Planning Commission Report

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1 Planning Commission Report Planning Commission Meeting: February 8, 2012 Agenda Item: 6-A To: From: Subject: Planning Commission Amanda Schachter, City Planning Division Manager Discussion of Preliminary Plans for the Pending Santa Monica Fairmont Miramar Hotel Development Agreement Address: Applicant: 1133 Ocean Avenue / 101 Wilshire Boulevard Ocean Avenue LLC Recommended Action It is recommended that the Planning Commission: 1. Formulate a recommendation to the City Council authorizing staff to proceed with the negotiation process for the Santa Monica Fairmont Miramar Hotel Development Agreement. 2. Discuss the Applicant s preliminary plan and provide direction regarding desired design parameters for the site and potential community benefits to be further negotiated. Executive Summary The Applicant, 1133 Ocean Avenue LLC, filed a Development Agreement application and preliminary plans in April 2011 (011DEV-003) to comprehensively redevelop the existing Santa Monica Fairmont Miramar Hotel ( Miramar Hotel or Hotel ) as a new 550,000 SF (2.9 FAR) mixed-use hotel with the following key components: 265 guest rooms food, beverage, meeting, and spa facilities retail space along Wilshire Boulevard approximately one acre open space area at the corner of Wilshire Boulevard and Ocean Avenue up to 120 condominiums on the upper floors of new buildings up to 484 on-site subterranean parking spaces The Miramar Hotel is located on a 4.5 acre site and currently operates as a 296 guest room hotel with restaurant, spa, and banquet facilities totaling 262,284 SF of floor area with a total of 160 surface parking spaces provided on Miramar Hotel-owned property. 1

2 The proposed project includes preservation of several significant historic features of the Hotel property that contribute to the character of both the Miramar Hotel site and surrounding neighborhood. The project includes preservation and rehabilitation of the six-story 1920s Palisades Building at the parcel s northeast corner, and protection and preservation of the Landmark late-nineteenth century Moreton Bay Fig Tree planted near the middle of the site. Finally, an affordable housing component, with up to 40 units, is proposed directly across the street at nd Street on Hotel-owned property currently used as a surface parking lot for its valet operation. Development Agreements are generally considered for complex projects with a significant scope and scale that current zoning standards may not address, and when the City has the opportunity to derive substantial community benefits from the project. Pending forthcoming preparation and adoption of a new Zoning Ordinance and Downtown Specific Plan, the Hotel parcel is currently located in the RVC (Residential- Visitor Commercial) Zoning District, the 2010 Land Use and Circulation Element s (LUCE) Downtown District, and has a Downtown Core General Plan land use designation. In this case, pursuant to the City s Interim Zoning Ordinance No (CCS), a Development Agreement is required for projects with a Downtown Core land use designation that propose construction over 32 feet in height. As discussed more fully in this report, the proposed project will be reviewed for consistency with, and further guided by, the 2010 LUCE vision, goals, and policies identified for the Downtown District, as these were developed and adopted by City Council following a six-year planning effort that included extensive public participation to create a 20-year framework for implementing the community s land use, urban design, and transportation vision. In summary, the LUCE vision, goals, and policies for the Downtown District support a broad mix of uses and new investment in the District that creates dynamic daytime and evening activity and reinforces the Downtown as the place with the greatest concentration of activity in the City. As outlined in the LUCE, this mix of uses includes retail, hotels, office, high-density residential, and entertainment and cultural uses. The LUCE identifies the intention of transitioning to the residential neighborhoods to the north and east of the District, and provides guidance that new and expanded hotels and other visitor-serving uses are to be encouraged. A new Downtown Specific Plan and updated Citywide Zoning Ordinance are being prepared to implement the 2010 LUCE s vision, goals, and policies for the newlyexpanded Downtown District that now includes Ocean Avenue to the west, Lincoln Boulevard/Lincoln Court to the east, and the Miramar Hotel site, sections of 2 nd Street, and Wilshire Boulevard to the north. Both of these planning efforts are underway and it is anticipated that the Downtown Specific Plan will be completed in mid The proposed Miramar Hotel project will also be further evaluated by staff in light of the 2

