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Minutes-PC 1983/01/17STAOIUM AREA DEVELOPMENT wORK SESSION PLANNING COMMISSION January 17, 19a3 Mary Bouas called the meeting to order at 7:02 p.m. Commiasioners Present: BOUAS, HERBST~ KING~ LA CLAIRE, MC BURNEY Commissioners Absent: 9USNORE, FRY CABOT~ CABOT s FORBES REPRESENTATiVES PRESENT: ~ohn Wasson MI ke aushmar~ D~vtd Gensmer SKIDMORE, OWINGS b M~RRILL REPRESENTATIVES PRESENT: David Uan Oeyen Maris Pelka Jim Titus DKS ASSOCIATES PRESENT: Rick Sauve CITY OF ANAHEIM STAFF PRESENT: Jim Armstrong Jack White Ron Thompson Joel Fick Paul Singer Dean Sherer Mary McCloskcy Edith Harris John Wasson (CCBF) explained this pra,ject has been in progress since November 1978 and that the sitde presentatlon of the praposed pro,ject will show the design and master plan~ nature of the approval process~ and how it relates to the ground lease. He stated parking and traffic have been two ma,jor concerns and will be discussed thoroughiy later in the meeting. Mike Rushman explained the City and Anaheim Stadium Associates (ASA) entered into a 50-year ground lease for 95 acres on November 21, 1978, and there have been substantial changes since then. In the second amendment the City gave ASA additional time to begin development and aSA gave the City 22 acres (the north leg and the east leg~ where the Big "A" sign is located). Mr. Rushman stated they realize it is very important to separate stadium traffic from project ~office) traffic and the City will exchange property to enable ASA to move the stadium entry road on Orangewood; and that the City wiil control i~6 acres and the ground lease property wtil constst of 68 acres which is going to ba developed over a 15+ year period in phases. ~~ ~V~ Mr~ Waason compared this site to kha San Francisco Embercadero Center consisting of 3.8 r~i l l ton square feet; Centur.y City consi sting of 2.5 ml l l ion squere feet and tha South Coast Pla za con slsting of spp~oxtmately 1.7 millton square feet and axpl~ln~~d they dectded to usa 5AUth Cpast Pl~z• as a compdrlson for denslty purposes. He potnted out thc diffe~ent phasea ~nd oxplalned the firs~ bullding is the smallest and will have quite an economlc burden to carry because of the stedlum entry roed relacetlon end the lerge amount of landscaping. Jim Tttus~ of Sktdmore, Owings 6 Merrill's San Francisco office~ steted thay we~e pte~sed to work w(th CC6F and City staff tn d~veloping the mester plan which Is very complex and pAlnted out the models displayed In front of the Planning Commisslon. Me stet ed they r~Anted to be sure the traffic c(rculatio~ for the stadlum and of fices would work successfuily; that the Orangewood stte would be e good noighbo r for the stedium; give the offtce buliding some identlty; create e pedestrian-oriented environment within the proJect; maximite che amount of usabie open space by clustering the offtce ~uilding in the middle with gareges on the exterior; ciea rly delineate proJect boundarles; orgenizs the bulldings (n an understood rt-anne r; use landscaping and parking garage deslgn to c~oate visual unlty; rnd insu re ease and access(bility to circulation within the proJect. Mr. T(tus stated the s tadium access road currently bends to l•he left and aftcr relocation then bend to tho right and be wider than it Is now and will allow access to the stadium at tl~e same time access is provided to the office buildings. He pointed out the roa dways on the slide and landscaping on the perimeter will give the project Iden tity, and noted it also provides views from the site to tha stadium. He stated circulaLion is the key to success of the site and circulation was biiefly reviewed. He expleined each offlc~ site has a corresponding garage. Mr. Titus pointed out the open spa~es are buffer zones to pratect people when they are inside and stated all four office bulldings will be oriented toward the p1a2a. They anticipate ground levels will be devoted to restau~ants, shops, eating piaces of all t ypos, plus the front edges of the parking garages wiil have retail space (tree-lined paseos) to provide services for pe~ple in the offices. (Mr. Rushman explained sach garage will have approximately 3,000 square feet of retai 1 space. Mr. Titus stated the design of the garages will have a visual similarity to the materials used in the stadlum. The terr~ces werc poir.ted out on the model. Mr. Rushman pointed ou the first office building (40Q,000 square feet) along Orangewood is to be t he first developed and will be the smallest; thP fourth wilt te the largest and (s being done for economic reasons. Mr. Rushman stated the overall proJect is not before th~ City at this time. The overall pro,ject will be developed in a variety of types and they are showing the overall plan so the Comniscion can see how the first building r~:lates to the overai i proJect. ~taris Peika was introduced from the Skidmore~ Owings ~ Merrill's Los Angeles Office as the architec t ln charge of the first office building. Mr. Peika stated afte r analysing the cancepts of the master plan they saw the wisdam of clustering the buildings due to the benefit of open space created by the clustering. He presented sifdes of the proposed building and -2- explained half of the plaza wili be