SR-10-27-2015-4A
City Council
Report
City Council Regular Meeting: October 27, 2015
Agenda Item: 4.A
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To: Mayor and City Council
From: David Martin, Director, Planning and Community Development, Planning
Commission Agenda (PCD)
Subject: 4th and Colorado Station Site Priorities and Process
Recommended Action
Staff recommends that the City Council review and comment on the emerging draft
long-term use objectives and information provided for the 4th/Colorado City-owned
Property.
Executive Summary
The City-owned site at 4th Street and Colorado Avenue is one of the main entries into
the City of Santa Monica. This site is perceived by many as the gateway to the
distinctive places that make Santa Monica unique. This intersection marks the western
entrance from the Interstate 10, access to the Pier and beach under the landmarked
Pier sign, and the southern edge of Santa Monica Promenade and Santa Monica Place
shopping districts. People seeking these destinations and the adjacent Tongva and
Palisades Parks pass through this intersection on foot, bikes, buses, in cars, and in less
than a year, via train.
The history of planning this intersection spans a decade. In 2005, the Council approved
a Civic Center Specific Plan that included the station site and a new Olympic Drive to
expand the Downtown/Civic Center circulation network (completed 2014). In 2006, the
City acquired the properties located at 1632-36 5th Street and 402 Colorado Avenue. At
the time of purchase, the terminus station of a future light rail line was considered for
this site. With light rail now in place, the site is a key location in Santa Monica.
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The station currently occupies approximately 34,000 square feet of the site. The
remainder City-owned portion (approximately 86,250 square feet) and the adjacent
properties, have constrained access because the station occupies the former access to
Colorado Avenue. Because of the complex circulation infrastructure at this junction (an
interstate freeway, a bridge, light rail, city streets, and sidewalks), careful consideration
and planning is now in progress to optimize integration of future transit-oriented uses on
the site, such as office, retail, and commercial businesses; parking; affordable hou sing;
and/or other public uses. Community outreach identified a desire for creating a place of
arrival and departure that honors the Santa Monica identity wh ile also providing long-
term improvements to the City’s transportation infrastructure.
The importance of the long-term vision is highlighted in the Draft Downtown Specific
Plan (DSP), currently underway, which defines specific parameters for the use and
design of the 4th Street and Colorado Avenue intersection and 4CO site. The first stage
of visioning for this site addressed provision of an interim use concept for the City-
owned property to support transit transfer and multi-modal first/last mile connections in
time for Expo light rail operation. The interim use concept, approved by Council on
February 24, 2015, improves the upper lot for pick-up and drop-off while the lower lot is
under construction. Once the lower lot is completed, the upper lot would remain as a
potential swing space if temporary events were held in the lower lot. Both lots can be
easily reconfigured as the demand for private shuttles, paratransit, and kiss -and-ride
becomes more evident. The upper lot will be completed in time for Expo’s anticipated
Spring 2016 opening, and the lower lot will follow several months later.
Following approval of the interim use, Council directed staff to proceed with the strategic
planning and long-term use analysis of the site, including definition of circulation and
access, land use, urban design, and economic feasibility parameters. Concepts
proposed in the Draft DSP have been included in the ongoing site analysis, including
relocating the 4th Street freeway off-ramp and coordinating the freeway-adjacent
properties with the 4CO site to achieve network expansion and multi-modal circulation
improvements at this prominent gateway.
One approach for comprehensive examination of the unique access and site
configuration challenges of these freeway-adjacent properties is the creation of a
“Gateway Access Master Plan” that further refines the circulation vision that the Draft
DSP presents for these sites. As currently envisioned, the freeway-adjacent properties
made up of the 4CO, Sears, Wyndham Hotel, and Big Blue Bus sites would be included
in a master plan area. In consideration of BBB’s ongoing and future bus operations,
while the master plan may put forward recommendations for some modifications to the
BBB site to improve access, the master plan process will not at this time consider
potential development of the BBB site or relocation of BBB bus operations.
The 4CO station site is uniquely positioned to incorporate adjacent city- and/or privately-
owned sites to achieve City policies and long-term objectives for this site and the city as
a whole. A series of conceptual site scenarios are presented in this report to illustrate
options for land area, site configuration, building footprint type, access locations, urban
design, and phasing. Benefits of a coordinated design include opportunities for shared
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parking, better access to all sites, and connectivity between the site and surrounding
areas. Long-term use analysis will define objectives and parameters for a potential joint -
use partnership.
Background
City Council meetings regarding the Exposition Light Rail Project in Santa Monica
began in 2007. On May 11, 2009, Council allocated a portion of redevelopment funds to
study the feasibility of bridge connections and freeway capping to integrate the Expo
Light Rail terminus station, Civic Center, and Downtown. On January 19, 2010, Council
directed staff to explore refining the Civic Center and Downtown circulation network as
described in the then draft 2010 LUCE. Options for reconfiguring the 4th Street off -ramp
were explored to disperse automobile traffic west and away from the key intersections
adjacent to the Expo station in order to improve pedestrian quality and station access
and ensure safety for all network users. A new freeway off-ramp aligned with Olympic
Drive was recommended for consideration, and termed the Olympic Crossover (See
Attachment A). On April 12, 2011, Council prioritized short- and long-term projects
related to the Civic Center and Downtown circulation network. On September 13, 2011,
Council received an update on the refined alignment of
the terminus station which resulted in a smaller station
footprint, creating the larger remnant site at 4CO. On
January 24, 2012, Council approved planning for
first/last mile access to the terminus station, including
further exploration of freeway off-ramp location and
bridging concepts. The work was put on hold in 2012
due to uncertainties of continuing to use redevelopment
agency funding for the analysis. After significant community input, the Council approved
the Colorado Esplanade on July 10, 2012. This project exemplifies integrated multi-
modal station access. Using the roadway changes required by the light rail, the
Esplanade project creates space for pedestrians, a protected bike facility, and
streamlined vehicle flows and continues the one-way westbound direction to Ocean
Avenue to simplify the number of turning movements and provide more fluid throughput
at the 4th and Colorado intersection. The project is currently under construction and,
when completed, will fully integrate multiple travel modes to guide users to key
Colorado Esplanade looking
west towards the Pier
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destinations. The 4CO site should carry the exceptional design and placemaking
attributes of the Esplanade to the whole station area, making circulation legible,
efficient, and safe for everyone.
On June 10, 2014, Council authorized a third contract modification for AECOM to
provide planning, urban design, infrastructure, transportation, environmental, and
economic consultant services for the 4CO site. The 4th/Colorado Station Site Studies
Project (4CO Project) was initiated to develop both an interim use that addresses transit
interface when the train first becomes operational, and to provide long-term analysis
and visioning for the remaining 4th/Colorado property. On November 25, 2014, Council
reviewed the interim use concept design for the 4CO site and directed staff to expand
stakeholder outreach and generate a revised interim use concept design. On February
24, 2015, Council approved an interim use that provides temporary multi-modal
connectivity and access not included in the Expo station design (See Attachment B).
Council also directed staff to focus on the long-term use analysis of the station site to
determine options for the highest and best use of the site. Approval of the interim u se
concept does not eliminate or restrict any particular long-term use option.
On October 13, 2015, staff recommended to Council the creation of a “Gateway Access
Master Plan” focused on the freeway-adjacent sites that create the key gateway to the
Downtown, and based on the overall principles in the Draft DSP. Council directed staff
to proceed with the creation of a Gateway Access Master Plan process that would
holistically plan for the 4CO, Sears, Wyndham Hotel, and BBB sites. Council also
commented that the master plan should include the study of access and circulation
issues (i.e. as it relates to property access and the 4th/Colorado intersection) and the
exploration of freeway capping opportunities as open space opportunities.
