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5. Visual Resources

City of Los Angeles Draft Environmental Impact Report – SCH# 2007052094

Cornfield Arroyo Seco Specific Plan and Redevelopment PlanChapter 5 Visual Resources

Page 5-1 Arup North America Ltd

September 2011

5 Visual Resources This chapter describes the existing visual setting of the Project Area and summarizes the effects on the visual setting that would result from implementation of the Cornfield Arroyo Seco Specific Plan and Redevelopment Plan (Proposed Alternative). Visual resources include the urban and scenic characteristics, as well as the viewsheds and viewscapes that make up an area. The visual character of an area is also influenced by views within the area and views looking at the area from surrounding space. The potential visual effects of the Proposed Alternative are analyzed in relation to existing site conditions. However, a positive or negative value attached to a change in visual character can be varied and subject to personal preference. The analysis, therefore, focuses on the factual information and descriptions of the way in which development that would result from the Proposed Alternative could change the existing aesthetic characteristics of the Project Area, rather than focusing on values that are subjective in nature.

5.1 Existing Conditions

5.1.1 Project Area Setting

The Project Area is centrally located in an urban and industrial area of the City of Los Angeles, northeast of the downtown civic center and Chinatown. The Project Area encompasses approximately 600 acres of relatively flat land situated close to the intersection of the Golden State Freeway/Interstate Highway 5 (I-5) and the Pasadena Freeway/State Route 110 (SR 110).

The Project Area is bordered generally on the north by SR 110 and the Arroyo Seco, and on the east by I-5. The Los Angeles River forms part of the western boundary of the area in the north and bisects the Project Area to the south. The Project Area terminates at North Main Street east of the river and Alhambra Avenue on the west side of the river. Alhambra Avenue and existing railway tracks generally form the boundary of the area to the southwest. The recently developed Los Angeles State Historic Park (State Historic Park), a major public attraction, occupies a part of the Project Area to the north of Spring Street.

Significant geographical and urban landscape features close to the Project Area include Los Angeles City Hall to the southwest of the area and Dodger Stadium and Elysian Park to the west and northwest of the area. Further to the northwest of the area is the Rio de Los Angeles State Park.

In addition to the area freeways, the Project Area is served by public transit and a number of major thoroughfares including North Main Street, North Broadway, Figueroa Street, Pasadena Avenue, and San Fernando Road. Three Los Angeles County Metropolitan Transportation Authority (Metro) Gold Line light rail stations serve the area: Chinatown, Lincoln Heights/Cypress Park, and Heritage Square.

Although the Project Area has historically been thought of as visually blighted, mainly because of its industrial character, the area is held in high regard by local area residents as a community resource that has strong historical and cultural significance.




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While the vision for the Proposed Alternative came out of a number of planning and infrastructure activities over the past few years, the adoption of the 2007 Los Angeles River Revitalization Master Plan provided a primary inception for the Proposed Alternative. The Los Angeles River Revitalization Master Plan reimagines 32 miles of the Los Angeles River for public use, complete with continuous pedestrian and bicycle trails, mixed-use projects, parks, and watershed management features. The Los Angeles River Revitalization Master Plan also identified the Project Area as an ideal location to showcase many land use, watershed, open space, and multimodal connectivity innovations.

5.1.2 Landform

The Project Area is located within the original flood plain of the Los Angeles River and the Arroyo Seco, and is located within the lower Los Angeles River Watershed. The area is predominantly flat with a slight grade sloping toward the two waterways where the land forms channelized walls. The general vicinity of the site can be characterized as partially enclosed by natural and constructed landscapes comprised of bluffs and hills, as well as urban roadways and the high-rise structures of downtown Los Angeles two miles away. At the northern boundary of the area, a line of steep bluffs forms a transition to the hills of Elysian Park; to the south and west is downtown Los Angeles; to the northeast are views of the Verdugo Mountains; and further in the distance are the San Gabriel Mountains. However, a steep slope defines the northwestern boundary of the Project Area, between Broadway and the Metro Gold Line light rail tracks, where the grade tilts dramatically upward to define the Solano Canyon neighborhood and the Elysian Park open space beyond.

Scenic Roads and Highways

There is one designated federal scenic byway and one state historic parkway within Los Angeles County, but there are no roadways in the region that are part of California’s Scenic Highway Program (Caltrans, 2006). Located west and north of the Project Area, the historic Arroyo Seco Parkway, also known as SR 110, is designated a federal scenic byway and stretches from the four-level interchange in downtown Los Angeles to Glenarm Street in the City of Pasadena.

According to officials at Caltrans,

State Route 110 is not a California Scenic Highway. However, it has been designated by the Legislature as a Historic Parkway (PM 25.7 to 31.9). By statute definition (Section 280 in the Streets and Highways Code) an Historic Parkway is a freeway that has been constructed prior to 1945, has been recognized by the Office of Historic Preservation in the California Department of Parks and Recreation as having some feature(s) of historical significance that existed or occurred at the time of construction, is bounded on one or both sides by federal, state, or local park land, Native American lands, monuments, or other open space, greenbelt areas, natural habitat, or wildlife preserves, and is traversed by not less than 40,000 vehicles per day on an annual basis (Caltrans, 2009).

