MULTI-JURISDICTIONAL PLANNING IN CORRIDORS A Recommendations Report for the Arrow Highway Corridor in the San Gabriel Valley
Developed on behalf of SCAG as part of the Compass Blueprint Program
Funding: The preparation of this report was financed in part through grants from the United States Department of Transportation (DOT). A VISION. A PLAN. A COURSE. Contents
Compass Blueprint Program Acknowledgements Introduction and Summary...... 1
Outreach and Workshops...... 3 This project was funded by the Southern This project was a collaborative effort involving California Association of Governments’ (SCAG) the participation of regional, subregional, Site Context...... 7 Compass Blueprint Demonstration Project and local agencies. The San Gabriel Valley Program. Compass Blueprint assists Southern Council of Governments (SGVCOG) helped Opportunities and Constraints...... 13 California cities and other organizations in select the project location and identify a evaluating planning options and stimulating core group of jurisdictions to form the Arrow Retail Market Analysis...... 19 development consistent with the region’s goals. Highway Corridor Working Group. This working Compass Blueprint tools support visioning group participated in scoping and visioning Design Concepts and Strategies...... 21 efforts, infill analyses, economic and policy workshops, provided individual assistance, and analyses, and marketing and communication conducted interviews. Representatives from Implementation Mechanisms...... 35 programs. the following organizations and jurisdictions participated in one or all stages of this Conclusions and Next Steps...... 39 Existing streetscape along Arrow Highway The preparation of this report was funded in demonstration project: between Grand and Glendora Avenues part through grants from the United States Department of Transportation—Federal SCAG Highway Administration and the Federal SGVCOG Transit Administration—under provisions of the City of Azusa Transportation Equity Act for the 21st Century City of Baldwin Park (TEA-21). City of Covina
City of Glendora
The contents of this report reflect the views of City of Irwindale the author who is responsible for the facts and County of Los Angeles accuracy of the data presented herein. The contents do not necessarily reflect the official This report is the product of their efforts views or policies of SCAG or DOT. This report and interests to make Arrow Highway, the does not constitute a standard, specification or San Gabriel Valley, and the surrounding communities a better place to live. regulation. A vacant commercial building at the corner of Existing corridor housing along Arrow Highway Arrow Highway and Citrus Avenue between Lake Ellen and Azusa Avenues
June 2008
Prepared by: In collaboration with: THE Existing streetscape along Arrow Highway near A new CVS along Arrow Highway between Citrus PLANNING Solimar Research Group CENTER Susan DeSantis Consulting Irwindale Avenue and Grand Avenues
Page Introduction subregion should grow. The results identified of Irwindale known as the Arrow Highway Regional Location over 40 opportunity sites within corridors Corridor. in San Gabriel Valley. Some corridors present opportunities to accommodate Located at the edge of several cities, and often Southern California offers an abundance of new housing, some offer a chance for new functioning as a jurisdictional boundary, the recreational, entertainment, and economic commercial, retail, or office uses, while north and south sides of Arrow Highway are opportunities set in an attractive living others demonstrated a potential for a mix of often subject to different policies concerning San Gabriel Valley environment that continues to draw residential and non-residential uses. zoning and streetscape design. This new residents and new jobs. The San complicates planning efforts and impedes Gabriel Valley subregion is expected to be ARROW HIGHWAY Compass Blueprint Strategy the development of a consistent plan for the a major recipient of this growth, adding In 2001, the Southern California Association corridor, particularly one that embraces an nearly 400,000 residents, over 100,000 of Governments (SCAG) started a visioning improved connection between transportation households, and over 80,000 jobs between process that culminated in a regional and land use. 2010 and 2035.1 strategy to accommodate the coming growth. This strategy, called “Compass Blueprint” Because it is at the edge of many jurisdictions, Approximately one-third of this population promotes a stronger link between region wide the planning and development of properties and housing growth is projected to take transportation and land use planning and along Arrow Highway are considered a low place in the unincorporated portions of the encourages creative, forward-thinking, and priority within each jurisdiction, including Valley subregion. Over 85 percent of the job sustainable development solutions that fit local some of the unincorporated islands. For this growth is projected to take place inside city needs and support shared regional values. reason, the land along Arrow Highway is boundaries, reflecting the residential nature of The strategy is broadly based on the following largely underutilized and suffers from a high the unincorporated areas. four key “Compass Principles.” level of blight.