3 emerging themes recently identified and presented to Planning Commission on January 11, 2012 as guiding principles for the preparation of the new Downtown Specific Plan. Key Issues for Consideration The following is a summary of key issues that are recommended for Planning Commission consideration in its discussion of the Development Agreement and formulation of comments to City Council and staff: Consider whether the Applicant s preliminary plans are consistent with the LUCE s vision, goals, and policies that 1) support the City s greatest concentration of activity in the Downtown; 2) encourage a broad mix of uses, new and expanded hotels, and other visitor-serving uses in the Downtown; and 3) underscore that the Miramar site should be one of exceptional planning and design. The Hotel is located at the northern edge of the District where the Downtown s commercial and mixed-use properties meet with medium-density residential properties on and to the north of California Avenue. Consider how the proposed project responds to this transition from higher intensity mixed-use commercial to multi-family residential properties. Discuss how the preliminary plans respond to its unique neighborhood context with consideration given to the neighborhood s existing development pattern where buildings ranging from feet in height are interspersed with substantially taller buildings ranging in height from feet. Consider whether the preliminary plan for the Hotel distributes building mass across the site in a way that responds to and enhances its neighborhood context and important on-site features such as the Landmark Moreton Bay Fig Tree and historic Palisades Building. Consider whether the preliminary plan successfully balances the tradeoff between constructing taller buildings and providing more open space and visual permeability into and from the Hotel property, versus constructing lower-scale buildings spread across the site while providing less open space. The intersection of Wilshire Boulevard and Ocean Avenue is an important space in the community from both a cultural history and an urban design perspective. Consider how the site plan s placement of building mass and open space addresses this significant corner. Identify potential negotiation points and community benefits that would be appropriate for the broader neighborhood and community. Purpose of Float-Up Discussion The purpose of this float-up discussion about the Miramar Hotel proposal is to gather feedback and direction from the Planning Commission that will advise the City Council, provide initial direction to staff, and inform the Applicant. The information gathered during this discussion will also help shape and further-refine the preliminary plan, and 3

4 inform staff s formulation and evaluation of community benefits to be considered through the forthcoming review process. There will be no regulatory decisions made about the Development Agreement Application during the float-up process. At this early stage of concept review, staff s initial comments regarding the project plans have primarily focused on overall site planning, neighborhood compatibility, and design issues including building mass and scale, pedestrian and vehicular access, and use of the open space. A summary of early comments is presented in this report and these issues will be reassessed following the float-up hearings. Staff also recognizes there are a series of substantive issues that remain to be studied and/or negotiated, relative to community benefits; a more detailed evaluation and assessment of the proposed massing plan, architectural design, and landscape design; and preparation of project-level environmental analysis. Staff s forthcoming review of the project will also be guided by the feedback and direction provided from the Planning Commission and City Council, and the community s comments, during this float-up process. Site Information The following provides a brief summary of the Miramar Hotel site: Zoning District: LUCE Land Use Designation: Parcel Area (SF) Existing On-Site Improvements Hotel Parcel: RVC (Residential-Visitor Commercial) 2 nd Street Parcel: R-3A (Medium Density Multiple Family Residential with Off- Street Parking Overlay) Downtown Core (Part of the Downtown District) 191,664 SF (Hotel Parcel) 15,000 SF (2 nd Street Parcel) Hotel Parcel: 296 room hotel with restaurant, spa, and banquet facilities (262,284 SF); 160 surface lot parking spaces 2 nd Street Parcel: 64-space surface parking lot Santa Monica Fairmont Miramar Hotel Site 1133 Ocean Avenue/101 Wilshire Boulevard and nd Street Adjacent Zoning Districts & Land Uses: Historic Resources: R-3/R-3A/C-3/BSC-4/BSC-2/DP multi-family residential, commercial, hotel, surface parking, office, retail, public open space 1976 Designation: Landmark Moreton Bay Fig Tree and an area 100 feet in diameter from center of tree trunk designated as a Landmark Parcel 4

5 The 4.5 acre Miramar Hotel property encompasses a full city block and is bounded by California Avenue to the north, Wilshire Boulevard to the south, 2 nd Street to the east, and Ocean Avenue to the west. The existing Hotel operates as a 296 guest room hotel with restaurant, spa, and banquet facilities totaling 262,284 SF and includes the following components identified on the graphic below: [A] Palisades Building: six-story plus basement (~60 ), L-shaped building; located at the northeast corner of the parcel on 2 nd Street and California Avenue (1924) [B] Ocean Tower: ten-story (~105 ) building with 12-story elevator tower (~130 ); east-west oriented and located near the center of the parcel (1959) [C] Administration Building: two-story building that contains banquet/meeting space and back of house functions; located adjacent to 2 nd Street and connected to the Ocean Tower and Palisades Building (1939 & 1959) [D] Meeting Bungalow: one-story building that serves as meeting space on the west side of parcel and south of the Ocean Tower (1938) [E] North Bungalows: series of one- and two-story buildings located at the corner of Ocean Avenue and along California Avenue (1938 & 1946) [F] Moreton Bay Fig Tree: planted circa 1879 on the grounds of the Miramar Estate then owned by Senator John P. Jones; located near the center of the parcel and south of the main Hotel lobby entrance at the Ocean Tower [G] Surface Parking Lots: 96 parking spaces [H] Surface Parking Lot on 2 nd Street Parcel: 64 spaces A H E B D F C G Aerial view of Miramar Hotel 5

6 Views of the Miramar Hotel Wilshire Blvd/Ocean Ave corner (upper left) Ocean Ave (upper middle) Ocean Ave/California Ave corner (upper right) Palisades Building at California Ave/2 nd St (lower left) 2 nd St mid-block (lower middle) Wilshire Blvd entrance (lower right) Neighborhood Context There is a broad mix of uses in the neighborhood surrounding the Miramar Hotel including offices, restaurants, and retail to the south and east along Wilshire Boulevard; offices, surface parking, a hotel, and multi-family residential buildings along 2 nd Street; offices and multi-family residential buildings along 3 rd Street directly east of the site; multi-family residential buildings along California Avenue; and Palisades Park to the west along Ocean Avenue. Oblique aerial view of Miramar Hotel site and surrounding neighborhood 6