This section of Route 110 has also been designated as a National Scenic Byway by the Federal Highway Administration (FHWA). It meets the National Scenic Byway criteria because of its historic significance (Caltrans, 2009).



-3 Arup North America Ltd

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5.1.3 Project Area Viewshed

A “viewshed” is generally described as the total observable area within view from a clear observation point. However, the Project Area is a relatively flat area geographically and there are no observation points at prominent locations other than from elevated sections of Broadway on the western edge of the area offering views to the north, south, and west. At other sections of the Project Area at ground level, general observation points views are limited by buildings, industrial infrastructure, and area streets and highways, although views of downtown Los Angeles, Elysian Park, and the Verdugo Mountains are provided at discrete vantage points. The elevated bluff on North Broadway allows for an overhead view of the Project Area and the Los Angeles downtown skyline. From Spring Street facing north there are views of Elysian Park, and facing northwest there are views of Dodger Stadium. More distant views to the north include Mt. Washington, the Verdugo Mountains, and the San Gabriel Mountains.

Viewed from an aerial perspective the State Historic Park forms a prominent part of the landscape adjacent to the Los Angeles River on the west side of the Project Area. The first phase of design for the permanent State Historic Park is in preparation, but in the interim the California State Parks Department developed a temporary 13-acre park on the site for use by local employees and residents; it opened in the fall of 2006. Potential design and recreation features for the first phase of the park include a pedestrian connection to North Broadway and pedestrian access at other points, plazas (including a children's play area), water features, habitat area, and gardens. A visitor's welcome center will provide a flexible meeting/exhibit space with public contact and permanent restrooms. The State Historic Park will also contain multiuse open spaces for informal recreation or organized performances and other landscape features.1

Figure 5-1 illustrates an aerial view of the Project Area from the west with the State Historic Park in the foreground.

5.1.4 Urban Infrastructure Characteristics

The visual character of the Project Area is categorized as industrial and commercial, and the area has experienced some deterioration in recent years. The intent of the Proposed Alternative is to build on the existing characteristics of the area while improving its aesthetic quality and generating strong community values.

5.1.4.1 Freeways and Infrastructure

Freeways and rail infrastructure, both freight and passenger, generally define the area’s boundaries to the north, east, and west. The Metro light rail Gold Line, which opened in 2002 and is located to the north of the Project Area, provides access to downtown Los Angeles and other communities located in the northeastern sections of the City of Los Angeles, as well as the cities of South Pasadena and Pasadena. The Chinatown Metro station is located immediately outside the southwestern boundary of the Project Area, the Lincoln Heights/Cypress Park station is located within the Project Area close to the northeastern boundary, and the Heritage Square station is located immediately outside of the northeastern boundary of the Project Area.

In addition to the Metro Gold Line, railroad tracks along the western and eastern banks of the Los Angeles River provide both Metrolink passenger service as well as freight service in the area. Existing railroad infrastructure — which is both historically and currently

1 California State Parks Department and Hargreaves Associates are currently in the schematic design phase for permanent development of the park.




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economically significant to the City of Los Angeles and the region — constrains physical access to the area and presents an obstacle to realization of the objectives of the Proposed Alternative. Rail service currently travels at grade directly adjacent to the area to be developed as the State Historic Park. However, plans for the State Historic Park identify a variety of innovative strategies to restore riparian connections along the river’s edge and improve the area’s ecological habitat while retaining train service on an overhead trestle.

5.1.4.2 Streets, Buildings, and Bridges

Local streets, thoroughfares, and the freeways provide excellent local and regional access to the Project Area. However, the elevated portions of I-5 constrain views and the visual quality of the Project Area. The various highways and freeways physically divide the community and contribute to visual blight while also serving as obstacles to pedestrians and bicyclists.

In addition to elevated roadways, freeways, and transportation infrastructure, there are a number of bridges in the Project Area that form a strong part of the existing visual environment. Several roadway bridges cross the Los Angeles River at various points, and there are also pedestrian bridges or passageways that connect one part of the area to another. Pedestrian passageways, for example, exist underneath I-5 and SR 110 interchange, and the Arroyo Seco Pedestrian Bridge (aka the “Gauntlet”) provides pedestrian and bicycle access between the Cypress Park and Lincoln Heights communities. In addition to SR 110, rail and road bridges crossing the Los Angeles River at Glendale Junction, North Broadway, North Spring Street, and North Main Street have a pronounced visual presence. The North Spring Street Bridge and the Main Street Bridge are also on the list of the National Register of Historic Places and designated as Historical/Cultural Monuments by the City of Los Angeles. Crossing points above I-5 occur along Humboldt Street, Pasadena Avenue, North Broadway, and North Spring Street. North San Fernando Road also passes below SR 110, as does the Los Angeles River. Each of these elements, in its own way, creates a strong visual statement, giving the area a robust urban context and an identifiable imprint that can help frame future development.