This growth is the equivalent of adding Principle 1: Improve Mobility Six jurisdictions chose to participate in between 5,000–10,000 acres of new the Arrow Highway demonstration project: residential land2 or 2,000 acres of Principle 2: Foster Livability in All the cities of Azusa, Baldwin Park, Covina, employment-generating land.3 Questions Communities Glendora, and Irwindale, and the County of how and where to put this growth arise Principle 3: Enable Prosperity for All People of Los Angeles. Together, these jurisdictions quickly in a subregion that is currently 99 Principle 4: Promote Sustainability for Future formed the Arrow Highway Working Group. percent built out.4 Generations Many other jurisdictions in San Gabriel 1. Establish and define a corridor role Ultimately, this demonstration project is contributed to the scoping of this study and The corridors5 that criss-cross our urbanized 2. Improve the visual appearance intended to yield tangible results for the public Beginning in 2005, SCAG initiated the enabled Arrow Highway to be the first corridor lands present one of the best options for 3. Improve economic performance and private sectors and serve as catalytic implementation phase of Compass Blueprint project so that all jurisdictions may benefit. accommodating the coming growth. Corridors 4. Improve traffic flow and links to models of development and planning. and began partnering with jurisdictions in often host public transit lines, a mixture of transportation The project and its findings should be Southern California to realize this growth Project Goals medium- and high-density housing—both 5. Establish multi-jurisdictional coordination implementation oriented and replicable for vision on the ground. To date, over 40 The Arrow Highway Corridor Demonstration along and behind commercial uses—and a others in the San Gabriel Valley. demonstration projects have been conducted Project provides land use, economic, large portion of a jurisdiction’s commercial and that exemplify the goals shared by the design, and implementation strategies retail stores. Adding new growth into corridors Compass Blueprint and local communities. that can improve the overall corridor and Located at the edge of several cities, and often functioning as a jurisdictional not only helps preserve the lower density the connection between land use and lifestyles of surrounding development, it also boundary, the north and south sides of Arrow Highway are often subject to Arrow Highway Corridor transportation. In addition to the Compass supports and facilitates greater use of mass different policies concerning zoning and streetscape design. To provide the basis for a multi-jurisdictional Principles, the Demonstration Project is driven transit. demonstration project, the jurisdictions by five specific project goals: This complicates planning efforts and impedes the development of a consistent within the San Gabriel Valley Council of In 2004, the San Gabriel Valley Council Governments6 selected an east–west corridor plan for the corridor, particularly one that embraces an improved connection of Governments (SGVCOG) led a visioning running from the City of San Dimas to the City between transportation and land use. effort to evaluate how and where the
Page Demonstration Project Summary The corridor also suffers from an oversupply of 1. Identify nodes and districts general retail development and a collection of The Arrow Highway Corridor Demonstration marginal parcels created by a system of storm 2. Redevelop and/or redesignate key parcels Project was conducted to provide land use, drainage channels. Together, these issues have within the corridor economic, design, and implementation strategies prevented the corridor from evolving in a focused that can improve the overall corridor while also manner, retarding potential economic growth 3. Concentrate and relocate auto service uses creating greater connections between land use and prosperity. and transportation. This demonstration project is 4. Introduce corridor housing a first step in evaluating the corridor and making However, the corridor benefits from a high a series of recommendations for next steps. level of mass transit activity, both along and 5. Create green highways for pedestrians and connected to Arrow Highway. A number of bicyclists The portion of Arrow Highway studied in this Foothill Transit bus lines stop at or connect project runs 8.5 miles, starting at the I-605 and through the corridor to reach nearby rail stations 6. Enhance transit operations and connections traveling through six different jurisdictions to end or transit centers. along Arrow Highway at the western border of the City of San Dimas.
A large amount of vacant and underutilized land 7. Beautify the corridor’s right-of-way Located at the edge of several cities, and often dots the corridor and could host new housing, functioning as a jurisdictional boundary, the commercial, open space, and mixed-use To comprehensively and sustainably improve north and south sides of Arrow Highway are development. Finally, an untapped system of the corridor, however, the jurisdictions will often subject to different policies concerning open space and pedestrian/bicycle highways is need to collectively leverage their political, zoning and streetscape design. This complicates available in the form of the drainage channels. regulatory, financial, and physical resources. The planning efforts and impedes the development of jurisdictions within the corridor should create a a consistent plan for the corridor, particularly one Through coordinated improvements, the Arrow task force within the SGVCOG or as a separate that embraces an improved connection between Highway corridor could be refined into three entity to continue study on the corridor and transportation and land use. distinct districts. These districts, listed below, create a multi-jurisdictional planning effort. would help define the corridor and provide Because it is at the edge of many jurisdictions, a basic framework to guide redevelopment The task force should include staff from both the planning and development of properties activities and new development projects. planning and public works departments as well along Arrow Highway are considered low as representatives from the County Supervisorial priorities within each jurisdiction. For this An industrial district that reflects the nature of Districts. Other members should include Foothill reason, the land along Arrow Highway is nearby businesses and the redevelopment of Transit, SCAG, SGVCOG, and the LACFCD. The underutilized and suffers from a high level of Baldwin Park County appears to be best positioned to take the blight. lead as a project champion.