7 Building heights in the neighborhood include two- and four-story commercial and residential buildings throughout the immediate area mixed with taller commercial buildings directly adjacent to the Miramar site including: a nine-story (~122 ) office building at 3 rd Street and Wilshire Boulevard; a 21-story (~280 ) office building at the corner of Wilshire Boulevard and Ocean Avenue; a 14-story (~130 ) condominium building at the corner of Ocean and California Avenues; and a 17-story (~160 ) hotel east of the site on Second Street. Views of surrounding neighborhood retail, restaurants, and offices on Wilshire Boulevard (above) Views of surrounding neighborhood Entrance to California Incline and multi-family residential properties on California Avenue (upper) Multi-family residential, hotel, and commercial properties along 2 nd Street (lower) Discussion Development Agreements are negotiated contracts between the City and an applicant that specify the design parameters, development standards, and requirements of a project. This Commission s recommendations on the Miramar Hotel proposal will advise the City Council, provide initial direction to staff, and inform the Applicant. The information gathered during this discussion will also be used to evaluate the benefits and impacts of the proposal, and the potential alternatives and community benefits to be considered through the forthcoming review process. 7

8 Project Description Project Concept & Vision Based on an initial review of the preliminary plans for the Miramar Hotel, the following is a summary of several objectives that have guided the Applicant s overall design concept. Some of these themes will also be discussed in the context of staff s preliminary site planning and design comments provided beginning on page 13 of this report: Upgrade the Hotel and improve its overall functionality in terms of guest amenities, services to both guests and the community, and back-of-house operations to meet today s hospitality standards for a world-class resort. Preserve and highlight key historic features of the site, including the Landmark Moreton Bay Fig Tree that was planted in 1879 and the Palisades Building built in Focus on pedestrian-oriented design in order to open up the Hotel site to the surrounding streets and to pedestrians, and also improve the site s orientation toward the ocean and establish a stronger visual connection to Palisades Park. Provide a large open space area to anchor the corner of Wilshire Boulevard and Ocean Avenue that would replace the surface parking lots currently located along the property s Wilshire Boulevard frontage. Providing this open space is balanced by shifting more building height to the middle of the site and along the 2 nd Street elevation. Unify the design and style of all Hotel buildings, integrate the site s landscape plan, and provide a consistent architectural language throughout the site. Provide sufficient on-site subterranean parking to eliminate the Hotel s current parking shortfall and minimize parking impacts on nearby residential areas. 2 nd street California Avenue Wilshire Boulevard Ocean Avenue Preliminary site plan (left) and rendering of west elevation looking northeast (right) 8

9 Project Components The Applicant s preliminary plans for the Miramar Hotel site include a mixed-use luxury hotel that incorporates the following key components: Project Components Proposed Current Guest rooms Food/Beverage space (SF) 12,080 3,796 Meeting space (SF) 11,500 21,225 Retail (SF) 6, Spa (SF) 13,483 5,569 Market rate residential units up to 120 n/a Affordable residential units up to 40 1 n/a Parking spaces up to Total floor area 550, ,284 Floor Area Ratio (FAR) Building heights on site (feet) - Palisades Building (existing to remain) - Ocean Building (replaces Ocean Tower) - California Building - Second Street Building (replaces Administration building) and n/a ~25 Open space area on Hotel Parcel ~ 51% ~ 36% Palisades Building The historic six-story Palisades Building located at the parcel s northeast corner would be preserved and rehabilitated for continued hotel use and will contain approximately 75,000 SF of floor area. All work would be done in accordance with the Secretary of the Interior s Standards for the Treatment of Historic Properties. Massing model of Miramar Hotel looking southwest Palisades and California Buildings along north side of property 1 Final number of affordable units will be determined when the number of market rate units is finalized. 2 Final number of parking spaces will be determined when the number of residential units is finalized. 3 The 550,064 SF proposed with the project does not take into account the 50% discount on residential floor area and exclusion of below-grade floor area that has historically been permitted in parts of the Downtown District. 4 Preliminary plans depict the California building as ten-stories and approximately 104 tall; however, based on comments from the community, the Applicant has indicated that California Building will be reduced to seven stories. 5 Maximum height currently on site is approximately 135 at the Ocean Tower s elevator tower at the east side of the building. 9