constructed i~ the first phase; t hat the building will be ;8 storles liigh a~d will be compaclble with future buildings; adequate landsceping to provide parkllke atmoaphere claarly sepsrattng the complex from the stadium. Mr. Rushmen stated there are two separate blocks (O~angewood B1oGk and Stato Colleg~ Block) and the port(on ~mder current consideration is the Ora~ gewood Block consisCtng of 20 acres; and that the Orangewood Block Master Pla n ls ona of flve epprovals requirad because the City is acting as a landlord~ a s well as approving agency. He stated the Development Agreemcnt is also som~thing different which the Planning Cortimission does not normally see. He add ed before thRy could dev~.lop the State Collage Block tF-ey would have to prepare e separate master plan~ a separate round of approvals would be ne~essary and they would be required to come in for that approvel before 1993• He explained the Commisslan will be receiving the Circulation Managoment Plan which shows how the circulation plan h~s been worked out wieh Stadium offictals and City staff. He explained the Orangewood Block Master Plan gives them the right to move ahead with the ground lease and that a conditional use permit must be approved for the type of uses they propo~e; that there will be four office towers whi~h would include up to 2.1 million square feet of gross floo~ area; fou r parking garages which would include approximately 2.7 million square feet of gross floor area; and within those 8 buildings there could be up to 150,000 square feet of space devoted to retail/service/financial uses designed to s erve the office us~s. He stated they will be requesting waivers for reduction in the number of parking spaces and an increase in the number of small car s paces allowed. Mr. Rushman stated this is probably one of the first Development Ag r eements brought before the City for approval and was authorized u~der recen t ly enacted state law which is basically a contract between the City and a developer to establish the ground rules that will govern the project for the term of the lease; and it also outlines the duties and obligations of ths developer suth as build buildings within certain minimum and maximum sizes; undert a ke the construcCion and installation of a vartety of public improvements a n d fund construction cf those improvements and to begin consrruction according to a certain schedule. He explained the requests before the Planning Commission are for ce rtification of the EIR, recomnendation for approval of the Orangewood Block Mas t er Plan, approval of the petition for a conditional use permit, recommendation to the City Engineer for approval of the parcel map, and reccx-wnendation fo r approval to the City Council of the Development Agreement. Mr. Wasson stated it is not easy to design a proJect next to a sta d ium and ther~ are a lot of traff~., problems~ etc., and they tried to desig n an office complex on this 20 acres which would work with t!~e stadium. He sta ted thg City staff has been more cooperative, supportive and helpful in the last two years than any other city he has worked with. Mr. Wasson stated they ~vent through 25 different studies and given the traffic circulation and utilitie~ constraints, etc., felt this scheme satis fiss all the problems relating to the stadium. Ne explained they started with t he Orangewood -3- .. __ . _ _ . . _,._ _._. .._.__ __ ...,..._=~~r~i site because they falt more comfortoble with it becsuse it ts smeller then the 48-ac~e State Callege site. He explained they will be building high-r(se bulld(ngs In the middle of 150 aeres of esphslt and they elso chose this site because they 11kQd the surrounding n~lghbors and the pruxlmity to the froeway and rivar and access to the freeway. Ha steted they will bulid a bo ulevard whlch w(11 end in a cul-de-soc Just north of the flrst half of the park so they will not be creating a bare-paved plata and hopc to have a restaur~ant with outdoor dining on the ground icvel. Mr. Wasson explalned the City and ASA must provide 15,000 parking stalls to the R ms and 12,000 to th~: Angels. Currently there are 15,553 stalls on the perking lot with the City property containing approximately 7,900 spaces and the ASA property containing approximately 7,600 spaces. ~efore any development begins on the Orangewood Block the City would provide 7,900 spaces and ASA would provide 7,000 for the Rams. For any other events the City would provide 7~900 spaces and ASA would provide 4,000~ but there would be more parking than that in gross supply. (Mr. Rushman pointed o ut those figures are the minimum). He stated there are about 5~400 stells on the State College s~te And 2,189 on the Orangewood site and another 67g spaces on the relocated Stadium entry road and if, after the Orangewood Black is complete and they did not build any rcplacerrw nt garages or use any of the office parkin g, [he City would still supply 7,200 parking spaces For Rams games and ASA would supply 5,400 that are on the State College site~ providing 12~600 staits. All other stadium events would be provided with the 7~200 from r.he City and 4~700 f rom the State College site so there would be a shortage of 2~315 sCalls for the Rams games. He stated they could build replace- ment