Planning Commission Report

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Planning Commission Meeting: April 17, 2013

Agenda Item: 9-B

To: Planning Commission

From: David Martin, Director of Planning and Community Development

Subject: Development Agreement 12DEV013 for the Construction of a New Three-Story Science Learning Center and Temporary Modular Classrooms

Address: 1731 20th Street Applicant: Crossroads School for Arts & Sciences

Recommended Action

It is recommended that the Planning Commission take the following action: 1. Recommend that the City Council approve Development Agreement 12DEV013.

Executive Summary

Crossroads School for Arts & Sciences proposes to construct a new three-story, twelve-classroom science learning center at 1731 20th Street in the LMSD Light Manufacturing Studio District. The site currently contains two buildings with five total classrooms that would be removed as part of the project resulting in seven new classrooms. The proposed project also includes the installation of three temporary modular classrooms during the construction of the new science learning center. With the adoption of the Interim Zoning Ordinance (IZO) in March 2011, the project is required to be reviewed through a Development Agreement process. The site is located in the Industrial Conservation land use designation of the Land Use and Circulation Element (LUCE) of the General Plan. Project compliance is limited to the LUCE while other aspects of the project such as height, floor area ratio, parking, and other standard zoning requirements will be established by the Development Agreement. As proposed, the project is considered a Tier 2 project that is designed to meet all Zoning Code development standards except the minimum parking requirements. The applicant is proposing to provide 235 parking spaces instead of the 236 spaces required by Code. The community benefits that have been negotiated as part of the Development Agreement include the following:

An undeveloped area ten (10) feet in width along the southern property line of the subject site reserved for the future development and public use of the Michigan Avenue Greenway bike path

An enhanced Transportation Demand Management (TDM) plan The following issues should be considered by the Planning Commission in its review of the proposed project:

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Whether the proposed design and site plan are appropriate and compatible with the neighborhood and the subject site.

Whether the proposed plan and proposed community benefits are consistent with the objective, goals, general land uses, and programs specified in the general plan.

Whether the Development Agreement should be recommended for approval to the City Council.

Background On March 11, 2011, the IZO, established interim development procedures pending implementation of the LUCE and required that all Tier 2 and 3 projects be developed pursuant to a Development Agreement. At 41feet in height and a 1.77 FAR, the subject project is considered a Tier 2 project as it exceeds the 32 feet, 1.5 FAR limits of a Tier 1 project in the Industrial Conservation land use element district. The subject Development Agreement application was subsequently filed on October 18, 2012 by the applicant for the proposed project. On February 12, 2013, the City Council reviewed guidelines regarding the processing of Development Agreements and the prioritization of DA applications. The Council identified certain types of projects that merit priority processing, and these included projects involving educational facilities. Given this priority designation and the limited nature and scope of the proposed project, Commission and Council float-up hearings were not conducted, and the project is before the Commission for formal review and recommendation to the City Council. Project / Site Information The following table provides a brief summary of the project location. Project and Site Information Table Zoning District: LMSD (Light

Manufacturing Studio District)

1731 20th Street

Land Use Element Designation: Industrial Conservation Parcel Area (SF): 13,413 SF Parcel Dimensions: Irregular Existing On-Site Improvements (Year Built):

Classroom building (1959)

Rent Control Status: Commercial exempt Adjacent Zoning Districts and Land Uses:

South – R2, residential (across freeway) West – LMSD, auto service North – LMSD, school East – LMSD, school

The subject property is located on the east side of 20th Street between Olympic Boulevard and the Santa Monica Freeway at the southern end of the Crossroads

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School campus in the LMSD (Light Manufacturing and Studio District) district. The Crossroad School campus is comprised of a variety of single and multi-story buildings bound by 20th Street to the west, Olympic Boulevard to the north, 21st Street to the east, and the freeway to the south. Twentieth Court alley intersects the campus between the north and south ends of the campus. Within the Crossroads campus a three-story arts building and one and two-story classroom buildings are located across the alley to the east, and a two-story classroom building is located adjacent to the north of the project site. A two-story auto repair building and a westbound onramp to the Santa Monica Freeway are located across the 20th Street to the west, and multi-family residential buildings are located across the freeway to the south of the project site.

