SR-11-27-2012-8BCity of City Council Report
S4111ta Monica
City Council Meeting: November 27, 2012
Agenda Item:
To: Mayor and City Council
From: David Martin, Director of Planning and Community Development
Subject: Discussion of Concept Plans for a proposed Development Agreement at
3402 Pico Boulevard by TC Pico Development, LLC
Recommended Action
Staff recommends the City Council:
1. Discuss the applicant's Development Agreement proposal and provide direction
regarding the appropriateness of the site development and potential community
benefits;
2. Initiate the Development Agreement negotiation and review process between the
City and Developer.
Executive Summary
Trammell Crow Company (TC Pico Development, LLC) is proposing that the City
consider a Development Agreement to permit a new mixed -use project at 3402 Pico
Boulevard. The project involves the construction of four new buildings ranging between
two and four stories in height that would include a total of 260 residential units,
approximately 2,999 square feet of ground floor commercial area, and approximately
505 parking spaces within a two -level subterranean parking garage. The project site
consists of three contiguous parcels with a total of 112,056 square feet located on the
south side of Pico Boulevard between 34th Street and Centinela Avenue. The site is
currently developed with a vacant three -story office building facing Pico Boulevard and
34th Street, surface and below -grade parking, and a vacant cluster of residential units
facing Centinela Avenue.
Pursuant to the City's Interim Zoning Ordinance No. 2407 (CCS) ( "IZO "), this project
requires approval of a Development Agreement as it is a Tier 3 project based on
portions of the proposed project reaching 47 feet in height. Tier 3 level projects in the
subject land use designation are buildings that exceed 36 feet in height.
The proposed residential and neighborhood - serving commercial uses are consistent
with the C2 (Neighborhood Commercial) and R2 (Low Density Multiple Residential)
zoning and Mixed -Use Boulevard Low and Low Density Housing land use designations.
Project compliance is limited to the Land Use and Circulation Element, while other
aspects of the project such as density, height, parcel coverage, floor area ratio,
setbacks, and other standard zoning requirements would be established by the
Development Agreement.
The applicant has worked with staff to modify the proposal by reducing the overall
project density and improving the project design to better fit within the neighborhood
context and would continue to further modify the proposal in response to Council's
comments.
Staff recommends that the Council focus on the following items in considering this
matter and provide comments on:
a. Appropriateness of the project as a Development Agreement;
b. Compatibility with the neighborhood context;
c. Consistency with the Land Use and Circulation Element;
d. Consideration of alternatives;
e. Identification of negotiating points;
f. Discussion of desirable community benefits.
If a Development Agreement is initiated, the negotiations between the applicant and the
City should:
1) Achieve a building density, layout, and design with uses that are consistent with
the LUCE, with an emphasis on ground floor pedestrian orientation and uses,
building mass, scale, and neighborhood compatibility of new construction.
2) Identify community benefits including but not limited to new affordable and
workforce housing, physical improvements to create connections and open
space, and social and cultural facilities.
3) Identify Transportation Demand Management measures to reduce single -
occupant vehicle trips.
Background
The project site consists of three contiguous parcels with a total of 112,056 square feet
located on the south side of Pico Boulevard between 34th Street and Centinela Avenue.
Approximately one -third of the site, at the north end, is located in the C2 Neighborhood
Commercial district, and the remainder of the site,is located in the R2 Low Density
Multiple Residential district. The site currently contains an existing three -story office
building that formerly housed the National Academy of Recording Arts and Sciences at
the northwest corner of the site and 11 vacant multi - family residential units located at
the southern end of the site.
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Project site — 3402 Pico Boulevard
Existing front elevation along Pico Boulevard
Discussion
Development Agreements are negotiated contracts between the City and an applicant
that specify the design details and requirements of a project. The purpose of this review
(float -up) is to enable a pro- active preliminary discussion with the City Council regarding
the proposed land use, project design, compatibility, and potential community benefits
of the project, and to evaluate whether the City desires to enter into a Development
Agreement. The Council's recommendations will inform staff and the developer on
project development and development agreement negotiations.
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Project Description
The proposed conceptual project involves four separate buildings ranging between two
to four stories in height with 260 residential units, approximately 2,999 square feet of
ground floor commercial space along Pico Boulevard, and 505 parking spaces within a
two -level subterranean parking garage. Vehicular access to the subterranean parking
garage would be provided along 34th Street and Centinela Avenue. The originally
proposed project design for the DA application included 300 units, 5,000 square feet of
commercial space, and 554 parking spaces.