parking garages or use ~,,r tions of the office garayes to supply those spac~s, or the Rams could reduc~ their requirement to 12,OQ0. Ne stated the Rams owner- ship is interminyled with their Joint venture partnership. He also scated they will probably use the office pa rking to supply parking; they will b~ building 6,000 stalls on the Orangewnod site a~d after completion they w~uld use the City's 7,200, the State College Block af 5,400; and 2,300 out of oFfice perking supply to provide the 15~000. He stated during a Rams sell-out game there are about 22~000 cars in the area so there is a deficiency anyway, but with the office project in place there will be more spaces than present now. He stated they will be building 6,000 stalls on their site and using a rule of thumb of 3/4 availahle on a Monday night football game~ there wil) be adequate parking. (Mr. Rushman explained the garages are desi~ned so there wili be different entrances used during stadium events and people could get there only by going through the toll booth tF~ereby controlling access to the garag~s). Mr. Wasson explained the first phase displaces 1,284 spaces, including the stadium entry road; adds 1,2C0 stalls from the ~ffice garages; resulting i~ reducing the overall parking s upply by 84 spaces. The second phase replaces 600 spaces more than it displa cesi the third phase adds a total of 1,824 spaces including all three pha sesi and the fourth phase brings the total cumulattve addition to 3.132 spaces. Cortmissioner Herbst asked if the garages will be constructed before the office buildings, nating a lot of pa r king will be displaced during construction and the stadium is used year-rou~d. Mr. Wasson responded that probably without fail the garages will have to be built with the building. He stated during the construction period of the first phase they will displace approximately 1,200 stalls so there wi11 have to be cooperation from the Rams and it is possible to build the garage d uring baseball season when less parking is ~•equ i red . -4- Ca~nlasioner Hsrbst stated the firat phase is not the problam~ but the second and thtrd phasas will really cut into the parking spaces during const~uction. Mr. Wasson stated the Rams would have to make a substantial reducti~n in their rAquirement if the gerage is not butlc during the first phase~ but he felt the chences are 75/25 that they wili be bullding the garege right away. Ha steted they will be buiiding e maJor ofFlce buildi~9 next to a stedium in Nerth Central Orange County and compating in a tough ecanomic climate and can offer cheaper rents without the garmges but then wcwld ha ve to build both garages during Phase 2, but they are nervous about the success of the first phase end h~ve cansidered surface parking for that ph~sn. He stated they are thinking riqht now that they want to build the first phase gerage~ if the merket will allow it. Concerning circuletion, Mr. Wasson stated dur(ng office hours on a ~o~mal day~ Mondsy through Friday, primary access would be through controllod signalized Intersections and pointed them out on the slide and also potnted out the secondary access and the stadlum entry road. He noted night baseball games would not create any conflicts. Mr. Rushman stated with the relocation of the Stadium entry road, there will be an increase of quaying capacity to the sta dlum b~cause there will be additional lanes with 13 toll boaths rather than 8. Red Patterson, representing the California Angels~ statPd swinging the road to bend to the right instead of the left will put patrons further away from the stadium and to get to the priority parking areas they will h~ve to cross ~ver a lot of traffic. He asked why the garages would be avallable for the Ram and not for the Angels. Mr. Rushman stated the garages will be mor~ availabie to the Angels than to che Rams. Mr. Patterson questioned access from the cul-de-sac. Mr. Rushman pointed out the entries at the rear of the garages and stated there ls a system for using all three garages by blocking off certain roads and people would enter and be fed by the attendant into surface lots wh en they are available and then into the garages. Mr. Patterson pointed out the gates are opened at 5:30 for Ange) games. Mr. Rushman stated the surface lots would be filled first and thsn the last spaces would be garages~ if required~ and by the time the garages would be filled, the office traffic would be emptied. There would be no problem on the weekends because the three garages would be closed to office traffic and be available for baseball traffic. He stated it v~rould be mare difficult to use the garages for a Rams Monday night football game due to the earlier start and the Angels would have an easier time exce pt when they have an afternoon game during the week. He stated the cul-de-sac (s only there during Phase I. It was clarified that the cul-de-sac will not be a full-fledged cul-de-sac and will have access. Jim Titus (Sktdmore, Owings b Merrill) pointed out patrons would have access ' through the paseos. Mr. Patterson stated the Anqels made it very clear that they wan~ 12,000 ~ parktng spacas that is in their contract a~d they want the same entrances and exlts that were in the original plan s and spectfications when