M E M O R A N D U M PLANNING AND COMMUNITY DEVELOPMENT DEPARTMENT CITY OF SANTA MONICA CITY PLANNING DIVISION

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1 M E M O R A N D U M PLANNING AND COMMUNITY DEVELOPMENT DEPARTMENT CITY OF SANTA MONICA CITY PLANNING DIVISION DATE: March 12, 2018 TO: FROM: SUBJECT: The Honorable Landmarks Commission Roxanne Tanemori, AICP, Principal Planner Item 13-A. Preliminary review and discussion of the updated design concept for a new mixed-use development project consisting of commercial, hotel, museum, and residential uses, including the retention and rehabilitation of two City-designated Landmark buildings at the property located at 101 Santa Monica Boulevard (Development Agreement 13DEV-004) Address: 101 Santa Monica Boulevard Applicant: M. David Paul Associates / Worthe Real Estate Group Recommended Action It is recommended that the Landmarks Commission review the updated project design concept and provide feedback to staff and the Applicant team for incorporation into the project as it moves forward to the Planning Commission and City Council for float-up discussions on the pending Development Agreement application. Background In February 2013, a Development Agreement application (13DEV-004) was submitted by M. David Paul and Associates for a proposed mixed-use hotel, cultural, retail, and residential development at the northeast corner of Santa Monica Boulevard and Ocean Avenue ( Ocean Avenue Project ). The original proposal, designed by Gehry Partners, LLP, included a 22-story (244 ) central tower element, approximately 338,695 SF, and rehabilitation of two City Landmark designated buildings as components of the proposed museum/cultural campus (images of previous design are attached). The Applicant hosted a Community Meeting in March 2013 to introduce the proposed project which was followed by the Architectural Review Board s conceptual discussion of the proposal in August In summary, the Board provided positive comments on the original proposal, noting that the Applicant team had created a plan that uses building height intelligently to create a sculptural tower element that responds to its Downtown 1

2 context; provides a thoughtful plan for pedestrian circulation; and provides a cultural component that is an important contribution to the Downtown. Per Council direction, City review of the project was put on hold pending completion of the Downtown Community Plan (DCP). The Council adopted the DCP in August 2017 and included an Established Large Sites Overlay for three individual project sites in the Downtown. The DCP requires that projects for these three sites be processed as a Development Agreement and that they comply with specific development standards (building height, floor area, and open space) if an applicant proposes a project over Tier 2 development parameters. As described more fully in this report, the Applicant submitted revised project plans in December 2017 that address early feedback, as well as programmatic changes and design concept revisions compliant with the DCP s Established Large Sites Overlay regulations. The Applicant hosted a second Community Meeting to introduce this revised project design on January 11, A link to the original and updated project plans, the 2013 and 2018 community meeting videos, and summary of attendees comments are available on the project page located on the City s website ( The Architectural Review Board held its second preliminary concept discussion on February 20, 2018 (meeting minutes are attached). In summary, the Board members strongly support the preliminary project design. In particular, the Board identified several notable aspects of the project including: The creation of an interconnected set of open spaces; The three-dimensional quality of the project; Livability of the residential units; The lightness of the implied color and materials; The separation of vehicular and pedestrian traffic; The relocation of the Landmark Victorian home appropriately creates and open court with the Spanish Colonial Revival Landmark building; Reconfiguration of the corner of Santa Monica Boulevard and Ocean Avenue with a new building; and The general massing of the project, and in particular, the way the massing is broken into separate buildings and the additional massing placed along the street. The Board made several recommendations for development of the project: In regard to the two designated Landmark buildings, there should be little or no elements added to the Ocean Avenue frontage, and that any additional elements or connections be reversible; 2