Discussion
Currently, the 4th/Colorado crossroad is at the heart of several important projects that
are under construction: the Colorado Esplanade, new cinemas at Santa Monica Place,
and a temporary use for the terminus station site. Additional streetscape and wayfinding
projects are in design for 4th Street both north and south of the 4CO site and future
renovations to the Civic Center Auditorium will rely on the smooth functioning of this
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area. The long-term use for this crossroad must consider both the importance of an
iconic gateway and the critical transportation infrastructure that serves the commercial
and social center of the City.
On August 5, 2015, staff presented draft long-term use objectives and potential site
scenarios for the 4CO site to the Planning Commission for review and comment. The
Planning Commissioners commented on key elements of the project, providing input for
the ongoing work effort. [August 5, 2015 PC Meeting Minutes]
Draft Objectives: The Planning Commission expressed particular support for
prioritizing a place for people and ensuring that the 4CO site and surrounding
areas adequately accommodate pedestrian circulation. The PC recommended
inclusion of an objective that addresses bicyclist circulation, including the need
for bike parking and access to and from the site.
Community Benefits and Urban Design Approach: The large-scale community
benefits of the Olympic Crossover off-ramp realignment provide open space and
circulation improvements to the Downtown network, and collectively received
widespread PC support. With regards to the Olympic Crossover, the PC
remarked that ensuring a comfortable pedestrian crossing and repurposing
Olympic Boulevard and Palm Court should be priority components of this effort.
The Commissioners noted that 4th Street should b ecome a more pleasant
environment for pedestrians and bicyclists to facilitate multi -modal access to the
train, and the project should include wider sidewalks and/or minimize curb cuts.
The concept of on-site shuttles and kiss-and-ride areas, a new street/paseo, and
a parking structure accessed directly from the freeway were recognized as
valuable components; however, Commissioners also wanted the site to de -
emphasize vehicles and more strongly support placemaking and pedestrian
amenities. Commissioners advised that the appropriate bus facility options for
this site include minimizing or excluding on-site bus operations and continuing to
explore bus connections with on-street alternatives and/or use of the existing Big
Blue Bus (BBB) facility. Commissioners discussed the urban design and
circulation challenges and barriers constraining on-site bus operations.
Potential Land Uses: The PC stressed the need for open space that is flexible
and programmable, and spoke to the importance of considering revenue -
generating uses such as office and hotel to support BBB operations. The PC
noted that this site was the most suitable place in the downtown to address the
high demand for new office spaces. Due to the adjacency to light rail, office uses
at this site would allow for a high AVR employee workforce, resulting in fewer
vehicle trips. Some Planning Commissioners also requested the consideration of
fine-grained retail to activate the space during the day and night, and to consider
affordable housing that is not directly adjacent to the freeway. The Commission
agreed that a bus facility was not the preferred use, noting the desire for buses to
use the existing street grid. However, they supported the concept of potential
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BBB revenue through consideration of revenue-generating office use at this site.
Commissioners had differing opinions about open space and housing as top
priorities but all agreed that entertainment should not be a main focus.
Commissioners wanted the uses and urban design to focus on function and
transition, particularly at the ground floor, to create an engaging, active, and
beautiful space.
Potential Alternatives: The majority of the Commission would like to proceed with
a comprehensive approach that assumes change on the whole site, including the
City-owned property, Comma Building property, 4th Street off-ramp and
embankment, and Palm Court (approx. 146,350 square feet). In this
comprehensive approach, Commissioners felt that multiple architects designing
the site would be beneficial and ensure that the final design represents a variety
and range. One Commissioner felt that the site could be designed using one
designer or multiple designers, in relation to a phased approach or in one grand
process, and that staff should provide an RFP process that al lows for some
flexibility in the type of proposal.
The 4CO site is a critical component of the Downtown and the linchpin for the
Downtown/Civic Center circulation. The City has carefully examined aspects of the site.
This report covers the following categories of analysis and requests Council input on the
ongoing work effort:
1. Policy Context
Relationship to existing policy (Civic Center Specific Plan and LUCE) and
ongoing planning efforts (Draft DSP).
2. Initial Draft Site Objectives
Broad draft objectives for the site based on community and stakeholder input for
the Expo Light Rail, Esplanade, DSP, and interim use processes.
3. Site-Specific Analysis – Land Area and Ownership, Circulation, Land Use,
and Parking Layout
Site-specific land area and ownership, circulation, land use, and parking layout
considerations and preliminary diagrams to guide the visioning process.
4. Site-Specific Analysis – Bus Facility Investigation
Summary of bus facility investigation.
5. Alternatives Development
Preliminary development of conceptual site scenarios to understand best land
use mix, site access, and feasible community benefits.
6. Council Discussion
Staff requests from the Council feedback on site objectives, community benefits,
bus facilities, and prototypes and recommendations on broad planning goals and
parameters to help progress the long-term analysis of the station site.
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1. POLICY CONTEXT
The LUCE, Draft DSP, and community outreach efforts all inform a strategy for the
future use of the site.
2010 Land Use and Circulation Element
The arrival of Expo Light Rail is a key component of the LUCE, driving many goals and
policies. LUCE circulation objectives for the 4CO site include improvement of transit and
pedestrian access to the station while addressing opportunities to improve vehicle
circulation. LUCE policies relevant to the vision for this site build on the integrated
circulation network within the Civic Center initially prescribed in the Civic Center Specific
Plan and are included in Attachment C.
Draft Downtown Specific Plan
The Draft DSP, available online at http://www.downtownsmplan.org/, refines the LUCE
vision with specific policies, objectives, and land use and development standards for
Downtown. Once adopted, the DSP will provide approaches for addressing circulation
for all travel modes; mobility; strategies for ensuring ample open space for residents,
workers, and visitors; preservation of historic and cultural resources; and an overview
for maintaining economic diversity in the Downtown. The Plan would include specific
goals, policies, and actions for:
Housing & Economic Diversity
Arts, Culture & Entertainment
Historic Preservation
Open Space
Infrastructure
Circulation and Mobility
Development Standards
Design Guidelines
Community Benefits
Implementation
Community Input on Benefits
The Draft DSP builds on the LUCE system
of requiring projects to deliver community
benefits that meet public objectives. The
July 11, 2012: DSP Community Workshop
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Draft DSP identifies community-based priorities that address specific larger sites within
the District, including the 4CO site.
The 4CO site (titled the Downtown Station Site in the Draft DSP) is one of the larger
sites acknowledged as appropriate for providing large-scale community benefits.
Community discussion related to the Esplanade, the DSP, and the Interim Use helped
identify priorities for the site. Many community members attending outreach workshops
discussed the importance of the location, noting that the site could provide circulation
and access benefits for key intersections entering the Downtown. Themes that emerged
from these discussions include:
Reconfigure the 4th Street freeway off-ramp (Olympic Crossover).
Provide new people-oriented amenities around the station, with public restrooms,
signage, and information to orient visitors to the City.
Add limited public parking to be accessed immediately after exiting the freeway
and operated as part of the City network, minimizing trips in the Downtown core.
Incorporate bike share and provide high-visibility bike facilities to interface with
the Colorado Esplanade bike path.
The Draft DSP envisions an experience at the 4CO site that establishes a sense of
arrival to a final destination, creating a new City gateway and ensuring residents and
Expo riders optimal access to destinations and transit.
Specific goals and actions in the Draft DSP for the future of the 4CO site include:
NS Action 22: Create new street through the transit oriented design site adjacent
to Expo station.
CM3.10: Consider opportunities for the large sites adjacent to the I -10
Freeway to be developed together to support transit access and
improve transit facilities.
NS Action 21: Olympic Crossover – replace existing I-10 westbound off-ramp at
4th Street, and reallocate former 4th Street ramp with consideration
of circulation network.
NS Action 25: Accommodate and support bus route changes of Big Blue Bus and
Metro to best serve the changing transportation needs of
Downtown.