10 California Building A new 10-story, approximately 104 tall building with approximately 85,000 SF of floor area is proposed at the corner of Ocean Avenue and California Avenue. The California Building would contain both Hotel guest rooms and condominiums. Access to subterranean parking for approximately 100 cars is currently proposed at the California Building off of California Avenue to serve Hotel employees and some residents who own units on site. In response to community and staff comments received during public outreach and preliminary discussions, the Applicant is proposing to reduce the height of this building by approximately 30-feet (three-stories); however, the renderings and massing studies and graphics have not yet been updated to reflect this change. Ocean Building The existing 10-story Ocean Tower and 12-story elevator tower located at the center of the site would be demolished and a new 12-story, approximately 135 tall Ocean Building constructed in its place with approximately 210,000 SF of floor area. The ground floor of this building would serve as the primary entrance for Hotel patrons and provide access to other public spaces such as the spa and café. The Ocean Building would also include guest rooms, condominiums on upper floors, and a rooftop restaurant, bar, and deck. Second Street Building Massing model of the site s west elevation The existing two-story Administration Building would be demolished and replaced with a new 11-story, approximately 122 tall building with 190,000 SF of floor area. The new Second Street Building would be built south of the Palisades Building along 2 nd Street and include a prominent frontage on Wilshire Boulevard. The Second Street elevation is proposed with a 30-foot tall by 95-foot wide open-air arrival court on Second Street that will serve as the primary vehicle entrance to the Hotel and include passenger drop off and valet services. There are also pedestrian 10

11 access points from this entrance to different sections of the Hotel including the main lobby and open space area. The Wilshire Boulevard elevation would provide approximately 6,400 SF of retail space and the north and west sides of the building would house Hotel functions including meeting and banquet space, and would be oriented toward the proposed open space area immediately to the west and to the Moreton Bay Fig Tree to the north. Massing model of south and east elevations of Second Street Building Access and Circulation The preliminary site plan provides for multiple pedestrian access points into and from the Hotel; these paths are highlighted on the site plan on page 12. The main Hotel lobby is located on the ground floor of the Ocean Building close to 2 nd Street and adjacent to the arrival court. There are also multiple pedestrian access points located at 11

12 the south and west sides of the open space area and along Ocean Avenue at the west entrance to the Ocean Building. The proposed project incorporates subterranean garages at the property providing up to a total of 484 parking spaces. The final number of parking spaces to be provided is contingent on the final number of residential units proposed on site. The main parking garage would be located beneath the Second Street Building and portions of the open space area. The subterranean garage would not extend under the Moreton Bay Fig Tree. The arrival court on 2 nd Street would serve as the primary vehicle entrance/exit point to the main subterranean garage and is located adjacent to the Hotel lobby and front desk. All vehicle drop-off and return associated with the valet operation would be accommodated internally on the site and not require a valet driver to exit on to 2 nd Street in order to park a vehicle in the subterranean garage or return it to a patron. A second driveway leading to the subterranean garage has been proposed just south of the entry court; this is currently proposed primarily for use by residents of the site. The second subterranean garage would be accessed from California Avenue beneath the California Building on the north end of the site. This garage would serve Hotel employees and some on-site residents. Finally, the existing recessed passenger drop-off area would be retained in front of the Ocean Building along Ocean Avenue, and the loading dock and service entrance would remain on 2 nd Street in its current location. 12

13 Preliminary Site Planning and Design Comments Consistent with the key issues raised for Planning Commission consideration outlined in this report s executive summary, the following is a summary discussion of the overall site planning and neighborhood compatibility issues identified as a part of staff s early review of the project concept. These preliminary plans will be further developed during the project review and negotiation process based on feedback and direction from the Planning Commission and City Council pertaining to the project s design, scale, pedestrian orientation, streetscape design, and treatment of historic features. However, the following initial design issues are identified below to help guide the Commission s discussion and comments: Site Planning / Neighborhood Compatibility / Building Mass and Scale The Miramar Hotel s surrounding neighborhood is comprised of a mix of commercial and residential uses and a range of building heights. The existing development pattern in the immediate area includes commercial and residential buildings ranging from feet in height and a number of substantially taller commercial and residential buildings ranging in height from feet. Given this context, additional study of the 2 nd Street elevation and scale of the bridge element over the arrival court is required to ensure that the character of the streetscape is maintained. The proposal s distribution of building mass and scale throughout the site exemplifies one potential solution for how to respond to the site s neighborhood context, provide the mix of uses and development intensity identified by the LUCE as desirable in the Downtown District, and balance the tradeoff between building height/mass and provision of open space at the site. In this case, the Applicant has developed a preliminary plan that would establish taller buildings with heights up to 135 balanced by maintaining approximately 51% of the parcel as open space and providing more visual permeability into and from the property. With this approach in mind, the Applicant should also further study a site plan that shifts more building mass to a portion of Wilshire Boulevard while still providing a substantial open space area closer to Ocean Avenue. This would help to create a stronger presence for the project on an important boulevard, allow for a more balanced distribution of building mass across the site, and create a more appropriate transition to the lower-scale buildings to the east. Further, while the proposed project FAR of approximately 2.9 appears to be consistent with LUCE policies now in place for the expanded Downtown District, the need to balance the overall building heights on site, provide substantial open space, and appropriately address the hotel s neighborhood context will require careful consideration of portions of the Second Street Building. Additionally, the Planning Commission should consider whether the proposed height and massing is an appropriate tradeoff for increased site open space, and what should be the availability of that open space to the community. 13

