SR-07-09-2013-8ACity Council Meeting: July 9, 2013
Agenda Item: a -v4
To: Mayor and City Council
From: David Martin, Director of Planning and Community Development
Subject: Downtown Specific Plan CEQA Analysis Parameters
Recommended Action
Staff recommends that the City Council review and discuss development concepts and
strategies for the Downtown Specific Plan (DSP) described herein, and
1. Review and select the height and density parameters to be studied as part of the
Program Environmental Impact Report (PEIR) as follows:
• For the majority of the downtown: Study minimal changes from existing
standards with maximum Tier Two heights of 50 to 60 feet and maximum Tier
Three heights of 76 to 84 feet and FARs from 2.5 to 4.0 as presented to the
Planning Commission on January 23, 2013
• For the eight opportunity sites: Study maximum FAR of 2.5 to 4.0 and several
height scenarios that would analyze a range of heights for the opportunity sites
including:
• Up to a maximum of 84 feet as permitted under current regulations
• Maximum heights consistent with the majority of the downtown as presented
to the Planning Commission on January 23, 2013
• Maximum heights of 120 to 135 feet specific to location
2. Direct staff to proceed with preparation of the PEIR based on Council input using
the height and density options proposed in this report, or as revised by Council, as
the basis for the project description required to commence CEQA analysis.
Executive Summary
This report recommends definition of the height and FAR parameters for the CEQA
project description of the Downtown Specific Plan (DSP). The DSP intends to preserve
the existing character where it succeeds, identify areas where change would be
beneficial, and propose options for enhancement and integration of light rail. For the
majority of the downtown, the proposed DSP would make limited changes to the
existing maximum downtown height and FAR standards set by the 1984 General Plan
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and the 1996 Bayside District Plan, maintaining the current permitted profile for 90% of
the district. The DSP would also define parameters for the LUCE identified development
focus areas (Attachment A, LUCE Goal D1.5), that could allow an expanded
development envelope with the provision of exceptional community benefits. The DSP
refines these focus areas to eight specific sites, titled "Opportunity Sites ", because of
their unique ability to provide opportunities for the City to accomplish important policy
objectives towards affordable housing, creation of additional open space, cultural
facilities, preservation of historic resources, congestion mitigation, and sustainability
measures for ongoing reduction in greenhouse gas emissions.
Staff recommends that a range of height and density scenarios for the eight opportunity
sites be analyzed to provide decision makers with the necessary information for
understanding the tradeoffs of different height scenarios in relation to possible
community benefits. This report requests that Council consider the height and FAR
presented to the Planning Commission on January 23, 2013 and the range of options
for maximum height and FAR on eight opportunity sites as discussed herein.
Staff recommends that that the PEI include the following analysis:
o For the majority of the downtown: Study minimal changes from existing
standards with maximum Tier Two heights of 50 to 60 feet and maximum Tier
Three heights of 76 to 84 feet and FARs from 2.5 to 4.0 as presented to the
Planning Commission on January 23, 2013
o For the eight opportunity sites: Study maximum FAR of 2.5 to 4.0 and several
height scenarios that would analyze a range of heights for the opportunity sites
including:
• Up to a maximum of 84 feet as permitted under current regulations
• Maximum heights consistent with the majority of the downtown as presented
to the Planning Commission on January 23, 2013
• Maximum heights of 120 to 135 feet specific to location
In addition the PEIR would include analysis of a no change to existing regulations
scenario, (1984 General Plan, 1996 Bayside District Specific Plan and 2010 LUCE for
Mixed -Use Boulevard) required under CEQA as the "no project' alternative.
CEQA regulations require a stable project description to commence environmental
review. Major components of the DSP have been defined through hearings before the
Planning Commission and City Council, including Tier 1 -3 development standards
identifying the height and FAR parameters for over 90% of the project area (excluding
opportunity sites), as well as uses, open space and circulation elements. By making
recommendations on height and FAR for the opportunity sites, the Council will complete
the DSP project description in a manner sufficient to proceed with CEQA analysis.
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This approach allows for a rigorous and district -wide comparison of different proposed
opportunity sites height and density scenarios within the context of the whole downtown.
The CEQA document would address any potential impacts through a comprehensive
mitigation program, and consideration of project alternatives. Following Council
direction, the DSP team will proceed with CEQA review including the formal scoping
process to be followed by the circulation of a draft PEIR for public comment and agency
response.
In addition, this report updates the Council on the ongoing DSP process, including
numerous stakeholder interviews, public discussions with boards and commissions, four
community workshops, and Planning Commission, Landmarks Commission and City
Council meetings.
Background
Downtown was included in the 4% of the City identified in the LUCE as appropriate for
new housing, cultural, commercial and jobs uses because it is well served by transit and
new projects could be less reliant on automobile trips for success. The particulars under
consideration as part of the DSP address:
o Integrating the expanded downtown boundaries,
o Optimizing access to the Expo station, and
o Refining and shaping the eight areas that the LUCE identified as places to
focus new development and achieve exceptional community benefits.
