City Council Meeting: October 23, 2007

Agenda Item: 8-B

To: Mayor and City Council

From: Eileen Fogarty, Director, Planning and Community Development

Subject: Request for the Exposition Construction Authority to Study an Additional Alignment Alternative on Colorado Avenue in the Phase 2 Light Rail Draft EIR/EIS, Provide Input to the Screening Process for Alternative within the City of Santa Monica and Authorize $300,000 for the Study of the Colorado Alternative

Recommended Action

Staff recommends that Council:

1) Authorize a request to the Exposition Construction Authority (Expo Authority) to study an alternative alignment into downtown Santa Monica along Colorado Avenue that would allow an at-grade station in downtown Santa Monica, and would assume removal of one travel lane in each direction to accommodate the light rail line. This review will enable City Council to be presented with options that will ensure the most successful implementation of the light rail line for the City of Santa Monica.

2) Recommend to the Exposition Construction Authority to study an Olympic Boulevard alternative that preserves the median island and coral trees and assumes removal of one travel lane in each direction.

3) Authorize the expenditure of an amount not-to-exceed $300,000 for the Exposition Construction Authority to study the additional Colorado alternative. The amount includes the cost accelerating the study to avoid delaying the project and also a 10% contingency to cover possible additional community meetings.

Executive Summary

The Exposition Construction Authority (Expo Authority) is completing the Initial Screening stage of Expo Phase 2 study and is scheduled to consider which alternatives will undergo full analysis in the Draft EIR/EIS at its November 1, 2007 Board meeting. The future Exposition light rail line is critically important to Santa Monica and it is crucial that the project serve the community in the best way possible. Much of the future land use planning focuses on the Exposition light rail and the incredible opportunity that it presents.

City staff has met with Expo Authority staff to review the Authority’s preliminary assumptions regarding the alignment in Santa Monica and the staff has identified several issue areas;

1. As currently scoped, the mid-section of the line is placed within the middle of Olympic Boulevard and requires removal of the landscaped median island and coral trees. Staff is recommending City Council request the Expo Phase 2 Study assume removal of one traffic lane on each side of the median island, consistent with the previous 2001 Draft EIR/EIS, in order to preserve the landscaped median island, coral trees and the green boulevard along Olympic.

2. The Phase 2 study currently assumes an approach into downtown adjacent to the north side of the Santa Monica Freeway with a sharp turn at the end so the station parallels 4^th Street. This ½ mile section approaching into downtown is currently proposed to be an aerial structure in order to clear Lincoln Boulevard and the freeway ramps, culminating in the downtown station which would be 35 feet in the air above 4^th Street. The downtown station cannot be at grade with this approach because of the topography and site constraints. Staff is recommending that City Council request the Expo Authority to concurrently study a second alternative that assumes the mid-section would run at-grade along Colorado Avenue rather than Olympic Boulevard, which would allow for a downtown station that would be at street level. It is important that the light rail station be well-integrated into our downtown and the likelihood is vastly improved if the station is at-grade and easily accessible. This Colorado Avenue proposal would also be studied with the assumption that one travel lane in each direction would be removed to accommodate the light rail line,

The concurrent study of both alternatives will facilitate clear decision making and will ensure that the City, the Expo Authority and Metro have considered the best possible options. The two alternatives and their associated considerations are summarized in Exhibit A. Staff recommends that Council authorize covering the cost to accelerate the study of the new Colorado alternative so as not to delay or jeopardize the federal funding application process.

Discussion

Background

Consideration of station placement and alignment issues are critical to the Land Use and Circulation Elements (LUCE) vision of the City’s future as the light rail will transform areas into pedestrian oriented walkable districts. The incredible opportunity for the City and the importance of these placement decisions will define how these areas function in the future. The Expo Authority is reaching a next milestone, and it is anticipated that at the November 1, 2007 Board meeting it will confirm which alternatives will undergo the full analysis as part of the Draft EIR/EIS. The Expo Authority is on a tight schedule and input into the study process at this point in time is critical, as changes to major assumptions in the future could delay the project.