PICC
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Conceptual site plan — Planning Commission float -up
In response to concerns by the Planning Commission, staff, and community regarding
the proposed project density, the applicant has reduced the scope of the project by
eliminating 40 residential units, approximately 2,000 square feet of commercial floor
area, and 49 parking spaces.
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The proposed 260 residential units would be as follows:
• 74 studio units
O 109 one - bedroom units
• 59 two- bedroom units
• 16 three - bedroom units
27 units (or 10.4% of the total units) are proposed as very-low income affordable units.
Site Location and Neighborhood Context
The project site is located on the south side of Pico Boulevard between 34th Street and
Centinela Avenue at the east end of the City adjacent to the border with the City of Los
Angeles. Adjacent uses along 34th Street include one and two -story multi - family
residential buildings located to the south of the project site transitioning to
predominantly single - family residences further south. One and two -story commercial
uses are located along Pico Boulevard to the west. An elevated portion of the Santa
Monica Freeway is located to the north and east, and a three -story affordable housing
project is located adjacent to the south on Centinela Avenue. A new 95 -unit mixed -use
building is currently under construction on the northeast corner of Pico Boulevard and
Centinela Avenue in the City of LA. The project site is served by existing public
transportation with two Big Blue Bus lines and three MTA bus lines servicing Pico
Boulevard. The anticipated Expo Line Bundy station will be located within a half -mile of
the project site. Bike facilities are also located along Pearl Street, Stewart Street, and
28th Street.
Review of Conceptual Building Desiqn
The heights of the buildings range between two and four stories and are designed so
that the highest portions are located adjacent to the freeway and within the center of the
project site. The buildings are designed to transition in height, with the lower buildings
placed towards the south adjacent to existing neighboring two and three story buildings.
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PICO BLVD
FLOOR RETAIL
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BUILDINGA '
BUILDING B
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Revised site plan — City Council float -up
Building 'A', facing Pico Boulevard and an elevated portion of the Santa Monica
Freeway, is currently proposed at four stories with a height of 47 feet. Approximately
2,999 square feet of ground floor commercial space would be located adjacent to Pico
Boulevard with studio and one - bedroom units located on all four floors.
Building 'B' is located along 34th Street with portions of the building containing four
stories at a height of 47 feet towards the interior of the site and portions containing three
stories along 34th Street and adjacent to existing residential buildings to the south.
Building 'B' would contain one and two - bedroom units.
Building 'C' is located towards the center of the site with the end of the building fronting
Centinela Avenue. The majority of the building contains four stories at a height of 47
feet with the southern portion of the building at three stories in height. Studio, one-
bedroom, and two- bedroom units would be located within Building 'C'.
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Building `D' would contain 16 three - bedroom units within a two -story building that would
measure 30 feet in height due to a mezzanine level between the stories. The four
buildings would be separated by a series of landscaped open spaces and pathways.
During float -up review of the project, the Planning Commission, staff, and community
expressed concerns with the project's density and design. The proposed number of
units (300) was generally regarded as being too high, while the massing of the project
was regarded as being too large and inconsistent with the pattern of existing
development found in the primarily residential neighborhood. In response to staff and
Commission comments, the applicant re- evaluated the initial project design and revised
the project's design concept. The current proposal includes 40 less units, or 260 total,
and redesigned features as shown on the revised floor plan shown on the following
page. Further, the applicant has expressed a willingness to continue to work with staff,
the community, Planning Commission, and the Council to further develop and refine
these concept plans. Below is the project's initial first floor plan, followed by the revised
drawing of the new conceptual first floor plan.
Initial first floor plan — Planning Commission float -up
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plaza / ,` Additional 5' setback
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New 3 w ® " ''' planted above non -
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Revised first floor plan — City Council float -up
An architectural design style has not yet been identified during this conceptual phase of
the process, and specific design features, colors, and materials have not been provided.
The heights of the buildings range between two and four stories (30' — 47') and are
designed so that the highest portions are located adjacent to the freeway and within the
center of the project site. The buildings are designed to transition in height and be lower
towards the south adjacent to existing neighboring two and three story buildings
including the use of upper -level stepbacks on the fourth floor. Staff would continue to
work with the applicant to foster a design style that is unique but fits within the primarily
residential context and development pattern of the neighborhood.
Preliminary Design Comments
Overall architectural design discussions between the applicant and the City design team
have been kept to a general level during the conceptual phase of the proposed project.