Downtown development is currently governed by an Interim Ordinance, the 2010
adopted General Plan, and the current Zoning Ordinance ( "Current Zoning "). The City
Council adopted an Interim Ordinance to establish interim development procedures until
the LUCE could be fully implemented with the adoption of the Downtown Specific Plan
and Zoning Ordinance Update. The interim ordinance requires that all projects in the
Downtown over 32 feet be processed through a development agreement. Development
agreement projects are governed by the 2010 LUCE, and on issues which the LUCE
deferred, the existing Bayside District Plan and applicable land use designations of the
1984 Land Use Element. The existing Zoning Ordinance continues to establish the
development standards for projects fewer than 32 feet that do not require a
development agreement.
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Community Outreach: The DSP process to date has included numerous stakeholder
interviews, public hearings and discussions with various boards and commissions and
the City Council to develop a vision for the future of the downtown, (all materials are
located at DowntownSMplan.org), in chronological order:
• January 11, 2Q12 — Introduction of Team and Strategy: Introduction of the project
team, approach and schedule, and implementation of the LUCE strategies.
(Planning Commission)
• January 26, 2012 — Initial concepts, Emerging Themes: Community meeting on
initial themes for early input and an update on 4th /5th and Arizona site and the
community priorities identified in the visioning process (Community Meeting)
• February 28, 2012 —DSP Emerging Themes and Existing Conditions Analysis:
Council discussion of emerging themes from community outreach and analysis of
existing conditions, including the focus on walkability as critical to the success of
the downtown, and the necessity of multi -modal circulation improvements to
address existing conditions and support the integration of light rail. (City Council)
• March 28, 2012 — Development Standards (Setbacks Frontages and the Public
realm): Discussion of preliminary design guidelines related to building frontages,
including introduction of frontages and public realm strategies to support a lively
pedestrian environment with a focus on specific strategies for Lincoln Boulevard.
(Planning Commission)
• July 11, 2012 — Community Benefits: Prioritization of community benefits for the
downtown, refining broad LUCE categories to more specific downtown elements,
introduction of frontages and public realm strategies to the community, and
opportunity site criteria: (Community Meeting /Planning Commission hosted)
• December 5, 2012 — Introduction to Urban Form. Gateways and Points of
Interest: Urban design strategy, enhancing and preserving downtown Santa
Monica's character, light and air, initial concepts for location of open spaces,
cultural resources, "gateways" and points of interest to identify a specific urban
form defined by points of interest and enhancing the lesser -used entrances into
the downtown. (Community Meeting /Planning Commission hosted)
January 23, 2013 — Tier 1, 2 & 3 Height and Density Initial concepts for urban
form including detailed FAR and height analysis for all subareas in the
downtown), implementing the LUCE tiering system in the downtown, simplifying
FAR calculations to include previous housing bonus discounts, and including
open space and cultural infrastructure networks to enhance the pedestrian
experience. (Planning Commission)
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• March 6 2013 — Circulation Concepts: Discussion of the circulation projects
underway in the downtown, and the multi -modal network improvement options
under consideration in the DSP, including specific concepts for opportunity site
circulation to integrate into existing network as well as options for additional
streets located on opportunity sites. (Planning Commission)
• March 11, 2013 — Historic Resources: Discussion of Historic Resources and
potential downtown strategies for incentivizing preservation of historic character
and buildings listed on the inventory but not landmarked. (Landmarks
Commission)
• May 6, 2013 —Open Discussion on Urban Form: Town Hall discussion on urban
form and opportunity site considerations. (Community Meeting /Planning
Commission hosted)
In addition to these meetings, the City Council has had a number of discussions about
critical efforts in the downtown which have informed the DSP concepts under
consideration, including: Expo betterments including the downtown station on January
24, 2012, discussion of The Colorado Esplanade on Feb 14, 2012 and May 14, 2013,
the Interim Parking Plan on July 10, 2012, Study Session on the Downtown In -lieu
Parking Fee on September 11, 2012, and LUCE Circulation Implementation Update on
February 12, 2013.
Downtown Santa Monica Inc. has hosted a number of publicly noticed meetings to
educate the DTSM Board on the objectives, requirements and process of a specific
plan, so they could make informed recommendations on the DSP. Staff has also met
with a group of representatives from the City's neighborhood organizations and has
offered to meet individually with each neighborhood group.
The community outreach, Commission and Council discussions have generated the
following themes:
1) Walkability is a priority; pedestrian comfort and well -being is primary to downtown's
character and competitive advantage.
2) Light rail will broaden transportation
Creating the appropriate station access
downtown.
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choices, presenting new opportunities.
is critical to the future success of the
3) Cultural and creative opportunities belong in the downtown. Increasing creative
and cultural opportunities was a consistent goal for enhancing the downtown and
diversifying resources and attractions.
4) It will be important for the DSP to anticipate future economic trends and address
demand for creative office and daily needs of the growing residential and visitor
sector.
5) A few sites in downtown are capable of accommodating significant community
benefits such as affordable housing, open space, additional public parking, cultural
resources, and reuse or preservation of historic resources.
6) There are differing opinions regarding the right balance for the development focus
sites identified in the LUCE. Community input indicates that there is less concern
about tall buildings near the freeway and east of the historic core, and that there is
significant concern that large buildings along Ocean Avenue could alter the
character of the City.
