From: Subject: Executive Summary Date: Sat, 22 Aug 2009 23:14:40 -0700 MIME-Version: 1.0 Content-Type: text/html; charset="Windows-1252" Content-Transfer-Encoding: quoted-printable Content-Location: http://cityplanning.lacity.org/cwd/framwk/chapters/00/00.htm X-MimeOLE: Produced By Microsoft MimeOLE V6.00.2900.5579 Executive Summary

Executive Summary

INTRODUCTION

The General Plan Framework Element is a = strategy=20 for long-term growth which sets a citywide context to guide the update = of the=20 community plan and citywide elements. The Element responds to State and = Federal=20 mandates to plan for the future. In planning for the future, the City of = Los=20 Angeles is using population forecasts provided by the Southern = California=20 Association of Governments (SCAG). The Framework Element does not = mandate or=20 encourage growth. Because population forecasts are estimates about the = future=20 and not an exact science, it is possible that population growth as = estimated may=20 not occur: it may be less or it may be more. The City could be at the = beginning=20 of a long decline in population or at the beginning of a sharp increase. =

The Element is based on the population forecasts provided by = SCAG.=20 Should the City continue to grow, the Element provides a means for = accommodating=20 new population and employment in a manner which enhances rather than = degrades=20 the environment. The City does not have the option of stopping growth = and=20 sending it elsewhere. It must prepare for it, should growth occur. In = preparing=20 the General Plan Framework Element, the City has answered the question = "What=20 would the City do if it had to accommodate this many more people?" In = answer to=20 that question there are two possibilities: 1) prepare a Plan to = accommodate=20 density equally among all City neighborhoods, or 2) prepare a plan to = preserve=20 the single-family neighborhoods and focus density -- should it occur -- = in=20 limited areas linked to infrastructure.

A plan to spread growth = among=20 all neighborhoods negatively affects all single-family neighborhoods = equally,=20 and continues strip commercial development patterns without respect to = available=20 infrastructure and transportation facilities. A plan to focus growth = preserves=20 single-family and low density neighborhoods and affords a closer = relationship=20 with available infrastructure.

The Framework Element refines = adopted=20 City policy and is intended to update Concept Los Angeles. The central = theme of=20 Concept Los Angeles was to preserve single-family neighborhoods by = focusing any=20 growth away from them and into centers. While planning for the future is = demanding and challenging for the City, it is clear that given the = choices about=20 how best to respond to the mandates to plan for growth, the Framework = Element is=20 clearly the better alternative.

GENERAL PLAN FRAMEWORK ELEMENT = AND ITS=20 RELATIONSHIP TO THE CITY OF LOS ANGELES GENERAL PLAN

The = Framework=20 Element supersedes Concept Los Angeles and the Plan citywide elements of = the=20 City of Los Angeles General Plan, and sets forth a citywide = comprehensive=20 long-range growth strategy. It defines citywide policies that will be=20 implemented through subsequent amendments of the City's community plans, = zoning=20 ordinances, and other pertinent programs. In many respects, the = Framework=20 Element is an evolution of the Centers Concept, adopted in 1974, that = provides=20 fundamental guidance regarding the City's future. The City of Los = Angeles is a=20 city of cultural and natural diversity: its communities reflect a = variety of=20 people, while its environment reflects a variety of natural features = ranging=20 from mountains and hills to rivers, wetlands and coastal areas. This = Element=20 contains policies that are intended to maintain this diversity. =

While=20 the Framework Element incorporates a diagram that depicts the = generalized=20 distribution of centers, districts, and mixed-use boulevards throughout = the=20 City, it does not convey or affect entitlements for any property. = Specific land=20 use designations are determined by the community plans. The Framework = Element=20 provides guidelines for future updates of the City's community plans. It = does=20 not supersede the more detailed community and specific plans.

State Requirements
California State law (Government Code = Section=20 65300) requires that each city prepare and adopt a comprehensive, = long-term=20 general plan for its future development. This Element must contain seven = elements, including land use, circulation, housing, conservation, open = space,=20 noise and safety. In addition to these, State law permits cities to = include=20 optional elements in their general plans, thereby providing local = governments=20 with the flexibility to address the specific needs and unique character = of their=20 jurisdictions.