NS Action 28: Coordinate service between light rail and bus transit stops and
operations.
P Action 9: Require new public parking resources to be on the periphery of
Downtown.
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CM3.11: Distribute new public vehicle parking facilities at the periphery of
the district; distribute bike corrals, bike rooms, bike share and
carshare throughout Downtown.
P Action 10: Enable the phased development of up to 800 public parking spaces
in peripheral locations to address future demand without
incentivizing additional vehicle trips in Downtown.
Specific Draft DSP Strategies for Improving the Downtown Street Network
Properties located along the southern part of the Downtown include some of the largest
land areas in the District. Currently, these sites contribute to the existing land barrier of
the freeway, limiting access in and out of Downtown. Each of the four freeway-adjacent
sites has a key part in an overall strategy to create a more functional Downtown by
expanding the street and sidewalk grid and removing existing circulation impediments
for the network and for each individual site. This Draft DSP diagram shows concepts for
key infrastructure moves that could improve mobility and access in this area, optimizing
the value of the sites.
1. Make 9th Street through-access from the Lincoln Boulevard off-ramp.
2. Provide a bus boarding and layover facility on the Big Blue Bus (BBB) site.
3. Include an access road through the 4CO site.
4. Relocate the 4th Street freeway off-ramp (Olympic Crossover).
5. Provide a freeway crossing from the Sears site to Main Street with a through
road or pedestrian pathway that connects to the 4CO site.
6. New 4th Street intersection would allow future opportunities for traffic to access
the 4CO site, Sears site, and Main
Street without crossing Colorado
Avenue.
7. Construction of a pedestrian bridge
over the freeway for improved
pedestrian access between the
Wydham Hotel property (site not
shown in the diagram to the left) and
Tongva Park.
8. Create peripheral parking on the
Sears and/or 4CO site(s) to reduce
parking-related vehicle trips in the
core of the Downtown.
The Draft DSP presents options for
considering integrated network changes to
provide the most functional access for the
Potential New Road/Bridging Concepts
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freeway-adjacent sites, and enhance the complex access and utilization of this critical
piece of City and State (I-10 freeway) infrastructure. In initial discussions, Caltrans
notes they would consider supporting re-alignment of the off-ramp to achieve a
measureable improvement to off-ramp stacking and functioning, reducing back-up onto
the freeway, and correcting non-compliant existing conditions.
Because of the unique access and site configuration considerations of these freeway-
adjacent sites and following Council’s direction, City staff is currently considering
making changes to the Draft DSP to require that all of these sites (the 4CO, Sears,
Wyndham Hotel, and BBB sites) be evaluated through the creation of a “Gateway
Access Master Plan” to comprehensively examine the access and circulation benefits of
this area with a cohesive approach to public planning of major future infrastructure
improvements, including the bridging or capping of a portion of the freeway and the
reconfiguration of the 4th Street freeway off-ramp. Recognized in the Draft DSP as
offering significant mobility and access infrastructure improvements at this key gateway
to the Downtown, inclusion of the Big Blue Bus site allows for ingress and egress issues
to be addressed. In consideration of BBB’s ongoing and future bus operations, while the
master plan may put forward recommendations for some modifica tions to the BBB site,
the master plan process will not at this time consider potential development of the BBB
site or relocation of BBB bus operations.
2. INITIAL DRAFT SITE OBJECTIVES
The Expo station will be the arrival and departure point for many people in Downtown
Santa Monica. As a City-owned site at a critical location, it is essential that the 4CO site
satisfy community priorities. 4CO should define the Santa Monica experience with the
same level of investment that the City has made in the Esplanade and station area.
New land uses should be considered within the surrounding context to complement the
station area as well as maximize the benefit of transit adjacency.
Based on the community and stakeholder input for the Expo Light Rail, Esplanade, Draft
DSP, and interim use planning processes, staff has developed broad draft objectives for
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the Council to consider. These objectives provide an initial lens through which to
evaluate the technical analysis, consultant direction and proposal for a joint-use partner
for the future of the site.
a. Prioritize circulation improvements. The community continues to express that
circulation and traffic are their highest priority. As a crossroads for multiple types
of transportation, this site is a unique opportun ity to address circulation
improvements. These divide into two sub-categories:
i. Network improvements. Potential scenarios described in the Draft DSP
address large scale projects such as new roads and the realignment of the
freeway off-ramp, involving multiple sites and benefiting the larger circulation
network.
ii. Site-access improvements. These focus on the necessary parameters for site
access such as location of curb cuts, level and type of bus service,
bus/shuttle interface with rail transfer, bike activity, and service entrances.
b. Prioritize a place for people. As the transition area between circulation
modalities for visitors and residents alike, and a gateway for all, the urban design
should celebrate the location with spaces for people to interact and enjoy. The
site has clear views toward the ocean above the freeway, allowing for orientation
and the experience of Santa Monica’s unique ocean air and light. The site will be
a focal point and a crossroad, as well as the place where many newcomers will
have first sight of this environment. As Santa Monica continues to be at the
forefront of 21st Century sustainability practices, the site should celebrate the
ideals of sustainability and environmental stewardship that define the City. 4CO
provides a unique opportunity to ensure that people arriving at this major portal to
the City, regardless of mode of transportation, feel they are not at the end of a
trip, but beginning their Santa Monica experience.
c. Consider land use in relation to circulation. Decisions about land use will
impact the circulation in and around t he site, having far reaching influence on the
city-wide circulation network. This site provides a unique opportunity for transit-
oriented design, allowing residents or employees to access the site without the
use of a car. The mix of land uses can be calibrated to take advantage of shared
parking, transit adjacency, and location in the City’s vibrant Downtown to provide
an active environment while mitigating traffic impacts. The City has long sou ght
to use transit-oriented strategies that combine employment centers and housing
that accommodate both high Average Vehicle Ridership (AVR) and low trip
generating transit-dependent office, and housing, as well as hospitality and
supporting retail uses. The large sites adjacent to the freeway have complex
edge conditions due to the topography and location of the freeway. Considering
these sites together will allow for significant access improvements for each of
these sites.
d. Providing revenue support for BBB operations. Because a portion of this site
was originally purchased with transit funds, staff anticipates that a significant
portion of potential revenue will be allocated to BBB operations. The key
community benefits identified to date are circulat ion-oriented, large Capital
Improvement Projects that benefit City circulation as a whole. Balanced land use
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planning will be critical to maintain an economically viable vision for the site. To
this end, ongoing economic analysis and evaluating multiple si te scenarios are a
key component of the immediate work effort. Ongoing analysis will provide the
necessary information to allow decision makers and the community to focus on
achieving a joint-use partnership that realizes the community’s transportation and
urban design goals. Because the size of an on-site bus facility significantly
affects site configuration and opportunities for other uses, as well as financial
feasibility, staff requests Council feedback on whether a bus facility is a low- or
high-priority and, if a high-priority, which bus facility scenarios should be
analyzed. If a bus facility is not considered an option for this site, then revenue -
generating uses should be prioritized to meet the objective of supporting BBB
operations.
3. SITE-SPECIFIC ANALYSIS – LAND AREA AND OWNERSHIP, CIRCULATION, LAND
USE, AND PARKING LAYOUT
Land Area and Ownership
The City-owned properties between 4th and 5th Streets located directly south of the
future Downtown Expo Terminus Station constitute a site area of approximately 86,250
square feet. Long-term analyses could examine the potential for consolidating parcels
now under multiple ownership, for a much larger project site. In addition to analyzing the
long-term uses for the City-owned property, the project study area could also include:
The City-controlled right-of-way on Palm Court (approx. 16,300 square feet),
The privately-owned Comma Building property (approx. 21,700 square feet) and,
The existing 4th Street off-ramp and embankment (approx. 22,100 square f eet).