14 Treatment of Historic Resources Continue to further refine the transitions between proposed new construction and the Palisades Building in order to preserve its historic character and allow the building more visual prominence on the site. The Applicant has recently indicated that the California Building will be reduced in height by three stories in response to previous community and staff feedback. This reduction in height is an important project revision that will significantly improve the lasting contribution this building will have as a historical asset to the Miramar Hotel and the broader neighborhood. Additional refinements should be studied at the interface between the Ocean Building and Palisades Building on the 2 nd Street elevation. Further study of the amount of floor area/mass around the Moreton Bay Fig Tree should be done in order to ensure that a sufficient visual transition will be provided between new construction (Second Street Building) and the tree s canopy. This should include also include a closer evaluation of how the arrival court will appropriately transition to the tree canopy. Pedestrian-Oriented Design, Access and Vehicular Circulation The Applicant will need to further study its access plan to enhance the pedestrian paths of travel and access points to the site. While the arrival court at the 2 nd Street entrance is designed for both vehicles and pedestrians, it feels primarily designed for the automobile. Specifically, one of the key paths of travel for guests/visitors walking to and from the City (in particular, the 3 rd Street Promenade) requires them to walk along 2 nd Street and cross multiple driveways to enter the main lobby/front desk area via the arrival court. While there are other pedestrian access points along Wilshire Boulevard through the open space area, there may be additional solutions to further open up Wilshire Boulevard and the 2 nd Street corner to the pedestrian and enhance the pedestrian experience along 2 nd Street. The Ocean Avenue pedestrian access points to the Ocean Building present an opportunity to create another main entrance for guests and visitors to the Hotel. Enhancing this pedestrian entrance will strengthen the Applicant s efforts to significantly improve the site s pedestrian orientation, open up the site along both Wilshire Boulevard and Ocean Avenue, activate the west side of the property, and establish a stronger connection to Palisades Park. Open Space & Programming The intersection of Wilshire Boulevard and Ocean Avenue is an important space in the community from both a cultural history and an urban design perspective. In order for this open space to be a community benefit that also serves to balance the proposed scale of buildings on site, there will need to be detailed negotiations with staff regarding the public use parameters for the open space area/gardens in order to ensure that this space serves as a true community benefit, while also meeting the programmatic requirements for the Hotel. 14

15 The Applicant should re-study the fountain/plaza at the corner of the gardens as this component must be fully integrated into the open space and landscape plan. More specifically, this area provides an opportunity to incorporate a high quality sculpture garden, piece of public art, or other feature that is fully accessible to the public. This space also provides an opportunity to establish a feature/element that reflects and narrates the historic context of the site related to Senator John P. Jones and/or its adjacency to Palisades Park. Community and Project Benefits Detailed below is a preliminary list of potential community benefits provided by the Applicant as a starting point for discussion. As noted earlier, staff is prepared to initiate a substantive discussion and negotiation of community benefits appropriate for the proposed Miramar project following the float-up process. Specifically, based on feedback from the Planning Commission, City Council, and the community, staff will identify and negotiate a full program of community benefits for potential implementation in conjunction with the proposed Miramar Hotel project. Preserve and feature the Moreton Bay Fig Tree. Preserve and rehabilitate the Palisades Building. Create almost one acre of open space at the corner of Wilshire Boulevard and Ocean Avenue, including the plaza at the corner that, subject to forthcoming use parameters, would be publically accessible. Improve pedestrian access to the site and establish a visual connection to Palisades Park. Replace two unsightly parking lots along Wilshire Boulevard with new retail shops, thereby activating the street and offering a connection to the 3 rd Street Promenade and Palisades Park. Provide affordable housing. Improve the Hotel s environmental footprint and sustainability. Require all buildings meet or exceed the LEED Silver requirement. Minimize traffic impacts. Implement a Transportation Demand Management Program. Provide covered and secure bicycle parking for employees and residents, shower and locker facilities for employees, and additional bicycle parking for visitors and guests. Payment transit/mobility fee. Provide adequate subterranean parking for all hotel guests, residents, and employees on site, which will free up 100 to 150 local on-street parking spaces. There are also a number of project benefits cited by the Applicant in its initial proposal that include the following: Generate new jobs while maintaining the Hotel as a union hotel. Subject to the Miramar's collective bargaining agreement with UNITE HERE Local 11, negotiate a local hiring requirement, both for construction and hotel operations. 15