In fulfillment of the State's requirements, the = City's=20 general plan contains citywide elements for all topics = except=20 Land Use for which community plans establish policy and standards for = each of=20 the 35 geographic areas. As optional elements, the City has adopted Air = Quality=20 and Service Systems Elements.

California State law requires that = the=20 day-to-day decisions of a city follow logically from and be consistent = with the=20 general plan. More specifically, Government Code Sections 65860, 66473.5 = and=20 656474 require that zoning ordinances and subdivision and parcel map = approvals=20 be consistent with the general plan.

Scope of the General Plan Framework Element
The General = Plan=20 Framework Element defines citywide policies that influence most of the = City's=20 General Plan Elements. It includes policies for:

1. Lan= d=20 Use
2. Hou= sing=20
3. Urb= an Form=20 and Neighborhood Design
4. Ope= n Space=20 and Conservation
5. Eco= nomic=20 Development
6. Tra= nsportation=20
7. Inf= rastructure=20 and Public Services


PREPARATION OF THE GENERAL PLAN FRAMEWORK=20 ELEMENT

Over a period of several years, the Departments of = City=20 Planning and Transportation, in collaboration with a team of = professional=20 consultants, outside organizations, and residents from all parts of the = City,=20 developed the Proposed Framework Element. The primary means was = approximately 60=20 community and neighborhood workshops, at which more than 3,000 residents = and=20 business persons participated.


IMPLEMENTATION OF THE GENERAL PLAN FRAMEWORK=20 ELEMENT

Implementation of the General Plan Framework Element = will be=20 achieved through plans, ordinances, standards and guidelines, studies, = capital=20 improvements, economic development procedures, administrative = procedures, and=20 coordination with other governmental agencies, coordination and joint=20 partnerships with private landowners and developers, and development = review=20 procedures. Many of the Element's policies will be implemented by the = revision=20 of the community plans and the Municipal Code, which is the basic = mechanism=20 through which the City regulates the use and development of land. The = full-text=20 Element specifies the implementation programs associated with each = Framework=20 Element policy.


OVERVIEW OF THE GENERAL PLAN FRAMEWORK = ELEMENT

The=20 following sections present an overview of the principal Framework = Element=20 policies. Some policies have been paraphrased for the purposes of = brevity. Refer=20 to the full-text chapters for the complete text.

Basis for = Planning:=20 Growth and Capacity
The General Plan Framework Element is based = on a=20 planning horizon for population and employment growth: that the City's=20 population could increase by approximately 820,000 residents and = employment by=20 approximately 390,000 jobs. The City is not promoting this population = growth.=20 Rather, pursuant to conformity requirements, it has developed this = Element to=20 establish policies to best accommodate this growth when and if it should = occur.=20 The population estimate is the growth forecast for 2010 for the City of = Los=20 Angeles provided by the Southern California Association of Governments = (SCAG)=20 (June, 1993). The employment increase goal doubles the SCAG 2010 = forecast to=20 maintain the City's 1990 jobs-housing ratio. While the SCAG employment = forecast=20 represents the prevailing trend in economic activity, the higher number = is=20 considered essential if the City is to have sufficient job opportunities = for its=20 residents and to maintain and improve the level of services for the = City's=20 future. Without changes in the current State taxation and revenue = distribution=20 laws, lesser employment growth would significantly and adversely impact = the=20 City's fiscal stability and the quality of City services.

The = population=20 and employment estimates represent a "step" in the City's future that = can=20 rationally be used for the planning and funding of supporting = transportation,=20 utility infrastructure, and services. Though the Framework Element's = Land Use=20 Diagram could accommodate higher levels of growth, these would not be = achieved=20 in the foreseeable future as determined by the Framework Element's = economic=20 analyses.

At the same time, the population and employment = estimates do=20 not represent maximum or minimum levels of growth to be permitted. A = system for=20 the annual monitoring of growth, infrastructure, and services, used as = the basis=20 to guide future capital investments and development decisions, will also = be used=20 as a mechanism to gauge the appropriateness of the estimates and provide = for=20 their modification over time.