Analysis

The Expo Authority is completing its Initial Screening for alternatives suggested during the Exposition Light Rail Phase 2 Draft EIR/EIS Scoping process. The proposed alignment in Santa Monica utilizes the Exposition Right-of-Way (ROW) until just west of Cloverfield Boulevard, where the light rail alignment diverges from the ROW and would follow Olympic Boulevard into downtown Santa Monica (Exhibit B). Staff has identified several key issues with this alignment that are worthy of Council consideration:

· Olympic Boulevard Median Island/Coral Trees: As currently scoped, the rail alignment would require removal of the center median with its landscaping and coral trees. The Expo Authority has stated that it intends to add landscaping in the corridor where possible. The photo mock-up below (Exhibit C) provides an illustration of the stark appearance of the section of Olympic Boulevard with the median island replaced by the light rail line. The previous draft 2001 study preserved the median and the landscaping by locating the rail line on each side of the median and removing a lane of traffic in each direction. There may be a way to achieve the alignment without the removal of the island and the coral trees. Staff would like to request the Expo Authority to develop a street section that would retain the median island and the landscaping. The Expo Authority has stated that the City will need to identify the alternative, which could include the removal of a traffic lane in each direction rather than the removal of the median island. If requested, the Expo Authority would perform the analysis to understand the impacts.

· Downtown Station Aerial Configuration: The downtown station is proposed in the Phase 2 Study to be located just north of Olympic Drive/the Santa Monica Freeway and parallel to 4^th Street, consistent with the adopted Civic Center Plan. However, the alignment is assumed to be in an aerial configuration some 35 feet (three plus stories above grade) in the air to clear Lincoln Boulevard and the 4^th Street on-ramp. The elevated section would extend approximately ½ mile and, depending on the location would range in height from 23 to 35 feet. The proposed station along 4^th at Colorado is also shown to be 35 feet above the sidewalk at 4^th and Colorado (Exhibit D). As depicted in the photograph below, aerial stations generally are supported by concrete columns. This elevated structure at the entrance to downtown could detract significantly from the City’s character, scale and desired pedestrian environment. Staff has asked the Expo Authority whether there is a way to provide the station at grade. The Authority has indicated that with this alignment it will be necessary to elevate the downtown station, given the access and site topography. If this station should ultimately proceed, there will be a need to address the visual impact.

Proposed Colorado Alignment:

As a part of the LUCE planning process staff has developed a proposed alternative alignment along Colorado Avenue, for study and evaluation, that could avoid both the Olympic median and downtown elevated station issues. The proposed alignment would utilize the Expo ROW until it ends at 17^th Street where the alignment would transition to run in the center of Colorado Avenue to the downtown Santa Monica Station. Examples of this transit and pedestrian friendly configuration can be seen in the photos below. The Colorado Avenue alignment has the potential for stimulating and revitalizing the traditional industrial neighborhood between 17^th and 4^th Streets. On-grade light rail corridors provide greater opportunities over time for retail businesses, enhanced pedestrian environments and walkable connections to the neighborhoods.

As currently conceptualized the Colorado alignment could accommodate one lane of traffic in each direction and parking (Exhibit E). While the Colorado Avenue corridor will necessitate the removal of one lane of traffic in each direction, based on preliminary traffic and parking analysis, it may be possible to retain as many as half of the 157 on-street parking spaces, depending on the priorities for the street in terms of sidewalk widths, bicycle lanes, etc. To the extent existing parking would be removed, a feasible replacement strategy would be identified. The track alignment will only affect the area west of 17^th Street and heavier volumes of traffic on Colorado tend to be located east of 20^th Street. Assumptions must be fully analyzed with regard to traffic, parking, access, emergency response and other issues. Staff has conducted preliminary analysis including intersection level of service, turning movements and on-street parking in these areas and has not identified any issues that preclude further analysis of the Colorado corridor.

While further detailed analysis is required, it also appears that there is the potential to create an on-grade downtown station within the Colorado corridor where the station would provide a gateway to the beach, linkage to the downtown, the Civic Center area and access to the soon to be revitalized Santa Monica Place. The station could either be located directly within Colorado Avenue between 5^th and 4^th Streets, 4^th and Main Streets or 2^nd and Ocean, which would require closing one block to traffic, or it could be located on City property between 4^th and 5^th Street.