Project site – 1731 20

th Street

Project Analysis Project Description The proposed three-story, 41-foot high science building will contain approximately 23,856 square feet of classroom and support space. The first floor will contain five classrooms and a prep room. The second floor will contain three classrooms, a fume hood room, a prep room, and restrooms. The third floor will contain four classrooms and a prep room, and the roof level will contain mechanical equipment and a small accessible, green roof. The rooms will serve as active and passive classroom and lab spaces for a variety of scientific disciplines. A two-story special projects pavilion will be connected to the north side of the main science building via open walkways. The special

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projects pavilion will house interdisciplinary special project rooms on the ground and second floors and an outdoor gathering space open to the sky on the third level. The proposed building will be set back ten feet from the southern property line as a ten-foot wide utility easement containing utility poles exists along the length of the south side of the property.

1731 20

th Street – proposed site plan

The proposed project also includes the installation of three temporary modular classrooms, at the north end of the school campus adjacent to 20th Street and Olympic Boulevard (see Sheet A2.1 of the project plans), during the construction of the new science learning center. The modular classrooms will not be installed until a demolition permit has been issued for the existing buildings on site and will be removed within six months of the completion of the new science building. Project Design The originally proposed project design for the DA submittal was of an industrial style building that utilized an extensive system of glass curtain walls throughout its prominent street elevations. This curtain wall system created a one-dimensional design that lacked architectural details, design elements, and visibility into the building.

Proposed Science Building

Proposed Special Projects

Pavilion

Existing Utility Easement 10’ 20

th

Street

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Initial design rendering as viewed from 20

th Street

Staff worked with the applicant to modify the design of the proposed building. A revised design was submitted by the applicant that incorporated additional materials and architectural elements including expansive corrugated metal panels, horizontal and vertical window bands, projecting photovoltaic panel walls on the south elevation, and concrete walls. The special projects pavilion was proposed to be constructed of rammed earth and copper panels.

Revised design rendering as viewed from 20

th Street

On February 4, 2013, the Architectural Review Board preliminarily reviewed the revised project design at the request of the applicant and provided initial design comments. The

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Board in general responded favorably to the building design but remarked that additional improvements could be made. In particular, the Board believed that the new building provided an opportunity to focus out towards the community as opposed to representing a school boundary and a building that focused inwards to the campus. It commented that the expansive use of corrugated metal panels and photovoltaic surfaces on the south elevation created a disjunctive façade that did not represent a pedestrian scale and could use more transparency. In addition, while the glass curtain wall along 20th Street provided visibility into the building, it lacked unique architectural details and design elements. The Board believed the building could be viewed as a gateway location along 20th Street and the freeway and should be designed to make a more visual impact that still balanced an appropriate design scale given its context. The applicant has submitted a revised design (below) that seeks to address the Board’s comments.

Current design rendering as viewed from 20

th Street

The overall building design is more appropriate given the surrounding context of educational, light industrial, and residential buildings. Both the 20th Street and freeway elevations incorporate a more unique glazing pattern that utilize metal panel shadow boxes and photovoltaic panels to add visual interest and variety. The photovoltaic panels are thin glass panels that provide a unique design feature along both elevations while the shadow boxes will interplay with changing light conditions and further enhance the exterior of the building. The additional glazing provides visibility into the building, and the additional concrete along the south elevation provides a contrast in material to the laminated glass stair enclosure at the east end of the building. The north side of the building exhibits the exterior activity with its walkways and decks that lead to the classroom entrances, and the two-story special projects pavilion provides a contrast in shape and design to the main science building to reflect its unique use. Staff will

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continue to work with the applicant to further improve the design of the building prior to formal review of the project by the Architectural Review Board.

