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sr-071012-8b1_ City of Santa Monica' To: Mayor and City Council City Council Report City Council Meeting: July 10, 2012 Agenda Item: 005 From: Martin Pastucha, Director of Public Works Subject: Certification of Environmental Impact Report/Environmental Assessment for California Incline Bridge Replacement Project, Adoption of Statement of Overriding Considerations, Authorization to Proceed with Bidding Documents, Authorization to Execute a Modification to a Professional Services Agreement, and Related Actions Recommended Action Staff recommends that the City Council: 1. Adopt a Resolution (Attachment A) certifying the Final Environmental Impact Report/Environmental Assessment for the California Incline Bridge Replacement Project. (Attachment B). 2. Adopt a Resolution (Attachment C) adopting a Statement of Overriding Considerations and Mitigation Monitoring and Reporting Plan and making necessary CEQA findings. 3. Authorize staff to proceed with the development of bidding documents for construction of the California Incline project as recommended in the Final Environmental Impact Report/Environmental Assessment and as described in this report. 4. Authorize the City Manager to negotiate and execute a modification to Professional Services Agreement No. 7148(CCS) in the amount of $1,256,000 (including a 10% contingency) with Wallace, Roberts and Todd, Inc., a Pennsylvania -based company for project management, structural, civil, traffic and geotechnical design services. This would result in a new agreement in an amount not to exceed $2,581,799. 5. Appropriate the budget increases as outlined in the Financial Impacts and Budget Actions section of this report. Executive Summary The proposed project would replace the existing California Incline bridge structure and roadway which traverses a steep coastal bluff with a new 750 foot long by 52 foot wide reinforced concrete bridge between Ocean Avenue and the existing pedestrian 1 overcrossing near Pacific Coast Highway. The California Incline is proposed to be closed for a duration of 12 to 18 months while the existing structure is demolished and reconstructed. The existing bridge was constructed in the 1930's, with an existing roadway width of 40' and a 5' sidewalk. Its condition is poor and deteriorating beyond the capabilities of what routine maintenance can repair. The purpose of the proposed project is to correct deficiencies in the existing bridge and make it safer for vehicular, bicycle and pedestrian use. Improvements to pedestrian and bicycle facilities along the California Incline are included in the proposed project. In addition, improvements to the upper bluffs adjacent to the California Incline are planned as part of the proposed project including the installation of stabilizing soil nails. The soil reinforcing nails are drilled horizontally into the vertical face of the bluff to strengthen the hillside and reduce erosion and landslide concerns. The California Incline Bridge Replacement Project is subject to federal, state and City of Santa Monica (City) environmental review requirements because the City proposes the use of funds from the Federal Highway Administration. To comply with the California Environmental Quality Act (CEQA) and the National Environmental Policy Act (NEPA), the City prepared a joint environmental document - Environmental Impact Report/ Environmental Assessment (EIR /EA). Caltrans is the lead agency for NEPA requirements and the City is the lead agency for CEQA requirements. As required, a Draft EIR /EA was circulated for public review and comment. A revised Draft EIR /EA was subsequently similarly circulated. Seventy -five comments were received on the revised Draft EIR /EA and responses to comments are included in the Final EIR /EA. The majority of comments regarding the Draft EIR /EA were about traffic and transportation impacts due to the closure of the Incline during construction. In order to proceed to the final design phase of this project, it is recommended that the City Council certify the Final EIR /EA, adopt a Statement of Overriding Considerations and a Mitigation Monitoring and Reporting Plan (MMRP), and authorize staff to proceed with the development of bidding documents in accordance with the Final EIR /EA. Additionally, staff recommends that Council authorize the City Manager to negotiate a modification to the professional services agreement with Wallace, Roberts and Todd, Inc. in the amount of $1,256,000, for services necessary to complete final design and bidding documents. Background On June 13, 1995, Council authorized a Professional Services Contracts with Wallace, Roberts & Todd for the Design of the Beach Improvement Group Project, including the California Incline Bridge Replacement project. On November 28, 2000, Council authorized a modification to Professional Services Agreement No. 7148 (CCS) with Wallace, Roberts & Todd for the design of the California Incline Replacement and Pier Bridge Widening. A draft EIR /EA for the proposed project was circulated for public review from May 23, 2007, to July 9, 2007, and a public meeting was held on June 20, 7 2007. Subsequent to the circulation of the draft EIR /EA, refinements to the design resulting in the identification of two design options for further review occurred as a result of the preparation of a Caltrans Type Selection Report. In addition, comments received during the circulation of the draft EIR /EA in 2007 regarding construction traffic led to a comprehensive review of the impacts and the mitigation plan. In addition, restriping to accommodate a bicycle lane, slope stability measures and a temporary construction road are now proposed as part of the project. Therefore, the lead agencies prepared a revised draft EIR /EA for recirculation to present the project as currently proposed, including these changes. In March 2010 the City received a biennial bridge inspection report from the Los Angeles County Department of Public Works, indicating