Visual conditions in the area are characterized by small and large-scale industrial uses, not always in good condition. The majority of the Project Area is comprised of a variety of commercial building structures ranging from light manufacturing buildings to more recent architectural styles. The extent of visual intrusion caused by outdoor lighting and glare is associated with large parking lots, security lighting, and street lighting. High intensity lighting illuminating Dodger Stadium and its adjacent parking areas next to Elysian Park is also a cause of nighttime light.

Residential housing in the Project Area is concentrated in the William Mead Public Housing project located in the southwestern portion of the area along North Main Street and in a predominantly low-density multifamily area east of the river located between North Broadway and North Main Street. This area includes the Albion Cottages, which were built in 1870, located at 1801 to 1813 Albion Street and identified as a Los Angeles Historical/Cultural Monument. Scattered single-family residential homes are also mixed in among industrial uses throughout the area. The general visual character of the Project Area is illustrated in a series of photographs included below, showing existing neighborhood streets, bridges, and the character of commercial and industrial buildings from several viewpoints. Figure 5-2 provides a location viewpoints map. Figures 5-3 to 5-14 identify existing neighborhood conditions.

Cornfi eld Arroyo Seco Specifi c Plan and

Redevelopment Plan Draft EIRMarch 18, 2011

Figure 5-1

Aerial View of the Specifi c Plan

Area from the West

Dodger Stadium

Elysian Park

Elysian

Park

Rio Los Angeles

State Park

Los Angeles

State Historic

Park

Golden State Fwy

llywood Fwy

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Legend Figure 5-2Viewpoint Location Map

Cornfield Arroyo Seco Specific Plan and

Redevelopment Plan Draft EIRApril 18, 2011

Legend

Project Area Boundary

Metro Line and Station

Viewpoint

SourceArup, 2010.

#

Albion Cottages at 1801-1813

Albion Street

Project Area Small Scale Industrial

Buildings

Project Area Medium Scale Light

Industrial Buildings

Thoroughfare near Cypress Park in

Project Area

Older Roadway Bridge Crossing

Historic Pasadena Freeway

View of Downtown Los Angeles

Looking South from the Los

Angeles State Historic Park

Looking North Towards the Los

Angeles State Historic Park, with

Elevated Chinatown Metro Station

on Left

North Spring Street, With Bridge

Over Los Angeles River in

Background

Typical Industrial Space at Naud

and Sotello Streets Intersection

Four-lane North Broadway Lined

with Commercial Buildings

Mini-Park and Older Industrial

Buildings along Lacy Street

Avenue 33, With Railroad Tracks

Crossing at Street Grade

Viewpoint Locations

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Figure 5-3: Albion Cottages at 1801–1813 Albion Street

Source: Arup North America Ltd.

Figure 5-4: Project Area Small-Scale Industrial Buildings





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Figure 5-5: Project Area Medium-Scale Light Industrial Building


Figure 5-6: Figueroa Street Near Cypress Park in Project Area





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Figure 5-7: Older Roadway Bridge Crossing Historic Pasadena Freeway


Figure 5-8: View of Downtown Los Angeles Looking South from the Los Angeles State Historic Park





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Figure 5-9: Looking North Toward the Los Angeles State Historic Park Site with Elevated Chinatown Metro Station on Left


Figure 5-10: North Spring Street, with Los Angeles State Historic Park to the Left





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Figure 5-11: Typical Industrial Space at Naud Street and Sotello Street


Figure 5-12: Four-lane North Broadway Lined with Commercial Buildings





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Figure 5-13: Mini-Park and Older Industrial Buildings along Lacy Street


Figure 5-14: Avenue 33, with Railroad Tracks Crossing at Street Grade





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5.1.5 Local Plans and Regulatory Context

The Los Angeles River Revitalization Master Plan, adopted by the City Council in 2007, reimagined 32 miles along the Los Angeles River as a public amenity with pedestrian and bicycle trails, parks, watershed management options, and mixed-use projects. The Proposed Alternative establishes zoning strategies and development standards to transform the area by combining the goals and objectives of the City of Los Angeles General Plan (General Plan) and the Los Angeles River Revitalization Master Plan to help create a vibrant 24 hours a day, seven days a week community of mixed-use neighborhoods that acts as a magnet for new residents, jobs, and visitors.

Relevant local plans and policies associated with visual resources of the Project Area include the Northeast and Central City North Community Plans, Conservation Element of the General Plan (2001), and the Los Angeles River Improvement Overlay District (pursuant to Sections 12.04, 12.32, and 13.12 of the Los Angeles Municipal code). These relevant plans and policies are discussed below.

5.1.5.1 City of Los Angeles General Plan

The following policies are noted in the various elements of the General Plan that regulate protection of scenic vistas and visual integrity of the Project Area.