Current design rendering as viewed from 20

th Court alley

As proposed, the project is considered a Tier 2 project that is designed to meet all Zoning Code development standards except the minimum parking requirements. Based on an Administrative Approval (97AA-056) granted in 1997 and a Conditional Use Permit (00CUP004) granted in 2000, Crossroads School is required to provide a minimum of 229 parking spaces. The proposed net increase of seven specialty classrooms will increase the minimum number of required parking spaces to 236. However, the school can provide 235 parking spaces – one parking space fewer than required. The proposed project will not increase the student enrollment at the school, and the applicant has submitted a comprehensive Transportation Demand Management (TDM) Plan as part of the proposed Development Agreement to address the shortage of the single parking space while also seeking to reduce the school’s overall vehicle trips and parking demand. Proposed Development Agreement

A Development Agreement is a contract between the City and a developer that authorizes the type and amount of development that may occur within a specific period of time. Development Agreements typically provide developers with guaranteed development rights in exchange for public benefits. A Development Agreement must comply with the General Plan but can establish different development standards than provided by zoning regulations.

A Development Agreement can provide greater latitude to advance local planning policies compared to the Development Review Permit or Administrative Approval process. While a Development Agreement is an alternative to the standard development approval process, in practice it is similar to other public review processes where the City Council makes the final decision with the exception that the City Council has more discretion in imposing conditions and requirements on the proposed project since the Development Agreements are voluntarily negotiated contracts adopted by ordinance. A

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Development Agreement can also allow for a longer permit term and provide a developer additional flexibility given present economic conditions. The subject project is considered a Tier 2 project, and pursuant to the IZO all Tier 2 and 3 projects are required to be reviewed through a Development Agreement process. The proposed project meets all current development standards for the LMSD zoning district except for the provision of parking spaces for the additional classrooms. However, the additional classrooms are intended for the existing school population and will not increase student enrollment. City staff began the Development Agreement negotiation process with the applicant and worked to reach agreement on the provisions of the proposed DA, included as Attachment B. Community Benefits The applicant and City staff have agreed on the following community benefits: Use of Existing Ten-Foot Wide Easement for Future Bike Path The principal negotiated community benefit is the exclusive use of the existing ten-foot wide utility easement along the southern boundary of the subject property for the use of a public bike path.

10-foot wide undeveloped area on the subject site for future development of the Michigan Avenue Neighborhood Greenway bike path

10’

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The applicant’s grant of an easement of this portion of their property to the City represents a significant contribution towards realizing the vision of the Michigan Avenue Neighborhood Greenway identified in the City’s recently adopted Bike Action Plan. The Michigan Avenue Neighborhood Greenway project is a 3.5-mile east-west corridor generally running along Michigan Avenue with a beach connection on its west end and various separated bike path or shared use path connections on its east end. The ten feet wide area of the parcel represents a critical connection to establish the bike path linkage. The negotiation to help establish this linkage represents a cooperative effort by the applicant to contribute towards the overall width of the bike path along this portion of the property. The initial project design included two exit doors on the ground floor of the building into the ten-foot easement area. This would have reduced the usable width of the easement for the bike path in order to accommodate the opening of the exit doors and paved walkways. Staff has worked with the applicant to facilitate the redesign of the interior ground floor circulation and eliminate the need for the exit doors along the south elevation, resulting in the availability of the entire ten-foot width for the bike path. The remaining width of the bike path, ideally 16 feet overall, and bike path configuration will require separate discussions and negotiations between the City and Caltrans, the owner of the land to the south of the subject property. Relocation of existing utilities along the easement will require coordination with other agencies and companies.

Michigan Avenue Neighborhood Greenway: 20-year Corridor Build Out

A key connection within the series of bike paths is the need for a two-way path along the north side of the freeway to close a gap in the proposed bike path between 20th

Subject Area

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Street and 21st Street. While the subject DA includes the proposed community benefit of the ten feet in width along the southern property line of the subject property for the future development and public use of the bike path, the continuation of the path on the adjacent property to the east, also owned by Crossroads School, is integral to complete the connection from 20th Street to 21st Street. City staff is pursuing separate negotiations with the applicant to ensure that land area on the adjacent property to the east is available for the bike path and that a complete link between 20th Street and 21st Street will be available. This would be accomplished through a purchase by Crossroads of a remnant parcel owned by the City within the project site that will involve as part of the consideration the dedication by Crossroads of an easement to the City necessary to complete the connection to 21st Street. The acquisition by Crossroads of the remnant parcel within its project site will be a condition precedent to the issuance of a building permit for the project.

