City Council Meeting: March 3, 2009

Agenda Item: 8-C

 

To:                   Mayor and City Council

From:              Eileen Fogarty, Director, Planning and Community Development

Subject:          Exposition Light Rail Phase 2 - Recommendations for Alignment and Other Components of the Project within the City of Santa Monica

 

Recommended Action

 

Staff recommends that City Council

 

1.      Adopt the “Colorado” alternative as the City-supported alignment for the Exposition Light Rail Phase 2 project within the City of Santa Monica and recommend to the Exposition Construction Authority (Expo Authority) and the Los Angeles County Metropolitan Transportation Authority (Metro) that the “Colorado” alternative be selected as the alignment within the City of Santa Monica.

 

2.      Adopt the Resolution (Attachment A) memorializing the City’s requirements regarding street corner turning radius and pedestrian curb-cuts within the City of Santa Monica.

 

3.       Request the Expo Authority to continue searching for an alternative maintenance yard site that is not located next to a residential neighborhood.  Given that the Exposition Light Rail Phase 2 Draft Environmental Impact Report (DEIR) identifies the site in Santa Monica as the only option, and that it is adjacent to a residential area, request the Expo Authority to work with the City and the residents to do everything possible to address and mitigate the adjacency issues in a comprehensive manner if an alternative is not available.

 

4.      Direct City staff to explore with the Expo Authority and the California Public Utilities Commission a narrower track width configuration on Colorado Avenue west of 17th Street, consistent with other locations in California, in order to accommodate on-street parking on both sides of the street.

 

5.      Direct City staff to analyze any additional parking needs (i.e. park-and-ride, kiss-and-ride and bike parking) for each station as part of the City’s station area planning activities and bring back recommendations to City Council before the Expo Authority has finalized parking recommendations.

 

6.      Direct City staff to work with Metro to obtain a waiver or a revised policy so that riders pay for the use of any parking near rail stations within the City of Santa Monica.  The current policy of no charge for park-and-ride will encourage people to drive and park at stations.

 

7.      Direct City staff to work with the Expo Authority and the bicycling community to resolve the Expo Bike Path routing and address bike access to the stations.

 

8.      Direct staff to work with the Expo Authority to minimize the visual impact of overhead train electrification wires.

 

9.      Direst staff to work with the Expo Authority to ensure the adopted budget for the Expo Phase 2 project includes compensation to the City for use of the City-owned property at 4th Street and Colorado Avenue.  This property was purchased by the City with discretionary local funds.

 

 

Executive Summary

The Exposition Light Rail (Expo LR) Phase 2 Draft Environmental Impact Report (DEIR) is currently in a 45-day circulation period, with comments due by March 13, 2009. The lead Expo LR agency, the Exposition Construction Authority (Expo Authority), will be making the final decisions about the project in consultation with the funding agency, the Los Angeles County Metropolitan Transportation Authority (Metro).  Although the regional agencies are responsible for deciding on the final project, the agencies will be seeking guidance from the City of Santa Monica concerning the alignment and project elements within the City’s boundaries.

 

Colorado Alignment Recommendation: This report recommends that City Council select and recommend the “Colorado” alternative to the Expo Authority and Metro Boards for inclusion in the final Expo LR Phase 2 project. The “Colorado” alternative has garnered support throughout the community with the at-grade alignment into Downtown and the street-level station fostering the City’s urban design objectives to create a pedestrian-oriented environment. The “Colorado” alignment also preserves the Coral tree median on Olympic Boulevard as green space for the City. The Planning Commission has unanimously recommended to City Council that it support the at-grade “Colorado” alignment as opposed to the “Olympic” alignment that requires an aerial structure for over ˝ mile into downtown.

 

Additional policy and planning issues important to the City are also discussed, including:

 

·        Property Acquisition Requirements to Accommodate Turning Radius and Curb-Cuts: The City is memorializing its requirements regarding corner turning radius and pedestrian curb-cuts at street intersections within the City of Santa Monica; application of these requirements will minimize required property acquisition by the Expo Authority for the light rail project in Santa Monica.

