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sr-061212-4aCity of City Council Report Santa Monica' City Council Meeting' June 12, 2012 Agenda Item: To: Mayor and City Council From: David Martin, Director of Planning and Community Development Subject: Draft Concepts for the Bergamot Area Plan Recommended Action Staff recommends that the City Council: 1. Review the information provided in this report on the emerging Bergamot Area Plan; and provide comment on the guiding principles, draft initial concepts on streets, parking, urban form and open space, and other issues 2. Direct staff to proceed with refining these framework elements into a Draft Bergamot Area Plan. Executive Summary The Bergamot Area Plan is taking shape as the tool to guide the transformation of the former industrial lands into the walkable and human - scaled mixed -use, transit - oriented neighborhood described in the LUCE vision. During the nearly one and a half years of public outreach and a series of five workshops the process has engaged the community on a variety of subjects, including guiding principles, the creative arts economy, Bergamot Art Center, community benefits and streets and urban form. As the Plan progresses, these principles and ideas will guide the plan's direction to ensure that it reflects the unique character of the Mixed Use Creative and Bergamot Transit Village. The Bergamot Area Plan seeks to provide direction for public investment priorities and private development guided by the LUCE vision and Plan principles. The Plan also seeks to fortify the creative and cultural arts industries by recognizing the area as an "innovation district" and encouraging programs and strategies that support this important component of the City's economic and cultural identity. This report presents draft concepts for a number of the most important components comprising the plan framework including: • Streets and Circulation: The LUCE adopted a conceptual street grid to reconnect the former industrial lands into the fabric of the City. The draft Bergamot Street Network explores multiple street typologies for creating the type of multi -modal network that is desired by the community, and which will contribute to an active walking environment. Prioritization for new streets, or streetscape retrofits is explored as a means to advance the transformation of the district. • Parking and Transportation Demand Management (TDM): A successful balance of managed on- street parking, on -site parking and district/shared parking is necessary 0 to support proposed uses, and to create a pedestrian - friendly "park once" environment consistent with a mixed -use, transit - oriented neighborhood. Strong TDM measures will complement the parking strategy to actively manage vehicle trips in the area in accordance with the goals of the LUCE. • Urban Form: The Bergamot Area is identified in the LUCE as an area for new jobs and housing, and will need a hand - crafted urban form concept to guide the right uses to the right locations, and to provide appropriate transitions to minimize impacts to the surrounding residential areas. The draft urban form concept orients activity and intensity along a linear spine connecting sub - districts and key destinations in an approach that is based on creating a walkable and interesting environment for pedestrians. • Open Space: Open spaces and streets are linked in the plan area, recognizing the role of streets in creating animated outdoor spaces that connect to more significant existing, and suggested area -wide open spaces. • Survey of Area Employees - Uses and Amenities: Throughout the LUCE process, community voices have called for a wide variety of pedestrian- oriented ground floor uses and new open spaces to infiltrate the former industrial lands. The plan area also has adopted targets for the commercial /residential mix (60/40 in Bergamot Transit Village, 50/50 in Mixed -Use Creative). Recent outreach to area -wide employees provided insight into their commute patterns and amenities that would encourage workers to live closer to jobs in order to reduce commutes. • Community Benefits: Creating a complete neighborhood is a collaborative effort of property owners, non - profits, residents, artists and many others, based on the tiered structure established in the LUCE. A recent community workshop invited discussion of implementation strategies and details for community benefits in the Bergamot area. • Infrastructure: In addition to new sidewalks and elements of the street system, the Bergamot Area will likely require substantial upgrades to existing water, sewer, electrical and gas networks. Direction from the City Council on all of these elements will inform the next steps in the planning process, leading to the preparation and circulation of a draft Bergamot Plan later this year. Background The Bergamot Area Plan was selected by the United States Department of Housing and Urban Development (HUD) to receive a highly- competitive planning grant to advance the urban sustainability goals of the LUCE and the Federal Government's Community Challenge program that emphasizes integrated land use and transportation planning to reduce vehicle trips and greenhouse gas emissions. HUD's "Partnership for Sustainable Communities" is a pilot program that showcases visionary and leading 2 planning efforts around the country that provide replicable models for sustainable neighborhood. The Bergamot Area Plan was one of two Community Challenge grants awarded in the State of California in the first grant cohort. The Bergamot Area Plan (Bergamot Plan) is a detailed planning effort called for in the LUCE (LUCE Goal D20.2) to help transition 140 acres of former industrial land into a walkable, sustainable and innovative mixed -use district centered on the planned Olympic Blvd /26th Street Expo Light Rail station. Encompassing the Bergamot Transit Village and. Mixed -Use Creative land use designations, the Bergamot Plan seeks to assemble an urban design, land use and circulation framework for creating a "complete neighborhood" where new housing and jobs are supported by complementary land uses, open spaces, quality streets, sidewalks and landscape that form the basis of a multi -modal transportation network. Local serving retail and restaurants in the neighborhood would provide missing services as well as gathering and activity areas. The Bergamot Plan also represents an opportunity to support the City's creative and cultural art industries, and the Bergamot Art Center. Historically isolated from the rest of the City by busy roads, the freeway and an irregular roadway pattern, the Bergamot area will undergo a dramatic and catalyzing change with the arrival of the Exposition Light Rail, which will be operational at Bergamot Art Center in 2016 and will serve over 3,000 people daily, altering the commuting patterns of thousands of area workers and residents. Seizing the opportunity to simultaneously conserve the scale and character of the City's residential neighborhoods, while directing employment and housing pressure to select areas of Santa Monica, the 2010 LUCE re- classified the basic land use designations around Bergamot from industrial and light manufacturing (LMSD) to Mixed -Use