3 The museum should be a quiet element in relation to the Landmark buildings; The corner at Santa Monica Boulevard and Ocean Avenue should be stronger; The open spaces and 1 st Court should remain open and activated; The landscape design for the project should have a strong identity, with sufficient soil depth included in the project and structural design; The residential buildings fronting the street should be more fully developed, perhaps with a stronger architectural identity; Consideration of an idea for signage throughout the site that is fully integrated; Pedestrian scale should be further developed throughout the design process; Consideration of the views at the terminus of the open spaces; Development of additional open space connections; Consideration of wind and solar orientation in the open spaces and around the project; and Consideration of location for bicycle lockers and storage at grade. The Board also challenged the design team to consider the design of the central building to express an ascension skyward, and to design a project that will prove to be a landmark of the 21 st Century. Project Site Information The project site is approximately 82,500 SF in area and consists of eleven parcels located along Ocean Avenue at the northeast corner of Santa Monica Boulevard and across First Court with frontage along Santa Monica Boulevard and the west side of Second Street. As outlined on the Table 1, there are four buildings on the project site: three commercial buildings (1327, 1333, and 1337 Ocean Avenue) and one mixed-use commercial and residential building at 101 Santa Monica Boulevard. There is also a surface parking lot on the project site at the corner of Santa Monica Boulevard and Second Street Ocean Avenue Landmark Victorian Residence The circa 1906 structure located at 1333 Ocean Avenue was designated a City Landmark in August 2001 based on its qualities as a rare example of Queen Anne style Victorian architecture that serves as an important contributor to Ocean Avenue s character and reflects the City s early residential development pattern along Ocean Avenue at the turn of the twentieth century Ocean Avenue Landmark Spanish Colonial Revival-Style Commercial Building The Spanish Colonial Revival Style building located at 1337 Ocean Avenue was originally built with apartments above a ground level commercial space in The structure was 3

4 designated a City Landmark in August 2004 as an early and excellent example of a mixeduse building along Ocean Avenue building that reflects the period of development in the City when commercial development expanded to Ocean Avenue, a primarily residential street at the time. The building was also designated based on its architectural quality and its proximity to the two other early twentieth century Landmark structures on the block: the Victorian building and Gussie Moran House located at 1333 and 1323 Ocean Avenue. Neither the 1333 Ocean Avenue parcel nor the 1337 Ocean Avenue parcel were designated as Landmark Parcels as part of the actions taken by Council and the Landmarks Commission to designate the structures as City Landmarks. 101 Santa Monica Boulevard Historic Resources Inventory The building located at 101 Santa Monica Boulevard was constructed in 1925 with ground floor commercial and second floor apartments. The building was originally identified in the City s 1983 Historic Resources Inventory (HRI) as a contributor to the Central Business District, a district that appeared eligible for local listing or designation through survey evaluation (Status Code 5D). The original 1983 survey and subsequent updates conducted until 2008 all noted the building s extensive ground floor alterations and also confirmed its eligibility as a contributor to the potential Central Business District. The 2017 Downtown Community Plan HRI re evaluated the potential Central Business District and concluded that the geographic grouping no longer retains sufficient integrity to be eligible for listing as an historic district. Properties previously identified as potential contributors to the Central Business District were evaluated for individual eligibility using local, state, and federal criteria. As a result, the 101 Santa Monica Boulevard building was identified through survey evaluation as appearing eligible for listing as a Santa Monica Landmark (Status Code 5S3) as an example of Spanish Colonial Revival architecture as applied to a commercial building with distinctive characteristics that are associated with the style as expressed by its form, massing, composition, and architectural details. It is also significant for representing early patterns of commercial development that shaped Santa Monica s central business district prior to World War II. The Applicant has provided a Historic Resource Assessment for the 101 Santa Monica Boulevard property prepared by Chattel, Inc. This document is provided as Attachment B. 4