Conservation Element

Section 15: Land Form and Scenic Vistas

Objective. Protect and reinforce natural and scenic vistas as irreplaceable resources and for the aesthetic enjoyment of present and future generations.

Policy. Continue to encourage and/or require property owners to develop their properties in a manner that will, to the greatest extent practical, retain significant existing land forms (e.g., ridge lines, bluffs, unique geologic features) and unique scenic features (historic, ocean, mountains, unique natural features) and/or make possible public view or other access to unique features or scenic views.

Program 1. Permit processing, enforcement, and periodic revision — especially environmental review, grading, large lot zoning, clustering of structures, building height limits, and other project design and construction methods for protecting natural terrain and features and protecting public view access.

Responsibility. Departments of Building and Safety, City Planning and Public Works, and other agencies involved in City development permit review and/or processing.

Program 2. Planning and construction of roads, utilities and other public projects, especially projects that are within or impact natural terrain and/or scenic areas.

Responsibility. Bureau of Engineering and/or the agency that owns or manages the land and/or is responsible for project implementation.

Open Space and Conservation

GOAL 6A. An integrated citywide/regional public and private open space system that serves and is accessible by the population of the City of Los Angles and is unthreatened by encroachment from other land uses.

Objective 6.1. Protect the natural settings of the City of Los Angeles from the encroachment of urban development, allowing for the development, use, management,




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and maintenance of each component of the City of Los Angeles’ natural resources to contribute to the sustainability of the region.

Policy 6.1.2. Coordinate City of Los Angeles operations and development policies for the protection and conservation of open space resources, by preserving natural viewsheds, whenever possible, in hillside and coastal areas.

5.1.5.2 Central City North Community Plan

The following policies are noted in the Central City North Community Plan, which comprises the southern portion of the Project Area. The policies define objectives to protect the scenic vistas and visual integrity of the Project Area:

GOAL 3. Sufficient land for a variety of industrial uses with maximum employment opportunities which are safe for the environment and the work force and which have minimal adverse impact on adjacent uses.

Objective 3-1. To provide for existing and future industrial uses which contribute job opportunities for residents and which minimize environmental and visual impacts to the community.

Policy 3-1.2. Adequate compatibility should be achieved through design treatments, compliance with environmental protection standards, and health and safety requirements for industrial uses where they adjoin residential neighborhoods and commercial uses.

Program. Environmental protection standards and health and safety requirements are enforced by other public agencies.

GOAL 5. A community with sufficient open space in balance with development to serve the recreational, environmental, and health needs of the community and to protect environmental and aesthetic resources.

Objective 5-1. To preserve existing open space resources and where possible develop new open space.

Policy 5-1.1. Encourage the retention of passive and visual open space, which provides a balance to the urban development of the Plan Area.

Program. The Plan Map designates areas for open space and protects vast open space areas such as Elysian Park from development.

5.1.5.3 Northeast Community Plan

The following policies are noted in the Northeast Community Plan, which comprises the northern portion of the Project Area. They enforce protection of scenic vistas and visual integrity of the Project Area.

GOAL 4. Sufficient open space, in balance with development, to serve the recreational, environmental, and health needs of the community and protect environmental and aesthetic resources.

Objective 4-1. To preserve existing views in hillside areas.

Policy 4-1.1. Encourage the retention of passive and visual open space which provides a balance to the urban development of the Plan Area.

Program. Plan implementation is, in part, based on continued application of the adopted Citywide Hillside Ordinance and the Mount Washington/Glassell Park Draft Specific Plan, which contribute to preservation of views.




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Objective 14-3. To enhance and capitalize on the contribution of existing cultural and historical resources in the community.

Policy 14-3.3. Maintain the continued preservation of the unobstructed view from public locations of the unique natural formation of the Eagle Rock.

Program. The Plan designates the area immediately surrounding Eagle Rock for low residential and cluster-type housing in order to preserve a view of the Rock.

5.1.5.4 The Los Angeles State Historic Park

The development plans for the Historic Park contain goals and guidelines designed to help protect viewsheds and establish the aesthetic qualities of the park.

Goals and guidelines, Aesthetics, 2 states that State Parks should work with adjoining jurisdictions regarding land use and development within the Park viewshed that might affect the site and its aesthetic resources. For example, State Parks should coordinate with the City of Los Angeles with the planning and development of the proposed North Spring Street improvements.

5.1.5.5 Silver Lake – Echo Park – Elysian Valley Community Plan

The Silver Lake – Echo Park – Elysian Valley Community Plan contains policies aimed at improving aesthetic quality of the area. Some of the relevant policies include the following:

Objective 1-3. Preserve and enhance the varied and distinct character and integrity of existing single- and multiple-family neighborhoods.

Policy 1-3.1. Seek a higher degree of architectural compatibility and landscaping for new infill development to protect the character and scale of existing residential neighborhoods.

Policy 1-3.2. Protect existing views in hillside areas.

Objective 1-5. Preserve and enhance neighborhoods with distinctive and significant historic or architectural character.