16 Negotiate a living wage provision for hotel workers in the Development Agreement, subject to a standard union contract override provision. Generate significantly increased City tax revenues. Provide up to 120 for-sale condominiums, which will contribute to achieving the City s vision of creating dynamic activity in both the daytime and evening hours. General Plan Consistency: Downtown District Overall Vision, Mix of Uses, Development Intensity The Miramar Hotel is located in the 2010 LUCE s Downtown District and has a Downtown Core General Plan Land Use Designation. Policies in this District are geared primarily toward reinforcing the Downtown as the focus of the City, encouraging a broad mix of uses and new investment in the District that creates dynamic daytime and evening activity, and reinforces the Downtown as the place with the greatest concentration of activity in the City. As outlined in the LUCE, this broad mix of uses includes retail, hotels, office, high-density residential, and entertainment and cultural uses (Goal D.7, Policy D.7.1). With respect to residential development in the Downtown, units with a diversity of types, forms, sizes, tenure, and affordability for all income levels are encouraged (Policy D7.7). Policy D1.4 also states that new and expanded hotels and other visitor-serving uses are to be encouraged. General LUCE discussion about the Downtown District identifies the intention of transitioning to the residential neighborhoods to the north and east of the District (page 2.6.7) while also recognizing that the Downtown is considered a true urban place where streets are important pedestrian activity spaces, buildings are generally the tallest in the City, and the intensity of development is higher than in the rest of the City (page 1.3.8). The LUCE s Downtown District also specifically identifies the Miramar Hotel s 4.5 acre property as an opportunity site for investment and should be of exceptional planning and design due to its prominent location and unobstructed ocean views; its proximity to transit; and its ability to accommodate mixed-use development, contribute to the Downtown s pedestrian-oriented environment, and support substantial community benefits (Goal D1.5). Urban Form and Design With respect to urban form and design in the Downtown District, the LUCE provides guidance addressing neighborhood compatibility, pedestrian-oriented design, historic preservation, and improving connections to the open spaces just west of the District. Specifically, Policy D10.2 highlights the need for new development along the east side of Ocean Avenue to provide landscaping and open space to create a visual connection to Palisades Park. LUCE Policy D8.5 supports building forms that respond to residential adjacency through creation of a prescribed building envelope for new commercial or mixed-use buildings 16

17 adjacent to residential districts that include stepbacks to maintain the residential development s access to light and air. The importance of further enhancing the Downtown s pedestrian-oriented environment is stated in LUCE Policy D8.3, which calls for designing buildings with a variety of heights, architectural elements and shapes to create visual interest along the street, and in Policy D8.7 which encourages mixed-use development to have active ground floor uses that face the boulevard with residential or office uses located on the upper floors. Finally, given the Downtown s significant role in the City s history and the array of buildings that exemplify this history, LUCE Policy D7.5 supports exploration of options for the adaptive reuse or retention of historic resources and requires new buildings constructed in proximity to existing historic resources to respect the context and character-defining features of the historic resource. Transportation and Circulation There are a number of relevant LUCE circulation goals and policies that address vehicle trip reduction, parking availability, and pedestrian and bicycle network improvements: Ensure walking is safe in the community and a beautiful and attractive pedestrian environment is created (Goals T7 and T8). Encourage major employers to provide covered and secure bicycle parking and shower and locker facilities for their bicycle commuters, or to assist in funding bicycle transit centers in nearby locations (Goal T10.2). Provide adequate parking in residential and commercial neighborhoods by creating new parking only as necessary based on demand studies, sharing and better managing existing parking resources, and encouraging new projects to improve residents opportunities to find parking (Goal T22, Goal T23). Create an integrated transportation and land use program that seeks to limit total peak period vehicle trips with a Santa Monica origin or destination to 2009 levels by imposing appropriate TDM program requirements; implementing land use policies that focus development potential in locations best served by transit; and requiring community benefits incentives so that new development will contribute toward improving surrounding neighborhoods (Goal T19, Policies T19.1 and T19.6). Development Parameters Area-specific development parameters (e.g., maximum floor area ratio, density, and height) were not established in the 2010 LUCE for the broader Downtown District or Downtown Core Land Use Designation. Instead, the LUCE maintains, on an interim basis, the existing Bayside District Specific Plan and applicable General Plan land use designations until a new Downtown Specific Plan provides updated development parameters to reflect the vision, goals, and policies for today s newly-expanded Downtown District. Formulation of this new Downtown Specific Plan was concurrently 17

18 identified during LUCE adoption as a priority work item and the City began working on the plan in As noted earlier, it is anticipated that the new Downtown Specific Plan will be presented for adoption in mid Because the Miramar site was not identified as part of the Downtown area in the 1984 General Plan and is not currently covered by the existing Bayside District Specific Plan, the site s 1984 Oceanfront District Land Use Designation would still apply during this interim period. This 1984 Oceanfront Land Use Designation addresses a different land use context established over 25 years ago and provides lower-intensity development parameters (2.0 FAR and 45 building height) in comparison to the 2010 LUCE s Downtown District that the Miramar site is now a part of today (3.0 FAR and 84 building height is permitted in the current Downtown Core). Accordingly, a General Plan Amendment would be necessary for the Miramar project, as currently proposed, given the 1984 Oceanfront District land use parameters. Downtown Specific Plan With respect to the forthcoming Downtown Specific Plan, key themes that will help inform development of the new Specific Plan were presented and discussed at the Planning Commission on January 11, 2012; these key themes included the following: The Downtown District is poised for change, and the new Specific Plan needs to ensure growth that allows for additional success beyond the central Promenade and balances the needs of different sectors (retail, visitor/tourism, residents and employees). There is a need to activate the northern end of the Downtown along Wilshire Boulevard and balance the level of activity occurring at the southern edge of Downtown. There is significant interest in culture, art, and enhanced wayfinding, and a need to implement ways to create an immersive experience while in the Downtown District. A comprehensive understanding of parking in the Downtown District will be an important part of the Specific Plan process. Open space enhancements large and small, public and private are welcome in the Downtown. There is a need to focus on creating and maintaining active building and street frontages; consider how buildings meet the ground and define the street and public space. There is also a desire for spaces in the Downtown to feel like the community s space. Historic preservation will remain important to the Downtown s character. Staff will continue to monitor the Downtown Specific Plan s parallel community planning process and review the Miramar Hotel project in light of the direction that emerges from this work effort. General Plan consistency will be evaluated carefully as the Miramar 18