5 Table 1. Zoning District/ Design Guidelines: Parcel Area (SF): Downtown Community Plan: Ocean Transition (OT) Bayside Commercial (BC); and Established Large Sites Overlay 82,500 SF / 11 parcels Existing On-Site Improvements & Historic Resources Inventory Status (Year Built): CEQA Adjacent Zoning & Use: 1327 Ocean Avenue: Commercial building (1951) 1333 Ocean Avenue: Victorian style commercial building (1906) Designated City Landmark 1337 Ocean Avenue: Spanish Colonial Revival commercial building (1926); Designated City Landmark 101 Santa Monica Blvd: Commercial/residential building (1925) DCP HRI: 5S3 129 Santa Monica Blvd: Surface parking lot Project will require an Environmental Impact Report (EIR) North: Ocean Transition; commercial South: Ocean Transition; commercial East; Bayside Commercial; commercial West: Open Space: Palisades Park Downtown Community Plan Framework This section of the report outlines the Downtown Community Plan s policy and regulatory framework that will guide City review and Development Agreement negotiations for the project. Established Large Sites The DCP identifies three sites in the Downtown that, given parcel size and development standards, could potentially provide significant community benefits for the circulation, 5

6 open space and cultural facilities that would otherwise not be anticipated from smaller projects. These significant enhancements are identified as part of an overall strategy for potential economic and functional improvements to address anticipated future needs in the Downtown. If the project were to be developed in compliance with the DCP s Tier 2 standards, the maximum allowable height for the project would be between However, the DCP established a codified, rigorous public process for projects on the three Established Large Sites to request consideration up to a height limit of 130 feet, subject to a Development Agreement; requirements for additional environmental review; and submittal of a detailed account of how the project meets the community benefit priorities set forth in the DCP. DCP policies and development standards identified for Established Large Sites specify a framework to ensure that projects proposed on the three identified sites are consistent with the community s long-standing vision for an economically vital, culturally rich, and diverse Downtown anchored by complete neighborhoods, multi-modal circulation improvements, affordable housing, and a variety of cultural institutions, physical infrastructure, and public realm amenities. Specifically, Chapter 2A of the Downtown Community Plan requires projects proposed on the three Established Large Sites to provide the following five priority community benefits, subject to negotiations regarding the specific level and type of benefit to be provided: 1. Publicly Accessible Open Space 2. Affordable Housing 3. Mobility and Circulation 4. Cultural Institutions 5. Historic Preservation The DCP also requires conformance with site-specific development standards for each of the three Established Large Sites if an applicant proposes a Development Agreement for a project over the DCP s Tier 2 standards. For the Ocean Avenue Project site, the plan specifies the following: 1. Maximum building height: Maximum floor area ratio (FAR): Minimum open space: 50% of total parcel area comprised of 25% located at the ground floor and 25% without a regulated location The project involves two designated City Landmarks and one HRI-identified property. Accordingly, potential impacts to Cultural Resources will be studied in the Environmental Impact Report that will be prepared for the project in compliance with Established Large Sites Overlay regulations, if an applicant requests to develop a project that exceeds Tier 2 parameters. 6

7 Project Description Key Project Revisions Project Description The proposed project is a mixed-use hotel, cultural, retail and residential development that consists of the following key components, as revised and resubmitted to the City in December 2017, in conformance with the DCP s Established Large Sites Overlay regulations: Approximately 115-room hotel with meeting room, amenity, and banquet space 79 residential rental units, comprised of the following: o 19 new rent-controlled units to replace existing on-site units o 42 market rate units o 18 affordable units Ground-floor restaurant and retail space along Ocean Avenue, Santa Monica Boulevard, and Second Street Approximately 40,000 SF cultural/museum campus with ground level open space along Ocean Avenue Publically-accessible roof-top observation deck Ground level pedestrian paths throughout site Subterranean parking Retention and adaptive reuse of two, on-site designated City Landmark buildings as part of the proposed cultural/museum campus Approximately 317,500 gross SF, comprised of the following: o 141,500 SF hotel o 24,000 SF retail/restaurant o 91,000 SF residential o 49,000 SF museum, restored Landmark buildings, observation deck 130 maximum building height at central tower element (12 stories) 2.6 Floor Area Ratio Key Project Revisions Since the initial submittal of the Development Agreement application for the Ocean Avenue Project in February 2013, the Applicant has received preliminary input from City staff, community members, and the Architectural Review Board. This feedback was considered by the Applicant team in conjunction with the Council-adopted regulations and development standards set forth in the Downtown Community Plan for the Established Large Sites Overlay. 7