Land Area and Ownership
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Circulation
Based on the preliminary understanding of the site conditions (See Attachment D) and
the role of this site in the Downtown and Civic Center circulation network, the Draft DSP
provided criteria for site access, use, and form to guide the visioning process for the
future use of the 4CO site and to ensure integration into the Downtown. The diagram
addresses pedestrian-oriented, frontage needs; garage access options; art; and
pedestrian plaza possibilities.
The ongoing analysis and interim use investigation has refined understanding of the
site, specifically, related to site access intersections.
Draft DSP Vision for Incorporating Site into Downtown Network
Site Access and Circulation Features
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Key site access concepts recommended for inclusion in the next phases of evaluation
are:
5th Street Intersection and New Street-Paseo (A and B on key): Analysis shows
an east-west paseo through the station site would improve access and circulation
for the network and site. Completing the street grid and complementing Colorado
Avenue (now one-way westbound between 5th Street and Ocean Avenue due to
train operation) would provide valuable improvements to the overall network.
New 4th Street Intersection with freeway off-ramp realignment (B and C on key):
Construction of the Olympic Crossover would create additional direct connections
to Main Street and Ocean Avenue via Olympic Drive, dispersing traffic more
evenly throughout the Civic Center and Downtown network. Initial analysis shows
that this improves level of service at 4th and Colorado, which is currently one of
the busiest intersections in the City. The Olympic Crossover would also enable a
signalized intersection at 4th Street and the new street/paseo. Without the
Crossover, the signal spacing between the existing off -ramp and Colorado
Avenue would be too short. A signalized intersection at 4th Street and the new
paseo would improve access to kiss-and-ride and site access on the constrained
freeway-adjacent sites. Based on the placement of the new street/paseo per the
approved interim use plan and assuming the construction of the Olympic
Crossover, new signalized intersections at 4th Street could be located at one of
these locations:
o 4th/Olympic Crossover and 4th/New Street-Paseo, or
o 4th/Olympic Crossover and 4th/Existing 4th Street off-ramp (right-in and
right-out at 4th/New Street/Paseo)
Additional network analysis of the potential signalized intersections at 4 th and 5th
Streets will be performed to determine the specific impacts and allowable turning
movements for the long-term, based on use-specific trip generation.
Bus Operations (D on key): Long-term analysis of the site should consider the
optimal number of on-site bus bays with the appropriate access and necessary
space for turning movements. This report includes a more in-depth discussion of
potential bus scenarios on subsequent pages and in Attachment E.
Shuttle and Kiss-and-ride Operations (E on key): Accommodation of shuttles and
kiss-and-ride helps to reduce unauthorized use of bus stops or red curb
(especially along the east side of 4th Street) for pick-up and drop-off activity.
Stakeholder comments received during the interim use planning process
expressed support for accommodating shuttles in the long-term as important to
providing north/south train connections, and preventing shuttles from using bus
stops on city streets. Shuttle use of City bus stops would contribute to traffic
congestion.
Palm Court (F on key): Long-term visioning will evaluate how to improve the
effectiveness and configuration of Palm Court, potentially removing the
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turnaround and creating a through driveway/alley or street that allows for service
and parking access.
6th Street Alley (G on key): Use of the through alley between 5th and 6th Streets,
limited to buses and shuttles, provides additional opportunities for transit routing
and layovers. This concept could be considered as part of a comprehensive long-
term plan of network and site access improvements that considers the three
freeway sites together as an opportunity for expanding the downtown grid.
Sears Tunnel (H on key): If the tunnel to Sears is preserved for access long-term,
the Sears site could be utilized in conjunction with the station site, thus allowing
for a full range of turning movements on and off both sites. This would require
coordination and collaboration among the property own ers to create agreements
for through-circulation.
Caltrans Process (B and C on key): City staff and Caltrans have begun
discussions about the appropriate process to evaluate the technical requirements
for proceeding with the 4th Street curb cut and the Olympic Crossover. The 4th
Street curb cut and the Olympic Crossover could be processed together or
separately. As the Crossover project requires significant analysis and evaluation,
the City is currently submitting paperwork to initiate that process. T he City will
request to initiate the analysis and documentation required by Caltrans by
completing a Project Study Report–Project Development Support Project
Initiation Document (PSR-PDS PID). The PSR-PDS PID process is anticipated to
take a minimum of 8 months, and will be followed by subsequent environmental,
final engineering, and construction documentation processes.
Land Use
In consultation with AECOM economic staff, an initial look at potential land uses
suggests that most uses, except for extensive retail, appear to be viable options for the
site. With the potential west and south -west views from the site, a new hotel may be a
fitting use for the site. Easy access to regional transit system would alleviate vehicle
demand for hotel and office uses. When compared to other uses such as residential
housing, Transportation Demand Management (TDM) measures have proven most
effective and easier to monitor when applied to office uses. The best choice of use mix
should include consideration of circulation capacity, station proximity, shared parking
opportunities, and pedestrian activity. If a permanent bus structure is not included in the
permanent long-term vision, construction costs for the Olympic Crossover and parking
will likely be significant factors in determining the financial feasibility of the overall
project. While affordable housing as a use was not explicitly listed as a possible
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community benefit in the Draft DSP due to proximity to the freeway, discussions
following the release of the Draft Plan consider that housing, with a component of
affordable housing, should be studied for suitability as a land use for this site. Hotel,
residential, office and limited retail are all uses that would meet current and future
demands in the downtown.
Parking
As depicted, utilizing the entire site could
produce approximately 350 parking spaces
per level. This number will be considerably
less for prototypes that assume a smaller land
area (i.e. City-owned area only). It should be
noted that should the project be constructed in
phases – with the City-owned properties being
the first to come online, the parking structure
could be built in phases and, if appropriate,
designed to connect to the Sears site through
the existing access tunnel. Several factors will also dictate how much parking can and
should be accommodated on site such as: land use mix, pricing and parking feasibility,
ingress/egress access points, intersection absorption, and DSP parking strategy goals.
4. SITE-SPECIFIC ANALYSIS – BUS FACILITY INVESTIGATION
Big Blue Bus recently completed a comprehensive rerouting of transit connections to
incorporate all Expo Station sites. The first part of the service changes occurred in the
summer of 2015 with the balance of Expo-related changes to occur in February 2016.
The interim 4CO use includes on-street bus stops on 4th and 5th Streets coordinated
with BBB rerouting. Like the interim use process, the long-term analysis also considers
options for intermodal transit interface. Determining the level of bus facility at the site is
critical to understanding the feasibility of all land use and circulation scenarios. A variety
of possibilities were analyzed to evaluate the tradeoffs between a significant bus facility
and potential revenue-generating uses with the understanding that the ultimate long-
term use should support BBB either with additional facilities or revenue . Due to large
Parking Layout Concept
Potential phasing
options possible
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bus turning radii and size of vehicles, bus facilities require significant site footprint,
maneuvering spaces, and station areas. Ramping t o upper or lower levels must
accommodate bus vertical and horizontal clearances as well as wide ramp radii. As a
result, bus facility drives the opportunity and constraints of the long-term vision. BBB is
currently weighing the benefit of having bus access onsite versus a financing source
that would subsidize future operations.
Staff has worked with consultants and interdepartmental partners to explore concepts
for bus operations located onsite. Some options were considered for discussion and
determined to be infeasible due to the topography of the site and other site constraints,
but are discussed here to allow Council to fully understand the challenges of the site.
The following scenarios were developed to fully understand the trade-offs of
accommodating buses onsite and are illustrated in Attachment E.