The applicant has not identified any specific architectural design styles or features at
this early point in the process. Comprehensive project plans would be refined during the
Development Agreement process based on direction from staff, Planning Commission,
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Larger
usable open
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space area
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Revised first floor plan — City Council float -up
An architectural design style has not yet been identified during this conceptual phase of
the process, and specific design features, colors, and materials have not been provided.
The heights of the buildings range between two and four stories (30' — 47') and are
designed so that the highest portions are located adjacent to the freeway and within the
center of the project site. The buildings are designed to transition in height and be lower
towards the south adjacent to existing neighboring two and three story buildings
including the use of upper -level stepbacks on the fourth floor. Staff would continue to
work with the applicant to foster a design style that is unique but fits within the primarily
residential context and development pattern of the neighborhood.
Preliminary Design Comments
Overall architectural design discussions between the applicant and the City design team
have been kept to a general level during the conceptual phase of the proposed project.
The applicant has not identified any specific architectural design styles or features at
this early point in the process. Comprehensive project plans would be refined during the
Development Agreement process based on direction from staff, Planning Commission,
K
and City Council pertaining to the project's design, scale, pedestrian orientation, and
streetscape design.
However, the following initial design issues are identified below to help guide the
Council's discussion and comments:
• Gateway Presence: The project serves as an entry presence for motorists and
pedestrians entering west into Santa Monica along Pico Boulevard. The
proposed project should address, through form and design, shaping this gateway
opportunity.
• Massing: The subject lot is considerably larger than the surrounding properties.
The massing of the project, particularly along 34th Street and its existing one and
two -story multi - family residential buildings, should be broken up to be consistent
with the width of the parcels and residential buildings in the adjacent areas.
Building heights for the project should transition with the existing adjacent
residential and commercial buildings, and open space areas should be
incorporated. The applicant has revised the plans, most notably Building 'B'
along 34th Street, to break up the mass of the previous building design. The
revised design utilizes an open courtyard facing 34th Street, creating building
fagade widths that are more consistent with the existing development pattern
along 34th Street.
• Setbacks and Step- backs: While the proposed project is still in its conceptual
design phase, use of setbacks, step- backs, and mass modulation (i.e. breaks in
plane, changes in material, variety of design, etc.) should be considered. The
applicant has revised the plans to set back Building 'B' nine feet from the
property line to be more consistent with the existing development pattern along
34th Street. The applicant has also increased the setback between Building `A'
and the freeway by five feet allowing for additional landscaping between the
building and the freeway.
• Fagade and Building Plane Quality and Interest: Building facades should create
interest through purpose and function, while considering existing building planes,
heights, and surrounding design features, and have a sense of internal interest
created through the use of materials, design modulation, and /or articulation. The
facades of the proposed project should have a sense of quality and interest, in
part, created through detailing of a base, middle, and top.
• Pedestrian - Orientation: The ground floor design along Pico Boulevard should
establish a strong relationship with the sidewalk and pedestrians. Particular
attention should be paid to the Pico Boulevard /34th Street corner and how it
wraps around from Pico Boulevard to 34th Street. Active uses and building entries
should be located adjacent to the sidewalk. Blank walls at the ground floor should
be avoided. Residential unit entries along 34th Street should be considered to
reinforce the existing streetscape environment. The applicant has set back
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Building V from the 34th Street property line and reoriented the building to
provide a courtyard facing the street. However, the focus of the project design is
predominantly inward - oriented towards the internal open spaces, and any
opportunities to further open the project towards the streets and create
permeability into the site are encouraged.
• Ground Floor Commercial Component: Neighborhood - serving ground floor
retail /food /drink establishments that could cater to pedestrians and tenants of the
project would contribute to enhancing the pedestrian experience. The applicant
has created a larger pedestrian plaza at the corner of Pico Boulevard and 34th
Street adjacent to the commercial space.
Parking I Vehicular Access
The two -level subterranean garage would span over all three parcels, and is currently
designed with access from 34th Street and Centinela Avenue. The garage would provide
approximately 505 vehicular parking spaces for residential tenants and commercial
guests. Pursuant to City Parking Standards, the project requires approximately 415
parking spaces and is therefore compliant with parking standards. A Transportation
Demand Management plan would be established that would reduce the parking demand
generated by the project. The Council should consider whether public or a potential
shared parking arrangement at this location would be appropriate.