Creative District and Bergamot Transit Village, and tasked the Bergamot Plan with creating the tools and standards to manage the area's transformation. This vision included allowing greater heights and residential densities, particularly in the areas closest to the transit station in order to incentivize the creation of community amenities and infrastructure. The Bergamot Area Plan process has moved quickly through several phases of work that include data collection and land use analysis, market studies, preliminary circulation 3 and traffic modeling, and a study of cultural assets and opportunities. Underpinning the entire process has been substantial community involvement in order to establish key concepts and ensure that they ,,reflect Santa Monica's unique physical and social environment. To date, staff has:conducted'five well- attended community workshops, neighborhood group meetings, dozens of individual interviews, focus groups and an r online survey. An inter - departmental working group has fostered close collaboration with the City's Cultural Affairs Division, Housing and Economic Development, Big Blue Bus and Public Works staff to ensure a comprehensive and inclusive approach to developing concepts that affect the future of the plan area. This multivalent planning effort has yielded key information to organize the community's urban design, land use and circulation; goals into a cohesive framework that guides new private and public projects. These fundamental concepts are influenced by the community's expressed desire tot preserve the districts' character and identity while creating opportunities for innovation and sustainability, creativity, and quality human interaction — basic values linking the emerging Bergamot Area Plan to the greater Santa Monica community. The data collected from these outreach efforts has formed the foundation of the planning framework that is presented in this report. To date, outreach on the following subjects has been conducted through workshops, focus groups, one -on -one meetings, and communication through the project website (www.bergamotplan.net) and online surveys. The workshops focused'on: 1) Bergamot Transit Village: the.l.desired• characteristics and components of a vibrant urban transit village, including .being pedestrian- oriented, human - scale, accessible and a center of community life: 2) The Creative Economy: identification of desired uses and spaces to enhance the creative and cultural arts and to improve the connections /relationships between Bergamot Art Center and the planning area. 3) Bergamot Art Center. charting, a..course for the continued vitality of the Art Center through enhancements that protect art spaces while integrating them with Expo. On March 20, 2012, the City Council endorsed the community preferred concept for the Bergamot Art Center. 4 4) Community Benefits: input on community benefits elements prioritization of community needs and how benefits should be implemented (view summary of workshop). 5) Designing the Districts: urban form concepts and street hierarchy to incorporate desired uses (including open space) and to unify the Bergamot Transit Village and Mixed -Use Creative Districts. The five workshops have been well- attended and engaged a wide cross - section of Santa Monica residents, neighborhood group leaders, businesses, galleries and creative arts stakeholders and non - profits. This broad based outreach has provided valuable input on strategies and approach to the Area Plan framework that is the subject of this report. Discussion The collaborative effort between the community and the City's interdepartmental team has thus far resulted in a proposed preliminary framework that sets a direction for the spatial organization of the Bergamot Transit Village and Mixed -Use Creative areas and a strategy for unifying both areas into a cohesive and well- managed mixed -use transit district. Staff requests the City Council's direction on the following components of the emerging Bergamot Area Plan at this pivotal stage of development: A. Guiding Principles B. Streets and Circulation C. Parking and Transportation Demand Management D. Urban Form and Conservation E. Open Space F. Survey of Area Employees — New Uses /Amenities G. Community Benefits H. Infrastructure This input will help to shape and refine the upcoming work efforts that will delve deeper into technical aspects of the Area Plan. The results of these studies along with ongoing analysis, and community input will result in a preferred Draft Area Plan which will be circulated for public review and input. 9 A. Guiding Principles The LUCE called for the development of a comprehensive master plan for the Bergamot Area to carefully manage housing and job growth, and to address the social and physical elements of creating authentic mixed -use neighborhoods centered on transit. Key goals of the Bergamot Plan include: • Integrate the Expo Light Rail station into the district with a supportive mix of new uses and direct connections to the station and Regional Bike Path • Use a fine -grain network of green streets and pedestrian pathways to form the framework for the district, and to encourage a mode shift toward walking, bicycling and transit use • Create a district -wide parking approach that facilitates parking consolidation and sharing, and reduces surface parking lots • Encourage small and large creative arts firms, visual and performing arts, and employment that nurtures the creative arts industry ■ Balance employment and a mix of housing types and affordability, and introduce local- serving retail and services, with a focus on employment nearer to the light rail station ■ Aggressively implement transportation demand management strategies throughout the district to reduce existing and future vehicle trips ® Preserve and enhance the Bergamot Art Center as a focal point of cultural activity and events Santa Monica's selection as a 2011 HUD Sustainable Communities Grantee for the Bergamot Area Plan acknowledged Santa Monica's leadership and commitment to sustainability and elevated the underlying LUCE strategies to integrate uses and transportation in well - planned areas to the national stage. The Sustainable Communities program is an innovation of the Obama administration, bringing together for the first time agencies in charge of housing, transportation and environmental protection to seek real and coordinated solutions to address climate change, economic sustainability, mobility and quality of life. Santa Monica's efforts will be looked at by others seeking a replicable model for urban sustainability through integrated land use and transportation, proactive congestion management, complete neighborhoods with open spaces, neighborhood conservation and enhancement, community benefits and quality urban form and character. A As such, the starting point for planning activity has been a set of Guiding Principles presented in draft form at the first community workshop and refined in collaboration with the community. These principles, supported by examples of strategies that implement them, were developed to articulate the project- specific and area -wide outcomes desired by Santa Monicans and have already been incorporated into the