Policy 1-5.1. Protect and enhance the historic and architectural legacy of the Plan area’s neighborhoods.

Policy 1-5.2. Encourage reuse of historic resources in a manner that maintains and enhances the historic character of structures and neighborhoods.

Objective 2-3. Enhance the appearance of existing commercial districts.

Policy 2-3.1. Proposed developments should be designed to enhanced and be compatible with existing adjacent development.

Policy 2-3.4. Preserve community character, scale, and architectural diversity.

Policy 2-3.4. Improve safety and aesthetics of parking areas in commercial areas.

Objective 2-4. Reinforce the identity of distinct commercial districts through the use of design guidelines and development standards.

Policy 2-4.1. Ensure that commercial infill projects achieve harmony with the best of existing development.

In addition, Chapter V of this community plan contains Urban Design Guidelines aimed at guiding development in the planning area.




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5.2 Standards of Significance

The standards of significance for visual resources itemized below have been applied to develop this Draft Environmental Impact Report (EIR). The standards of significance are based on the California Environmental Quality Act (CEQA), Appendix G of the CEQA Guidelines, and the City of Los Angeles CEQA Thresholds Guide.

Applying the Standards of Significance, the significance of the visual resources impacts of a potential project is determined by establishing if the proposed action does any of the following:

Conflicts with plans, policies, or regulations governing scenic resources

Has a substantial adverse effect on a scenic vista, resource, or public viewshed

Substantially damages scenic resources, including, but not limited to, trees, rock outcroppings, and historic buildings within a State or locally designated scenic highway

Substantially degrades the existing visual character or quality of the area and its surroundings

Adversely degrades area-wide architectural character, including massing, building height, setbacks, articulation, and changes in the street scale

Creates a new source of substantial light or glare that would substantially and adversely affect day or nighttime views in the area

Casts shadows that substantially impair the function of a building or the beneficial use of any public or quasi-public park, lawn, garden, or open space

5.3 Potential Visual Resources Impacts

This section begins with a description of assumptions that have been incorporated in the analysis of potential visual resources impacts. Then, potentially significant impacts of implementing the Proposed Alternative when compared with the existing conditions in the Project Area are presented, followed by impacts that are considered to be less than significant. Impacts that are considered to be significant are accompanied by an explanation of why the application of a standard resulted in a determination that the impact would be significant. When a significant impact has been set forth, mitigation measures to address that potential impact are also presented, along with a determination of whether the impact will continue to be significant after implementation of the mitigation measure. The section concludes with a description of the potential impacts of the No Project Alternative.




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5.3.1 Assumptions

A determination of significance considers whether the extent of new development in the Project Area as a result of the Proposed Alternative would cause a change in the appearance of the Project Area that would be substantially adverse, damaging, or degrading compared to existing conditions. The analysis of visual character and quality focuses on whether the Proposed Alternative would substantially degrade the existing visual character of the Project Area and vicinity at build-out or at any stage of its development. Considerations include potential visual contrast and/or the compatibility of scale and character of development, given the extent to which the physical aspects of the future development are detailed in the Proposed Alternative.

The assumptions presented below have been applied in the analysis of potential impacts to visual resources that would result from implementation of the Proposed Alternative. They also consider implementation of public improvements that would occur as part of the implementation of the Proposed Project, including new urban parks, landscaping and streetscape treatment, and changes within the public right-of-way. Development based on the application of these assumptions has been incorporated into the concepts set forth in the Specific Plan component of Proposed Alternative as a way to avoid or minimize potential environmental consequences. The development standards included in the Proposed Alternative and incorporated into new zoning district regulations for the area have been assumed in the analysis presented in this chapter.

As set out in the Proposed Alternative, the area will change from its current condition to accommodate a range of new urban uses including residential, commercial, and industrial uses along with streetscape improvements and additional places of recreation and open space.

The height, bulk, scale, and form of new buildings and structures will be designed to comply with the design guidelines and energy strategies incorporated in the Proposed Alternative. The Proposed Alternative would also conform with City of Los Angeles environmental goals and objectives related to the disposition of building form and mass, architectural detail and street perspective, view obstruction, solar access and shade, and exterior illumination along with lighting and signage.

The Proposed Alternative incorporates the existing network of streets and roadways in the area in establishing view corridors to locations beyond the Project Area, both architecturally and through street design. Views towards Elysian Park to the northwest, Mt. Washington to the northeast, and the City of Los Angeles downtown skyline to the west will be maintained through techniques such as lot development controls and the design of buildings and facilities in a context-sensitive manner. The Specific Plan component of the Proposed Alternative sets out maximum and minimum heights, setback distances, and the minimum percentage of building frontage built at the setback line and height requirements. All development will include measures promoting visual screening, landscaping, streetscape amenities, including street tree and shrub planting that, in part, utilize open space as a means of defining the edge of urban development.

The Proposed Alternative includes measures that incorporate development standards related to urban space, architectural features, building setbacks, and local parks and mini-plazas along with new area landscaping, street trees, and street furniture.