Proposed Michigan Avenue Neighborhood Greenway bike path between 20

th Street and 21

st Street

The initial project design included two exit doors on the ground floor of the building into the ten-foot easement area. This would have reduced the usable width of the easement for the bike path in order to accommodate the opening of the exit doors and paved walkways. Staff has worked with the applicant to facilitate the redesign of the interior ground floor circulation and eliminate the need for the exit doors along the south elevation resulting in the availability of the entire ten-foot width for the bike path. Transportation Demand Management Plan – The applicant proposes the following TDM

Plan be implemented and maintained as summarized below:

Employee Transportation Coordinator: A designated Coordinator who will continue to manage all aspects of the TDM Plan.

Performance Targets and Monitoring: The school will prepare and file Employee Trip Reduction Plans for its sites (or a multi-site plan) that meets or exceeds the requirements of SMMC Section 9.16.

AVR Requirements: An employee Average Vehicle Ridership (AVR) goal of 1.6 for AM and PM peak periods. However, staff believes that an AVR of 1.75 is appropriate.

21ST

STREET

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Transportation Information Center: On-site information for employees and students about local public transit services, bicycle facilities, and walking and biking maps.

Transit Subsidy In Lieu of Parking: All newly-hired employees who do not purchase monthly automobile parking will be offered a free public transit pass.

Guaranteed Return Trip: Van pool, car pool, transit reliant employees will be provided a return trip when a personal emergency situation or unplanned business-related activity requires it.

Programs Aimed at Upper and Middle School Students and Parents:

An on-site transportation coordinator. Annual “Safe Routes To School” bicycle and pedestrian training

programs for students and parents. “Bike to School” day/week celebrations and other events. Transit and walking/biking information in registration packets. Promotion of carpooling, biking, walking, and transit via newsletters

and parent meetings. Transit/biking option on any flyers, advertisements, etc. where

parking information is provided. Bus service and rideshare information in school bulletins and

special announcements for each of the outreach groups. On-line and/or personalized matching services to encourage and

support carpooling to events, school, and services. Personalized trip planning assistance for students during

registration process and as requested. Annual DA compliance report with information on strategies used to

reduce student vehicle trips.

Bicycle Parking: A minimum of 50 bicycle parking spaces for employees, students, and visitors.

Carpool Parking: Preferential parking for employees who commute to work in employer registered carpools.

Transportation Management Association (TMA): Participation in the formation of a geographic-based TMA that may be defined by the City.

Community Meeting and Public Input

On November 26, 2012, approximately 30 members of the public attended an initial community meeting at Virginia Avenue Park to learn about and provide feedback on the proposed project. City staff explained the Development Agreement process to the participants and how the project is in the initial phases of conceptual review. After a detailed project presentation by the applicant, the majority of the meeting was spent allowing members of the community to provide their initial thoughts on the project. Most of the attendees were supportive of the proposed project with several members of the public proposing programs for the school to incorporate more local students and opportunities for children not enrolled in the school to utilize the new facilities.

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General Plan Consistency 1731 20th Street is located in the Industrial Conservation land use element designation. The LUCE vision for the Industrial Conservation district conserves the City’s small light industrial, and service and commercial uses that have traditionally populated the industrial zone and allows the continued use of private schools and other nonprofit and community uses. The proposed Development Agreement is consistent with the objectives, policies, general land uses and programs specified in the general plan and any applicable specific plan, in that consistent with LUCE Policy D27.4 of the Industrial Conservation District, the proposed project continues and expands an existing school by adding seven net new classrooms. Consistent with Policy D27.10 the project utilizes a variety of heights, forms, and materials to create visual interest and avoids uniformly flat roofs or cornices in order to create an interesting skyline. The implementation of a Transportation Demand Management (TDM) plan in order to reduce vehicle trips in the area and reduce associated parking demand is consistent with LUCE Circulation Policy T19.2 which calls for the imposition of appropriate TDM requirements for new development. Furthermore, the project is consistent with LUCE overall land use policies by incorporating community benefits including, but not limited to, an undeveloped area ten (10) feet in width along the southern property line of the subject site reserved for the future development of the Michigan Avenue Greenway bike path and a TDM plan that promotes shared parking, bicycle facilities, and transit subsidies. Environmental Analysis

The proposed three-story, 12-classroom, building is exempt from the provisions of the California Environmental Quality Act pursuant to CEQA Section 15314 which exempts minor additions to existing schools within existing school grounds where the addition does not increase school capacity by more than 25% or ten classrooms, whichever is less. Specifically, the proposed project will not result in increased school enrollment and will only increase capacity by seven overall classrooms. Therefore, based on the above, the proposed project is exempt from CEQA pursuant to Section 15314.