City's development review process for evaluating projects across the planning area. The principles, along with some examples of strategies reviewed in previous projects, are: ® Creating the Foundation for an Active Neighborhood • Co- located office and residential uses to create activity 17 hours /day, 7 days /week • Design and use of the ground floor to establish a dynamic, inviting, pedestrian environment to create the neighborhood character • Building entrances oriented to streets and main pedestrian pathways • Creating an Active Community Environment • Placement and design of open space to accommodate spontaneous and programmed activities • Open space that interacts with surrounding retail, residential and office uses to create an active environment and extend the hours of active use • Human -Scale Design • Articulated buildings that have appropriate height and flexibility at the base to include a variety of retail types and storefront • Building facades that step back consistent with the policies of the LUCE and create multiple rhythms through window patterns, architectural materials, offsets in the building plane and variation in heights to achieve an interesting skyline and the appearance of multiple or smaller buildings • Block sizes created by new streets and pathways, that are consistent with the Santa Monica neighborhood grid • Architecture and planning that considers all sides of the building addressing the entire 360- degree relationship of the project to its context • Interconnected Circulation • New streets and pedestrian connections that introduce the typical city grid of streets and paths, support efficient traffic management, enhance all modes of transportation, and support a pedestrian entry into Bergamot Art Center from Olympic Boulevard. • Retention and Enhancement of the Area's Character • Identify building scale and uses in the Mixed Use Creative area that are central to its character as a creative business magnet. 7 • Encourage adaptive reuse where appropriate and new development that is compatible through design, scale, and materials. • Create opportunities for new amenities and uses that meet the needs of area employees and residents. Guided by these principles, strategies and community input on preferences in regard to circulation, land uses and community benefits, staff has developed a preliminary framework that integrates planning for new jobs and housing around transit in this identified growth area with conservation of area assets that contribute to character and ensure compatibility with adjacent neighborhoods. B. Streets and Circulation The LUCE provides guidance for a citywide network of green streets and pathways to encourage a mode shift that, in combination with an array of other management strategies, contributes to achieving the City's goal of "no net new pm peak hour trips citywide. The prevailing approach to "complete streets" led by recent projects like Ocean Park Boulevard encourages access and mobility, environmental sustainability through transportation and landscape design, and a retooling of the existing right -of- way to frame enticing public spaces for increased social interaction. The proposed Bergamot Street Network explores a refined approach to the LUCE mandate by outlining a diverse hierarchy of increasingly r ATTACHMENT A Street. Network �1 la 7 / fl R"', �i x r ' t, 1 _ the The DRAFT Bergamot Street Network illustrates a multi - modal approach to moving pedestrians, bikes and vehicles in this transit -rich area. Traditional, flexible and shared streets establish a hierarchy that guides urban form and establishes priorities for public and private investment. 0 pedestrian- oriented, flexible streetscapes, which allow for vehicular circulation to move at the right speeds on the right streets, but also provide enhanced environments for walking and biking, open space, sidewalk activities (like outdoor dining), green infrastructure /water infiltration, and parking. It is envisioned that all streets will be designed for universal access. Three street types were presented to the community at the April 23, 2012 community meeting to evaluate interest in mixing street typologies to achieve a unique district -wide approach to integrating the land use and transportation aspirations of the area. Traditional Complete Streets, Flexible Streets and Shared Street typologies were developed based on a number of factors that included existing right -of -way space, proposed project easements, and the relationship of streets as shared public space to the proposed level of activity in strategic areas, and their orientation to key destinations, like Expo and shared parking facilities. The network also includes pathways that provide additional connections for pedestrians and bicycles along the EXPO line, through the sections of larger blocks, and in other locations where vehicular street connections are neither feasible nor desirable. Based on input from the April 23 meeting, staff has refined the layout of the street network to integrate community desires for increased pedestrianization and permeability, balanced with transit and parking needs. More detailed descriptions of each street type are included in Attachment C. Traditional Complete Street — Olympic Boulevard, Stanford Street, Stewart Avenue, Pennsylvania and 261h Street Traditional Complete Streets are roadways that divide the street into distinct zones: ■ Vehicular travel lanes • Bicycle facilities (lanes or markings) • Sidewalks • Curb and gutter • Parkway /landscaping • On- street parking 0 The Bergamot Street Network envisions that many of the area's primary transit and arterial streets, like Olympic Boulevard, can convert to Traditional Complete Streets through the addition of improved sidewalks and parkways, as well as minor modifications to striping patterns. In some cases, parking areas can also be converted into social spaces like "parklets," which replace select parking spots with a patio, planters, trees, benches, cafe tables with chairs, fountain(s), artwork, sculptures and /or bicycle parking. These streets are critical to maintaining vehicular flow and trip distribution, and to service local businesses who will seek access to shared parking facilities at the edges of the districts. Flexible Street— Nebraska Avenue, Expo Retail Street (through former Papermate) Flexible Streets serve all modes, but differ from Traditional Complete Streets by creating larger areas at the sidewalk for a flexible range of uses. These moments can be continuous or periodic along the street. Typically, a Flexible Street will widen one side of the street to create space that can be used for: • Outdoor dining • Small parks and plazas • Landscape rainwater gardens, and • Diagonal parking Flexible streets can be more costly than Traditional Complete Streets depending on the area, the level of amenities and landscape treatment, but since they are flexible, offer additional opportunity to tailor the ground floor experience to individual site conditions and provide a diverse variety of iul public space to meet the needs of the Bergamot area's workers, residents and visitors The Bergamot Street Network envisions much of the existing Nebraska Avenue to become a flexible street