A. Subterranean Facility Concept
A subterranean concept was discussed and discarded by staff. The facility would
require +/-24 feet of height at a subterranean level (this includes thicker structural
materials for the long-span clearances needed for subterranean bus
maneuvering). Significant excavation would be needed to depress the bus facility
on the sloping site. The necessary continuous ramping to maneuver buses
underground while “chasing the grade” would constrain any other uses on the
site, make parking design difficult, and increase headway time for buses as they
have complex on-site circulation. This concept would also require bus riders
coming from the train to walk underground to transfer.
B. Stand-Alone Facility Concept
A stand-alone bus facility concept would entail a bus facility located
approximately at grade with 4th Street (partially below 5th Street) and would allow
up to six bus berths. This concept assumes the bus facility to be open -air with no
uses above or parking below. A sloped roadway would connect 4 th and 5th
Streets. While this configuration would allow direct interface between train riders
and bus riders, it would significantly reduce potential for pedestrian-oriented
placemaking and opportunities for other transit-focused uses. Buses would
require less on-site circulation than a grade-separated facility, saving some
space for layovers.
C. Construction Above Bus Facility Concept
This concept would utilize the bus facility layout of the prior option with up to six
bus berths designed so the ground level accommodates bus staging and
movements, while the upper levels house other uses. Like the prior option, it
requires a large portion of the useable site at the ground level (approximately
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38,000 square feet). Because a bus facility would necessitate floor to ceiling
height of +/- 24 feet, access to upper level uses would be c omplex, limiting
ground floor pedestrian interest and potentially affecting value. Access to
underground parking would have to be coordinated with bus access points ,
limiting parking potential.
D. Station Platform Grade Facility Concept
This concept proposes a bus facility at the level of the station platform (elevated
from 4th Street). This configuration could accommodate up to eight buses with
access from 5th Street and a potential new connection to 4th Street at the south
end of the site. Buses would be highly visible and easily accessible for riders
exiting the train, but would likely require a stairway and related ADA
accommodation for riders accessing buses from 4th Street. Design of a
pedestrian frontage on 4th Street would be challenging due to grade changes.
This is the only concept that assumes the Paseo to be located at the southern
portion of the City-owned area. The Paseo could accommodate taxi and shuttle
services, but would have reduced potential for programming that activates the
edge of the new street, and would likely require closing of the 4th Street tunnel. A
building could be considered over the bus facility, but would incur additional costs
due to longer structural spans required over the bus facility, and with challenging
urban design issues on the 4th Street property edge.
E. On Street + Paseo Concept
This alternative provides a paseo/street through the center of the site—which is
wide enough to accommodate up to four bus berths or shuttle and kiss -and-
ride— and anticipates, if needed, an additional bus berth on the west side of 4 th
Street that could be negotiated as part of a futu re Sears site upgrades. Bus pick-
up/drop-off will be located closest to the station and highly visible for riders
exiting the train. A signalized Paseo connection to 4th Street enables flexible and
direct bus routing and site access to the east and west. T his scenario provides
most consolidated efficient use of land and opportunity to design an inviting
pedestrian frontage on the paseo. Contiguous land space is likely to create
greater value to fund ongoing BBB operations.
F. On Street Concept
This concept would utilize the future bus stops along 4th and 5th Streets that are
being constructed as part of the interim plan. It assumes all bus movements and
boarding/alighting would take place along the streets , with buses and cars being
able to utilize the street/paseo for connections between 4th and 5th Streets. If
needed, an additional bus berth on the west side of 4th Street could be
negotiated as part of a future Sears site upgrades. This concept would require
wayfinding to help users to locate buses further away. This concept supports
flexible use of land and better connections to the southern portion of the site.
This configuration is anticipated to generate more land value than other
concepts. The Planning Commission comments supported this scenario.
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The above scenarios provide the comparative analysis to allow decision-makers to
understand the benefits and drawbacks to varying levels of investment, circulation, and
site configuration. Attachment E includes greater detail on the technical specifics for
each of the above scenarios.
5. ALTERNATIVES DEVELOPMENT
The most recent step in the site analysis has been to synthesize the information
presented in this staff report, and develop a series of conceptual site scenarios for the
purposes of illustrating options and approaches to site planning. None of the conceptual
scenarios are intended as proposed prototypes, but are useful to stimulate discussion of
priorities and options. Each conceptual scenario mixes options for land area, site
configuration, building footprint type (office, residential, etc.), access locations, and
urban design. Each scenario also includes some elements of network access and
circulation improvements outlined in the Draft DSP. The scenarios include different
options for improving the City-owned site separately or in concert with the adjacent
private parcel. Other options evaluate a mix of different land areas and assumptions to
understand the benefits and tradeoffs of providing an on -site bus facility or other land
uses, such as a residential-oriented project. Feedback on these conceptual scenarios
will help to identify prototypes for the next step of understanding an optimal land use
mix, economic feasibility, and potential to finance the large-scale community benefits of
ongoing BBB operations, shared parking, and the Olympic Crossover.
Building Footprint Assumptions
In order for development on this site to fit within and contribute to the downtown, the
following urban design principles are being considered in future investigation:
The design should complement the pedestrian-oriented, eclectic Downtown
Santa Monica context.
The site should accommodate a variety of public and private open spaces with
varying sizes.
The ground level plazas and spaces between buildings should promote
pedestrian activity and interest.
Buildings should provide visual interest both up-close and from a distance,
through variety of massing and skyline variety.
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The following diagrams indicate how building footprints could be set depending on land
area assumed and the potential implications on circulation, land use, urban design, and
economic viability.
Diagram A
Diagram A illustrates changes to the 4th/Colorado City-owned property (approx. 86,250
total square feet), which includes the Apple Building site. Plann ing for the site is
simplified and potential outcomes of this scenario are manageable to a greater extent
since it utilizes only City-owned property. However, this trade-off for increased certainty
may limit larger objectives, such as off-ramp re-location.
Diagram A: Redevelop 4th/Colorado City-owned Property (Includes Apple Building Site)
Approx. 86,250 SF of public land area
Access to parking from 4th Street
Pick-up/drop-off access from 5th Street
Moderately-improved 5th Street
pedestrian realm
Views from 4th Street building
Least potential for providing community
benefits
Potential circulation:
o 4th Street curb cut
o 5th Street signal and crosswalk
o Street/paseo
o On-site bus/shuttle/kiss-and-ride
area
o Sears tunnel pedestrian access
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Diagram A illustrates access and circulation from 4th Street that is separate from 5th
Street, where 4th Street accommodates motorists exiting the I-10 Freeway and parking
and 5th Street accommodates pick-up and drop-off. The two buildings shown would
have off-set first floors of 1-2 levels, with the west building level with 4th Street, and the
east building elevated over the pick-up and drop-off area. Pedestrians can connect
east-west through the site via a staircase. Vehicles that enter/exit from 4 th and 5th
Streets could connect below grade in a parking level. Circulation improvements gained
from 4th Street and 5th Street access, whether connected through a street/paseo or not,
are possible in this scenario.
Potential Implications to Objectives:
Circulation: Benefits that could be gained from the construction of the Olympic
Crossover, including signalizing a new 4th Street intersection, achieving through
access between 4th and 5th Streets, and considering ingress/egress to the
northern and southern portions of the site, are not captured in this scenario.
While the pedestrian realm along 5th Street could be moderately improved, Palm
Court would need to remain as access to the existing southern office building and
most likely for all kiss-and-ride and shuttle drop-off and pick-up activities,
precluding any significant improvement for the eastside of the property. The
tunnel connection to the Sears site remains in this scenario and could be used as
part of a future circulation strategy.
Land Use: Building footprint dimensions and locations, away and buffered from
the freeway, support and appeal to light retail and hotel on the ground floor, and
hotel, office, and/or housing above. Parking would likely be limited to the City-
owned land, barring efficiencies that could be gained through a phased
development with the southern property.