that the existing structure is in poor condition. The report rated the structure as structurally deficient, with a sufficiency rating of 34.1 out of 100. Bridges with a sufficiency rating under 50 are eligible for replacement utilizing Federal Highway Bridge Program funding. The bridge railing has concrete spalls and is rated as substandard. The revised draft EIR /EA, including additional technical studies on traffic impacts, slope stabilization and structure type selection, was circulated for a 45 -day public review period from September 7, 2011, to October 28, 2011, and a public workshop was held on October 12, 2011. The Final EIR /EA includes responses to comments received during this public circulation period as well as revisions prepared in light of these comments. Discussion The proposed project would replace the existing California Incline bridge structure with a new structure of the same type. The condition of the existing California Incline Bridge is poor and the deteriorated condition of the bridge makes corrective action necessary. Routine maintenance is inadequate and erosion of soil beneath the California Incline has cause localized settlement of the roadway and a patchwork of asphalt has been used to fill the erosion holes. The integrity of the upper bluffs is also poor causing 3 landslide and erosion concerns for motorists, cyclists, and pedestrians. Therefore, improvements related to the geologic integrity of the upper bluffs are planned as part of the proposed project, including the installation of stabilizing soil nails. Eight design options were considered by the City and Caltrans and two design options for the complete replacement of the existing Incline were selected to be carried forward for further environmental analysis as part of the proposed project alternatives. Some of the criteria used in alternative evaluation include environmental, geotechnical, structural, cost and community impacts. The two options analyzed are a reinforced concrete slab bridge and a precast concrete slab bridge. Both options would be designed to carry legal loads, be visually similar to the existing structure, require minimal maintenance and remain stable throughout their design life even with slope erosion. The environmental analysis demonstrated that both design options would meet the project's purpose and need and would have similar environmental effects during construction and operations. However, after review of the comments received during the public circulation period, the City and Caltrans are recommending the construction of a cast -in- place concrete slab bridge as the preferred alternative. A substantial number of comments received during the public circulation period expressed a desire for the City and Caltrans to pursue constructing the project in the shortest amount of time possible. Although the construction schedule for both design options is similar, the precast alternative is likely to require more lane closures and night work to lift and place the precast sections. In addition, the precast alternative would require the placement of a cast -in -place concrete topping slab; whereas, the superstructure of the cast -in -place slab bridge option could be completed in one operation not requiring lane closures during the placement of concrete. Therefore, the cast -in -place concrete slab bridge is recommended as the preferred option to shorten the span of construction and traffic disruption due to the closure of the incline. 0 Environmental Analysis In accordance with the California Environmental Quality Act (CEQA), a Draft Environmental Impact Report/Environmental Assessment (EIR /EA) and a revised Draft EIR /EA was prepared. The areas studied in the revised Draft EIR /EA include: • Aesthetics • Air Quality • Biological Resources • Cultural Resources • Geology and Soils • Hazards and Hazardous Materials • Hydrology and Water Quality • Land Use and Planning • Noise • Transportation/Traffic • Greenhouse Gas Emissions and Climate Change • Public Services • Recreation The revised Draft EIR /EA identified potential environmental impacts that would result from implementation of the proposed project, potential mitigation measures, and impact determinations before and after implementation of proposed mitigation. The revised Draft EIR /EA indicated that the construction of the replacement bridge would create both potentially significant impacts that could be reduced to less -than significant levels after implementation of mitigation measures, as well as some significant and unavoidable impacts. The FEIR /EA, which was published in April 2012, contains all comments and responses to comments received during the public comment period. In the document, mitigation measures were identified in the areas of Aesthetics, Biological Resources, Cultural Resources (archaeological), Geology and Soils, Hazards and Hazardous Materials, Hydrology and Water Quality, and Water Supply to reduce potential impacts to less than 5 significant levels. To ensure that these measures are properly enacted, a mitigation monitoring program is necessary and will be enforced during the construction and operation of the project, if approved. The proposed mitigation measures are provided in the Final EIR /EA and the mitigation monitoring program is included in Attachment C. Significant and unavoidable impacts were identified in the areas of air quality (project - specific and cumulative construction impacts), cultural resources (project- specific and cumulative demolition of historic resource), land use and planning (project- specific and cumulative inconsistency with City preservation policies and goals), noise (project- specific and cumulative periodic increases in ambient noise levels during construction), and transportation /traffic (construction traffic). More specifically: 1. Air Quality. Construction of this Project would result in a short -term unavoidable and significant impact with regards to regional and localized construction emissions. Mitigation measures have been proposed to minimize these emissions to the maximum extent feasible. However, even with implementation of these measures, NOx, PM2.5, and PM 10 emissions would continue to exceed localized significance thresholds during construction and NOx emissions would also exceed regional thresholds during construction. 