Discussion
Overarchinq Downtown Urban Form: Preservation and Enhancement Santa Monica
has a successful downtown which is a regional draw for retail and beach patrons and an
international, national and statewide destination for tourists. The LUCE envisioned the
continued success of Santa Monica's downtown to include a vibrant transit rich district
with full integration of the light rail and improved linkages to the Civic Center and the
beachfront. The DSP intends to preserve the successful existing character, identify
areas where change would be beneficial, and propose options for enhancement that
incorpoate optimal light rail access.
The LUCE expanded the downtown to include the east side of Lincoln Boulevard to
Ocean Avenue and the north side of Wilshire Boulevard to the 1 -10 Freeway. The
strategies presented to the Planning Commission at the January 23, 2013 meeting are
based on an in -depth analysis of the existing street characters and sub -areas in the
downtown, and designed to support a range of architectural modulation. The graphic
below illustrates the DSP considerations for enhancements to the urban form:
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Potential opportunity
for infill residenfiai
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Improve walkability
through wider
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space, and other
strategies with new
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1984 Downtown
boundaries
• As the downtown expands eastward, developments on Lincoln Boulevard require
improved walkability. New public parking opportunities must be strategically
located and connect to the downtown core though improved pedestrian
connections.
• On the southern edge, sites adjacent to the light rail station and the freeway have
not been previously included in downtown zoning, but are now key transit - oriented
development sites where additional height has minimal impact, and improved
connectivity can reduce vehicle trips.
• Ocean Avenue and Second Street are zoned at a lower height than most of
downtown to preserve access to ocean light and air. The pedestrian orientation
should be improved by enabling a limited additional FAR to activate existing
pedestrian level plazas, and an overall height increase of two feet to allow for a
greater floor to floor height for pedestrian oriented ground floor uses. Opportunity
sites on Ocean need to be carefully considered in terms of building width, floor
plate and design standards to maintain connections to ocean light and air.
• There has been some discussion about preserving the height and scale of the
Third Street Promenade. Preservation of this area at its current predominant scale
is effectively a down zone.
Program Environmental Impact Report for the Downtown Specific Plan A Program EIR
will evaluate area -wide impacts and propose comprehensive mitigations as needed for
projects that comply with the Specific Plan. The Program EIR (PEIR) allows analysis of
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a reasonable projected build -out of the DSP Area over the life of the plan, and identifies
potential mitigation measures that address the entire district, to be implemented over
time as necessary. Careful analyses of different development scenarios result in area
wide mitigations, and a phasing plan which identifies triggers such as level of service.
The PEIR analysis would also provide potential recommendations for project conditions
and a monitoring plan to ensure that mitigations are implemented. This staff report
provides a framework for the City Council to discuss and identify the outside parameters
of the DSP project description, which are necessary to proceed with PEIR evaluation.
This report provides analysis recommendations for maximum heights and FAR for all
tiers as presented to the Planning Commission on January 23, and the range of options
for the development focus areas identified in the LUCE with maximum heights of 120 -
135 feet and maximum FAR of 2.5 to 4.0. Additional information is available on the
project website DowntownSMplan.org and in the attachments to this report which
include pertinent LUCE sections, height and FAR tables for Tiers 1 - 3, and the subarea
map.
Height and FAR Limits for Over 90% of the Downtown
In order to understand the DSP proposal it is important to recognize the current
complexities of the existing zoning in the downtown, which include a bonus FAR system
for housing (applied as an FAR discount), multiple subareas of differing heights, and
governance by several different regulating documents.
• Current maximum heights:
The current zoning focuses
maximum height of 84 feet
(7 -8 stories) in a central
core defined by the Bayside
District, the blocks on either
side of the Third Street
Promenade. Preserving
access to light and air,
permitted height steps
down significantly towards
the ocean to 45 feet along
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Ocean Avenue. To the east the height maximums step down to 76 feet east of the
downtown core and 60 feet in what is currently the residential heart of the area, 50
feet on either side of 7th street and, as defined by the LUCE, 60 feet on the portions
of Lincoln Boulevard located in the downtown. Santa Monica Place is consistent
with commercial zones elsewhere in the City at 56 feet, and the freeway adjacent
sites are limited to 45 feet. In the BSCD height is limited, but the number of stories is
not specific if the use includes one floor of residential, a hotel or a parking structure.
The existing Zoning Code has a series of incentives that promote housing as a
priority use in the downtown. Over the past twenty years, the number of residential
units more than doubled in the District with 2,500 — 2,800 units now housing
approximately 5,000 residents.