 

·        Proposed Maintenance Yard: The City is concerned about a proposed maintenance yard adjacent to a residential area.  The City is: a) requesting the Expo Authority continue looking for a more suitable location elsewhere, and b) emphasizing the need for the Expo Authority to work with the City and adjacent residents to address and mitigate concerns if no other alternatives are identified.

 

·        Explore Possible Narrowed Rail Cross-Section for Colorado Alignment: Staff is recommending that the City explore with the Expo Authority and the California Public Utilities Commission a possible narrower cross-section for the tracks on Colorado Avenue west of 17th Street, consistent with other light rail locations in California, in order to accommodate on-street parking on both sides of the street.

 

·        Parking Needs at Stations: Staff will analyze the current Expo Authority parking recommendations for each station as part of the City’s station area planning activities and bring back recommendations to City Council before the Expo Authority has established parking recommendations as part of the “Final” project.

 

·        Parking Charges at Stations: Staff will work with Metro, the future rail operator, to seek a waiver or revision to the current policy of free parking at Metro park-and-ride facilities located at stations in Santa Monica. Free parking will encourage people to drive and park at the stations rather than access the stations by alternative means.  This issue is only applicable where spaces are built and owned by the regional agencies rather than the City of Santa Monica.

 

·        Bicycle Path and Bicycle Access to Stations: Staff will work with the Expo Authority and the bicycling community to resolve the Expo Bike Path routing and address bike access to the stations.

 

·        Visual Impact of Overhead Electrification Wires:  Staff will work with the Expo Authority to minimize visual impacts of the overhead train electrification wires.

 

·        Compensation to City for use of Property:  The project budget in the Phase 2 DEIR currently assumes that the Expo LR project will use the City-owned property at 4th Street and Colorado Avenue for no cost.  The City is requesting that the Expo Phase 2 budget be revised to include funds to compensate the City.  The City purchased this property with local discretionary funds that could have been used elsewhere.

 

Community Input: The City held a well-attended Community Workshop on February 17th to explain the proposed project within the City and solicit feedback from the community.  Over 125 community members attended. Towards the end of the meeting, the facilitator took a hand vote of the alternatives and the community overwhelmingly voted in favor of the Colorado alignment alternative. Community concerns and comments are summarized within the body of this report. 

 

City Comments on the DEIR:  City Council’s policy positions and direction will be transmitted to the Expo Authority through a transmittal from the City Manager that will also include technical comments on the DIER developed by City staff.

 

The Council’s current actions on this matter have no financial impacts. 

 

Background

On February 10, 2009 the City Council held a Study Session as a first step toward developing the City’s recommendations to the Expo Authority and Metro concerning the future Exposition light rail project within the City of Santa Monica.  The Study Session provided information about the Expo LR Phase 2 Draft Environmental Impact Report (DEIR) released by the Expo Authority in late January.  Consideration of station placement and alignment issues are critical to the Land Use and Circulation Element (LUCE) vision of the City’s future, as the light rail has the potential to transform areas around transit stations into pedestrian-oriented walkable districts.  This report focuses on the section of the alignment of Phase 2 within the City of Santa Monica.  When completed, the Expo LR line will connect Santa Monica to Downtown Los Angeles and the regional rail network.  Phase 1 of Expo LR, currently under construction to Culver City, is slated to open in 2010.  The Expo Authority is fast-tracking Phase 2 in response to voters approving a recent sales tax measure. More information about both Phases can be found at the Expo Authority web site, www.buildexpo.org.

 

Summary of Alignment Alternatives and Station Locations:

The February 10th City Council Study Session report and web-cast streaming video provide detailed explanations of the two alignment alternatives, proposed station locations and other elements of the project.  Below is a brief summary and illustration of the alternatives:

 

Eastern Portion “Shared” Alignment: Both alternatives enter the City at-grade across Centinela Avenue along the 100 foot-wide Exposition Right-of-Way (ROW) between Olympic and Exposition Boulevards. Bergamot Station is at-grade and located east of 26th Street.  The DEIR document does not include park-and-ride spaces at the Bergamot station.  Proceeding westward on the ROW, both alternatives elevate up and over Cloverfield Boulevard but differ when the line reaches Olympic Boulevard west of Cloverfield Boulevard.