2. Cultural Resources. This Project would result in significant adverse impacts to cultural resources, specifically the demolition of the California Incline which is a historical resource. Although there are a number of mitigation measures proposed, including photo documentation and installation of informative plaques, these mitigation measure would not reduce this impact to less than significant given the proposed demolition of the California Incline. 3. Land Use and Planning. This Project could potentially result in significant adverse impacts to land use and planning, specifically inconsistency with City policies related to historic preservation. As discussed, there are no mitigation measures that could reduce this impact to less than significant given the proposed demolition of the California Incline. 4. Construction - Related Noise. This Project could result in significant adverse impacts on noise, specifically construction - related, temporary or periodic increases in ambient noise levels. Implementation of mitigation measures during construction would reduce noise impact However, this short -term noise impact may remain siginificant and unavoidable since construction hours may be extended beyond the City's normal hours for construction pursuant to an after -hours construction permit and these construction levels could exceed the noise standards set forth in the Santa Monica Noise Ordinance at nearby sensitive receptors. 5. Transportation and Traffic. This Project could result in significant adverse impacts on transportation /traffic from traffic impacts during construction. As detailed below, 6 mitigation measures are proposed during construction to mitigate these impacts, but these measures would not reduce the impacts to less than significant. As discussed, the City received extensive comment letters on the revised Draft EIR /EA. Responses to all comments received are included in the Final EIR /EA. The vast majority of the comment letters addressed concerns regarding potential traffic impacts due to the California Incline being closed during construction. Although there are no mitigation measures that would minimize the traffic and transportation impacts to a less- than - significant level during construction, a wide range of mitigation measures to address traffic impacts are included in the Final EIR /EA. These proposed mitigation measures include the following: • A comprehensive multi- agency traffic management plan (TMP) will be prepared for this project that will seek to minimize cut - through traffic to the fullest extent possible and encourage the use of designated detour routes via Moomat Ahiko Way as well as the 1 -10 Freeway ramps. • Restripe the Moomat Ahiko Way portion of the Ocean Avenue / Moomat Ahiko Way intersection to provide dual left turn lanes instead of the current one left turn lane. • Synchronize traffic signals along Ocean Avenue to minimize north -south traffic delays. • Enforce pedestrian traffic controls at this intersection. • Install changeable message boards one month in advance of construction to advise drivers about the closure and inform drivers of future traffic impacts. • Assign traffic officers to assist in directing vehicular traffic and pedestrians, as necessary. • Contract a public relations firm to help relay information about construction to residents and community members. • Coordinate with the City of Los Angeles Department of Transportation and Caltrans staff to request that the following measures be taken: • Implement Automated Traffic Surveillance and Control /Adaptive Traffic Control System (ATSAC /ATCS) improvements at signalized intersections located in Santa Monica Canyon. ATSAC /ATCS monitors traffic conditions in real time and adjusts signal timing to reduce vehicular delay. • Install cameras to monitor traffic in Santa Monica Canyon and adjust signal timing based on traffic volume, as necessary. • Monitor traffic along PCH in real time using existing cameras. 7 • Install detour signage (both permanent and changeable message boards) at least one month in advance of the construction start date along U.S. 101 and 1 -10 to notify drivers about the closure of the Incline and potential traffic delays. • Link traffic monitoring data to detour signage to inform motorists of real - time traffic conditions and travel times. • Provide City of Los Angeles traffic officers in Santa Monica Canyon, as required. • Form a subcommittee of the existing PCH Partners that would include the City of Santa Monica, City of Los Angeles, Caltrans, and other appropriate agencies /organizations to further refine specific details of the Traffic Management Plan prior to commencement of construction. • Contact online mapping companies for information regarding detour routes and real -time traffic conditions. Additionally, other traffic detour routes were considered including the opening of Appian Way to motorists as a temporary detour /exit into Santa Monica from southbound Pacific Coast Highway. Although this improvement might reduce traffic demand at Moomat Ahiko Way and Ocean Avenue, it would add traffic to the residential areas fronted by Appian Way and Seaside Terrace and cause adverse impacts at unsignalized intersections along Appian Way, Ocean Avenue, and Pico Boulevard. Additionally, opening Appian Way would not be more effective in discouraging motorists from using alternative routes such as Channel Road /Entrada Drive and given its capacity. Moomat Ahiko Way was determined to be more appropriate since it is a high- capacity street. Several comments received addressed the length of the estimated 12 -18 month construction period and suggested construction to occur 24 hours per day, seven