Planning Commission Action
The Planning Commission conducted a public hearing on this proposal on July 18,
2012. The Planning Commission voted to recommend that a Development Agreement
be formally initiated, with the recommendation that the Council focus particularly on the
Commission's concerns related to project density, design, and the relationship of the
proposed project to vehicle trip generation. The Planning Commission's discussion is
summarized below.
Project Density and Trip Generation
The Planning Commission recognized the uniqueness of the large project site and its
location but believed the proposed density of 300 units was too high for the subject site.
Suggestions of a maximum density of approximately 100 units per acre were proposed,
but was not a majority viewpoint. The applicant's reduction of the project density to 260
units represents a revised density approximately equal to 100 units per acre density.
Concerns regarding the relationship of the project density and potential traffic impacts
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and trip generation were also raised with the understanding that a full traffic analysis
would be conducted during the preparation of an Environmental Impact Report.
Project Design
The Commission expressed that the building design and massing could be improved,
and along with it, the perceived density of the project. The Commission stated their
concern with the massing of the proposed project, particularly with Building 'B' along
34th Street. The massing of Building 'B', with no setback from the property line, created
an expansive four -story fagade fronting 34th Street with no breaks in building plane or
visual permeability into the site. In response, the applicant has set the building back
nine feet from the property line and created an open courtyard facing 34th Street,
breaking up the building massing and creating building fagade widths and openings that
are more consistent with the existing development pattern of residential buildings along
34th Street. The Commission was also concerned with the proximity of Building 'A' to the
freeway. Based on the Commission's feedback, the applicant has set back Building 'A'
five additional feet from the property line to allow for the planting of landscaping and
creating a 19 -foot separation between the building and the freeway at its closest point.
The Commission also recommended additional open space throughout the project. The
applicant has addressed this comment by reconfiguring the interior of the site to provide
a larger usable central open space in addition to the exterior courtyard facing 34th
Street.
LEED Certification
The Commission recommended that the project be designed and constructed to
achieve a minimum LEED@ Gold Certification.
Community Benefits
The LUCE identifies five priority categories of community benefits: Affordable and
Workforce Housing, GHG Emissions and Future Congestion Reduction Requirement,
Community Physical Improvements, Social and Cultural Facilities, and Historic
Preservation. Considering these categories, the following is an additional baseline list
of potential community benefits to initiate the Council's discussion on this topic:
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1. Affordable Housing: The provision of on -site affordable housing beyond the
minimum required by the project would be considered a community benefit.
2. Transit Impact Fee Contribution: A provision of a transportation and circulation
infrastructure contribution to the City that would support a range of transportation
and pedestrian improvements. However, the Council is currently considering
implementing a required Transit Impact Fee for new projects such as the subject
project, at which point such a contribution would no longer be considered a
community benefit.
3. Urban Design / Physical Improvements: Considering the project is located at a
gateway location at the east end of the City and on a street corner that would
have considerable pedestrian activity, providing additional space for pedestrian
access and passive use of the property would improve the existing sidewalk
conditions and pedestrian circulation adjacent to and off of the subject site. The
provision of open spaces on the perimeter and within the project site would also
benefit the project and community.
4. Neighborhood - Serving Ground Floor Commercial: Establishment of small - scale,
neighborhood - serving ground floor commercial uses available to the public and
tenants of the project would be considered a community benefit.
5. LEEDO Gold Certification: Developer should design and construct the project to
achieve a minimum LEEDO Gold certification as established by the LEEDO
Rating System.
6. Transportation Demand Management Program: The program may include, but
not be limited to, the following measures:
Secured bicycle parking for residents and employees, including shower and
locker facilities for employees.
• Shared bicycle program that would include available bicycles on -site that
could be utilized (at no cost) by tenants.
• A transportation information center with information for employees, tenants,
and visitors.
• Developer participation in a Transportation Management Association (TMA).
Vehicle sharing technologies made available to occupants of the project.
Shared parking.
7. Local Hiring Provision: A local hiring provision to facilitate the hiring of local
workers during construction and commercial employees could be negotiated
A number of community benefits were discussed and suggested at the Planning
Commission and community meeting. The following is a list of suggested community
benefits provided by the Planning Commission and members of the community:
• Improvements and contributions to neighboring schools
• Contributions to historic preservation
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• Contributions to parks
• A new police substation in the neighborhood
• Reduced parking spaces and increased bike facilities and storage
• Pedestrian considerations including off -site improvements for pedestrians and
improvements to pedestrian infrastructure towards the future Expo /Bundy Metro Rail
station
• Alternative transportation opportunities
• More usable green open spaces and or park space for neighborhood residents
• Accessible green roofs, gardens, and roof decks
• A running track on the roof
• Free parking to limit impacts to street parking
• Community pool /gym access
The project's community benefits would be negotiated during the Development
Agreement process based on comments and direction from the Planning Commission
and City Council. Staff recommends that the Council consider the adequacy and level
of potential benefits to be negotiated in this process.