 

“Olympic” Alternative: After the rail line crosses over Cloverfield Boulevard and over the eastbound lane of Olympic Boulevard, it lands in the Olympic median and proceeds westward, replacing the tree-planted median and requiring the removal of 44 Coral trees.  A “split” station is located at 17th Street with the eastbound platform east of 17th Street and the westbound platform west of 17th Street.  The rail line continues west on Olympic Boulevard and begins elevating again just west of 11th Street to cross over Lincoln Boulevard and the series of freeway off and on-ramps, continuing for over ˝-mile at a height of 23-35 feet above grade to an elevated station on the current Sears Automotive site.   The track curves into the site so that the aerial station is parallel and in close proximity to 4th Street. The proposed station platform would be approximately 35 feet (three plus stories) above the sidewalk at 4th Street and Colorado Avenue because the topography, and the top of the station would reach 50 feet. The Sears site is at a lower elevation than Olympic Drive and the rail line/station platform must remain level.  The proposed layout requires removal of on-street parking on both sides of Olympic between 20th Street and Euclid Street.  The DEIR document indicates 250 surface park-and-ride spaces next to the Downtown station.

 

“Colorado” Alternative: After the rail line crosses over Cloverfield Boulevard and the entire width of Olympic Boulevard it lands on the Exposition ROW, extending westward along the 100-foot ROW until just east of 17th Street.  It then transitions into Colorado Avenue through the 17th Street intersection to a center-platform station west of 17th Street and continues down the center of Colorado Avenue at street level, replacing one traffic lane in each direction.  The at-grade station at 4th and Colorado enters the Sears Automotive site at the east end of the property and angles across the site.   The proposed layout requires removal of on-street parking on the south side of Colorado between 17th and 4th Streets.  The document indicates 225 surface park-and-ride spaces next to the Downtown station

 

      Olympic and Colorado Alignment Alternatives

 

Discussion

A brief discussion of each recommendation is provided below:

 

Colorado Alignment Recommendation: The Colorado Avenue alignment creates a desirable pedestrian-oriented Downtown station with an opportunity for an inviting station area plaza.  The at-grade alignment has the potential for stimulating and revitalizing the traditional industrial neighborhood between 17th and 4th Streets. Street-level rail corridors provide greater opportunities over time for retail businesses, an enhanced pedestrian environment and walkable connections to the neighborhoods. Staff will continue to work with Expo Authority staff to address the loss of on-street parking on the south side of the street, including an alternate design that is discussed below.

 

    

.             

Examples of At-Grade Downtown Alignments

 

In contrast, the Olympic Boulevard alignment requires a massive aerial structure that would change the character of Downtown.  It would also create dead spaces underneath where nothing can grow and the environment for pedestrians is inhospitable.  In addition, the loss of the Olympic Boulevard median, with its 44 Coral trees, would be the loss of a valuable green open-space for the City.

 

Property Acquisition Requirements to Accommodate Turning Radius and Curb-Cuts:  The Expo Authority assumptions in the DEIR for identifying a significant number of partial property-takings are based on City of Los Angeles Department of Transportation (LADOT) criteria and, as such, are very much overstated for the City of Santa Monica, particularly along Colorado Avenue because their adopted standard is larger than generally used for street intersections in Santa Monica.  The City of Santa Monica’s approach balances consideration for pedestrians, who benefit from a tighter turning radius that shortens the crossing distance and calms traffic, while still accommodating necessary truck movements.  With respect to disabled curb-ramp access, the City’s practice is to create custom solutions in order to accommodate the built-out nature of the City.  The DEIR assumes a standard template for all curb ramps.

 

The attached Resolution (Attachment A) memorializes the City’s requirements regarding corner turning radii and pedestrian curb-cuts within the City of Santa Monica.  The City requirements recognize Santa Monica as an older built-out City and call for custom engineering of corner turning radii and pedestrian curb-cuts based on the conditions at each location.  Application of these requirements will significantly reduce property acquisition required for the Expo Authority to construct the project.