days per week. However, comments from nearby residents expressed concern over construction noise occurring late at night if construction was to occur 24 hours per day. Construction hours per the Santa Monica Municipal Code are from 8 a.m. -6 p.m., Monday- Friday, and 9 a.m. -5 p.m. on Saturday, with additional construction hours subject to the approval of an after -hours construction permit. Balancing the goal of expediting the project with minimizing impacts to nearby residents, particularly during sleeping hours, staff proposes pursuing an after -hours work permit so that work can r:3 take place between 7 a.m. and 10 p.m., Monday through Friday, and 7 a.m. -9 p.m. on Saturday. This would allow two construction work shifts per day, six days per week which would expedite construction by roughly 25 percent above the option of working during standard City construction hours only and eliminate construction noise between 10 p.m. and 7 a.m. Also, staff would pursue incentive /disincentive contracting methods within federal guidelines for the construction contract. These methods typically consider the value of time when determining the lowest responsible bidder and provide financial incentives for early completion and disincentives for late completion based on the cost of user delay. These contractual methods would help ensure that construction is completed as quickly as possible; however, these methods must be approved by Caltrans. Staff will work with the them on securing the approvals. The Final EIR /EA studied two alternatives — The No -Build Alternative and the Build Alternative, Design Option 2, Precast Slab Bridge Spanning Longitudinally. The No- Build Alternative would not result in the construction - related impacts identified in the FEIR /EA. However, this alternative is not feasible, in part, since continued deterioration of the California Incline could render it unusable as a vehicular, pedestrian, and bicycle bridge and it would continue to pose a hazard to motorists and pedestrians in the event of a major earthquake. As detailed previously, the Build Alternative would have similar environmental impacts during construction and operations as the proposed project but could not be completed as quickly as the proposed project. Three other design options were rejected and not carried forward in the Final EIR /EA. The alternatives of constructing the California Incline at a different location or rehabilitating the bridge were similarly rejected. Due to the significant and unavoidable impacts of the project, approval of the proposed project would require the City Council to adopt a Statement of Overriding Considerations. The benefits of the project which outweigh its unavoidable environmental impacts are detailed in an attached resolution and include: 9 • Correcting the California Incline's structural and seismic deficiencies • Improving the geologic integrity of the upper bluffs on the California Incline • Improving the safety of multi -modal uses of the California Incline • Ensure that access to year -round revenue generators are not compromised • Maintain direct bicycle and pedestrian system connections To complete the environmental review phase of this project, it is recommended that the City Council certify the Final EIR /EA, and adopt a Statement of Overriding Considerations and a Mitigation Monitoring and Reporting Plan and make the necessary CEQA findings. Caltrans (NEPA lead agency) has reviewed the Final EIR /EA and issued a Finding of No Significant Impact on April 27, 2012. Modification to Professional Services Agreement In order to complete the final design, staff recommends a fifth modification to Professional Services Agreement No. 7148 (CCS) with Wallace, Roberts & Todd in the amount of $1,256,000 to provide project management, structural, civil, traffic and geotechnical services for the completion of construction documents. Staff anticipates that final construction documents would be completed in summer 2013 and construction would begin in the fall /winter of 2013 and would last 12 to 18 months. Financial Impacts & Budget Actions The Federal Highway Administration (through Caltrans) is reimbursing the environmental review process and design phase at a rate of 80- percent federal funds to 20- percent local funds. The agreement modification to be awarded to Wallace, Roberts & Todd is $1,256,000, for a new agreement total of $2,581,799. The City anticipates receiving grant approval of $1,004,801 in Highway Bridge Replacement and Rehabilitation Program funds in FY 2012 -13. Currently, this grant cost adjustment request is being processed by Caltrans and approval is expected in fall 2012. Funds in the amount of $800,000 are included in the FY 2012 -13 Capital Improvement Program budget at account 10 C200652.589000. Staff will add a revenue budget to recognize grand funds reimbursement at a later date. Award of the agreement modification requires an additional appropriation of $204,801 to account C200652.589000 to equal the 80% grant contribution. All funds in account 0200652.589000 are Federal grant funds which will be reimbursed to the City upon completion of the work. If $204,801 is appropriated, total funds would be included in the FY2012 -13 CIP budget at the following accounts: Account Source of Funding Amount 0010685.589000 Palisades Bluffs Stabilization $ 51,200 0010652.589000 California Incline — Bridge Replacement $ 200,000 C200652.589000 California Incline — Bridge Replacement $ 1,004,800 TOTAL: $ 1,256,000 Prepared by: Zach Pollard, Associate Project Manager Approved: Forwarded to Council: Rod Gould City Manager Attachments: A — Resolution Certifying EIR B —Part 1: EIR /EA; Part 2: Technical Reports C — Resolution Adopting a Statement of Overriding Considerations and Mitigation Monitoring and Reporting Plan and Making Necessary CEQA findings 11 Part k w , t M document also .A hard copy of this available a The e i Clerk's Office. Reference Resolution Nos. 10695 (CCS), 10696 (CCS) and Amended Contract No. 7148 (CCS)