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Implementing the LUCE through the DSP: Tiering and the Permit Process: The LUCE
tiering system set a base height (32 -39 feet) throughout the City and required larger
projects (Tiers 2 and 3) to provide community benefits. The tiering system allowed
applicants to request increased height of new development based on conformity with
community identified priorities that included vehicle trip reduction and traffic
management, affordable and workforce housing, community physical improvements,
social and cultural facilities and historic preservation. These categories support the
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community commitment to sustainability and reduction of greenhouse gas emissions by
including land use policy and programs that minimize current and future reliance on the
automobile. Prior to the LUCE adoption, the concept of community benefits had been
largely realized through negotiated development agreement projects. The DSP expands
the tiering and community benefit concepts identified in the LUCE to the downtown. The
DSP implements the LUCE tiering principal to enable projects over Tier 1 to contribute
to the betterment of downtown through the provision of community benefits. The DSP
would simplify the FAR calculation used in the prior Zoning Code by replacing FAR
discounting with a system that clearly defines the actual allowable floor area. The
standards being considered continue to encourage residential projects while defining
transparent maximum allowable floor area calculations that clearly indicate the methods
for achieving a housing bonus. The graphics below outline standards for each subarea,
which are based on recognition of the existing downtown subareas and evaluation of
downtown's existing character. Attachment B includes proposed numerical charts of
height and FAR and examples of projects constructed under the current regulations.
DSP Height and FAR Regulations under Consideration: The DSP strategy proposes the
LUCE tiering approach with minor modifications to address the traditionally higher
heights in the downtown.
Using the existing 1984 regulations as a basis, the DSP is considering only minimal
change to the regulations that are in place now for the majority of the downtown. The
approach considered in the DSP meshes the LUCE tiering concept with the existing
bonus system, combining the maximum existing permitted heights, including bonuses,
with the current requirements for community benefits. The only significant change is
continuing the 84' height limit (permitted in the downtown core area since the adoption
of the 1984 General Plan) to the south to encompass Santa Monica Place and the
freeway adjacent sites and allow for improved connectivity to the Civic Center.
The LUCE did establish specific development standards for the Mixed Use Boulevard
designations in the downtown: Wilshire Boulevard and Lincoln Boulevard, including
maximum height, and floor area, and the DSP proposes that Wilshire Boulevard be
slightly modified but Lincoln Boulevard remain per the LUCE standards as described
below.
Based on the analysis and community input, the DSP is proposing consideration of the
following approach to underlying urban form and street character:
• Lincoln Boulevard is designated as a Mixed -Use Boulevard (MUB) in the LUCE. The
current maximum height allowed -in the MUB is 60' with a requirement for community
benefits above a 32 -39' base. The DSP does not propose modifying the standards
set forth by the LUCE for Lincoln Boulevard.
• The north side of Wilshire Boulevard between the west side of 7th Street and 2nd
Court is currently designated MUB and has the same 60' height limit as Lincoln
Boulevard. Due to the absence of an alley as a buffer to the neighborhood, and to
support preserving the context for the historic structures in this area, the proposed
DSP would reduce this height to 50 feet.
• 6th and 7th Streets along with the BBB yards are considered for a maximum height of
60' which is consistent with the current standard with residential for 6th Street. This
allows a 10' height increase to 7th Street and allows this transitional area to be
consistent with adjacent streets.
• 5th Street is currently allowed to develop up to 76' by Zoning Code standards. The
DSP maintains this height standard as it transitions between the adjacent areas.
• The regulations have historically allowed taller buildings in the downtown from the
east side of 4th Street to the east side of 2nd Street. The DSP considers continuing
the same 84' height limit adopted of the 1984 General Plan. A conservation district is
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being considered for the 3`d Street Promenade to maintain the current character that
includes many one, two and three -story buildings.
® The west sides of 2nd Street and Ocean Avenue have a height limit of 45' imposed
by the 1984 General Plan. To encourage an 18' ground floor height the DSP
considers raising the height allowed in this area by 5' to allow a 50' maximum.
The maximum FAR envelope under consideration is designed in concert with the
maximum heights, and reflects the true potential effective FAR achievable within the
design guidelines for setbacks and stepbacks, and does not exceed effective FARs
currently permitted. (Attachment B provides detailed tables for each subarea).
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The following graphics and descriptions represent the maximum Tier One, Two and
Three heights under discussion.
Tier 1 standards are based on typical Tier 1 criteria TIER
from the LUCE. The base height will be 32 feet
(approximately 2 stories) and a project may go up to IT
39' (3 stories) if providing 100% housing above the first
floor.
Tier 2 projects are proposed up to 60 feet in height
(approximately 5 stories.) This would allow a typical
downtown project (60 -foot mixed -use) to be entitled
through a Development Review Permit process — a
process that requires discretionary review by the
Planning Commission, thereby giving the public a
chance to review and comment.
Tier 3 projects would range from 76 to 84
(approximately six to seven stories) is proposed for a
limited area located between the east side of 2nd Street,
to the east side of 5th Street. Tier Three projects would
be entitled through a Development Review Permit
process unless they exceed a certain square footage
threshold. This threshold will be determined by analysis
of building types and achievable building area. Larger
projects which exceed the threshold would be entitled
through a development agreement to ensure significant
community benefits and site appropriate features.