the stadium was built. Ne stated the problem with the r~located entry road is that fans will be routed toward the river and will have to double-back to get to the stadium. -5- Mr, aushman explained the office traffic and stadium traffic must be separated. Mr. Patterson stated people tn the office complex would stay and go to the game end not heve to pay th~ parkinq feas. Mr. Rushman stated all access to the stadlum would be via the toll boths so evaryone would have to pay. He explained if it looks like e big crowd the threa garages could be apened; howaver~ if the garages are not nasded the perking raCe would be signlficantly highpr. He stated there would have to be a lot of stgns that could be changed a~ required. Commissioner La Claire steted Page 25 of the Circulation Manegement Plan indicates a Traffic Control Officer would be on duty on thE office access road near the interssction and office access would be with a pass only. Mr. Patterson stated the Angels' representatives ha~~e ~ot been shown anything and the Angels are the No. 1 client of the stadium and are only concerned about the fans. Mr. Patterson noted the discussion only pertains to the Orangewood site and indicated concern that if such a drastic cha~ge is allowed in their Orangewood entrance, what could happen to the State College enCrances. He stated right now people are saying this is one of the best ballparks to get in and out of but felt this proJect will hamper the parking lot. Mr. Rushman stated there has been some preliminary discusslons on the State College site and devetopment would not require much of a change to the s[~dium access. He added they will have to submit a plan before anything can be done. He stated they are as anxious as the City and the Angels to have the Stadiu~n continue to function as well as it does now and, in fact~ feel it will function better. ~omraissioner Herbst stated he would still question the elevators in the parking structure and did not think fans will want to wait for an elevator and he would like to see the garage designed with escalators. Mr. Wasson stated that the situatian would be similar to an office with everyone leaving at 5~0~ p.m. He added there would be s~airs, a~ well as elevators. Commissioner Herbst felt the structures should have escalators or ramps to move the people and that the first structure must be built immediately. Mr. Wasson replied it would seem lagical to have their traffic consultants look at the situation. Mr. Rushman pointed out there is a proposed condition requiring approval of final plans prior to issuance of building permits. Pa~l Stnger stated plans are Just beginning onthe parking structure and that he w€11 take the Commission's reconxnendetions into consideration. Mr. Wasson stated exiting from the St~dium will be the same as it is now with ,nore lanes and the only difference will be a signal where the office access road canes inta Orangewood. Cammisstoner King indicated concern regarding the pedestrian passageways being protacted. ~r. Wasson replied they do not see that as a necessity in Ora~ge County. He stated they cai~ resolve that issue 1n future phases if it turns out to be a major problem. 6- Mr. Wasson stated they studied 29 dlffarent Intersections in the study area and there were 8 which wiil have to be fixed and thay will be aponding SW to S6 million dollers in today's dollars I~ street improveme~ts et different locations as shown on the slide. Mr. Wasson briefly -•eviewed the baseball and footbali game situations where there would be an ovarlap with offlce traffic (up t~ 4 times a year) and stated they wlil be spending a lot of money so the fans witl benefit since th~ streats will be in bettar shape and some intarsectlon, (mproved, and that there are about 1~0+ events at the stedium where there would be no traffic conflicts with the office trat'fic. Responding to Commissioner Herbst as to when the street improvements will take plac~, Mr. Wasson stated there is a schcdulo in the traffic impacx summary, Commissloner Herbst stated widening of Orangewood and tha bridge will take a c~nsiderable amount of time with maJor disruptians ta the traffic flow. Mr. Wasson agreed and stated they will have to be very careful when they do that construction and fully acknowledge they are responsible to plan it so it does not mess up operatio~ of the stadium. Commissioner King asked if a helicopter pad has been considered. Mr. Wasson stated they are still talking about that possibitity, and have also talked about a shuttle service. Mr. Wasson stated they haven't gotten into designing the details. Responding to Comn(ssfoner La Claire regarding timing of construction of the Phase I parking structure~ Mr, Wasson replied when they build Phase 2, the PhesP I garage has to be built; that they could get by in Phase I with coc~peration from the Rams, but it would not be easy. Ne added the timing of all these things are included in the Development Agreement. Commissioner La Claire indicated concern with peopl- getting out of the Phase I office to the parking garage. Mr. Rushman explained the inCersection will have a scramble signal. Paul Singer explained that signalized i~terseciton will be able to be operated in several modes depending on the event and there would