Urban Design: Because of the topography of the site and building elevations,
the northern and western portion of the 4th Street building would be programmed
with walk-up uses and the 5th Street building would have challenging urban
design that would make activating any ground floor areas with pedestrian -
oriented uses difficult. The east-west orientation of the buildings means that
valued views would almost exclusively be enjoye d by the 4th Street building and
limited for the eastern structure. The most useable space for people to gather
would be directly adjacent to the station platform stairs.
Economic Feasibility: This scenario assumes the smallest assembly of land
area and therefore lower construction cost, but also the least potential for
providing community benefits and achieving City priorities. Elevating the eastern
building over the drop-off area would increase some construction costs. Without
inclusion of a bus facility and the Olympic Crossover, shared parking would be
the most monetarily intensive community benefit of the property.
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Diagram B
Diagram B builds on a modified Diagram A and presents an illustration that assumes
the full site in phases and lowers the eastern building to ground level. Phase 1 includes
the 4th/Colorado City-owned property (approx. 86,250 total square feet) and Phase 2
includes the Comma Building property and the 4 th Street off-ramp and embankment
Diagram B: Full Site in Phases (Phase 1: City-owned, Phase 2: Private)
Phased approach:
o Phase 1: Approx. 86,250 SF
of public land area
o Phase 2: Approx. 43,800 SF
of private land area
o Optional: Approx. 16,300 SF
of public land area (Palm
Court)
Access to parking from street/paseo
Parking access from modified 4th
Street off-ramp
Pick-up/drop-off along street/paseo
Improved pedestrian realms along
4th, 5th and paseo
Views from freeway-adjacent buildings
Greater potential for providing community
benefits
Potential circulation improvements:
o 4th Street curb cut and signal
o 5th Street signal and crosswalk
o New street/paseo
o Potential on-site bus/shuttle/kiss-
and-ride area along street/paseo
o Reconfiguration of Palm Court and
4th Street off-ramp for local access
and circulation
o Sears tunnel access
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(approx. 43,800 square feet). Phase 2 may or may not include Palm Court (approx.
16,300 square feet).
The phased approach helps to address the unknown factors of a joint -use partnership
with the Comma Building property or realignment of the 4th Street off-ramp by allowing
Phase 1 to progress regardless of the unknowns and Phase 2 to develop at a later date.
Diagram B assumes the new paseo and reconfigured 4th Street off-ramp to allow
circulation around the site and adjustment to Palm Court.
Potential Implications to Objectives:
Circulation: This scenario allows for an improved pedestrian realm along 4th
and 5th Streets and the new Paseo. The new street will help to break down the
block, enforcing the Downtown District’s grid; potentially accommodate kiss -and-
ride and shuttle drop-off and pick-up activities; and provide access to the Phase
1 uses with another potential access point anticipated from the existing off -ramp
once Phase 2 is complete. With this approach, Palm Court would need to remain
for accessing the existing southern office building in Ph ase 1 and any
reconfiguration of Palm Court would need to occur in Phase 2, potentially limiting
optimal access and circulation benefits. The tunnel connection to the Sears site
remains in this scenario and could be used as part of a future circulation str ategy.
Land Use: This scenario presents greater potential for underground parking by
gaining efficiencies in the footprint of parking levels and creating Phase 2 access
potential at the southern end of the property. Buildings buffered from the freeway
support active frontages along the Paseo and 4th Street and appeal to light retail
and hotel on the ground floor, and hotel, office, and/or housing above. Buildings
adjacent to the freeway offer ocean views, the most direct access to/from the 10
freeway, and appeal to shared parking, hotel, and office.
Urban Design: Lowering of the building on 5th Street to grade level significantly
improves the urban design frontages. In this scenario, the pedestrian experience
can be improved along the entire edges of 4th and 5th Streets in Phase 1 and
the site’s southern edge in Phase 2, making it possible to activate all four sides of
the site. This configuration pushes buildings to the south, allowing for pockets of
open space to be introduced, tying the three buildings together while increasing
site permeability. Attention to design and activation of the road and plaza area
will be needed to ensure a safe and comfortable space south of the station.
Economic Feasibility: While this scenario assumes a greater assembly of land
area, necessitating higher construction costs, efficiencies gained through the
fixed costs of constructing the Paseo and ramping to the subterranean structure
should translate into higher revenue generation compared to Diagram A.
Increased revenue would make providing certain community benefits, along with
a revenue source for BBB operations, more feasible.
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Diagram C
Diagram C assumes development of the site in one phase, including the City-owned
property, Comma Building property, 4th Street off-ramp and embankment, and Palm
Court (approx. 146,350 square feet). This single-phase approach would require a joint-
use partnership with the Comma Building property and the realignment of the 4 th Street
off-ramp. Diagram C creates more dispersed pedestrian passages through the site,
encouraging creation of a great plaza, and strong building connection (and adjacency)
to the Expo station.
Diagram C: Full Site as One Project
Approx. 146,350 SF of public and
private land area
Key access to parking from
street/paseo and reconfigured 4th
Street off-ramp
Potential pick-up/drop-off along
street/paseo
Improved pedestrian realms along
entire site perimeter (i.e. widened
sidewalks, active frontages)
Ocean views from freeway-
adjacent buildings
Stronger connection to Expo
station
Significant pedestrian connections and
gathering places
Greatest potential for providing
community benefits
Potential circulation improvements:
o 4th Street curb cut and signal
o 5th Street signal and crosswalk
o New street/paseo
o Potential on-site bus/shuttle/kiss-
and-ride area along street/paseo
o Reconfiguration of Palm Court
and 4th Street off-ramp for local
access and circulation
o Sears tunnel access
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Potential Implications to Objectives:
Circulation: Full access and improved pedestrian circulation improvements for
the entire site, including expanded sidewalks along 4th and 5th Streets, adjacent
to the off-ramp, and through the site, would take place in one comprehensive
phase. The new street will help to connect 4th and 5th Streets; break down the
block, enforcing the Downtown District’s grid; and accommodate access through
the site and to the subterranean structure, which would be accessible by all
buildings. By introducing new access points, Palm Court could be recaptured and
redesigned to circulate vehicles around the southe rn end of the site and allow for
an additional access point to the garage. In this scenario, kiss-and-ride and
shuttle drop-off and pick-up could be accommodated on the new Paseo and/or
the reconfigured Palm Court. The tunnel connection to the Sears site remains in
this scenario and could be used as part of a future circulation strategy.
Land Use: This scenario presents the greatest potential for maximizing
underground parking and the accommodation of a full range of uses: office, hotel,
light retail, housing, and shared parking. A comprehensive planning effort would
allow all buildings to be designed in a way that makes sense for the anticipated
use rather than limiting design and use of space based on existing lot lines.
Urban Design: Designed and constructed as one development, this scenario
presents the greatest flexibility for multiple designers and diversity on the site,
making the most efficient use of the project area, connecting all uses at the site,
and resolving complex topography issues. The la yout optimizes new pedestrian
connections and significant gathering places through comprehensive urban
design improvements, including a sizeable plaza adjacent to the station site. This
configuration makes it possible to activate all edges of the station a rea site,
including a stronger connection to the Expo station and providing some
screening of the TPSS site.
Economic Feasibility: Diagram C provides cost savings by minimizing phasing
and the construction time. By assuming all of the land areas develop together,
efficiencies realized through fixed costs of constructing the Paseo and ramping to
the subterranean structure, coupled with the potential utilization of Palm Court
and the area adjacent to the freeway, should translate into higher revenue
generation compared to other concepts. Revenue achieved by this concept
would make providing community benefits, along with a revenue source for BBB
operations, more feasible.
The alternatives and their benefits and tradeoffs are presented for discussion to
generate feedback to inform continued analysis. Many of the elements and concepts
could be altered or combined in future prototypes for analysis.
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6. COUNCIL DISCUSSION
Using the information presented in this report, staff requests Council feedback on the
following considerations to help progress the long-term analysis of the station site.