because of the generous 80 foot right -of -way. Additionally, the street network proposes the main street leading from the Expo station through the former Papermate site to take on the characteristics of a flexible street with wide sidewalks, ample landscaping, and site specific enhancements to the pedestrian realm. Shared Street — Nebraska Extension, Pennsylvania Extension, Berkeley Avenue, New Streets Shared streets amplify the pedestrian experience and encourage slow speeds by pedestrian, bicycle and vehicles. Shared Streets give visual cues in landscaping materials, roadway textures, and street furnishings as to where bikes and vehicles should pass through and park, but there are no curbs. These design elements have a tendency to slow vehicles, thus equalizing pedestrian and bike access. The recently complete Longfellow project in the Ocean Park Neighborhood is an example of a shared street. Shared Streets provide the freedom to change appearance from a regular street to a plaza depending on the desired function. For example, a shared street can provide great opportunities for street festivals and public art - a street type that will complement the dynamic businesses and activities in the Transit Village and Mixed Use Creative areas. The majority of the shared streets that are proposed in the Bergamot street network are new streets and alleys that will be built as the plan is implemented over time. These streets will provide vehicular and service access while maximizing the utility of the streets for bicycles and pedestrians, and their use as public space. 11 Pedestrian Pathways and Connections The Bergamot Street Network also recognizes the importance of designated and suggested pedestrian pathways and /or "shortcuts" to facilitate circulation and to break down large industrial block patterns. The proposed pedestrian /bicycle paths have been identified through review of committed and proposed projects, and in some cases provide guidance on suggested routes should redevelopment opportunities arise. In all cases, pedestrian pathways link directly into the greater network of streets. New areas for crosswalks have been identified to further facilitate pedestrian connections both through and across the districts. The locations for new crosswalks are largely dependent upon anticipated activity around the station area and in existing centers of activity, like at New Roads School (across Nebraska), and potential new development on Nebraska Avenue. These crosswalk locations will be further evaluated in the next phase of work. 12 Bicycle Network and Facilities Bicycles are welcome on all streets in the Bergamot area, and are supported by a range of bicycle facilities in the comprehensive multi -modal network. These facilities include recommendations from the recently adopted Bicycle Action Plan, committed or planned facilities, such as the Expo Regional Bike Path, and refinements or new suggestions drawn from deeper analysis of the how bicycle circulation fits into the emerging Street Network presented in this report. Some examples of this evolving bike strategy include: ® Buffered bike lanes. Indicated on Stewart Street for this important north -south bicycle link through the City. This may be provided as cycletrack or standard bike lanes depending on traffic speeds, volumes, and community priorities for Stewart Street. Buffered bike lanes are also recommended for 26th Street between Colorado and Olympic, and Michigan Avenue to the east of Cloverfield Avenue. • Shared lane markings. Nebraska Avenue between Stewart Street and Centinela Avenue is envisioned as a slower Flexible Street with shared lane markings rather than the buffered bike lanes that are indicated in the City's Bicycle Plan. The balancing of modes in the design of Nebraska Avenue creates high - quality and safe bicycle access along this street without the buffered lane. Exposition Boulevard will include shared lane markings. • Shared bike and pedestrian routes. Indicated to connect the Michigan Avenue bike lanes to the EXPO station and regional bike path through the Art Center. The ultimate design of this facility will be resolved through the design of the Art Center. High- quality bicycle connections to Expo Station. It is critical that an enhanced Michigan bicycle connection be provided to the station from the southwest. The new Flexible Street through the former Papermate site is also an important bicycle connection through the Transit Village to northern parts of Santa Monica, and shared lane markings should be provided for this linkage. The Bike Plan proposes high quality bike parking facilities like the Bike Center in Santa Monica's Downtown. These facilities offer repair, lockers, restrooms, secure bike parking and some incidental retail. They can also be part of a bikeshare system. All light rail stations including 17th Street are proposed to have Bike Centers to ensure bikes can connect to transit seamlessly. Priorities for Implementation of New Streets and Streetscapes Priority for the implementation of new streets and streetscape retrofits has been identified to bring short- and long -term benefits to the area, and to implement the guiding principles for active and interconnected environments that recognize streets as 13 a primary open space. The adjacent map proposes priorities for the creation of new streets (per LUCE) and /or retrofitting of existing streets. These priorities would be used to evaluate phasing alternatives and for exploring private and public investment options. The following logic has been applied in developing priorities: • Committed: These are improvements that are funded. At the time of this writing, only the EXPO rail and multi -use trail, the Agensys pedestrian path, and a portion of Pennsylvania Avenue Extension on the Colorado Avenue creative office Development Agreement site fall into this category. ■ High Priority: Improvements within existing public streets that are essential for establishing the proposed urban form and neighborhood character, are key to providing direct pedestrian and bike access, and that will create the linkage between the Mixed Use Creative District, the Bergamot Transit Village, and the EXPO Station. While some of these improvements may be funded with at least some private development commitments, they are essential building blocks for the longer term vision of the Bergamot Area Plan, and they will kick start the transformation and viability of the area's public realm. • Medium Priority: These are new streets, street reconstructions, and streetscape improvements that are associated with new developments that are being proposed or are expected to be proposed relatively soon. These projects also include investment in existing public streets including ADA upgrades and street trees that create an overall framework for the maturation of the entire Bergamot Area Plan. • Lower Priority: These are new streets, street reconstructions, and streetscape improvements that will complete the area -wide street network. Being lower priority does not necessarily mean that they will only be achieved further into the future; rather, their implementation will be opportunistic as private or public funding becomes available. 