Community Meeting and Public Input
On January 26, 2012, approximately 80 members of the public attended an initial
community meeting at the Fairview Branch Library to learn about and provide feedback
on the proposed project. City staff explained the Development Agreement process to
the participants and how the project is in the initial phases of conceptual review. After a
detailed project presentation by the applicant, the majority of the meeting was spent
allowing members of the community to provide their initial thoughts on the project. Most
of the comments were related to concerns with the project's density, height, potential
traffic impacts, and the need for adequate community benefits to be provided.
Zoning Ordinance and LUCE Consistency
The LUCE sets goals and policies to guide development within the City over the next
20 -30 years and emphasizes neighborhood conservation and vehicle trip reduction.
Encouraging compact, transit - oriented growth and new housing is integral while
conserving the scale and character of the City's neighborhoods.
The majority of the project site is located in the Mixed Use Boulevard Low land use
designation, and a small portion is located in the Low Density Housing designation. The
LUCE vision for the Mixed Use Boulevard Low land use designation seeks to encourage
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vibrant, highly walkable areas and local- serving uses. New buildings should step down
in relationship to the scale and character of adjacent low density neighborhoods and
include a diverse mix of uses and housing types designated to complement and serve
the existing residential neighborhood. The Low Density Housing designation
encourages the preservation of low- density housing. New development should transition
in mass and scale to adjacent structures in a way that protects the aesthetics and
livability of the neighborhood.
The proposed Development Agreement must be consistent with the objectives, policies,
general land uses and programs specified in the general plan. The project is consistent
with LUCE Policy LU11.1 in that providing a range of housing choices to meet the
needs of residents continues to support healthy, diverse neighborhoods. Policy B18.4
encourages buildings with a variety of heights, architectural elements, and shapes to
create visual interest along Pico Boulevard. Policy B18.10 encourages affordable and
workforce housing in proximity to transit and major employment centers. The project is
also consistent with Policy N1.8 to make a range of housing options available in multi-
family neighborhoods to suit the spectrum of individual lifestyles and space needs.
These LUCE goals and policies should be considered when shaping the proposed
project.
The implementation of a Transportation Demand Management (TDM) plan to reduce
vehicle trips in the area and reduce associated parking demand would be consistent
with LUCE Circulation Policy T19.2 which seeks appropriate TDM requirements for new
development. Furthermore, the LUCE's overall land use policies include providing
community benefits for the area, including but not limited to, a transit and circulation
improvement contribution and a TDM plan that provides bicycle facilities for employees.
Staff recommends that the Council focus on the following project - related areas
1. Whether the proposed unit density, building mass, size, and scale is appropriate
for this location and within the neighborhood context.
2. How the commercial ground floor along Pico Boulevard should be designed for
this corner lot and the types of uses that are appropriate considering the types of
uses and users in the general area.
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3. Whether the project design is consistent with LUCE policies to enhance the
quality of the streetscape and create an open space environment that
encourages pedestrian activity and interaction.
4. Discussion on community benefits that would be appropriate for this project. The
Council should discuss community benefits to be negotiated, given the proposed
development.
Alternatives
In place of the recommended action, the Council could consider the following with
respect to the project:
Continue discussion with the applicant regarding additional project options.
Financial Impacts & Budget Actions
There are no immediate financial or budget impacts associated with the actions
recommended in this report.
Prepared by: Tony Kim, Senior Planner
Approved:
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David Martin, Director
Planning and Community Development
Attachments:
A. Preliminary Concept Plans
B. Public Correspondence
Forwarded to Council:
Rod Gould
City Manager
F: \CityPlanning\ Share \COUNCIL\STRPT\2011 \11 DEV017 (DA - 3402 Pico Blvd) \3402 Pico Blvd (CC Float - Up).doc
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ATTACHMENT A
Preliminary Concept Plans
Electronic version of attachment is not available for review. Document is
available for review at the City Clerk's office and the Libraries.
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ATTACHMENT B
PUBLIC CORRESPONDENCE
Electronic version of attachment is not available for review. Document is
available for review at the City Clerk's office and the Libraries.
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Attachment B available for
review in the City Clerk's
Office.