Visual resource policies and standards in the Specific Plan component of the Proposed Alternative incorporate the City of Los Angeles CEQA Thresholds Guide elements addressing aesthetics, in particular guidelines related to urban transformation and




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increased open space. In addition, the Specific Plan component of the Proposed Alternative incorporates requirements related to massing and scale of historically significant buildings while encouraging innovative architectural design that expresses contemporary urban Los Angeles.

Provisions in the Specific Plan component of the Proposed Alternative addressing view obstruction are noted in the Massing and Street Wall Section. The Section’s main purpose is to provide spatial and proportional standards for development that reinforce the street as “a large public outdoor room.” Suggested guidelines related to building setbacks and hardscape are provided. While the street wall is largely defined by individual building massing regulations for setbacks, building frontage, lot coverage requirements, and height are also specified.

The approval of an ordinance implementing the Specific Plan component of the Proposed Alternative would cover a portion of the Central City North, Northeast, and Silverlake-Echo Park Community Plan areas.

Specific uses and floor area ratios (FARs) allowed in each land use district are set forth in the Specific Plan component of the Proposed Alternative to create a pleasant visual setting.

The Specific Plan component of the Proposed Alternative contains policies related to the protection of existing light industrial areas from residential encroachment and the provision of areas where residential, commercial, and light industrial uses can colocate. One of the purposes of the Specific Plan is to facilitate the development of mixed-use and affordable housing projects. The Specific Plan proposes zoning changes related to new districts defined as the Greenway District, which designates land primarily for recreation or open space; the Urban Village District, providing a mix of residential and nonresidential land uses; the Urban Innovation District, providing a range of light industrial uses, research and development, and recreational activities; and the Urban Center district, providing for a range of retail, offices, restaurants, light industrial, residential (limited extent), lodging, entertainment and civic uses.

Nighttime illumination is also addressed in the Specific Plan component of the Proposed Alternative. The intent of these provisions is to provide well-designed, energy efficient, architectural and landscape lighting that fosters a safe working and inviting environment. All exterior lighting (building, landscape, and security) is to be integrated with building design without casting light into the night sky, adjacent properties, or sensitive habitat areas.

The Specific Plan component of the Proposed Alternative also provides for places for people to socialize that include parks, sidewalks, courtyards, plazas shops and services; public recreational open space; and the integration of public art that contributes to civic and cultural life.

The use of drought-resistant local native plants and vegetation will be encouraged, and particular attention will be given to the protection of heritage trees according to the requirements of the City of Los Angeles’ Municipal Code.




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5.3.2 Potential Visual Resources Impacts of the Proposed Alternative

5.3.2.1 Potentially Significant Visual Resources Impacts of the Proposed Alternative

None identified.

5.3.2.2 Potential Visual Resources Impacts of the Proposed Alternative That Are Less Than Significant

Impact Visual Resources 1: Implementation of the Proposed Alternative would result in new buildings, streetscapes, and open space that have the potential to change the urban and architectural character of the site. This potential impact is considered to be less than significant.

Changes resulting from implementation of the Proposed Alternative would include the development of a range of new uses including residential, commercial, industrial, and institutional development along with urban plazas adjacent to transit stations. New open space and public parks would be provided along with improvements to building façades, streets frontages, and sidewalks. Proposed development, including the location of building structures and the installation of landscaping and new vegetation, will be designed to conform to the design standards and guidelines established in the Proposed Alternative. Buildings and street blocks included in the Proposed Alternative are to comply with the standards for the district in which the project is located as detailed in the Massing and Street Wall/Building Form and Architectural Detail/Urban Design sections of the Specific Plan component of the Proposed Alternative. These standards are intended to reinforce a safe and comfortable pedestrian environment and describe maximum block perimeter, lot size limits, and maximum lot coverage for proposed structures. The standards also define the allowable FAR and the maximum proportion and amount of floor space that can be occupied by each use category.

Development within the Project Area will be governed through the implementation of development controls for building lots. A principal method of control will be the determination of the FAR for building lots. Building and block standards using a base FAR are identified for different sections of the site including Greenways, Urban Village, Urban Innovation, and Urban Centers areas. A base FAR is established for each parcel, and additional FAR can be achieved, in identified locations, through employing a number of strategies. Additional FAR can be obtained through participation in a transfer of FAR program or Public Benefit strategies. The Proposed Alternative defines several variants for building FAR for the area, including determining the Base FAR, a Maximum FAR, and, for projects that meet certain conditions related to a Public Benefit Program, a Bonus FAR. In addition, special consideration is given to the transfer of the unused portion of the FAR to another site, providing that either the receiving site is located in the same district as the donor site or the transfer site is in the Greenway District. The value of the transferred FAR is to be determined between participants in transfer at the time it is contemplated unless the transfer site is owned by a government entity or the River Revitalization Corporation, in which the value is set forth in the Specific Plan

Maximum setback distances, the minimum percentage of building frontage, and building height at the setback line are also noted in the standards. To encourage livable and active street frontages, buildings located in Active Frontage areas are required to provide visible ground floor uses for retail or community facilities as described for the main thoroughfares and roadways in the area.