8 The Applicant s updated design concept provides several substantive revisions to the project that have been informed by initial community and staff input and the DCP s urban design framework and site-specific development parameters. This section of the report provides for discussion a conceptual overview of several key changes that characterize the revised project design. Reduced Building Height The revised project includes a podium and central tower design that is oriented in an east-west direction, with a maximum height of 130 where 244 was originally proposed. To achieve this height reduction, floor area and building mass are redistributed to other portions of the site with residential buildings ranging from approximately 60 to 90 along Santa Monica Boulevard, consistent with the existing development pattern along the boulevard heading east. Lower height buildings are maintained on the north side of the site, along Second Street (residential/commercial) and Ocean Avenue (museum complex). o While not an analytical tool or development standard used in the DCP, the Applicant has provided an average building height analysis for the project to demonstrate how ground level open space and a variety of building scales affect the relationship between height, density, and design (see page 11 of project plans). The Applicant s conceptual average building height analysis indicates that while a maximum height of 130 in proposed, only 10% of the total site area would be constructed to that height and the average building height for the site as a whole would be Revised Massing Strategy As part of the continuing study of the site design in response to preliminary input from staff and ARB and the DCP s standards, the overall massing strategy has been updated for the residential components (with ground floor retail) to reduce the perceived scale of the project-site block. o In concert with the reduced height of the central tower and redistribution of floor area, the project now incorporates building mass along Santa Monica Boulevard and Second Street that has been broken down into four distinct residential buildings in order to: o Better reflect the block pattern found in the Downtown; o Accommodate more substantial on-site pedestrian improvements; o Create a more integrated sequence of open spaces and common areas throughout the site. o In conjunction with the building height adjustments noted above, the revised project includes significant upper-floor modulation to shape the redistributed building mass in order to: o Improve the permeability of light and air throughout the site; o Create visual interest; and o Create upper level hotel and residential common amenity areas that also moderate the overall scale of the buildings. 8

9 Pedestrian-Oriented Improvements The revised design concept incorporates buildings along Santa Monica Boulevard and Second Street that have been shaped and modulated at the ground level to further improve pedestrian travel through the site to a variety of programmed areas and to/from Ocean Avenue. o The planned reuse and integration of First Court has been modified so that the first north/south section from Santa Monica Boulevard (approximately 130 in length) is open and clear-to-the-sky and provides connection to an east/west paseo leading to Ocean Avenue. This revision was accomplished by removing a previously-proposed 2 nd floor over the alley. o The organization of vehicular circulation and key pedestrian entrances to the hotel, residential buildings, and observation deck has been revised to create the following: o An uninterrupted pedestrian environment along Ocean Avenue and Santa Monica Boulevard with consolidated vehicle ingress/egress points on Second Street and via First Court at Arizona Avenue; and o A stronger relationship between the public realm and the project s proposed on-site pedestrian network and ground level open spaces. Revised Residential Program As part of the reallocation of floor area and overall reduction of approximately 20,000 SF from the original submittal, the residential program was modified to eliminate the previously-proposed 22 condominium units so that the revised residential program is comprised entirely of 79 rental units in total. Conceptual Treatment of Designated Landmarks Buildings The updated project design proposes retention and incorporation of the two designated Landmark buildings as part of the museum complex that will provide a strong historic and contemporary presence along Ocean Avenue. The Victorian building is proposed for on-site relocation to the north edge of the site next to the extant Landmark Gussie Moran House. This relocation would create an open courtyard with the new museum building in the middle and the Landmark Spanish Colonial Revival Building forming the south edge of museum campus. This relocation also reinforces the historic character of the 1300 Block of Ocean Avenue with the Landmark Shangri-La Hotel and Gussie Moran House also exemplifying the City s historic development pattern on the Avenue. The overall design concept for the museum will continue to be developed and refined with a focus on how the two historic buildings will physically and visually be integrated with the new museum structure and how each of the buildings will retain an individual presence while also creating a harmonious and complementary cultural campus. 9