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TIER
2
32' -39'
I[K "j 50' 60'
Provide public benefits
Discretionary review
Downtown - focused menu
of public benefits
TIER
3
60' M 76' 84'
Provide greater level of public benefits
Discretionary review or negotiated Development
Agreement based on threshold to be determined
Integrating Opportunity Sites Into the Downtown The LUCE identified areas to
focus new investment that are accessible to transit, accommodate mixed uses,
contribute to the pedestrian oriented environment and support substantial community
benefits. The Downtown has a small number of well - placed areas which can
accommodate more significant on -site community benefits, along with access and
circulation improvements to integrate with a multimodal network that includes light rail.
The City of Santa Monica has historically negotiated with landowners and developers to
provide community facilities and services by means of the state approved development
agreement process. Some of the most visible benefits derived from these agreements
have been public parks, the Santa Monica Swim Center, child care facilities, and
affordable housing. Less apparent are contributions for numerous community- oriented
endeavors such as local hiring programs and critical public infrastructure improvements.
With the loss of the Redevelopment Agency funding source in 2011, developer
contributions to support traditional community priorities for sustainability, open space,
humanitarian and cultural goals are likely to become an even more important method to
support community ideals.
The DSP process has refined the areas identified in the LUCE, including multiple sites
proximate to the new light rail station, to eight possible sites that could provide
exceptional community benefits such as a cultural institution, the contribution of public
art that enhances the City's cultural identity, enhanced preservation and access to a
significant historic resource, significant open space that can function as a public park,
public parking of over 100 spaces to be operated in the public parking network,
exceptional architecture that has the potential to become a future landmark, and
circulation investments that expand access in and around the downtown for all modes of
transportation.
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The following describes each site and the potential benefits it could provide.
POTENTIAL COMMUNITY BENEFITS
Note: Each site has multiple options for community benefits to be established through DA negotiations.
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Expo Light Rail Station site: This City -owned property is a critical transportation hub and
could produce significant public parking spaces to intercept cars off the 1 -10 and
minimize traffic impact to the downtown if developed with circulation improvements as a
priority. Requiring an additional through site road as part of new development is under
consideration. The site also has subterranean tunnel access to Sears which could
provide valuable access to additional public parking allowing visitors to park
immediately and avoid the intersection of 4th and Colorado.
Sears Site: This site includes the landmark Sears building and is adjacent to the future
Esplanade and Expo Station. The site is connected through a tunnel to the station site,
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OCEAN AVE
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Q OPPORTUNITY SITES
EXEMPLARY ARCHITECTURE(TBD)
MAJOR CIRCULATION IMPROVEMENTS
POTENTIAL CULTURAL INSTITUTION
POTENTIAL OPEN SPACE LOCATION
HISTORIC RESOURCES
POTENTIAL PUBLIC PARKING
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AFFORDABLE HOUSING
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Expo Light Rail Station site: This City -owned property is a critical transportation hub and
could produce significant public parking spaces to intercept cars off the 1 -10 and
minimize traffic impact to the downtown if developed with circulation improvements as a
priority. Requiring an additional through site road as part of new development is under
consideration. The site also has subterranean tunnel access to Sears which could
provide valuable access to additional public parking allowing visitors to park
immediately and avoid the intersection of 4th and Colorado.
Sears Site: This site includes the landmark Sears building and is adjacent to the future
Esplanade and Expo Station. The site is connected through a tunnel to the station site,
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allowing for potential automobile and pedestrian enhancements. It is one of the largest
sites in the downtown, allowing for the opportunity for key transit oriented development
that would not impact residences as it is adjacent to the freeway. The site can
accommodate ocean views, preservation of the historic resource and potential for
additional circulation improvements by expanding the roadway grid with a new street or
a bridge across the freeway.
Ocean and Wilshire: A proposal has been made for the renovation of the Miramar Hotel
including affordable housing, pubic art, open space and improved access to the historic
Moreton Bay fig tree. Careful consideration of the Ocean Avenue and Wilshire edges
could improve the pedestrian experience and provide a key link between Ocean Avenue
and the Third Street Promenade enlivening the Ocean Avenue experience.
Ocean /2nd and Santa Monica Blvd: This large ocean -view site houses two landmark
structures. A proposal has been submitted on this site including a hotel, affordable
housing, a museum, preservation and reuse of two landmarked buildings and featuring
a design by the architect Frank Gehry. As in the Miramar site, consideration of the
pedestrian interface and improved linkages would enliven the Ocean Avenue
experience as well as link to the downtown core.
Ocean /Colorado: A proposal for the current Wyndham Hotel (formerly the Holiday Inn)
was recently submitted, including a rebuilt hotel, improvements to the Esplanade,
affordable housing and a bicycle sharing pad. Community benefit opportunities for this
site could also include bridging /decking to the new park, contributions to the Esplanade
and other connectivity improvements at this pedestrian and bicycle hub.
4thi5th and Arizona: The community visioning for this City -owned site resulted in
community benefits priorities that focused on providing benefits for residents including
a programmable open space for events and the seasonal ice rink, 339 public parking
spaces, and exemplary architecture. The community input discussed the desire for
iconic architecture that creates a contemporary identity for Santa Monica.
5th /Broadway: The eastern Fred Segal site could provide the type of community oriented
open space that has been identified as a need in the downtown, as well to encourage
connections to Lincoln Boulevard. Located in close proximity to the station, the site is
an opportunity for neighborhood retail uses that serve the growing residential
neighborhood nearby as well as providing an opportunity for transit oriented
development.