 

Proposed Maintenance Yard: The DEIR includes a proposed maintenance yard just east of Stewart Street between the ROW and Exposition Boulevard on property currently owned by Verizon and used for their telecommunications yard. The proposed site is in close proximity to the Bergamot Station and from a planning perspective the location is important for the creation of a neighborhood surrounding the station.  The Expo Authority has explained that they are required to have a yard for light maintenance within the Phase 2 project and the location within Santa Monica was the only viable site they could identify.  Staff has suggested other potential locations but these were not acceptable to the Expo Authority.  As evident from the aerial photo below, there is a residential neighborhood just south of the proposed site.  The City is concerned about potential impacts to residents who are directly adjacent to the proposed yard.   The Expo Authority should continue looking for a more suitable location elsewhere.   However, in the event that no other suitable location is identified, the City needs to work closely with the Expo Authority to assure mitigation of impacts and to identify possible opportunities that could benefit the City and the adjacent residents.  Furthermore, the City may want to explore some form of in-lieu property or business tax reimbursement from the Expo Authority for the loss of private development potential.

Proposed Maintenance Facility in the DEIR

 

Explore Possible Narrowed Rail Cross-Section for Colorado Alignment: The City’s transportation expert has analyzed at-grade street sections with narrower track-way widths in other California cities and believes that a narrower configuration could work on Colorado Avenue, so that parking could be maintained on both sides.  The photo below shows the Judah Street light rail line in San Francisco, which is the same width as Colorado Avenue and has parking on both sides.  This configuration would also better facilitate truck turning radius requirements.  The California Public Utilities Commission (CPUC) would have to approve a narrower cross-section.  Staff can explore this proposal with the  CPUC and the Expo Authority.

 

Colorado could have the same transit-way configuration as Judah Street in San Francisco 

Judah Street is also 80’ wide and has parking on both sides of the street

 

Parking Needs at Stations: The DEIR includes 225-250 surface park-and-ride spaces on the City’s Sears Automotive site.  A better strategy for Downtown would be shared use of the combined pool of parking for the Downtown and Civic Center Area, and possibly some parking as part of a transit-oriented development (TOD) at the station.  Staff is currently undertaking a comprehensive analysis of parking for the entire area and will bring the findings to City Council for further consideration in the near future. Staff also plans to analyze the parking assumptions and needs at the other two stations through station area planning efforts.  Currently the DEIR assumes approximately 70 spaces at the 17th Street Station for the Colorado alignment and no spaces at the Bergamot Station.  Staff will bring back recommendations to City Council before the Expo Authority has established parking recommendations as part of the “Final” project.

 

Parking Charges at Stations: Staff will work with Metro, the future rail operator, to seek a waiver or revision to the current policy of providing park-and-ride spaces free of charge. Free parking will encourage people to drive to the stations and increase auto traffic near the stations.  The issue of free parking is only applicable where spaces are built and owned by the regional agencies rather than the City of Santa Monica.  Pricing for City-owned spaces would be determined by the City.  To encourage patrons to access stations through alternative means, Santa Monica intends to serve the stations through enhanced Big Blue Bus community transit service, bicycle and pedestrian amenities.  Station area planning will also explore the accommodation of “kiss-and-ride” drop-off locations.

 

Bicycle Path and Bicycle Access to Stations: Staff will need to explore options for revising the Expo Bike path alignment because the proposed maintenance yard and the narrow right-of-way between Stewart and 26th Streets prevent a Class I pathway from remaining on the ROW.  Expo Authority staff has indicated that they would consider evaluating a Bergamot Station design variation with a split platform (rather than center platform) to narrow the track configuration and potentially create enough space to accommodate the bike path between Stewart and 26th Streets.  The Expo Authority has also suggested that the City could bring a pathway through the City-owned Bergamot property if the Bergamot site is redeveloped.  However, feedback through the Land Use and Circulation Element is that there is a strong desire to retain the current character of the Bergamot site, and current building footprints prevent the path from fitting. Another option could include removing the bike path from the right-of-way at Stewart Street and proceeding with a Class II bike lane on Stewart Street northward to connect with the Broadway bike lane.  Staff plans to hold a Community Transportation Workshop this spring and the bike path routing options can be addressed as one topic of this workshop.  The workshop will also address station access and facilities for bicycles.