Alternative Actions:

In addition to the recommended action, the Planning Commission could consider the following with respect to the project:

A1. Continue discussion for analysis of additional options with agreement from the applicant.

A2. Recommend that the City Council not enter into the Development Agreement.

Conclusion The developer proposes a Development Agreement with the City to authorize construction of a new three-story science building on the Crossroads School for Arts & Sciences campus. The project is designed to meet all Zoning Code development standards except for the minimum parking requirements. The applicant is proposing to provide 235 parking spaces instead of the 236 spaces required by Code.

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Throughout the Development Agreement process, the applicant has responded to staff input and comments primarily with regards to the design of the project. The overall design of the building has been improved to provide enhanced architectural details and increased visibility into the building creating a less insular structure in relation to the rest of the school campus. Staff will continue to work with the applicant to further improve the design of the building prior to formal review of the project by the Architectural Review Board. The proposed negotiated community benefits include a portion of the subject property set aside for the future Michigan Avenue Neighborhood Greenway bike path and an enhanced Transportation Demand Management plan that will reduce overall parking demand and vehicle trips within the area. Based on the scope and size of the project along with its use as an educational facility without any increase in enrollment, the level of community benefits proposed for this project is appropriate. DEVELOPMENT AGREEMENT FINDINGS 1. The proposed Development Agreement is consistent with the objectives, policies,

general land uses and programs specified in the general plan and any applicable specific plan, in that consistent with LUCE Policy D27.4 of the Industrial Conservation District, the proposed project continues and expands an existing school. Consistent with Policy D27.10 the project utilizes a variety of heights, forms, and materials to create visual interest and avoids uniformly flat roofs or cornices in order to create an interesting skyline. The implementation of a Transportation Demand Management (TDM) plan in order to reduce vehicle trips in the area and reduce associated parking demand is consistent with LUCE Circulation Policy T19.2 which calls for the imposition of appropriate TDM requirements for new development. Furthermore, the project is consistent with LUCE overall land use policies by incorporating community benefits including, but not limited to, an undeveloped area ten (10) feet in width along the southern property line of the subject site reserved for the future development of the Michigan Avenue Greenway bike path and a TDM plan that promotes shared parking, bicycle facilities, and transit subsidies.

2. The proposed Development Agreement is compatible with the uses authorized in

the district in which the real property is located, in that the subject property is located on an existing school campus in the Light Manufacturing and Studio District (LMSD) that permits existing schools. The proposed Development agreement is consistent with LUCE Policy D27.4 of the Industrial Conservation District in that the proposed project continues and expands an existing school. An enhanced TDM plan incorporated with the project aims to reduce the number of single-car trips and seeks to reduce the overall parking demand and vehicular trips within the area.

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3. The proposed Development Agreement is in conformity with the public necessity, public convenience, general welfare, and good land use practices, in that it allows for the redevelopment of an existing, developed school campus with a new science building that is compliant with the new Land and Use Circulation Element vision for the area. The proposed project provides 7 net new classrooms with the construction of the new science building without an increase in enrollment and will feature community benefits including, but not limited to, an undeveloped area ten (10) feet in width along the southern property line of the subject site reserved for the future development of the Michigan Avenue Greenway bike path and a TDM plan that promotes shared parking, bicycle facilities, and transit subsidies.

4. The proposed Development Agreement will not be detrimental to the health,

safety and general welfare, in that the agreement allows for the redevelopment of an existing, developed school campus with a new science building that is compliant with the new Land and Use Circulation Element vision for the area. The proposed project will be located in an urbanized area and is consistent with other similar improvements in the area and does not have the potential to disrupt the urban environment or cause health or safety problems. The proposed project provides 7 net new classrooms with the construction of the new science building without an increase in enrollment and will feature community benefits including, but not limited to, an undeveloped area ten (10) feet in width along the southern property line of the subject site reserved for the future development of the Michigan Avenue Greenway bike path and a TDM plan that promotes shared parking, bicycle facilities, and transit subsidies.