Big Blue Bus Yards: Adjacent to the station site, this site is currently occupied with the
vital City bus function. Change on this site would need to include enhancements to the
Big Blue Bus service and operations. Considerable analysis about facilities to operate
the BBB is required. The site is uniquely located to provide circulation improvement for
vehicle and buses and reduce traffic at the 4th /5th Street intersection. To date, the DSP
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only proposes redevelopment of a portion, or portions, of the site, and the remainder
continues to provide bus operations.
Each site has unique characteristics, but must contribute to the downtown as a whole.
The DSP will provide specific guidelines for each site. All opportunity sites which are
developed to an expanded zoning envelope with significant community benefits would
be processed as development agreements. The discussion to date has not determined
the appropriate expanded zoning envelope limits for the eight opportunity sites.
CEQA Review of Opportunity Sites: The development parameters of DSP opportunity
sites must be defined and studied in the PEIR. An essential requirement of an
adequate EIR is a stable, finite project description. The DSP must identify the outside
parameters for opportunity site development in order to comply with this basic principle.
If the opportunity sites were not specified in the DSP, the EIR could not predict and
adequately study the physical environmental impacts of the projected DSP area land
use proposal. Second, state land use law and the City's Municipal Code provide that
specific plans must identify the goals, policies, and development standards applicable to
the land within a specific plan area. (See Gov. Code § 65451(a) and SMMC §
9.04.20.18.140 which provide "a specific plan shall include .... (3) Standards and criteria
by which development will proceed.... ") Third, the LUCE itself requires consistency with
this requirement of state and local law on p. 2.1 -48, where it states: "The height and
FAR along with other development standards such as setbacks and step backs for the
Downtown designation will be determined through a Specific Plan process." This is
further reflected in LUCE Policy D14.1, which provides: "Implement a new Downtown
Specific Plan to determine the appropriate range of building heights in the district..." (p.
2.6 -17). Finally, in order to approve the development of opportunity sites through
development agreements, the Council is required to make general and specific plan
consistency findings. The DSP will provide the goals, policies and standards for
opportunity sites necessary to make the required findings to approve a development
agreement.
17
To assist decision makers and the community, this report recommends that a range of
scenarios for the opportunity sites be identified and studied through CEQA analysis, so
that rigorous technical and impact analyses can inform the discussion about the
appropriate final maximum height and FAR for these eight sites. In the context of
programmatic general and specific plans, CEQA regulations provide for the analysis of
the reasonable potential future changes in order to have an adequate discussion of
significant cumulative impacts (the "summary of projections" methodology). In some
cases, a revised or reduced project can be approved based on the findings of the CEQA
analysis. After evaluating scenarios to determine potential impacts and mitigations, This
staff report outlines a recommended range of options to be studied. This is not an
approval of a plan, but rather identification of the initial DSP project description, the
analysis of which will include the maximum development potential and several options
of lower intensity. Studying the range of scenarios allows decision makers to compare
alternatives and impacts in their review.
Maximum Height: The city has engaged in a long- standing urban design dialogue that
discusses the benefits of providing maximum access to light and air with ground floor
open space, upper level setbacks and step -backs in exchange for additional height. The
dialogue stems from the understanding that blocky low buildings, when experienced
from the pedestrian level, can have greater impacts to light and air, than taller more
slender buildings, which are set back at the upper levels. The downtown provides a
good example of this on the Third Street Promenade where the taller buildings are
designed to feel low -scale at the pedestrian level but achieve heights to 84 feet at the
upper levels, which are significantly set back from the street to ensure sunlight on the
Promenade for most of the day. The 4th and 5th and Arizona discussions from 2011 also
represent an example where community members were interested in accepting greater
height with more slender structures in order to provide additional community open
space at the ground level and a permanent home for the ice rink.
1E
In Santa Monica additional height can also translate into increased revenue on upper
floors with ocean views, also providing the flexibility to shape FAR into buildings that
provide the modulation to minimize shade and shadow impacts. Preliminary sample pro -
forma evaluation shows that a building with the same floor area, but an ocean view, can
provide additional revenue to the developer. This allows for the possibility of negotiating
Development Agreements that can, in turn, provide additional community benefits for
the City. This report requests consideration of a CEQA analysis that includes as a DSP
option a scenario that evaluates opportunity sites at heights greater than 84 feet,
capturing ocean views and allowing for building modulations, setbacks and stepbacks,
so the impacts may be analyzed in comparison to a scenario for buildings with a
maximum height of 84 feet.