be a separate pedesCrian phase during key office entry and exit hours. Commissioner Bouas left the meeting at 8:40 p.m. and Comnisstoner Herbst resumed the chair. Commissioner McBurneY asked if ~he developer had considered overhead enclosed pedestrian passageways. Mr. Wasson replied they are considering an overhead passageway because most people don't like t~:nnels, but currently are not plenning that it be enclosed, Cortmissioner King stated there is an overabundance of office space available. Mr. Wasson repiied that is true for most of Orange County, but not in North C~ntral Orange County~ and other areas of Orange County have a vacancy factor of 20~, but Anaheim has a vacancy factor of g~. Commissioner Herbst stated from the ehvi~onmental impa~t report it appears there could be a problem with the cumulative effect of waste, noting a major shopping ce~ter has been proposed, etc., and he has not seen a satisfactory answer. -7- i Mr. Wasson responded that they did contact all agencies (water~ electrlc, senitation~ etc~) and thmy may be dedicating land to enlarge the water main on Stete College and Orangewood and wiil be putting in a lot of other improve- ments which wlll bencfit all the property ownars~ but don't want to pay for infrastructure over and above whet is ne~dad for thely dev~lopment. Commissioner Herbst stated the Comnisslon has to look at the overall picture and if this developer dld pay for cdrtain improveme,nts whlch would benefit othars~ they should be reimbursed by other developers or properties developed. He stated he thought the WASCQ lssue should be morr thoroughly discussed in the environmental impact report. Joel Fick stated the City received two letters from thc Orange County Sanltatlon District indicating the waste can be handled for this {~roJect, however, as other proJects are developed thore could be some capacity problems. He added he would try tu get clarififlcation from them before the publtc hearing met Monday. Commissioner Herbst stated he would like some answers concerning the overal~ pro}ect and not }ust Phase I. Commissioner Herbst asked George Edwards if he could see any eleetrical facility problems. George Edwards, Electrical Engineering Manager~ City of Anaheim, responded he did not see any problems that cannot be resolved. ~Iac' White, Assistant City Attorney, stated this is not actually a publit hearing and the public hearing will be held Mo~day, January 24, 1983, and everyone wiil have ample opportunity to ask additional questions at that time. Commissioner La Claire asked that staff provide more Input on the sewer issue and other probtems discussed for Monday's meeting. Paul Singer stated staff has besn working on this proJect for two years and he did not believe the City has ever recelved this much in mitigation measures and that every concern the City has had regarding both pedestrian and vehicular traffic, unloading and loading of the stadium and ~ffice complex, interior circulation and conflicts have been more than adequately addressed. He stated he feels confident they will work. Mr. Singer stated the City, without this development, has invested $600,000 in improving the traffic signals and signi~g system in the vicinity of the stadium along Katella~ State College and Orangewood and by the time this proJect gets underway lanes will be added on both State College and Orangewood and with widening of the bridge on Orangewood which causes bottlenetks and with improvement of four additional traffic signals and two new traffic signals, and additional ovzrhead stgning, and additional parking spaces at the stadium, traffic and parking problems will be decreased. Comrnissioner Herbst stated he is concerned that the Angels wi11 be totally satisfied with what is being done. JaGk White stated there will be additional meetings with the Angeis and the City is most concerned about keeping them a satisffed tenant. -8- if ~ Paul Sin~er st~ted he has Just offered to Mr. Patterson that he will ba happy to meet ~t his conve~imnca t~ further e~cplain the traffic and pa~king pi~n •nd If he Is not satisfied~ further changes will ba madc, Cammissioner Herbst st~ted (t eppears the ingress off Orangewood would be sn Improveme~t over what is existing. Mr. Singar stated both loadtng and unloading of the stadium during an Angel game wlll bo substentially Improvad~ Comnissioner King asked if tl~a Ctty of Orenge has been approached fcr their cooperatinn. Mr. Singer res~onded he has mat with the Ctty of Oraiige axtensively and somn of the mitigation measuras will take place in that city. Joel Fick stated in sddltion to the staff and developar me~ting wlth the Angels, ono of the staff pecple from the stedium will be present at next Mnnday's meeting. Commissioner Herbst stated traffic and parking seem to be the twa big problem, and he felt some other way of moving people should be looked at. Paui Singer suggested that the recammend~tions be laft open pertaining to the mc~vement of pe~ple w(thin the structures and stated he would give the Commission an enalysis of that situation. Commissloner Herbst slated he appreciated this work session and the input that has been given and haped this would help shorten the meeting Manday. The meeting was adjourned at 9:00 p.m. -9- ~ .' : .