The City is not promoting this = population=20 growth. Rather, pursuant to conformity requirements, it has developed = this=20 Element to establish policies to best accommodate this growth when and = if it=20 should occur.

Principal Framework Element Policies

Lan= d=20 Use

The primary objectives of the policies in the Framework Element's = Land Use=20 chapter are to support the viability of the City's residential = neighborhoods and=20 commercial districts, and, when growth occurs, to encourage sustainable = growth=20 in a number of higher-intensity commercial and mixed-use districts, = centers and=20 boulevards and industrial districts particularly in proximity to = transportation=20 corridors and transit stations.

The Framework Element establishes new land use categories whose = specific=20 locations are determined through the community plans. In general, these=20 categories continue the residential and industrial designations that = have been=20 used in the past. New categories are recommended for selected areas of = the City=20 that, in general, have been previously designated for commercial uses. = These=20 include:

Neighborhood District=20
These are pedestrian-oriented retail focal points for = surrounding=20 residential neighborhoods (15,000 to 20,000 persons) containing a=20 diversity of local-serving uses. Generally, these districts are at = a floor=20 area ratio of 1.5:1 or less and are characterized by buildings of = one- and=20 two-stories in height, both to be determined by the community = plans.=20
Community Centers=20
Generally, these are the "downtowns" that serve Los Angeles'=20 communities (25,000 to 100,000 persons). They contain a diversity = of uses=20 such as small retail and offices, entertainment, public = facilities, and=20 neighborhood oriented uses. In many areas, an emphasis is placed = on the=20 development of projects that integrate housing with the commercial = uses.=20 The Centers may contain one or more transportation hubs. = Generally,=20 Community Centers range from floor area ratios of 1.5:1 to 3.0:1. = Heights=20 are generally characterized by two- to six-story buildings, = depending on=20 the scale of the area. Floor area ratio and any specific height=20 restrictions would be determined in the community plan.=20
Regional Centers=20
These serve as the focal points of regional commerce, = identity, and=20 activity for a population of 250,000 to 500,000 persons. = Generally, they=20 include corporate professional offices, concentrations of = entertainment=20 and cultural facilities, and mixed-use developments. Some contain=20 region-serving retail facilities. Typically, Regional Centers are=20 higher-density places whose physical form is substantially = differentiated=20 from the lower-density neighborhoods of the City. Regional Centers = will=20 fall within the range of floor area ratios from 1.5:1 to 6.0:1. = This=20 category is generally characterized by six- to twenty-story = buildings or=20 higher. Floor area ratios and any specific height restrictions = would be=20 determined by the community plan.=20
Downtown Center=20
Downtown Los Angeles is the principal government and business = center=20 of the region, with a worldwide market. It is the highest-density = center=20 of the City and hub of regional transportation.=20
Mixed-Use Boulevards=20
Boulevards connect the City's Neighborhood Districts, = Community and=20 Regional Centers, and Downtown. Mixed-use is encouraged along some = of=20 these boulevards, with the exact boundaries identified in the = community=20 plan. Generally, different types of Mixed-Use Boulevards will fall = within=20 a range of floor area ratios from 1.5:1 up to 4:1 and will be=20 characterized by one- to two-story commercial structures up to = three- to=20 six-story mixed-use buildings between centers. Mixed-Use = boulevards are=20 served by a variety of transportation facilities.=20

Mixed-use can take three forms: housing above commercial, = housing=20 side-by-side with commercial, and/or alternating blocks of housing = and=20 commercial. Flexibility affords community choice in determining=20 appropriate mixed-use to be identified in the community plan.=20
Industrial Districts=20
Lands designated for industrial use by the community plans = continue to=20 be designated for these purposes to support economic development = and jobs=20 generation. Some limited flexibility is allowed to promote = recycling when=20 appropriate.

Hou= sing
The=20 Framework Element elaborates on the City's adopted Housing Element to = ensure the=20 provision of housing for the City's existing and future residents. Among = the key=20 policies are the following:

Provide sufficient lands for the = development=20 of an adequate supply of housing units. The Framework Element proposes = the=20 expansion of the City's capacity for housing units by the provision of = bonus=20 densities for the integration of housing with commercial uses in = districts,=20 centers, and boulevards.