September 2011

Maximum and minimum project heights are to be determined using a variety of strategies to reinforce the role of streets as a public place in the City of Los Angeles, ensure sunlight reaches open space and rooftops, and respect the scale of existing residential uses. The street frontage building height shall override any conflicts arising as a result of the solar protection requirements. The maximum street frontage height will maintain a proportional relationship between the street width (property line to property line) and the allowable maximum building height within the street setback line. The minimum street frontage height at the street setback line has been established to ensure that the minimum height is approximately no less than one-half of the improved street width. Provisions in the Proposed Alternative also include proposed buffer setbacks for certain locations of the Project Area. Developments are to be designed to incorporate the provision of open space.

Outside of the street frontage (within 20 feet of a building’s street edge), solar protection, and buffer requirements that govern the height of a building, there is no overall maximum height limit. However, community gardens and parks are to be designed to receive a minimum of four hours of sun between the hours of 9am to 4pm between early April and late October. In addition, building height and massing are to be designed to create no more than 3 hours of shadows projected on any park, open space, and/or rooftop area of abutting properties between 9am and 3pm between late October and early April to conform with the City of Los Angeles CEQA Thresholds Guide.

The Proposed Alternative calls for an improvement in building energy efficiency by reducing heating and cooling loads and reducing the use of artificial lighting. The Proposed Alternative also includes several green economy strategies.

The energy efficiency design guidelines of the Proposed Alternative relate to building orientation, window to wall ratios, and shading devices, including exterior overhangs and horizontal architectural elements and new sustainability regulations related to natural ventilation requirements. In addition, proposed regulations address window glazing, lighting controls, and the use of reflective materials on building exteriors. Lighting controls and signage regulations are also required to complement building design and control light pollution while a portion of building roof areas are required to provide landscaped surfaces. A proportion of all open space areas shall be landscaped to augment energy conservation. All of these provisions have been incorporated into the Proposed Alternative and would result in changes that would enhance the visual presentation of the Project Area.

Mitigation Measure Visual Resources 1: None required

Impact Visual Resources 2: Implementation of the Proposed Alternative has the potential to change views of the site from view locations at the periphery of the Project Area. This potential impact is considered to be less than significant.

The Project Area is generally flat, low-lying land at the confluence of the Los Angeles River and Arroyo Seco to the north, elevated freeways to the east and west, and industrial/mixed-use development to the south. There are no prominent area-wide observation points other than from an elevated portion of Broadway at the western edge of the area overlooking the State Historic Park. The development of the Los Angeles State Historic Park will improve the visual quality of the area and not impede views from prominent view locations. Views at street level are constrained by existing commercial buildings and industrial infrastructure. Urban street perspectives of adjacent skylines such as downtown Los Angeles are also constrained by elevated freeway structures and mid-rise buildings.




September 2011

View corridors are determined by the total field of vision from a specific viewpoint in an urban area. They are formed by physical elements in the urban environment, such as buildings and landscaping, that frame the direction of line of sight and control the volumetric experience available to pedestrians and motorists alike. Public view corridors are usually considered areas from which views are available from publicly accessible space, such as City of Los Angeles streets, parks, and other public places. The development that would result from the Proposed Project could alter or impede to some degree existing short-, medium-, and long-range views from the perimeter of the Project Area to prominent features in the landscape. However, a number of development strategies included in the Proposed Alternative are designed to control the shape and form of proposed structures and minimize the visual impact of new development. These include maximum and minimum building setback distances, the percentage of building frontage allowed at the building setback line, and height restrictions.

There is no overall maximum height limit, although height may be constrained by certain regulated conditions. The position of a building setback in height factor districts is controlled by sky exposure planes and, in contextual districts, by specified distances from street walls. The design and massing of buildings is to be organized to reinforce the street wall and neighborhood context. Sculpting a building’s mass works to avoid large and bulky structures and provides visual variety. The setback/street line represents the portion of a building that is set back above the base height (or street wall or perimeter wall). The position of a building setback in height factor districts is controlled by sky exposure planes and, in contextual districts, by specified distances from street walls.

In addition, the Proposed Alternative does not require or encourage building heights to be stepped back above the defined minimum street height. The introduction of new buildings as part of implementation of the Proposed Alternative would create a new urban landscape and stronger architectural environment.

Mitigation Measure Visual Resources 2: None required.

Impact Visual Resources 3: Implementation of the Proposed Alternative has the potential to change the character of natural features within or adjacent to the Project Area. This potential impact is considered to be less than significant.