10 Discussion The City Council s Development Agreement processing procedures require a preliminary concept/float-up discussion by the Architectural Review Board prior to Planning Commission and Council float-up discussions for certain types of projects in order to facilitate discussion about urban design and architectural design issues earlier during the application review process. Staff and the Applicant both agreed that a preliminary discussion by the Landmarks Commission would also be beneficial as the project moves forward through the early review process. Based on staff s preliminary review of the new submittal, the revised design relates substantially better to the property s unique site conditions in a distinctive and dense pedestrian environment across from Palisades Park and oriented west toward the ocean. The proposed site design recognizes the broader urban patterns found in the Downtown District and complements this setting through building siting and orientation; building mass modulation applied - in particular - to the residential buildings; location of uses and program; and preservation and adaptive reuse of two designated City Landmark buildings. 10

11 In addition, of particular importance are the revisions that have been made to the project s ground level open spaces and pedestrian circulation network. As shown in the graphics on page 10, the revised design incorporates open spaces and pedestrian paseos and paths that are more visually accessible from the street, user-friendly, and connected to the streetscape. This preliminary review provides an opportunity for the Applicant to present conceptual project plans and respond to any initial comments and questions the Landmarks Commission may have following the presentation. Consistent with this framework, the Landmarks Commission may focus its preliminary discussion of the revised Ocean Avenue Project on the following areas: Strength of the project s overall architectural expression and the degree to which the two Landmark buildings are appropriately integrated with the project s design concept. Degree to which the project concept complements the eclectic mix of modern and historic architectural styles along Ocean Avenue, including the Landmark Gussie Moran House, which is part of the broader Downtown context; Scale and proportion of the project, in particular, as it relates to the Landmark properties; and Quality of ground floor design and open space/landscaped areas with respect to pedestrian-orientation, visual permeability, expression of the area s historic and contemporary neighborhood character, and the site s connection to historic Palisades Park. In addition to these four broad issue areas raised for discussion, staff s comprehensive project review and development agreement negotiations will be focused, in part, on the five community benefit priorities established by the DCP (publically accessible open space, affordable housing, mobility/circulation, cultural institutions, and historic preservation), with attention to the following: Delivering sustainable, energy/resource-conserving design and project features; Further-refining the quality of the project s site design, architecture, and relationship to the Downtown District s public realm; Ensuring that the project supports the Downtown District s multi-modal mobility infrastructure and options; Ensuring appropriate treatment and integration of the two on-site designated City Landmark buildings; and Delivering an open space plan that is well-integrated with the historic and new architecture and provides ample landscape and pedestrian amenities. 11

12 Next Steps A summary of the key comments raised during the Architectural Review Board and Landmarks Commission discussions will be provided to the Planning Commission and City Council as part of the next two preliminary concept/float-up discussions for the Ocean Avenue Project anticipated for Spring/Summer With Council s direction to proceed, staff would begin comprehensive project review, preparation of an Environmental Impact Report, and Development Agreement negotiations during Winter Attachments A. Applicant s Submittal Material, February 1, 2018 (including selected sheet from 2013 submittal) B. Applicant s Historic Resource Assessment Report for 101 Santa Monica Boulevard building, Chattel, Inc., March 2018 C. Excerpt of Architectural Review Board Meeting Minutes, August 5, 2013 and February 20, 2018 D. Findings and Determination of the City Council, 1333 Ocean Avenue Findings and Determination of the Landmarks Commission, 1337 Ocean Avenue E. DPR Forms and Excerpt from Downtown Community Plan Historic Resources Inventory, 101 Santa Monica Boulevard 12