Staff has broached the issue of whether the Expo Authority could study the Colorado Avenue alignment as an additional alternative to the alignment along Olympic Boulevard. The Expo Construction authority is willing to work with the City but also has expressed the need for this request to come from City Council as this request involves additional work on the part of both Expo Authority staff and consultants. For the Expo Authority to proceed with any new alternative, and particularly one that may reduce the number of traffic lanes, the Council will need to specifically recommend these steps. City staff’s preliminary analysis and recommendation to City Council is that this alternative is worthy of further consideration both by the Expo Authority and the LUCE team to identify alternative solutions the potential issues identified with the Olympic Boulevard alignment.

It is anticipated that the Colorado Avenue alignment will be significantly less expensive than the proposed Olympic aerial alignment. This more cost effective alternative could reduce the overall cost of the project. The Colorado alignment would also avoid the issue of median and Coral tree removal along the Olympic Corridor.

Other Issues:

Several other issues were identified as staff reviewed the Expo Authority’s initial assumptions.

· Grade Separation Policy: The Los Angeles County Metropolitan Transportation Authority (Metro) has an adopted Grade Separation Policy to be applied to all rail planning in the County. The initial screening analysis has identified Cloverfield and Lincoln Boulevards as two locations in Santa Monica that could be subject to the policy. If it is determined that a grade separation is warranted, the Construction Authority’s policy is to utilize an aerial structure because they are far less costly that undergrounding a section of the alignment. As stated earlier, these aerial sections are generally about 35 feet above grade on earthen berms where possible and bridges supported by concrete columns where they cross streets. In addition, a transition of approximately 450 feet is required on each side of the elevated section, with the transition sections requiring a wall-like structure. The Expo consultants will conduct further analysis of these potential grade separation locations during the Draft EIR/EIS process. The Expo Authority staff has committed to sharing the findings with the affected jurisdiction prior to completion and circulation of the Draft EIS/EIR.

· Station Location: The screening analysis currently shows the easternmost station located above Cloverfield Boulevard in an aerial configuration. The Construction Authority has indicated that both aerial and at-grade will be evaluated, as discussed above. The proposed location over Cloverfield is not consistent with Santa Monica’s long-time plan to place the station on or adjacent to City property at the Bergamot site that was purchased for the purpose of a future rail station. City staff also anticipates that a station at Cloverfield Boulevard would significantly increase congestion, making the interface with the City’s bus system difficult. The exact placement of this station does not require immediate determination and is being explored as part of LUCE. However, staff would like to ask the Expo Authority to assume the station placement to be east of Cloverfield Boulevard on sites currently being developed in the LUCE planning.

· Mid-City Station: The Expo Authority has included three locations in its analysis of a potential Mid-City station: 20^th Street, 17^th Street and 14^th Street. Although the Expo Authority has not committed to a third station in Santa Monica, it will carry the analysis of a potential Mid-City station into the Draft EIR/EIS. The Expo staff has indicated their preliminary preference toward a 14^th Street station because of the desired spacing between the other two stations and the fact that 14^th Street is a through street. City urban design staff has identified the special relationship of 17^th Street to Santa Monica College as an important connection and preliminary discussions with the Big Blue Bus have indicated that the station could be served by incorporating their cross-town service with this station location.

Previous Council Actions

On March 20, 2007 Council authorized preparation of comments to the Exposition Construction Authority as input the Exposition Light Rail Phase 2 scoping process. A letter was prepared based on the direction from City Council and submitted to the Expo Authority (Exhibit F).

Next Steps

Staff will continue to involve and update Council regarding the light rail alignment and station planning during the LUCE process and the Expo Authority’s Draft EIS/EIR preparation process will bring back preliminary findings/recommendations regarding grade crossings and additional information developed concerning Mid-City stations and other issues.

Budget/Financial Impact

An amount not to exceed $300,000 will be paid to the Expo Authority to cover the cost of studying this additional Colorado alternative. There are sufficient funds in account C200224.58900 to cover the cost of the study.

Prepared by: Ellen Gelbard, Deputy Director, Special Projects

Approved:	Forwarded to Council:
Eileen Fogarty Director, Planning and Community Development Department	P. Lamont Ewell City Manager

Attachments

Exhibit A: Preliminary Considerations: Olympic and Colorado Alignment Alternatives

Exhibit F: Letter to Expo Construction Authority (April 2, 2007)