14 C. Parkinq and Transportation Demand Management The Bergamot Plan seeks to create a parking system that supports proposed uses, considers appropriate parking need in light of the proximity to the Expo Line Station and creates a pedestrian - friendly "park once" environment consistent with a mixed -use, transit - oriented neighborhood that also encourages people to walk and socialize on the public streets. The Bergamot Area is also subject to a robust and comprehensive Transportation Demand Management (TDM) strategy that supports area -wide mobility patterns in order to create a shift away from the personal automobile, and achieve the goal of "no net new trips." Parking As the planning process continues, staff will develop a district parking plan that responds to the focus and intensity of desired uses shown in the urban form concept, and to the hierarchy of streets proposed in the street network to achieve a successful balance of on- street parking, on -site parking and district /shared parking. The early concept is based on a set of emerging principles to guide the development of a comprehensive parking plan. These principles are: • Minimize the impact of parking on the public realm • Share non - residential privately developed parking in existing and future projects • Price parking to distribute and reflect the cost of building and managing parking to make the best use of this resource • Unbundle some parking in new residential and commercial projects • Locate parking resources closest to available traffic capacity on major streets (entryways) • Ensure that parking is available and accessible to district users at all times The preliminary direction is to provide convenient access to a set of shared parking resources at the edges of the two sub - districts close to key retail or employment locations, where entry into future garages can be accessed from major streets — Olympic Boulevard, Centinela or 26th Street. This approach has the potential to move existing surface parking into consolidated garages, similar to the City's Downtown, thereby allowing for the creation of new streets. Garages located at the edges of the district would encourage walking and biking within the districts, and would provide 15 ample parking options for area -wide visitors, residents, and employees. On- street metered parking is envisioned to take on several forms depending on the streetscape treatments that are chosen and the nature of surrounding uses and off -site parking. While the parking concepts contemplate a variety of parking options and management strategies, it is important to note that an implementation plan will depend on several key factors that will result from analysis of the preferred urban form and street network concepts. Some evaluation tools staff is considering are: • Demand: the demand for parking based on proposed land uses and proximity to transit, strategies to reduce demand, and variation throughout the day and week • Location: areas where demand for parking is strongest, and how the location of parking can stimulate economic vitality and pedestrian orientation • Time: the time allotted for people to park • Price: the appropriate price to effectively build and manage the parking supply and support dynamic pricing to improve parking management • Supply: `right- sizing" parking so as not to over- or under- park the district Transportation Demand Management The Bergamot Area planning includes comprehensive and aggressive Transportation Demand Management (TDM) programs that seek to limit peak period vehicle trips to manage congestion and to encourage more active and sustainable forms of transportation. TDM programs are linked with and complement the physical infrastructure recommendations such as bike lanes, sidewalk improvements and green . pathways that increase access to transit and frequent destinations. Parking policies such as parking pricing, parking sharing and management also help support TDM by making visible the true costs of parking and by more efficiently using parking resources. The Bergamot Area Plan sets the foundation for TDM by placing land uses near transit and encouraging a mix and range of uses. TDM techniques then help to carefully manage transportation resources through incentives, employer regulation, communication, marketing and other techniques so that they are used optimally. In line with the expectations established in the LUCE for vehicle trip reduction, a baseline of TDM is required for all new projects. The full spectrum of available TDM techniques is 16 available to be used in the Bergamot Area, and many have already been incorporated into proposed development agreements such as: ® Transit Pass Purchase programs ® Carpool, Vanpool and Shuttle services ® Flexible work hours, teleworking ® Monetary incentives ® Parking pricing and Employee Cash -out ® Personalized Travel Assistance ® Annual reporting of Employee Average Vehicle Ridership, with Progressive Targets Many recent development agreements have included measures that exceed the baseline requirements, and incorporate many of the measures listed above. In addition, the Bergamot Area Plan recommends that the district form a Transportation Management Organization or Association (TMA/O) to help promote, market and encourage alternative transportation options and to work closely with both existing and future area employers, employees, and residents. The TMA/O will play a key role in working on a day -to -day basis in the area, being an active and available advocate. The marketing and outreach can also capture more existing users to reduce the baseline of vehicle trips in the area. As the plan develops, there are also opportunities to look at other innovative programs or regulatory tools to manage vehicle trips within and around the area. Concurrent with the Bergamot Area Plan effort, the City is also looking at updating the Transportation Management Ordinance which regulates employers in Santa Monica, and the Trip Reduction Ordinance which regulates developers, in order to incorporate the more aggressive TDM requirements of the LUCE. D. Urban Form (the physical layout and design of the Bergamot Area) and Conservation Community voices described the future of the Bergamot area as a vital urban neighborhood complete with new roads, local shops and restaurants, some housing above the ground floor, a variety of open spaces, and creative and traditional office interconnected by a network of green, landscaped streets accommodating pedestrians, bicyclists and cars. To achieve this diverse mix of uses and the buildings /spaces in which they are located, the LUCE created a tiered set of regulatory parameters with a 17 base and the requirement that projects above the base provide community benefits that contribute to the physical and social quality of the area. In a district where parcels are large and privately owned, this strategy is one of the few ways the community vision can be implemented in a coordinated way. In response to community concerns about height in the district, the proposed urban form focuses activity and distributes height and density in the central areas of the district in accordance with LUCE policies on neighborhood conservation, and consistent with the guiding principles and parameters