 

Overhead Wires and Electrical Power System: A light rail train is powered by overhead electrical wires that are supported by a series of poles located between the two tracks or along the street edge (sometimes doubling as light poles).  The system also requires an electrical sub-station spaced approximately every mile along the alignment.  These facilities are necessary but generally not aesthetically pleasing.  The goal will be to work with the Expo Authority to provide the facilities in the most attractive manner possible.  

 

Compensation to City for use of Property:  The project budget in the Phase 2 DEIR currently assumes that the Expo LR project will use the City-owned property at 4th Street and Colorado Avenue at no cost.  The City purchased this property with a reserve of local Transit Development Act (TDA) discretionary funds that could have been used for other purposes within the City.   The City, therefore, expects to be compensated for use of the property for the station and any transit-related parking.  The Expo Phase 2 budget should be revised to include funds to compensate the City pursuant to a negotiated agreement.

 

 

 

Commission Action

The Planning Commission considered the Expo Light Rail project at the January 6, 2009 and February 4, 2009 meetings and unanimously recommended to City Council that it support the at-grade Colorado alignment.  The reasons provided by the Planning Commission for supporting the “Colorado” alignment included:

 

§         The Olympic Boulevard alignment requires removal of the Coral trees planted median and elevation of the westernmost half-mile of track into Downtown, with a Downtown station 35 feet above the sidewalk grade at 4th Street and Colorado.  Both of these considerations would significantly change the character of the City in a way that would be tremendously detrimental.

 

§         The elevated rail line and station in the Downtown would not only create visual blight but the concrete columns would create a hostile environment for pedestrians in downtown.  The Planning Commission was clear in their comments that the aerial structure would create a barrier between Civic Center and the Downtown.

 

§         The at-grade Colorado Avenue alignment would create a more active pedestrian-friendly environment along the alignment and a grand entrance into the Downtown.

 

Other comments included:

 

§         Support for pursuing a narrower track profile to retain on-street parking on both sides of Colorado Avenue;

 

§         Support for minimizing property-takes to accommodate turning radius and cub-cuts;

 

§          The need to address the park-and-ride recommendations, including no free park-and-ride in Downtown and the need for shared parking at Bergamot Station;

 

§         The need for alternative station access including additional Big Blue Bus community transit shuttles serving the stations and the need for kiss-and-ride accommodation;

 

§         The need to ensure good bike access and accommodations at stations and on trains. 

 

Public Outreach

A community meeting was held on February 17, 2009 at the East Wing of the Civic Auditorium to provide information to the public about the proposed alignments and project components in Santa Monica and to hear from the community about the project.   A meeting notice was linked to the City’s front page, sent to over 1,000 people on the LUCE e-mail list, and sent to the libraries, schools and other public places for posting.  A display add about the City’s community meeting was run twice in the Santa Monica Daily Press.

 

 

        

Expo Light Rail Community Meeting – February 17, 2009

 

Over 125 community members attended the presentation by the Expo Authority and the City.  An extended question and answer period followed, with the facilitator concluding with a hand vote to identify community preference for the alternatives.  The community overwhelmingly voted in favor of the Colorado alignment alternative.

 

A sample of questions and concerns identified by the community include:

 

  • The location of a maintenance facility next to a residential neighborhood – with particular concerns expressed about the noise and potential air pollution.

 

  • Impacts to city streets during construction – with a particular concern about the construction of the structure over Cloverfield because the area is already so congested.

 

  • The duration of the construction period.

 

  • How does parking affect ridership.  How does parking affect congestion around rail stations.

 

  • How will the Expo Authority ensure that a bike facility will be constructed as part of the project if the design is taking place separately.

 

  • Understanding vehicular access on Colorado.

 

 

Budget/Financial Impact

There is no budget impact from the recommendations of this report.

 

Prepared by:  Ellen Gelbard, Assistant Director, PCD

 

Approved:

 

Forwarded to Council:

 

 

 

 

 

 

Eileen P. Fogarty

Director, Planning and Community Development Department

 

P. Lamont Ewell

City Manager

 

 

 

Attachment A:            Resolution Declaring the City Standards and Practices for Curb Returns and Radii and Curb Access Ramps at Street Intersections