19 Hotel project proceeds through formal negotiations in order to ensure that its design, uses, and features will contribute to the community in accordance with the LUCE s goals, policies, and vision for the Downtown District. Community Meeting and Public Input A community meeting to present and discuss the Miramar Hotel preliminary plans was held by staff on June 30, 2011 with approximately 90 residents and interested parties in attendance. Many who attended the meeting live close to the site, and in particular from two buildings located immediately north of the project on California Avenue and a building on 3 rd Street, directly east of the Hotel s 2 nd Street surface parking lot. Key concerns raised by attendees included project s overall size, density, and scale, and in particular, the massing of the project on the north and east sides of the property as it would contribute to a loss of private views. Many attendees stated that the project would negatively impact surrounding neighbors and bring more noise and traffic to the area. There was also concern expressed about the project setting a precedent for future development, the project s traffic and parking impacts, and the cumulative effect and timing of construction in light of the forthcoming California Incline reconstruction. There were also questions regarding the necessity of the project s proposed 120 market-rate condominiums and how an affordable housing component would mix with the luxury hotel. Finally, concern was also expressed about the process leading up to the community meeting and why the Applicant s outreach did not include adjacent residents during early project discussions. Since the community meeting in June, staff has received a number of inquiries about the project and the City s process for reviewing the application. Staff has also met with residents from neighboring condominium buildings on California Avenue and 3 rd Street to listen and to answer questions related to the City s review process. In these discussions, residents reiterated concerns about the construction impacts and that tenants in nearby buildings will need to move as a result of the noise and disruption. Concern was also expressed about views being blocked by the new buildings along California Avenue and 2 nd Street, that residential property values will be negatively impacted, and that the proposal will change the character of the neighborhood. Conclusion & Next Steps The Planning Commission s recommendations regarding the Applicant s proposal and any potential public benefits and project requirements will help inform the City Council s discussion and direction regarding Development Agreement review and negotiations for the Miramar Hotel proposal. In summary, the following key issues are recommended for the Planning Commission s discussion of the project: Consider whether the Applicant s preliminary plans are consistent with the LUCE s vision, goals, and policies that 1) support the City s greatest concentration of activity in the Downtown; 2) encourage a broad mix of uses, new and expanded hotels, and other visitor-serving uses in the Downtown; and 3) 19

20 underscore that the Miramar site should be one of exceptional planning and design. The Hotel is located at the northern edge of the District where the Downtown s commercial and mixed-use properties meet with medium-density residential properties on and to the north of California Avenue. Consider how the proposed project responds to this transition from higher intensity mixed-use commercial to multi-family residential properties. Discuss how the preliminary plans respond to its unique neighborhood context with consideration given to the neighborhood s existing development pattern where buildings ranging from feet in height are interspersed with substantially taller buildings ranging in height from feet. Consider whether the preliminary plan for the Hotel distributes building mass across the site in a way that responds to and enhances its neighborhood context and important on-site features such as the Landmark Moreton Bay Fig Tree and historic Palisades Building. Consider whether the preliminary plan successfully balances the tradeoff between providing visual permeability into and from the Hotel property and constructing taller buildings and providing more open space that, subject to negotiation, may be publically accessible versus constructing lower-scale buildings spread across the site while providing less open space. The intersection of Wilshire Boulevard and Ocean Avenue is an important space in the community from both a cultural history and an urban design perspective. Consider how the site plan s placement of building mass and open space addresses this significant corner and how the site planning, overall, relates to the Landmark Palisades Park across the street. Identify potential negotiation points and public benefits that would be appropriate for the broader neighborhood and community. Each of these key issues will require further study; staff will continue to work with the Applicant following the Development Agreement float-up process to revise the project based on the feedback and direction provided by the Planning Commission and Council. Alternative Actions In addition to the recommended action, the Planning Commission could consider the following with respect to the project: Continue discussion for analysis of additional options with agreement from the Applicant. Prepared by: Roxanne Tanemori, AICP, Senior Planner 20

21 Attachments A. Public Notification B. June 30, 2011 Community Meeting Summary C. Correspondence Received Regarding the Property D. Applicant s Preliminary Plans 21