established by the LUCE and confirmed at the beginning of this process. Nebraska and Olympic — "The Tuning Fork" A key organizing feature of the urban form concept is the concentration of activities and experiences along Nebraska Avenue from Centinela to 26th Street, and along the stretch of Olympic Boulevard west of Stewart roughly in the shape of a "Tuning Fork." Organizational Focus - Tuning Fork Urban Form Concept i u. sir F,cS The Urban Form Concept relies ton orienting activities along existing and new streets that cross the planning area, and which connect to key destinations, like new open space, retail and Expo. Animated by an active streetwall and pedestrian- oriented uses, this approach creates a linear orientation to navigate through and between the area to key destinations like the Expo station at Bergamot, and to local retail activity nodes at the former Papermate site and possibly along Nebraska Avenue near Stanford Street. To support this approach, buildings fronting on this alignment in strategic locations would be encouraged to provide the greatest amount of ground -level activity and community benefits in return for height and FAR permitted at the upper parameters of the LUCE standards. Recommendations for streetwall standards will be developed in M the plan to ensure that heights adjacent to the public realm are respectful of human- scale and appropriately proportioned in relationship to the street. The proposed concept is a hybrid of the two concepts presented at the April 23 workshop. It achieves a clear focus for unifying the two districts by orienting activity in district interiors and in areas facing the Expo station — values that are consistent with the goals of creating a walkable, transit- and pedestrian- oriented environment while protecting the adjacent residential neighborhoods from issues of scale. Transition to the Neighborhoods To address LUCE policy for neighborhood conservation and a sensitive transition in scale and building mass, the urban form concept proposes reduced height adjacent to the residential areas. This proposal articulates the community's desire to distribute height across the planning area, and to achieve neighborhood scale near existing low - density and single - family residences in the Pico and Mid -City neighborhoods. The reduction in urban form away from the spine encourages a greater diversity of building types and corresponding uses to infiltrate the area, like incubators and small and medium floor plate creative businesses. In the lowest "buffer" areas, the urban form will likely be guided by streetwall maximums or another form of building modulation that ensures compatibility with the residential scale and adjacent land uses, like the planned buffer yard on Exposition Boulevard. Conservation Zones — Preserving buildings and uses The proposed urban form concept includes a conservation element, which is indicated by the areas shaded in blue. The purpose of the conservation zones is two -fold, doubling as both a buffer for adjacent residential areas, and as dedicated sanctuary for smaller businesses and creative spaces who contribute to the area's character. Arts and creative uses are emphasized throughout the Bergamot Plan, and these conservation zone help to diversify the options available to those uses. It is important to note that the Bergamot conservation zones are not the same concept as the City's Historic Districts and need further refinement to ensure that existing 19 businesses are allowed to stay vital and flexible and still contribute to the unique character of these areas. The urban form concept identifies a boundary around select conservation areas, like Bergamot Art Center, which was recently the focus of an extensive community outreach process involving hundreds of local artists, gallery owners, residents and regional art advocates resulting in Council endorsement of a preferred conservation concept (see March 20 2012 Council Staff Re o�rt). Staff is exploring additional strategies to preserve or encourage character - defining buildings and micro - businesses throughout the districts through incentives, development standards and conservation strategies. Landmarks — Readily identifiable reference points To aid in the organization of the Bergamot Area, the urban form concept calls attention to three main points of interest that serve as landmarks to orient pedestrians /bicyclists, transit riders and drivers entering and moving through the district. • Gateway: the concept includes a gateway element at the City limits, which might be achieved by designing an enhanced landscape treatment on Olympic Boulevard. • Stewart Junction: the i "Tuning Fork" funnels Stewart i activity through the Junction a intersection of Nebraska, Enhanced Olympic and Stewart, pedestrian and creating a visible hub of bike crossing i „w activity. This transition 4EWARTSTA�� must be strengthened by Enhanced r a landmark activity, such vehicular as a plaza, or other open intersection x { space or retail activity in Landmark element an architecturally dynamic structure in conjunction Transition with a significantly between districts t= improved crosswalk and intersection to facilitate the pedestrian transition into the Mixed Use Creative District, and to allow for vehicles to exit the district. This intersection is currently challenged by awkward vehicular movements, which is expected to be exacerbated by Expo operations and increased pedestrian activity. The Area Plan will focus on identifying solutions to ease conflict, and create Placemaking opportunities at this important location. 20 • Bergamot Expo Station: this station will be a significant feature along Olympic Boulevard, providing a civic front door to both the Bergamot Art Center and the Bergamot Transit Village, and will be enhanced with landscaping, wayfinding displays, public open space and improved crosswalks, in addition to the Bergamot Station project reviewed earlier this year by the Council. E. Open Space The LUCE mandate for the transformation of the industrial lands ATTACHMENT D Open Space Concept into new mixed -use neighborhoods requires the addition of new land uses _ to enliven, animate and energize the --- . -. - -- districts. Open space, too, is -- "" A necessary not only to provide relief ` from the built environment and �••.•••••• e.... provide solar access and air, but to E `� create a public realm that provides for j `' r .... ,'�` •; genuine social interaction desired by the community. The course of public �n engagement has provided the Bergamot Area Plan with a refined understanding of the type, scale, and intensity of proposed new land uses, DR AF, their locations and the overall priority for their implementation, including community benefits. As an industrial area, there is little publicly accessible open space directly within the district. There are, however, area resources including Stewart Park, and Bergamot Station Art Center, while at least two projects (Papermate and the Expo Buffer Yard) contemplate significant new open space to serve local residents, visitors and employees. Outside of the project boundaries, the Yahoo! Center park and the Water Garden also provide public open space as required in their development agreement. However, connections between these spaces need strengthening and currently do not form the cohesive network of green open spaces that is desired by the community. 