Design for Taller Buildings: The DSP team developed a methodology that uses the
podium height of the historic Bay Cities Guaranty Building (clock tower) as a datum to
calculate potential heights for the opportunity sites. This approach respects the building
as a recognizable and revered downtown landmark that should not be obscured by the
new tall buildings. The podium of the building — the portion that extends from the street
jff
135' 130' 130'x 125' 120'
65'+ sea level 80' + sea level 90' +sea level
to the base of the clock tower — is approximately 140' in height. From this point 5' feet
was subtracted, allowing the Clock Tower building to dominate the others in height, and
a horizontal line was drawn to provide a datum that will guide the establishment of
building heights for the opportunity sites. The topography of the predominant viewshed
slopes downward from east to west, dropping approximately 25' between the eastern
and western edge of the downtown district. This sloping topography allows for a range
of heights that increase moderately from east to west while respecting the datum height
19
and the view of the clock tower as depicted above. For example, a building near 6th
Street with an Ocean view would be approximately 120' high. Based on this premise,
staff is considering maximum heights for the opportunity sites ranging between 120' on
the most eastern opportunity site to 135' on the most western sites.
Opportunity Site Density (FAR): The DSP is not proposing additional density for
opportunity sites. The intent is that each site would be subject to the maximum FAR of
its subarea. Based on analysis for the 4th15th and Arizona project site, scenarios with
improved open space performed better if slightly taller, but it was not critical for an
increase in density to accompany an increase in height in order for the scenarios under
consideration to be economically feasible.
The DSP team suggests that the Council consider the following scenarios for the
opportunity sites for the purpose of proceeding with CEQA analysis that will determine
potential impacts.
Five Sites Proximate to the Expo Station and Freeway Access: Sears, TOD, 4rhl5th
& Arizona, Fred Segal, BBB
In the chart below, staff has identified three maximum height and FAR scenarios that
could be studied in the PEIR for the five opportunity sites that are closest to the Expo
Station and freeway access. The height limits in each scenario are as follows:
Scenario 1. No change to current zoning standards
Scenario 2. The maximum standards as proposed at the January 23, 2013 Planning
Commission meeting (Attachment B). Scenario 2 would treat opportunity
sites the same as the rest of downtown by applying the same
development standards as the subarea in which they are located.
Scenario 3. This scenario evaluates opportunity sites at heights greater than 84 feet
by allowing:
130 feet maximum on 4th St.
125 feet maximum on 5th St.
125 feet maximum on 6th St.
Height — 45' Height — 84' Height — 130'
FAR — 3.5 FAR — 4.0 ' FAR —`4.0
Height — 76' Height — 76' Height — 125'
FAR -4.5 FAR -3.5 FAR -3.5
Height - 130'
FAR — 3:75
Height — 125'
FAR — 3.5
Ocean Avenue Sites: Miramar, Ocean Hotel, Wyndham
For each of the three Ocean Avenue opportunity sites, the maximum height limits in the
three identified scenarios are as follows:
1. No change to current zoning
2. The maximum standards as proposed at the January 23, 2013 Planning
Commission meeting (see Attachment B). Scenario 2 would treat opportunity sites
the same as the rest of downtown by applying the same development standards as
the subarea in which they are located.
3. This scenario evaluates the Ocean Avenue opportunity sites at 135 feet maximum.
Height — 135'
FAR — 2.5
21
If the Council chooses, Alternative Action #1 below includes the option for additional
minor FAR bonus for opportunity sites with uses that generate a lesser amount of traffic,
such as affordable housing and hotels.
Site Specific Design Guidelines: Each of the eight opportunity sites under consideration
reflect very different conditions, location, and site specific opportunities and concerns.
Each site would be expected to meet the overarching standards and guidelines such as,
but not limited to, contributing to the public realm, pedestrian orientation, walkability and
multimodal circulation. The Specific Plan would also set out guidelines for building
massing, access to light and air, upper level floor plate limitations, and maximum
building widths and separation between massing elements over a certain height. A
combination of standards and flexible performance criteria would provide opportunity for
creativity and exemplary architecture. The March 6, 2013 Planning Commission staff
report includes a discussion of an open space network to be considered, which
identifies potential open space options for the downtown as a whole including the
opportunity sites. The report also included site specific recommended circulation
diagrams for each opportunity site.
Inclusion of Current Applications in DSP Approach Three project proposals for hotels
along Ocean Avenue are not consistent with the 1984 General Plan or the Zoning Code.
These applications have not yet been analyzed as part of the DSP, and were submitted
by property owners separate from the ongoing formal process for the DSP. Typically,
applications that request project approvals which are inconsistent with the maximum
development standards allowed in the General Plan must be accompanied by a General
Plan Text Amendment for Council consideration. To provide a fair and consistent
process during the period prior to the adoption of the DSP, while new development is
subject to a temporary Interim Zoning Ordinance, current practice is to accept all
development agreement applications submitted with the appropriate fees. Acceptance
of applications does not pre- suppose or imply approval, as these development
agreement projects are required to undergo a multi -step community process, including
WA
Council authorization to proceed to negotiations and Planning Commission and City
Council hearings.
If the heights and FAR parameters included in the DSP program description and studied
in the PEIR are less than those proposed by these project applicants, and the adopted
DSP authorizes a smaller development envelope for these sites, then the additional
impacts of these proposed projects will require their own separate environmental
analysis and project applicants will be required to seek concurrent amendment of the
DSP, a process authorized by state law. Alternative Action #2 below allows for
inclusion of these applications in the EIR analysis, which would result in an analysis
which compares the proposed height for the pipeline Ocean Avenue hotel projects with
the recommended DSP heights.