Important natural features and landscaping within or adjacent to the Project Area include the Los Angeles River, which both forms part of the eastern boundary of the area and also bisects the southern area, and the Arroyo Seco, which cuts through the northern end of the Project Area. The Proposed Alternative land area is located within the original flood plain of these two riverine sources. In addition, the State Historic Park occupies a large swath of land between the Los Angeles River and Elysian Park bluffs on the west of the site. New policies and standards in the Proposed Alternative will improve access to a future Greenway along the river and the Arroyo Seco. In addition, new standards will facilitate the expansion of publicly accessible open space immediately adjacent to each of these water resources.


Impact Visual Resources 4: Implementation of the Proposed Alternative has the potential to change the architectural character of the existing urban environment in the Project Area. This potential impact is considered to be less than significant.

The current physical character of the area is characterized by residential and mixed- use commercial/industrial buildings along streets and roadways with limited architectural merit.




September 2011

The area has mostly low to mid-rise buildings largely built over the last 50 to 70 years, which are not recognized as architecturally important; however, there are some buildings of historic note along with other structures that are valued as community resources. New development would conform to the massing and street and architectural detail standards included in the Proposed Alternative. In addition, the implementation of the Proposed Alternative would introduce new streetscapes, parks and plazas, and architectural features designed to upgrade the visual and aesthetic quality of the area and help renew its urban quality.


Impact Visual Resources 5: Implementation of the Proposed Alternative has the potential to change the character of the existing streets and open space in the Project Area. This potential impact is considered to be less than significant.

The Proposed Alternative will renew the urban fabric in the Project Area by introducing proposals to revitalize existing street space and provide for new urban spaces along major transit routes and boulevards. Street trees and urban landscaping will be introduced at various locations as different sections of the area are developed. Public parks, plazas, and mini-parks would be placed at selected locations and access to open space at the periphery of the area, including improvements to the State Historic Park and the historic Arroyo Seco area, would be provided. Public improvements would be carried out under the jurisdiction of the City of Los Angeles and other public agencies. Others would be required of individual development projects submitted to the City of Los Angeles for approval.


Impact Visual Resources 6: Implementation of the Proposed Alternative has the potential to introduce a new source of light, glare, and shadow on existing buildings, parks, and open space in the Project Area. This potential impact is considered to be less than significant.

The implementation of the Proposed Alternative would include the development of new uses including residential and taller commercial, industrial, and institutional buildings along with the provision of new public amenities to support existing transit facilities. Sources of light, glare, and shadow in the Project Area are typical of an urbanized industrial setting with arterial roadways. Existing light sources include exterior building lighting, security lighting for buildings and exterior surface lots for storage and parking, street lights, and traffic. Existing shadows in the area are relatively minimal due to the low-rise development that exists. Notable shadow effects occur primarily in the morning and afternoon hours during the winter months when the sun appears lowest in the sky. Building height and massing are to be designed such that there is no more than 3 hours of shadow projection on any parks, open spaces, and/or rooftop areas of abutting properties between 10am and 2pm on December 21.




September 2011

The development of new structures and buildings as part of the Proposed Alternative would be carried out in conformance with the design standards and guidelines outlined in the Proposed Alternative, which are designed to minimize the effects of shadows on existing buildings. In particular, new development would be designed so as not to cast shadow on a historic resource, as defined by CEQA Section 15064.5(a) such that the shadow would materially impair the resource’s historic significance by materially altering those physical characteristics of the resource that convey its historical significance and that justify its inclusion on or eligibility for listing in the National Register of Historic Places, California Register of Historical Resources, or a register of local historical resources.


5.3.3 Potential Visual Resources Impacts of the No Project Alternative

The analysis of the No Project Alternative provided in this Draft EIR assumes only development that conforms to the General Plan would occur in the Project Area. The No Project Alternative would maintain the existing urban and industrial/commercial character of the area and views of the existing buildings, bridges, freeways, and the open space portions of the area, including parks and places of recreation, would be unchanged. Under the No Project Alternative, existing long-range views from the Project Area would remain the same. There is the possibility that while long-range views of the site from outside the area would remain unchanged, closer views of the Los Angeles River and the Arroyo Seco within the Project Area may be improved by ongoing efforts of the City of Los Angeles and State through implementation of community plans and development of the State Historic Park.

Since development under the No Project Alternative would be minimal, it is not anticipated that a significant change would occur to its appearance or existing effects of shadow, light, and glare cast by existing development on the area. As a result, this alternative would avoid the beneficial aesthetics improvements that would occur with implementation of the Proposed Alternative.

5.3.3.1 Potentially Significant Visual Resources Impacts of the No Project Alternative

None identified.

5.3.3.2 Potential Visual Resources Impacts of the No Project Alternative That Are Less Than Significant

None identified.




September 2011

5.4 References

Cadd, D. (2009). State Scenic Highway Coordinator. Landscape Architecture Program, Caltrans.

California State Parks. (2005). Los Angeles State Historic Park General Plan and EIR.

City of Los Angeles. (2007). Los Angeles River Revitalization Master Plan (LARRMP).

Hargreaves Associates. (2006). “Los Angeles State Historic Park.” Landscape Architecture.

Los Angeles County. (1996). Los Angeles River Master Plan (LARMP).

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