22 Attachment A Public Notification NOTICE OF A PUBLIC HEARING BEFORE THE SANTA MONICA PLANNING COMMISSION SUBJECT: Float-Up Discussion: Miramar Hotel Development Agreement (11DEV-003) 1133 Ocean Avenue / 101 Wilshire Boulevard / nd Street APPLICANT and PROPERTY OWNER:: 1133 Ocean Avenue LLC A public hearing will be held by the Planning Commission to consider the following: Planning Commission discussion and feedback regarding preliminary concept plans for the following project at the Santa Monica Fairmont Miramar Hotel that is subject to a Development Agreement: Proposal to comprehensively redevelop the existing Miramar Hotel as a new, approximately 550,000 SF mixed-use hotel with the following key components: Total of 265 guest rooms New food, beverage, meeting, and spa facilities New retail space along Wilshire Boulevard One acre of open space at the corner of Wilshire Boulevard and Ocean Avenue Up to 120 condominiums on the upper floors of new buildings Up to 484 parking spaces in an on-site subterranean garage Preservation of the Landmark Moreton Bay Fig Tree located near the middle of the parcel Preservation and rehabilitation of the Palisades Building located on the parcel s northeast corner Up to 40 affordable housing units on Hotel-owned property currently used as a surface parking lot for its valet operation at nd Street DATE/TIME: LOCATION: WEDNESDAY, February 8, 2012, AT 7:00 p.m. City Council Chambers, 2 nd 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. Please address your letters to: Roxanne Tanemori, AICP, Senior Planner Re: Miramar Hotel Development Agreement Float-Up Hearing City Planning Division 1685 Main Street, Room 212 Santa Monica, CA MORE INFORMATION If you want more information about this project or wish to review the project file, please contact Roxanne Tanemori at (310) , or by at roxanne.tanemori@smgov.net. The Zoning Ordinance is available at the Planning Counter during business hours and on the City s web site at The meeting facility is wheelchair accessible. For disability-related accommodations, please contact (310) or (310) 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, 9 and Rapid 3 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 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) APPROVED AS TO FORM: Amanda Schachter, Planning Manager 22

23 Attachment B January 30, 2011 Community Meeting Summary 23

24 Miramar Hotel Project June 30, 2011 Community Meeting Summary Attendees individual comments recorded on flip charts during the meeting are listed below: Design Comments Move building mass away from California Avenue Do not underestimate impacts to 3 rd Street residents as project will become a massive wall, particularly related to shade/shadow Objection to concentrating condos on California Avenue Project intrudes on neighbors Concern with view blockage Opportunity to create something spectacular at the site but why is development not oriented towards the commercial boulevards (Wilshire/Ocean) instead of on California? Open space should be on California (flip plan around) Existing site preserves view corridors, light, and ocean breezes Project blocks out views on 2 nd Street Hotel can be remodeled without altering character of the site Save as many existing, mature trees as possible design around trees, not just the Moreton Bay Fig Tree Move parking lower to preserve roots of fig tree EIR should consider loss of tree canopy Accessibility is expected as the hotel belongs to everyone Placing large buildings along streets is not favored Too many tall buildings bring noise and traffic We will be able to see the tallest building from Lincoln Boulevard First major high-rise development in the City in many years sets precedent for other development Focus has only been on western façade with maximum density on northern and eastern border Most leading hotels are not large masses why does floor space need to be doubled? Why does Third Street Promenade need to link to Palisades Park since they are both destinations in and of themselves? Want elevations/renderings of California Avenue Will project be amended if studies show blockage of private views? Existing hotel is nestled in green space and is human scale proposal is too massive and resembles Miami Beach Scale back density of project Open space that is currently enjoyed is a breath of fresh air and with proposal, will be gone 24

25 Traffic Comments Adequacy of parking? Question about applicant s claim of a traffic decrease when 120 condo units are being added Wilshire Boulevard is the heart of the city and there is no need to bring traffic to California Avenue California Incline traffic is already bad this project would exacerbate the situation Construction Effects Timeline of California Incline construction and hotel construction Where will construction workers park? What about a staging area? Proposed Uses Why are 120 market-rate condo units necessary? Market does not need a luxury hotel How will low-income housing mix with a luxury hotel? Suggestions for Public Benefits Additional revenue should be set aside for historic preservation Bungalows are historic and should be preserved Why can t affordable housing be mixed on-site with hotel? General Comments Lack of consultation from California Avenue neighbors request to meet with HOA board Lack of consultation with rd Street (east of site) Project was conceived with inadequate public input during 18 months of concept planning Be open and responsive to neighbors Will residences be used as rooms as well? Notice of meeting was too short Commercial space leaves potential for theft/burglary has there been a safety study? More information needed about the value of the hotel business Don t let businesses trump quality of life and views Post plans and application online Proposal maximizes dollars and does not consider destruction to quality of life, particularly at California/Ocean Proposed project is one of several hotels in the city intended to only increase revenue for the benefit of the hotel Santa Monica is in a growth period and project seems sensitive to some issues, namely providing more parking, which is a good addition to the city Concern about loss of property values, particularly along northern and eastern edges of site 25

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