21 The evolving Open Space concept focuses on two strategies • Streets are Open Space: the Plan seeks to unite the Bergamot Transit Village and the Mixed -Use Creative District largely through the street network, which as described above, is conceptualized to become a dynamic pedestrian and bike oriented system featuring trees and landscaping, wide sidewalks, parks, plazas and parklets, bicycle facilities, water infiltration, and assorted street furniture. This approach to open space acknowledges the goal of the project to create a walkable mixed -use urban neighborhood, and underlines the need for the City to explore methods for combining public and private investment to create this unique open space district. • Locate traditional open space at key destinations or transition points: recent work on the Bergamot Art Center identified the existing parking lot as a community- wide resource for festivals and events. The open space concept suggests additional locations for new open spaces that serve adjacent residential, employee or student populations, or which could provide a focal point for transition between districts along the "Tuning Fork" alignment, like the Stewart Junction concept described above. The next phase of the planning process will consider open space options more substantially, seeking to create opportunities for new public open spaces through a community benefits strategy. F. Survey of Area Employees — New Uses /Amenities In April, the City conducted an on -line survey of employees in the Bergamot Plan area and over 350 people shared information about their current travel behavior and the services and amenities that would factor into making the choice to relocate to this district if housing were available. The survey also asked about their likelihood to use the Expo light rail, and perceptions about amenities and services that are currently lacking in the area. In addition to the input received from public workshops and other outreach methods, the information from this survey is highly valuable to consider as the urban form and streets are developed to facilitate new activity and development. The survey revealed that: • There is high interest in living in the area. Respondents are 61% renters (39% owners) and half of them stated that they would be interested in moving into this area given the right opportunity, with more interest in renting than owning. Some preferences of those surveyed include: o A variety of unit sizes: About one quarter were interested in one bedroom or studio apartments, about 40% would be looking for two bedrooms, and 22 the remaining 35% were interested in larger units with three bedrooms or more. o Most important neighborhood amenities: The highest scoring use, which was consistent for both employees who were interested in living in the area and those who were not, is additional restaurants and cafes. This was followed by markets, parks and walking paths and cultural and entertainment venues. About 27% were concerned to have quality public schools, and a very small number wanted nearby childcare. • Commute times vary widely: About 36% get to work in 15 minutes or less, with 60% arriving within 30 minutes. Those with shorter commutes might be candidates for walking and biking with better pathways and longer commuters are likely candidates to shift to transit use as an alternative to the car. • A very significant finding is that there is strong interest in using the Expo Line to commute to work. The travel mode -split for survey respondents revealed that, currently, 78% drive alone and 7% carpool. Bicyclists and walkers make up 12% together. When asked if they would switch to use the Expo Light Rail when it opens, 51% said they would take the train sometimes, including 37% who said that they would use it at least weekly. 10% (36) said they would switch completely. • Most employees are provided with free, on -site parking: 95% of those that drive to work said that they park on -site, and 88% of those do not pay for their parking. Survey participants did describe a willingness, however, to walk from a shared parking facility to their work site. G. Community Benefits Creating the new sustainable neighborhood envisioned in the LUCE for Bergamot is a collaborative effort of property owners, non - profits, residents, artists, decision - makers and many others. In a recent Bergamot Area Plan workshop, more than 80 Santa Monica residents and stakeholders discussed priorities for community benefits in the Bergamot Plan Area. A summary of the community's comments on Community Benefits is located on the project website. The workshop reviewed the six community benefits priority categories that the community identified for this area during the LUCE process: 1. Cultural and Creative Art Facilities /Programs 2. Affordable and Workforce Housing 3. Transportation /Congestion Management for Bergamot Area 4. Placemaking through Public Open Space and Urban Design 5. Shared Parking and Transit Enhancements 6. Social Services /Programs and Community Facilities 23 Generally, these categories were confirmed as the top priorities for needed community amenities. Some more specific examples of desired benefits and potential strategies to achieve them were suggested, and are currently being evaluated as the area plan is refined. The process will include comparing potential benefits with studies assessing the area's needs, potential approaches to achieving community benefits and infrastructure, additional public workshops, and periodic check -ins with the Planning Commission and City Council to confirm priorities. H. Infrastructure Staff is currently working with its consultant team to understand the existing inventory of utility infrastructure in the Plan area because it is anticipated that a transition from industrial to mixed -use development with new housing units and additional creative office and retail jobs will require upgrades to many of the area's systems. In the next phase of plan development, the City's consultants will prepare a first level analysis of the adequacy in the Bergamot Area of existing public and private utility infrastructure, including water, sewer, natural gas, electricity and fiber optic network. It is expected that the implementation plan will identify as a high priority conducting a more detailed study to comprehensively assess infrastructure needs and to analyze costs so that financing these improvements will be shared equitably by the users of these systems — both existing and incoming property owners /developers — along with appropriate public investment. The street prioritization and urban form concept, once endorsed by the Commission and Council, will provide a basis for the assumptions that will be incorporated into this infrastructure study. The infrastructure study would also recommend specific tools, such as property assessment districts, development fees and other means to finance delivery of the needed infrastructure improvements. M! Planning Commission The Planning Commission discussed the concepts presented in this staff report during their May 16 2012 meeting. The Commission was supportive of the preliminary concepts and the way in which they weave together to form a comprehensive framework for the creation of the Draft Bergamot Area Plan. Acknowledging the depth of community outreach and engagement that has been done, as well as next steps for further refinements, the Commission provided positive feedback on the work effort, and gave the following comments: 1. Urban Form • Support for urban form strategy that focuses activity in key areas and creates conservation zones or transitions adjacent to existing residences. • Clarify building height transitional zones and street wall approach. • Differentiate design guidelines /development standards to reflect unique function, scale, and character of Mixed Use Creative and Transit Village sub- areas. • Balance the linear quality of the Nebraska spine with a district -wide approach that encourages people to walk throughout the whole area. Also differentiate areas along the Nebraska spine by use and intensity. 