5. The proposed Development Agreement will not adversely affect the orderly

development of the property, in that the Development Agreement is contingent upon the review and approval of a specific site plan consistent with tested urban design principles that reflect the goals and policies of the City of Santa Monica which were established through a long range planning process and are reflected in the recently adopted update of the Land Use and Circulation Element of the City’s General Plan.

6. The proposed Development Agreement will have a positive fiscal impact on the

City. The City will incur no cost associated with the implementation of the applicant’s Transportation Demand Management plan and the associated community benefit of reduced vehicle trips and parking demand in the area, and use of the utility easement will defray the future cost of implementing the Michigan Avenue Neighborhood Greenway bike path. For these reasons the project will not have a negative fiscal impact on the City.

Prepared by: Tony Kim, Senior Planner

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Attachments A. Public Notification & Comment Material B. Proposed Development Agreement C. Project Plans and Photographs

F:\CityPlanning\Share\PC\STRPT\2012\12DEV013 (1731 20th St DA).doc

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ATTACHMENT A

PUBLIC NOTIFICATION INFORMATION Pursuant to Municipal Code Sections 9.04.20.22.050 and 9.48.110, notice of the public hearing was mailed to all owners and residential and commercial tenants of property located within a 500-foot radius of the project and published in the Santa Monica Daily Press at least ten consecutive calendar days prior to the hearing.

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NOTICE OF A PUBLIC HEARING BEFORE THE SANTA MONICA PLANNING COMMISSION

SUBJECT: Development Agreement 12DEV013

1731 20th Street APPLICANT: Crossroads School for Arts & Sciences PROPERTY OWNER: Crossroads School for Arts & Sciences

A public hearing will be held by the Planning Commission to consider the following request: The property owner is seeking a Development Agreement with the City to remove five existing classrooms and construct a new three-story science learning center containing twelve classrooms on the Crossroads School for Arts & Sciences campus. The proposed project also includes the installation of three temporary modular classrooms during the construction of the new science learning center. Pursuant to Santa Monica Municipal Code (SMMC) Section 9.48.130, the Planning Commission shall hold a public hearing on the proposed development agreement and shall make its recommendation to the City Council for review.

DATE/TIME: WEDNESDAY, APRIL 17, 2013 AT 7:00 P.M.

LOCATION: City Council Chambers, Second Floor, Santa Monica City Hall

1685 Main Street, Santa Monica, California HOW TO COMMENT The City of Santa Monica encourages public comment. You may comment at the Planning Commission public hearing, or by writing a letter. Written information will be given to the Planning Commission at the meeting. Address your letters to: Tony Kim, Senior Planner Re: 12DEV013 City Planning Division 1685 Main Street, Room 212 Santa Monica, CA 90401 MORE INFORMATION If you want more information about this project or wish to review the project file, please contact Tony Kim at (310) 458-8341, or by e-mail at tony.kim@smgov.net. The Zoning Ordinance is available at the Planning Counter during business hours and on the City’s web site at www.smgov.net. The meeting facility is wheelchair accessible. For disability-related accommodations, please contact (310) 458-8341 or (310) 458-8696 TTY at least 72 hours in advance. Every attempt will made to provide the requested accommodation. All written materials are available in alternate format upon request. Santa Monica Big Blue Bus Lines numbered 2, 3, Rapid 3, and 9 serve City Hall. Pursuant to California Government Code Section 65009(b), if this matter is subsequently challenged in Court, the challenge may be limited to only those issues raised at the public

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hearing described in this notice, or in written correspondence delivered to the City of Santa Monica at, or prior to, the public hearing. ESPAÑOL Esto es una noticia de una audiencia pública para revisar applicaciónes proponiendo desarrollo en Santa Monica. Si deseas más información, favor de llamar a Carmen Gutierrez en la División de Planificación al número (310) 458-8341. APPROVED AS TO FORM: ___________________________ Amanda Schachter Planning Manager

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ATTACHMENT B

PROPOSED DEVELOPMENT AGREEMENT

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ATTACHMENT C

PROJECT PLANS AND PHOTOGRAPHS

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