Next Steps
Following Council direction, staff will direct the environmental consultant team to
proceed with review for the DSP in accordance with the requirements of the California
Environmental Quality Act (CEQA). Staff anticipates the following community outreach:
• Notice of Preparation (NOP) scoping meeting where staff and consultants will
outline the project to be studied in the EIR
• Updates to neighborhood groups, boards, commissions as invited and agendized
• Return to PC and City Council with a draft Specific Plan
• Community meetings on the draft DSP
Alternative Actions
Council may wish to consider the following alternatives in addition to the staff
recommendation, or as modified by Council:
1. Direct staff to proceed with the PEIR using height and density options that do not
exceed those proposed for Tier 3 projects (76 -84 feet maximum) as the basis for
the required project description to commence CEQA analysis.
o Responds to some community requests but could reduce the opportunity
for exceptional community benefits and provides less flexibility for building
modulation to ensure access to light and air.
23
2. Direct staff to proceed with the PEIR using the height and density options
proposed in this report, and, in addition, analyze the maximum heights and
densities proposed in current opportunity site pipeline projects as an additional
alternative to be analyzed to a project level of detail in the CEQA analysis.
o Allows for a full project level analysis of the Ocean Avenue sites as
proposed but does not respond to the community request to consider
lower maximum heights.
3. Consider additional density bonus for opportunity sites with uses that generate
minimal trips such as affordable housing and hotels.
o Incentivizes uses with lowest trip production but could increase bulkiness
of buildings,
4. Circulate a draft framework plan and return to Planning Commission and City
Council for additional public review in advance of preparing the CEQA Document
o Allows for public circulation of a document that combines all the
information presented date, but would delay project completion by a
minimum of four months.
Financial Impacts & Budget Actions
There is no immediate financial impact or budget action necessary as a result of the
recommended action.
Prepared by: Sarah Lejeune, Principal Planner
Travis Page, Associate Planner
Approved:
Forwarded to Council:
David Martin, Director Rod Gould
Planning and Community Development City Manager
Department
Attachments:
A. LUCE Sections
B. Development Standards Height and FAR
24
x GOALS AND POLICIES
GOAL Dl. Maintain Downtown's
competitive advantaqe as a premier
local and regional shopping, dining, and
entertainment destine' tion, and support its
evolution in order to respond to changing
market conditions.
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DSP MAXIMUM F.A.R. BEING CONSIDERED
These tables outline proposed standards for each subarea, which are based on recognition of
the existing downtown and reflect an evaluation of existing character.
Mixed Use Boulevard (Lincoln): Lincoln Boulevard is the area which is currently undergoing the
greatest change. The 2010 LUCE designated this area as Mixed -Use Boulevard. Along with this
designation is a requirement for all projects over the Tier 1 height of 32 -39 feet to provide
community benefits. The LUCE designation has inspired a number of development proposals,
including residential, allowing for opportunity for significant improvement to pedestrian
orientation and walkability. The DSP proposes to keep the allowed maximum height of 55 -60
feet and FAR of 2.75.
2
3
CI
5
Downtown Core: This area extends from 4th Court to the east side of 2 "d Street and Wilshire
Boulevard to the I -10 Freeway. This area is the economic heart of the City and has long been
referred to as the Central Business District. It encompasses some of the densest development
in the City with a mix of small floor -plate and Class A office space, some residential, with
interspersed small retail, restaurants, cafes, and salons, including the Third Street Promenade.
Currently Zoning allows a maximum of 84 feet in height in this area and this is proposed to
continue but with Tier 2 and Tier 3 projects required to provide community benefits. This
proposal expands that maximum height area to include a few properties adjacent to the
freeway and the light rail station in keeping with the community discussion about additional
height being most appropriate near the freeway entrances and to encourage new public
parking and community amenities in these areas. Housing projects at Tier 1 and Tier 2 are
eligible for a 0.5 FAR bonus.
3
neighborhood while
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Example Buildings
The following are examples of recent projects and their respective height and FAR achieved.
1410 51h Street (Completed 2007)
Lot — 22,499
Bldg — 76,290
FAR — 3.4
Stories — 5
519 Santa Monica
Lot — 14,998
Bldg — 49,155
FAR — 3.3
Stories — 5
606 Broadway (Completed 2010)
Lot — 14,998
Bldg — 51,759
FAR — 3.5
Stories — 6
1241 5th Street (completed 2010)
Lot— 15,002
Bldg — 58,310
FAR — 3.9
Stories — 6
1250 4th Street(Completed 1991)
Lot — 30,000
Bldg — 99,351
FAR — 3.3
Stories — 6
201 Santa Monica Blvd. (Completed 1983)
Lot — 22,499
Bldg — 71,158
FAR — 3.2
Stories — 6
10
Recently approved projects
525 Broadway (Under Construction)
Lot — 37,500
Bldg — 138,000
FAR — 3.7
Stories — 5
401 Broadway (approved)
Lot— 7,500
Bldg — 28,666
FAR — 3.8
Stories — 5
603 Arizona (approved /expired)
Lot — 7,500
Bldg — 27,500
FAR — 3.7
Stories — 6