Provide incentives for:

Establish development standards for new multi-family residential = projects to=20 provide for liveable communities.

Revise, as necessary, community = plans=20 to facilitate the conservation of the scale and character of existing = stable=20 residential neighborhoods.

Plan for appropriate increases in = housing=20 production in appropriate areas as determined through the community = plans and=20 implementing actions in conformance with the California Environmental = Quality=20 Act (CEQA).

Urb= an Form=20 and Neighborhood Design
The Urban Form and Neighborhood = Design=20 Chapter defines "urban form" as (a) the "general pattern of building = height and=20 development intensity" and (b) the "structural elements" that define the = City=20 physically, such as natural features, transportation corridors = (including the=20 planned fixed rail transit system), open space, public facilities, as = well as=20 activity centers and focal elements. The chapter describes options to = improve=20 community and neighborhood liveability.

Establish local = development=20 standards through community plan amendments.

Visually = differentiate the=20 districts, centers, and boulevards that comprise Los Angeles.

Define streets according to their function and user character, = including=20 "pedestrian priority segments," "transit priority segments," and = "vehicle=20 priority segments."

Formulate development standards and = guidelines that=20 raise the quality of development citywide to enhance rather than = adversely=20 impact neighborhood character (e.g., multi-family residential). =

Provide=20 for elements that enhance neighborhood character, including the use of = street=20 trees and "slowing" of residential streets.

Establish standards = to=20 enhance pedestrian activity in areas to be designated by the community = plans as=20 pedestrian districts including the siting of buildings along sidewalks, = design=20 of the ground elevation of buildings to promote visual interest to the=20 pedestrian, locating parking to the rear or other areas away from the = primary=20 pedestrian area, and inclusion of streetscape amenities.

Ope= n Space=20 and Conservation
The Framework Element's open space and=20 conservation objectives are oriented around the conservation of = significant=20 resources, provision of outdoor recreational opportunities, minimization = of=20 public risks from environmental hazards, and use of open space to = enhance=20 community and neighborhood character. Key policies include the=20 following:

Establish a linear open space and greenway system that = connects the City's regional open spaces (mountains, coastline, and = parks) and=20 is linked to communities and neighborhoods. This may consist of = improvements=20 along the Los Angeles River, other drainages, transit corridors, and = utility=20 corridors, where appropriate. Bikeways, hiking trails, parks, and = passive open=20 space are among the improvements that may be considered.

Consider = open=20 space as an integral ingredient of neighborhood = character.

Encourage=20 sustainable urban forest management programs to conserve and manage open = space=20 and identify new opportunities for demand side management of the urban=20 watershed.

Consider appropriate methods to protect significant = remaining=20 major open spaces, including hillsides and undeveloped areas. =

Consider=20 urban forms of open space, such as small parks, pedestrian districts, = community=20 plazas, and similar elements.

Promote the joint use of open space = with=20 public facilities (schools, transit, and other).

Open spaces that = constitute a major risk to life and property should be preserved or = regulated=20 (e.g., steep terrain, landslide areas, and flood plains).

Develop = a=20 sustainable systems approach to public infrastructure planning, = construction,=20 and management that identifies opportunities to reduce long-term cost to = taxpayers of such activity.

Eco= nomic=20 Development
The Framework Element's economic development = policies=20 are designed to facilitate job growth by emphasizing that Los Angeles = plays a=20 proactive role in the retention and attraction of businesses in order to = have a=20 sufficient job base to maintain and enhance the quality of life. Key = policies=20 include the following:

Reorganize local government to coordinate = economic development and business support services = functions.

Establish a=20 comprehensive program for business retention and attraction, including = the=20 marketing of the City to emerging industries.

Develop an = infrastructure=20 investment strategy to support population and employment growth=20 areas.

Identify Federal and State mandates that may constrain = business=20 activity in Los Angeles, and address these through appropriate lobbying=20 efforts.

Provide sufficient land to support economic development=20 activities.

Concentrate commercial and office development in = centers,=20 corridors, and in proximity to transit stations.

Retain current=20 industrial land use classifications to provide adequate quantities of = land for=20 emerging industrial sectors, except where such lands are unsuitable for = such=20 purposes.