2. Mix of Uses • Focus on reducing congestion by linking jobs and housing. Identify factors to attract local employees to live in the area (e.g., nearby amenities and services, housing affordability, schools, and so on) and establish plans /programs with incentives to achieve the right mix. • Encourage a range of creative arts employment which is needed to sustain the area's cultural arts and creative cluster. Provide opportunities for small, mid -size and larger firms including start -ups. • Identify strategies to create a range of housing types, including incentives for a mix of housing sizes that diversifies the existing trend of single -room units. • Continue to define community benefits that will support creation of a vibrant neighborhood, and serve a range of user needs. 3. Streets and Circulation • Strong support for the range of complete, flexible and shared streets. Shared streets continue the aesthetic of the industrial district; and creating the smaller blocks is critical for additional walkability and access. Consider reclassifying pedestrian /bike -only paths as narrow shared streets. 25 ® Define approaches to the Olympic Boulevard "landscape" and "urban" segments. Continue to refine Nebraska Avenue's flexible street design, recognizing its potential as a focus of activity and ground floor use that can unify the district, provide gathering space, and provide access to Expo. ® Consider circulation implications of the Pennsylvania extension to Stanford, including neighborhood mitigations, and turning movements at the staggered intersection as shown. ® Show pedestrian path extending west from Agensys through Bergamot Art Center. ® Continue to refine circulation along with site - specific access and urban form. 4. Parking and Transportation Demand Management (TDM) • Development of an effective Transportation Management Association (TMA) to reduce existing and new vehicle trips is essential, and participation should be required. A strong TDM program and TMA for the planning area should be developed as soon as possible, with new development taking a leadership role. In defining the vehicle trip reduction program, consider performance measures and penalties (enforcement). • There is too much free parking — it counters incentives to use transit. Develop plan for unbundling parking for the planning area. • Evaluate the potential to accommodate parking on 26th Street north of Olympic. Incorporate Watergarden and nearby properties into programming. 5. Open Space ® Efficient use of streets /public rights -of -way to create open space and landscaping is good, but must be paired with accessible parks and plazas on large project sites that are provided as community benefits. ® Define requirements for development contributions to open space system (fees, on -site, other), to create a range of open spaces. 6. Conservation ® Define strategy for conservation districts (scale, uses, design, TDR, other) Next Steps Pursuant to Council's direction, staff and consultants will complete a variety of technical studies to further develop and refine the concepts presented in this report. Based on these studies, a draft Area Plan will be developed and circulated for public discussion. 26 Financial Impacts & Budget Actions The recommended actions in this staff report do not have any direct financial impacts. Prepared by: Peter D. James, Senior Planner jd \ lL D id Martin Director, Planning and Community Development Attachments: A. Street Network and Parking Concept B. Priorities for Implementation C. Street Typologies D. Urban Form Concept E. Open Space Concept Forwarded to Council: 3 �y. Rod Gould City Manager 27 ATTACHMENT A PROPOSED STREET NETWORK AND PARKING CONCEPT CENTINELAAVE. ® jm! • O ®% ym/ m� �v i SiEWART STREET i pa pp Sr g9xflxd hilioulCa .let¢Slreti flay Lle Sr eci p a/[e z pI swine srr «1 �..« soyg.Kna sr,w,nr+tl - -- Slrarad All,Y -- llr ' CLOVERFIEID BLVD ATTACHMENT B EV Street Network IraJnlar,+I Ca mpLro Srr �l Sr g9xflxd hilioulCa .let¢Slreti flay Lle Sr eci _ � Sug ySl+N ilenllrlep real swine srr «1 �..« soyg.Kna sr,w,nr+tl - -- Slrarad All,Y -- Suggatrue Sh raJ NF+y 5. r'_.0 Alln!rn4.lnx rm rr I.0 rrl,o yo fn'pl u,h 1Im 4Arancx JfsVlLte G as+lrrl h ^Vrm'x nxnl ® Enlil lny Slg rurvM lnlera.11on � :r �sl L�hrerurlw� su tlllllul. r Ildl.1 1,11i •no sr �a m Iv>, v,ll n wry e.. rf ex 1 we n,r.r rl,rn m ®® sugg. eol 1 _11` 11. lil ... 1,11. ul ,$ _AIx lime -- 1'af.r Bn urrJay aA © I1g s PRIORITIES FOR IMPLEMENTATION J'A 29 7 1-- LU LU �z U) COO LU Z5 � 0 —j w Z --j LL1 0 CL IL c) u F— —j UJ F— Ly < Iny, o U) I. 80' Rughi,of-Way LW F— z LLJ (D CY) 7.5' 5.5, is, 12' t 12' 15' 5.5' 7.5' . ... .... . .. ........ Though (Furnish - B.ck,n M.ed Plan, Mixed Nei Back in Furnish. Through Zone ngs 1 Dingronal Parking) Diagnoral Parking/ ings Zone Zone Flexible Parklet Space Flexible Parklat Space Zone 13' 54' 13' Pedestrian Curb -m-Curb pecoaarm. Real. Realm. 80' Rughi,of-Way LW F— z LLJ (D CY) U) w� OW O� O� CL >-W LLIF- J m WW H Righa-ol.W, U) w 03 Z-i uI 0 2d Z F— Q I- Q ry, F- M b R 10' 21 7' 10 10 T S ',, 10 / TnrouyM1 PubLgFCx $Dace Parking M d Flow Mixed Flow '. P k Fu T Zone cc - urDmm88lv uo8nodn:n Bul ow Buiboa m, Z.- , D al Nrki, Zo I '. 31' 34' 15' Pcdcmron Curb- vo-Curp Pcacsmn zc]Im zctlm ',. 80. Righa-ol.W, U) w 03 Z-i uI 0 2d Z F— Q I- Q ry, F- M W PC ti LU Z 5,- 15' 5' - 10' 5' - 20' 20' 51-20, 51- 10' 5' - 15' ._,v .zwi e K, .. . Fronrage Zone Through Furnishings Zone Shared Space Furnishings Zone Through Zone Fron[age Zone Zone 80' F d W DU Z wo 2 2 � O Q m N M URBAN FORM CONCEPT Il l F mmauwtim F � : (/ I I i ry t hAQ pip F F �� C`J Oly pYG B and e TQM1 SIStEi t �Ji � H9herAO'vhy I G R ,lement J .LIOV_EF EtDB (HMD 111 1 i A— -d y DRAFT Bergnmoi Area Plan May 08, 2012 33 ATTACHMENT E - OPEN SPACE CONCEPT OPEN SPACF CONCEPT i z �m FRANKt IN 5I laa o00 e£a W} O v Q /qg �a Si ®V / ®Pmi ®1 ......a (.tale Pm �® S� a n e •m swan AsmEPnk Y n �a� ® /� Ev tn95( mnNrci GSCen em� 'a SPxer I m mm /a _ __ � ®$yem Y � SugieneJ Pmk SuggetseJPl- S`£ Doom Ei nsy/Ca nnis¢d VeA ^tl in ma � Con sees ons e, a' mnmm® SuggnIM PMCNNn Wakt ' Cdin.r lions Gar d' F %W ling E %W 51a1'wn a 7� re � � Amn Bw Mary ®s® DRAFT B�rgamof hit Ihn NL y08, 2011 34