Consider objectives, are they comprehensive? The objectives derived
through the planning process for the station area site reflect the input of
community members as well as internal stakeholders. These objectives will be
key to assessing long-term strategies and concepts for the site.
Do the community benefit concepts reflect current priorities for this area?
The community benefits stem from the LUCE, Draft DSP, Expo, and Esplanade
processes and reflect workshops with community members as well as DTSM
board members and policy makers. These community benefits will need to be
assessed through a pro-forma analysis to gain a better understanding of how
they will be provided. Specific community benefits listed are also listed in the
Draft DSP.
Should bus facilities be considered for this site and if so, which alternative
should be analyzed? The size of bus facility to be located onsite significantly
affects site configuration, opportunities for other uses, and financial needs. While
it is important that train riders be able to utilize convenient and efficient bus
services, potential alternatives range from large on -site to integrated on-street or
off-street facilities. Approach to bus integration needs to be determined early
because it drives other site opportunities. In order to provide efficient and
valuable analysis, it is important to know if potential uses that generate revenue
for BBB are preferable to providing an enhanced BBB capital facility.
What should be assumed for site uses and extent? Given the five individual
pieces of land included in the study area, there are a number of permutations
that could be considered when determining land area and uses. The current
contract has scoped for three prototypes to be studied further. The land area and
uses will have a significant impact on the pro forma analysis for each prototype.
Recommend broad planning goals and parameters. What other planning
approaches or issues should be considered? Joint partnership parameters will be
critical to understanding the site performance.
Next Steps
Staff will continue working with the AECOM urban design team to develop and analyze
the land use and urban design concepts for long-term economic viability and access
and circulation impacts of assumed site configurations. Staff will address Council
comments in the ongoing analysis and potential Gateway Access Master Plan. Staff is
anticipating a joint Planning Commission/community meeting in 2016 to solicit feedback
on various concepts for additional analysis and/or objectives of a master plan. With
additional input, staff will solidify objectives, circulation improvements, and urban design
guidelines to be presented to Council for approval. Staff will continue to partner with
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community stakeholders throughout the long-term visioning process, and make
necessary changes to the Draft DSP to incorporate the master plan language for the
freeway-adjacent sites.
Financial Impacts and Budget Actions
There is no immediate financial impact or budget action necessary as a result of the
recommended action.
Prepared By: Linda Huynh, Associate Planner
Approved
Forwarded to Council
Attachments:
A. Initial Freeway Bridging & Capping/Olympic Crossover Rend ering
B. Interim Concepts and Process
C. Relevant LUCE Policies
D. Station Site Conditions: Layout and Topography
E. Bus Facility Scenarios Pros and Cons
F. May 11, 2009 Council Staff Report Web Link
G. January 19, 2010 Council Staff Report Web Link
H. April 12, 2011 Council Staff Report Web Link
I. September 13, 2011 Council Staff Report Web Link
J. January 24, 2012 Council Staff Report Web Link
K. June 10, 2014 Council Staff Report Web Link
L. November 25, 2014 Council Staff Report Web Link
M. February 24, 2015 Council Staff Report W eb Link
N. October 13, 2015 Council Staff Report Web Link
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O. August 5, 2015 Planning Commission Staff Report Web Link
P. August 5, 2015 Planning Commission Meeting Minutes Web Link
Q. Downtown Specific Plan Project Website Web Link
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SANTA MONICA CAP PARK - DRAFT FEASIBILITY STUDY 2010 - EXHIBIT 5.26.10
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ATTACHMENT A - INITIAL FREEWAY BRIDGING & CAPPING/OLYMPIC CROSSOVER RENDERING (2010)
ATTACHMENT B - INTERIM CONCEPTS AND PROCESS (1 of 3)
Modified BBB Plan with Six Bus Bays Proposed Interim Use | Concept Illustration
Santa Monica 4th/Colorado Station Site Studies (4CO Project)
11/25/14 COUNCIL MEETING: ORIGINAL PROPOSED INTERIM USE - CONSIDERED BUT REJECTED
Option B “Upper Lot” Plan:
Provides a smaller upper lot for shuttles and kiss-and-ride that could possibly be completed in time for Expo’s
opening and a fenced-off lower lot.
ATTACHMENT L – OPTION A “LOWER LOT” PLAN AND OPTION B “UPPER LOT” PLAN IMAGES
Option A “Lower Lot” Plan:
Provides a larger lower lot for shuttles and kiss-and-ride that would be completed in fall of 2016 and the
opportunity for a future 4th Street curb cut and access.
ATTACHMENT B - INTERIM CONCEPTS AND PROCESS (2 of 3)
2/24/15 COUNCIL MEETING: OPTIONS A AND B REVISED INTERIM USE - CONSIDERED BUT COMBINED
FOR NEW ALTERNATIVE
ATTACHMENT B - INTERIM CONCEPTS AND PROCESS (3 of 3)
2/24/15 COUNCIL MEETING: OPTION C REVISED INTERIM USE - APPROVED
Option C “Phased Upper and Lower Lot” Plan:
Provides a two-phased interim use concept plan.
Phase 1: Construction of two bus pads on 5th Street north of Colorado Ave. and an asphalt upper lot
with striping for parking, shuttles, and kiss-and-ride.
Phase 2: Construction of an east/west oriented ramp and an asphalt lower lot with striping for shuttles
and kiss-and-ride. Upon completion of Phase Two, estimated to occur in Fall 2016, the upper lot would
be restriped for parking spaces only.
LUCE policies that are relevant to the vision for this site are as follows:
• D1.5 Focus new investment in areas of the Downtown District that are accessible to transit, accommodate
mixed-use development, contribute to the pedestrian-oriented environment, and support substantial
community benefits in areas such as… near the proposed Expo Light Rail Station.
• D3.1 Provide design consistency with streetscape and plaza improvements that address the concept of a
gateway.
• D4.1 Redistribute vehicular traffic to avoid the Colorado Avenue and 4th Street intersection.
• T13.4 Design and locate rail stations to support bus access and to reduce the “transfer penalty” between
buses and rail.
• D7.3 Encourage local-serving office uses in the Downtown, especially in close proximity to the new Expo
Light Rail station.
• D4.2 Develop a functional interface for transit, shuttles, taxis and other vehicle drop-off and pick-up
associated with the station.
• D3.2 Ensure pedestrian orientation of ground floor uses in new development.
• D12.5 Accommodate and adjust bus service as necessary to support future rail service.
ATTACHMENT C - RELEVANT LUCE POLICIES
The 4CO site has multiple technical and transportation requirements that shape urban design and land use
visioning. Decision makers and staff were careful to ensure that approval of the interim project did not eliminate or
restrict any particular long-term use. The following sections describe the information gathered from the analyses to
date, so the Planning Commission may consider the vision for the long-term use in the context of this information.
Expo Site Layout and Operations
In 2011, City staff worked with the Expo Construction Authority on the final station layout. The new design
resulted in a straighter track alignment with a smaller station footprint. This creates a more significant remnant
parcel and reduces the time the train is in the 5th Street/Colorado Avenue intersection. The station provides
immediate north-south stairs at the west end of the station, a fire access road south of the station, and a Traction
Power Substation on 5th Street. The City paid over $8 million in station betterment funds for these design changes.
Subsequent design of the Esplanade extended connections to the west, north, and south. The 4CO Project is a next
step to providing the multi-modal connectivity and access needed to complement the Expo design.