Broaden the definition of industrial uses through the = active=20 investigation of their changing nature as effected by small company = formation=20 and the introduction of information age technology.

Establish = incentives=20 for industrial development in areas adjacent to the Port of Los Angeles, = the=20 rail corridor bisecting the San Fernando Valley, and the South = Central/Southeast=20 industrial area.

Facilitate the operations of the Port of Los = Angeles=20 and the Los Angeles International Airport as major drivers of the local = and=20 regional economy, supporting planned expansion and modernization. =

Retain=20 the City's existing employment base through an outreach program to = existing=20 businesses and an ongoing assessment of their specific land use=20 requirements.

Improve the movement of goods and workers to = industrial=20 areas.

Develop and maintain streamlined approval processes and = reduce=20 uncertainty for the developers and the community.

Maintain = development=20 fee structures that do not unreasonably burden economic development=20 activities.

Promote the re-use and recycling of deteriorated = commercial=20 and industrial districts.

Expand job training programs to = adequately=20 address the skill requirements of emerging industries.

Support = efforts to=20 provide all residents with reasonable access to transit infrastructure,=20 employment, and job training opportunities.

Support efforts to = develop=20 industry and job markets in the area of resource conservation and demand = side=20 management.

Tra= nsportation
The=20 primary goals of the Transportation Chapter are to provide adequate=20 accessibility to commerce, to work opportunities, and to essential = services, and=20 to maintain acceptable levels of mobility of all those who live, work, = travel,=20 or move goods in Los Angeles. Attainment of this goal necessitates a=20 comprehensive program of physical infrastructure improvements, traffic = systems=20 management techniques, and behavioral changes that reduce vehicle trips. = These=20 are linked to an integrated hierarchy of movement modes that encompasses = the=20 pedestrian, bicycle, automobile, local shuttle, bus, and rail transit. = Key=20 policies include the following:

Neighborhood Transportation

Expand neighborhood transportation services and programs to enhance = neighborhood accessibility, including such systems as DASH, taxis, = transit,=20 paratransit, voucher programs, incentives for recreational trips, and = "Smart=20 Shuttles" and jitneys.

Transportation Demand Management

Participate in regionwide Transportation Demand Management programs = and=20 Transportation Control Measures to help achieve regional trip = reduction and/or=20 vehicle occupancy rate increases.

Promote the development of=20 transportation facilities and services and educational programs that = encourage=20 transit ridership, increase vehicle occupancy, and pedestrian and = bicycle=20 access.

Provide park-and-ride shuttle services to and special = events.=20

Encourage businesses to implement tele commuting programs, = flexible=20 work schedules, and teleconferencing programs.

Support = completion of=20 the Los Angeles County Metropolitan Transportation Authority baseline = rail=20 transit system by 2010 and establish priority corridors to continue = transit=20 development beyond 2010.

Increase bus service along high-demand = routes=20 and corridors.

Initiate shuttle bus programs to serve transit=20 stations.

Continue transit restructuring studies to reduce the = cost and=20 enhance the effectiveness of transit service.

Transportation Systems Management and Parking

Establish priority corridors for Transportation System Management=20 improvements, including Automated Traffic Surveillance and Control = systems,=20 Smart Corridors, and other strategies.

Establish a Plan for=20 high-occupancy vehicles on City arterials.

Implement shared = parking,=20 peripheral parking, and parking-pricing strategies in high employment=20 areas.

Highway Infrastructure

Establish priority corridors for highway capital improvements, with = an=20 emphasis on severely congested corridors.

Continue completion = of the=20 City's Highways and Freeways Plan.

Centers, Districts, and Mixed-Use Boulevards

Streamline traffic analysis and mitigation procedures and use = flexible=20 standards to facilitate development in the centers, mixed-use = boulevards, and=20 in proximity to transit stations.

Develop transit alignments = and=20 station locations that maximize transit service in centers and = mixed-use=20 boulevards.

Provide shuttles and other services that increase = access=20 to and within centers and mixed-use boulevards.

Develop new = and/or=20 redefined parking policy procedures in centers and mixed-use = boulevards,=20 including the provision of shared parking facilities.

