabled project
managers to identify potential issues early in the process and move through the
permitting process quickly.
Project Construction
The City will take an holistic approach to the construction of future projects, will
identify key issues and concerns that might have an impact on residents,
businesses and motorists, and will work to coordinate and implement projects
without delay or any unmitigated significant impact. Staff is considering the
whole City as the project area in order to coordinate and schedule the work
efficiently:. Staff will map out and continually update all construction projects and
prepare a construction coordihation map of planned and active construction
projects.
Construction Phasing
Future construction will be phased with critical attention given to project location,
duration, construction impact and proximity to other nearby construction
activities/projects. Projects that are further apart could be scheduled
concurrently, while projects within one geographic area with impact to adjacent
right-of-way might be phased and sequenced if proceeding simultaneously is
anticipated to result in cumulative impacts.
21
Staff will identify appropriate construction working hours depending on the
location of the project and peak traffic. Some work may be done after-hours or
begun after morning peak traffic hours in order to minimize impact to major
access roads and thoroughfares. In addition, construction work which impacts
traffic, access,'or business will be on hiatus during the holiday period between
Thanksgiving and New Year's Day to the extent feasible. Traffic routes for
construction material and equipment delivery will be identified during the
construction planning period and will be made a part of the contract requirement.
Due to the size and magnitude of several of the projects, there will be dramatic
shifts in traffic patterns. Therefore, to minimize impact to the surrounding
communities, commuters and businesses, staff has developed general guidelines
as depicted in Attachment A.
Construction Staging
Construction staging can be strategically identified at the project site or close
proximity to the work site in order to minimize impact to the local street network.
In the Downtown area, contractors would work to stage on the project site, the
sidewalk and possibly parts of the parking lane, to the greatest extent feasible.
The contractor working on the California Incline will utilize the project site in
addition to a location to be identified for storage of material. Some smaller
projects have minimum need for staging and storage of material on-site and will
use the work site for material and equipment in use.
Expediting Incentives
The City can identify opportunities to include early completion incentives in some
of the critical projects. This incentive is intended to motivate the contractor to
complete work ahead of schedule without jeopardizing quality of work.
Incentives will only be included for critical projects. The criteria that will be used
to assess the merits of including incentives will be practicality of early completion,
traffic inconvenience and delays, and if the project is an essential functional need
of the community.
Traffic Management for Construction Phasing
For large-scale projects affecting portions of the City, such as the California
Incline, staff can identify construction staging and associated traffic control
needs. Staff will build upon lessons learned during inter-departmental
coordination of GLOW, the LA Marathon, the Downtown Transit Mall, the 2"d and
4th Street Improvement Project, and the Santa Monica Place opening. The
comprehensive plan for construction traffic management can be finalized in the
next few months, specifying the parameters for temporary traffic control on all
City streets. For example, the plan will describe when and for what duration
certain City streets can be closed for construction activities, if at all. The plan
can also set forth procedures for traffic control and bus detours when
construction activities overlap or are in adjacent areas. The goal of the plan will
be to ensure that construction activities can occur smoothly while minimizing
impacts to residents, visitors, and businesses.
22
Through weekly review of planned construction activities, specific traffic control
plans can be adjusted to reflect changing weather conditions, traffic patterns,
special events, or other unique situations. The City's AM radio station, 1680 AM,
will provide up-to-the-minute information on traffic conditions, road closures, and
parking. Similar to previous large events, a series of messages will broadcast on
the City radio station identifying specific conditions, such as detours.
Moving Forward
The City has many years of experience managing a wide variety of complex and
disruptive projects. This experience, and the lessons learned from it, has prepared the
City for the challenges that future construction projects will bring. Staff have a solid
understanding of construction and its disruptive nature and will work diligently to
mitigate all negative impacts to the residents and businesses of Santa Monica.
D. COMMUNICATION AND OUTREACH: "BE EXCITED, BE PREPARED"
A communication and outreach program is being developed to inform the community
about the progress of projects at all stages during planning, design and construction.
Keeping residents, the business community, and other interested parties up-to-date and
engaged is essential to managing all facets of the construction effort. The program will
consist of:
Community dialogue -regular meetings will provide timely information and
project updates to neighborhood groups, businesses, stakeholders, and the
media. These stakeholders will be engaged in on-going discussion and problem
solving to ensure that construction proceeds as smoothly as possible. There will
be early notice of any short-term effects, i.e. street closures, detours, noise. A
"speakers bureau" approach will be employed.
Establishment of strategic partnerships -The City will work in partnership with
neighborhood groups, business improvement districts, Bayside District
Corporation, the Chamber of Commerce, the Convention and Visitor's Bureau,
Pier Restoration Corporation, and Santa Monica Place to pool communication
resources. The City's information will be disseminated to as many people as
possible while inviting active participation. Tools will include: web resources;
CityTV and radio; interactive GIS maps, smart phone applications, City e-mail
and text message systems; newsletters, postcards, street banners and message
boards; and paid advertising. Special attention will be paid to ensuring that
impacted target audiences are reached.
23
Hot line and outreach services -Residents will be able to reach someone. by
phone who can assist them with their specific issues and concerns, and to find
out how projects may affect them and how to solve daily problems that arise.
A multi-department messaging team has been assembled to ensure that information is
well-communicated. and disseminated as comprehensively as possible. Priority will be
placed on making it easy for the community to receive information, find information, and
get personal assistance with any issue or concerns they may have. As any projects
progress, information will be made available to measure, track, and publicize results.