ATTACHMENT D - STATION SITE CONDITIONS: LAYOUT AND TOPOGRAPHY (1 of 2)
Topography
The 4CO Site has complex topography and adjacencies that drive design opportunities and constraints. The site is
characterized by several factors, the grade difference between 5th and 4th Streets, the sloping 4th Street Freeway
Bridge, and tunnel access between the 4CO and Sears sites. At rough midpoints between Colorado Avenue and
the 4th Street off-ramp, 5th Street is approximately 12’ higher than 4th Street. The Station platform (top of the
station stairs) is also approximately 12’ higher than 4th Street and close in elevation to 5th Street. While 5th Street
remains relatively level adjacent to the station site, the elevation of 4th Street rises 8’ between Colorado Avenue
and the 4th Street off-ramp, and rises another 6’ to the highest point of the freeway bridge. Where 4th Street rises
8’ as it moves south, the interior western edge of the site drops approximately 5’ to meet the tunnel underneath 4th
Street that connects the station and the Sears sites. These slopes create complex access and floor plate decisions.
For example, because of these slopes, any interior ramping to a subterranean bus facility would “chase the grade,”
requiring longer ramps, greater expense, and reduced area for bus operations.
ATTACHMENT D - STATION SITE CONDITIONS: LAYOUT AND TOPOGRAPHY (2 of 2)
02/24/201508/05/2015
A. Subterranean Facility Concept:
Design for accommodating bus operations underground
Pros
With wayfinding and signage, riders exiting the train
could locate buses underground.
All bus maneuvers would take place underground,
reducing the potential bus/pedestrian conflict.
Would allow taxis and shuttles to be accommodated on
the Paseo.
Would allow an active frontage along 4th Street sidewalk.
Cons
Extensive ramping due to continuous “chasing the grade”
would take up most of site, prove difficult and costly,
reduce bus operating efficiencies, and increase distance
and time spent accessing loading/unloading zones.
Because of extensive ramping and topography of the
western portion of the site, access to and from 4th
Street would prove very difficult, if not impossible.
Requires buses to exit the street to access the
underground transit area, complicating routing.
On-site bus operations needs left turn movement to 4th
Street southbound from Paseo—requires traffic analysis.
Hinders pedestrians’ arrival experiences by requiring bus
riders to take an escalator/elevator underground.
Ramping area reduces leasable area and significantly
impacts subterranean parking layout.
Would be the most cost intensive option for
accommodating bus services on-site.
Loses Sears tunnel access.
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B. Stand-alone Facility Concept:
Design for accommodating on-site bus operations (level with 4th Street, no parking below, no building above)
Pros
Most visible for passengers exiting the train and most
convenient for riders getting dropped off at the station.
Allows majority of bus routes to enter site, layover, and
perform seamless pick-up and drop-off of passengers
The most cost-efficient way to provide for a permanent
bus facility onsite.
Paseo provides entrance to new building and allows taxis
and shuttles to be accommodated on-site.
Cons
Bus facility footprint would require most of the site and
significantly reduce the amount of leasable area.
Low revenue uses could preclude financing of other
community benefits (i.e. BBB ongoing operations, shared
parking, Olympic Crossover, etc.)
Would not allow for active frontages along the Paseo and
4th Street, severely impacting the pedestrian experience.
Requires buses to exit the street to access the transit area,
complicating routing.
On-site bus operations needs left turn movement to 4th
Street southbound from Paseo—requires traffic analysis.
Potential to lose Sears tunnel access.
ATTACHMENT E - BUS FACILITY SCENARIOS PROS AND CONS (1 of 3)
02/24/201508/05/2015
C. Construction Above Bus Facility Concept:
Design for accommodating bus operations on-site (level with 4th Street) with development above
Pros
Most visible for passengers exiting the train and most
convenient for riders getting dropped off at the station.
Allows majority of bus routes to enter site, layover, and
perform seamless pick-up and drop-off of passengers.
Paseo provides entrance to new building and allows taxis
and shuttles to be accommodated on-site.
Cons
Requires a large portion of the developable site at the
ground level (approximately 38,000 sf).
Disrupts pedestrian experience – bus facility would
necessitate first vertical 25’ of building, does not allow
activate frontages along Paseo and 4th Street sidewalks.
Requires buses to exit the street to access the transit
area, complicating routing.
Dictates design of adjacent uses.
Reduces access points to underground parking.
On-site bus operations needs left turn movement to 4th
Street southbound from Paseo—requires traffic analysis.
Lack of flexibility – structure cannot easily be converted
from a bus facility use to accommodate other uses.
Restricts amount of revenue that could be captured
through ground leases to finance community benefits (i.e.
BBB ongoing operations, shared parking, Crossover, etc.)
Would likely require ground leases to fund structure
(approx. $27M).
Potential to lose Sears tunnel access.
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D. Station Platform Grade Facility Concept:
Design for accommodating bus operations on-site (level with 5th Street and Station Platform)
Pros
Most visible for passengers exiting the train and most
convenient for riders getting dropped off at the station.
Allows majority of bus routes to enter site, layover, and
perform seamless pick-up and drop-off of passengers.
Paseo provides entrance to new building and allows taxis
and shuttles to be accommodated on-site.
Cons
The footprint of the bus facility would require most of
site and significantly reduce the amount of developable
space for leasable area.
Lack of leasable area could preclude financing of
community benefits (i.e. BBB ongoing operations, shared
parking, Olympic Crossover, etc.)
Would not allow for active frontages along the Paseo or
4th Street, severely impacting the pedestrian experience.
Requires buses to exit the street to access the transit
area, complicating routing.
On-site bus operations needs left turn movement to 4th
Street southbound from Paseo—requires traffic analysis.
Potential to lose Sears tunnel access.
Requires bus access from 4th to be located at east end
of site, resulting in bus station entrance/exit conflicting
with former 4th Street off-ramp and intersection
Ingress and egress to the bus station from 5th Street is
difficult to accommodate with Palm Court
ATTACHMENT E - BUS FACILITY SCENARIOS PROS AND CONS (2 of 3)
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E. On Street + Paseo Concept:
Minimal design for accommodating bus operations on- and off- site
Pros
Bus pick-up/drop-off will be located closest to the
station and highly visible for riders exiting the train.
Provides opportunity for active pedestrian-oriented
frontage along whole paseo.
Provides consolidated and efficient use of land while still
accommodating limited bus movements on-site.
Shorter bus travel distance reduces travel time.
Allows for leasable area that could finance community
benefits (i.e. BBB ongoing operations, shared parking,
Olympic Crossover, etc.)
Efficient access to parking and efficient configuration of
site to accommodate underground parking.
Maintain Sears tunnel access.
Cons
Can only accommodate up to four buses at one time.
Wayfinding and signage will be required for future bus
stops along 4th Street (not as intuitive for riders).
Requires buses to exit the street to access the transit
area, complicating routing.
On-site bus operations needs left turn movement to 4th
Street southbound from Paseo—requires traffic analysis.
Paseo location does not allow for screening the
industrial TPSS facility.
02/24/201508/05/2015
F. On Street Concept:
Minimal design for accommodating bus operations on site
Pros
Keeps bus service close to heart of the downtown.
Allows for active frontages along train, 4th Street, and
Paseo and provides optimal urban design opportunity to
design a comfortable and inviting pedestrian experience.
Allows flexibility for design of the site and mix of uses.
Allows TPSS facility to be partially screened by uses.
Provides consolidated and efficient use of land.
Allows for more leasable area that could finance
community benefits (i.e. BBB ongoing operations, Olympic
Crossover, etc.)
Good access to parking and efficient configuration of site
to accommodate underground parking.
Maintain Sears tunnel access.
Cons
May be difficult for new/single-time users to locate and
identify the correct bus for reaching their destination.
Can only accommodate a minimal amount of buses at one
time, limiting bus service to the site.
Off-site bus berths located on the west side of 4th Street
will need wayfinding and signage to locate (location may
not be that intuitive for riders).
Does not provide extra room for off-street bus layovers.
ATTACHMENT E - BUS FACILITY SCENARIOS PROS AND CONS (3 of 3)