Enhance=20 pedestrian circulation and bicycle access to centers and mixed-use=20 boulevards.

Preservation of Neighborhoods

Protect residential neighborhoods from the intrusion of additional = traffic=20 generated by new regional or local development.

Movement of Goods and Services

Support the development of the Alameda Corridor and other = transportation=20 projects that serve industrial and commercial uses.

Complete = the LAX=20 Master Plan and support the continued growth of the Port of Los=20 Angeles.

Establish ground access plans that facilitate the = future=20 growth of Van Nuys Airport, Palmdale Regional Airport, and Ontario=20 International Airport.

Continue to expand the role of Union = Station as=20 the major regional hub for Amtrak, Metrolink, Metrorail, and, in the = future,=20 high-speed rail service.

Financing of Transportation Programs

Seek adequate funding for Transportation improvements and programs, = including State and Federal and new sources (e.g., congestion pricing, = user=20 fees, assessment districts, private sector financing/ partnerships, = bond=20 measures, and other).

Encourage the participation of small = business=20 enterprises in implementing new transportation = projects.

Street Maintenance

Identify streets and sidewalks requiring remedial repair and = implement=20 improvements to prolong their useful life.

Inf= rastructure=20 and Public Services
The goals, objectives, and policies = found=20 within this chapter address the following systems and services:

1. Wastewater
2. Stormwater
3. Water
4. Solid Waste =
5.=20 Police
6. Fire
7. Libraries
8. Parks
9. Power
10. = Schools=20
11. Telecommunications
12. Street Lighting
13. Urban=20 Forest

For each of the public services and infrastructure systems, four = basic=20 policies are defined by the Framework Element:

Monitor levels of = demand=20 and the abilities of the service/infrastructure system to support = demands. Use=20 these demands to forecast future needs and improvements. =

Maintain an=20 adequate system/service to support the needs of population and = employment. This=20 encompasses the upgrade and replacement of existing facilities as they=20 deteriorate as well as the expansion of facilities/services to = accommodate=20 growth.

Implement techniques that reduce demands on utility=20 infrastructure or services, where appropriate. Generally, these = encompass a=20 variety of conservation programs (e.g., reduced liquid and solid wastes = and=20 energy use, increased site permeability, watershed management,=20 telecommunications, and others).

Establish procedures for the = maintenance=20 or restoration of service after an emergency, including earthquakes.=20

Major changes have begun to occur in the field of information=20 technology. While addressed in the Framework Element, it is important = for the=20 City to account for how these advances in communication technology will = affect=20 its planning efforts.

Imp= lementation=20 Programs
A diversity of programs are specified to = implement the=20 General Plan Framework Element's policies. Their timing is contingent on = the=20 availability of adequate funding. Key programs include the=20 following:

Establish a program to monitor growth and public = service and=20 infrastructure demands and capacities.

Prepare and submit to the = City=20 Council an Annual Report on Growth and Infrastructure, based on = information=20 compiled by the monitoring program.

Amend the community plans and = the=20 zoning ordinance (Municipal Code), guided by the Framework Element's = policies=20 and standards.

Establish development standards to create a = higher=20 quality of development.

Formulate Transportation Improvement and=20 Mitigation Plans for community plan areas and geographic groupings of = districts=20 centers and mixed-use boulevards.

Formulate master and financing = plans=20 for public services and infrastructure that are correlated with forecast = population and employment growth.

Maintain and implement Capital = Improvement Programs that consider, as a priority, the improvements as = an=20 incentive for development in industrial and targeted growth areas.=20

Establish and implement a comprehensive economic development = strategy=20 and a proactive business attraction and retention = program.

Coordinate=20 actions to mitigate regional transportation and air quality impacts with = adjacent cities and regional agencies (SCAG, SCAQMD, and=20 other).

Establish procedures for City agencies to coordinate the=20 provision of services and infrastructure to support growth. =

Establish=20 master plans for infrastructure and public services to upgrade existing=20 deficiencies and meet the needs of future growth.

Initiate = procedures to=20 streamline and provide certainty for the development review process, = emphasizing=20 the facilitation of projects that are consistent with the objectives and = policies of the General Plan Framework Element, and the implementation = of=20 community plans and zoning regulations.

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