The program will be built from lessons learned on similar efforts such as the Transit
Mall, and PCH sewer construction where the "Know Before You Go" and "Cone Zone"
programs were essential in keeping the community informed. Staff will revisit messages
on an ongoing basis to keep the information fresh, accessible and engaging.
Interactive mapping
Work is underway on an interactive mapping tool, showing project location and key
characteristics, that will be posted to the City's website. This dynamic tool will allow
viewers to get immediate project information and images, and can link to additional
resources and related efforts. The mapping tool will be easy to read and navigate, like
this example from San Diego Center City Development Corporation:
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24
NEXT STEPS IN DOWNTOWN/CIVIC CENTER DEVELOPMENT COMING TO
COUNCIL
The City Council will receive regular updates on the coordination and management of
the Downtown/Civic Center development, as well as individual project updates and
recommended- actions at upcoming meetings. In the next few months, anticipated
discussion items include the freeway capping feasibility study including connections and
linkages between the Downtown and Civic Center, the Civic Auditorium renovation and
operations, Redevelopment Agency funding priorities, as well as the Expo Light Rail
and the optimal circulation solutions for the Downtown Station.
Financial Impact and Budget Actions
Funding for the proposed public improvements in the Civic Center/Downtown area will
come from a variety of sources, including federal funding and Redevelopment Agency
funds. One element of uncertainty related to most of the public improvements identified
in this report is California Governor Jerry Brown's proposal to eliminate Redevelopment
Agencies. Such action could severely limit Santa Monica's ability to implement many of
the open space, community facility and infrastructure improvements identified in this
report. Council members, community members and staff are continuing to participate in
the statewide effort to preserve the funds that are critical for local infrastructure,
affordable housing, and economic development. Ih addition, in August 2010, the City
and Redevelopment Agency entered into a Cooperation Agreement that creates a
contractual obligation from the Agency to the City for funding of the public
improvements.
The FY 2010-11 Adopted Budget and multi-year capital improvement budget plan
include approximately $136 million in Redevelopment Agency funding for the projects.
Funds currently budgeted or planned are based on City Council/Redevelopment Agency
priorities made in May 2009. The Agency's ability to fund the projects was based on a
variety of assumptions regarding growth in tax increment, borrowing costs and timing,
leveraging opportunities and State law. As project plans and designs have been further
refined, and leveraging opportunities have been pursued, it has become clear that the
Redevelopment Agency's initial earmarks will be insufficient to fund some of the
25
projects according to community expectations. Staff will return to Council in March with
an updated analysis of the Agency's estimated funding capacity, as well as updated
cost estimates for proposed projects, in order to facilitate a discussion of possible
reallocation of Redevelopment Agency funding priorities.
Prepared by: Sarah Lejeune, Principal Planner, Strategic & Transportation Planning
Francie Stefan, Manager, Strategic & Transportation Planning
Ellen Gelbard, Assistant Director, Planning & Community Development
Approved:
F
Forwarded to Council:
~~
Eil~n ~. Fogarty, Director / 'Gould
Planning & Community Develop n City Manager
Department
Attachments:
A. Guidelines for Traffic Management During Construction
26
ATTACHMENT A
Guidelines for Traffic Management During Construction
a. Specific traffic detours will be identified whenever a street closure is required.
b. Scheduling stakeholder/community meetings prior to implementation of projects
or phases of construction, to explain and provide information about upcoming
work, possible impact and planned mitigation measures.
c. Requiring one vehicle travel lane in each direction be provided at all times.
d. Requiring access to residents and businesses to be provided at all times.
e. Extended street closures, if required, shall be done at night or as needed for
public safety.
f. Traffic control and detours will be coordinated with other construction projects
and activities within the vicinity of the work.
g. Street closures outside the construction zones will not be allowed between
November 15th and January 2nd.
h. Developing a notification list of street closures and installation of Changeable
Message Boards prior to start of work or closure of any street or intersection,
indicating the date(s) and duration of closures.
i. In certain conditions, after-hours work may be allowed to reduce impact to
movement of vehicular and pedestrian traffic within the public right-of-way.
Requiring a phasing plan with timelines of all work within the City of Santa
Monica to be prepared to include work within the public right-of-way, City-owned
property and other large private projects. The plan will identify and resolve
scheduling conflicts and expected impacts (to residents, businesses and traffic)
and possible mitigation. Possible traffic mitigations will be identified prior to start
of construction and will be reflected in the Traffic Management/Traffic Control
Plans.
k. Long-time staging or storage of material or equipment on residential streets or
outside the work area within the public right-of-way will not be allowed.
A comprehensive construction traffic mitigation plan for the impacted areas. The
mitigations measures shall include a combination of strategies designed to
minimize construction traffic impacts on surrounding roadways, proximate
freeway ramps, and neighborhood streets. Strategies to be considered include
but are not limited to: construction methods, construction staging strategies,
intelligent transportation system strategies (including maximizing the deploymenf
of Changeable Message System), and traffic mitigation measures for the affected
surrounding roadways, proximate freeway ramps, and neighborhood streets.
Traffic mitigation measures will facilitate traffic to stay on arterial streets and
detour routes, and deter traffic from neighborhood streets. Measures could
include, but will not be limited to: installation and/or modification of signage,
striping/pavement markings, signal timing, speed humps, etc.
27
m. No two consecutive/adjacent intersections, over-crossings, major street, and/or
freeway ramp intersections shall be substantially impacted at any one time.
n. No two adjacent or parallel streets will be impacted at any one time. However,
exceptions and adjustments will be made as needed to address safety concerns,
construction progress and unforeseen circumstances.
o. Carefully adhere to .all traffic management mitigation measures established as
part of the environmental review process for specific projects.
28