A retail district that capitalizes on the volume Although home to approximately 60,000 of traffic and activity that takes place on the Additional implementation mechanisms and residents, a wide range of non-residential uses major north–south roads steps are explored in the concluding chapter of can also be found in the corridor, ranging from this report, which is intended as a beginning retail to industrial parks to schools to major flood A residential district that recognizes the lower guide for the long-term improvement of the control facilities. traffic volumes and residential character of Arrow Highway Corridor. The process, analysis, lands within the City of Glendora and the and findings of this report should also provide The corridor suffers from a lack of cohesive community of Charter Oak a replicable model for other jurisdictions and design and planning, functioning primarily as a corridors in the San Gabriel Valley. major east–west thoroughfare for automobiles Additionally, the following land use, circulation, and trucks. A large amount of auto service uses and design strategies could provide catalytic seems to indicate that the corridor may serve as improvements to the corridor. a regional center for auto-related uses.
Page Outreach and Workshops challenges associated with the continued growth in subarea were identified as possible locations Outreach and Workshop Timeline the Valley and to shape a shared vision to address for demonstration projects that would build on these issues. The discussion was dynamic and the results of earlier Growth Visioning efforts 2003–2004 San Gabriel Valley Growth Visioning Effort (previous effort Purpose generated a number of ideas and opportunities undertaken by SGVCOG. completed by SGVCOG outside of this project) Multiple outreach efforts and workshops were that could address some of the local concerns conducted during the opportunities and constraints associated with the projected growth. The first opportunity corridor, Rosemead Boulevard process of this project. These efforts assisted (SR-19), provides north–south access to the rest in developing the project’s scope and the input The SGVCOG continued the discussion in 2004 in of the region for SGV cities. The Corridor begins 3/27/07 Meeting with SGVCOG for Project Introduction a planning process that was designed to develop in the north at Foothill Boulevard/I-210 and collected from these efforts ultimately resulted in 4/02/07 SGVCOG Ad Hoc Housing Trust Fund Committee Meeting on Draft JPA recommendations that addressed the real needs of strategic solutions to address the challenges continues to Long Beach, connecting Rosemead, for Housing Trust Fund (separate effort conducted by SGVCOG outside participating jurisdictions. associated with projected growth in the Valley. In El Monte, South El Monte, Temple City, and of this project) this follow-up study, planning director/city manager unincorporated areas of Los Angeles County to A brief summary of the outreach and workshops is meetings and subarea workshops were the primary Pasadena. At the time of the meeting, Caltrans 4/10/07 SGVCOG Introduction Planners Technical Advisory forums for discussion. was relinquishing SR-19 to adjacent jurisdictions presented to demonstrate the variety of feedback Committee (TAC) Meeting and input collected throughout the process and the route was in danger of losing its function and how this information influenced the final The purpose of these subarea workshops was as a major regional corridor. recommendations presented in this report. Two to document each city’s expectations of the 4/25/07 Internal Scoping Meetings for Three Corridor Options continuing regional visioning process, confirm The second opportunity corridor, Valley Boulevard, efforts conducted outside of this demonstration 4/26/07 SGVCOG Corridor Scoping Examples and Corridor Selection project are also included to provide additional the shared vision identified during the Summit is becoming a regional draw fueled by dining and context. on Growth, and identify existing and potential restaurant opportunities and connects San Gabriel “centers” and “connection corridors” that can link with Rosemead, Alhambra, and other cities in the the centers. Cities expressed the strong desire to surrounding region. Coordinated redevelopment 5/08/07 SGVCOG Final Corridor Selection and Identification of continue to work cooperatively with neighboring could provide an opportunity to create a consistent, Corridor Working Group cities to develop strategies that will have a positive high-quality, higher density mixed-use corridor that effect on the housing and transportation planning ties together a number of SGV cities. decisions in the Valley communities. SGVCOG Ad Hoc Housing Trust Fund 6/25/07 Scoping Meeting with Corridor Working Group As a result of the collective discussions with Committee Meeting on JPA members of the five subareas, a San Gabriel Valley 4/02/07 (Separate Effort) Growth Vision was developed: “the recognition that The San Gabriel Valley Housing Trust Fund 7/07-2/08 Corridor Analysis and Jurisdiction Interviews the Valley’s greatest potential will come from the reviewed a draft joint powers authority (JPA) based protection and enhancement of each city’s unique on San Mateo County’s JPA for its Housing and Regional Trust (HEART-SMC). The HEART-SMC 3/08/08 Corridor Visioning and Design Workshop with and distinct identity; the realization that the Valley’s Corridor Working Group San Gabriel Valley Growth Visioning Effort greatest opportunities will come from each city JPA was selected both because of its success and 2003–2004 (Separate Effort) contributing, collaborating, and cooperating within its similarities to the SGVCOG. HEART-SMC is a The SGVCOG developed a collaborative process the region; thereby, making the Valley stronger than public/private partnership and as of 2007 had to engage the Valley communities in developing the sum of its parts.” received $5 million in funding gifts and pledges strategies to preserve and enhance the quality of and invested $4 million in the construction of three 6/08 Interviews on Multi-Jurisdictional Implementation Strategies life of their individual communities while balancing Initial Meeting with SGVCOG new developments that will be used to construct the needs related to growth throughout the region. 3/27/07 nearly 400 rental homes. HEART-SMC serves The process to shape the vision for the SGV started Conducted at the outset of the demonstration as a potential model for the San Gabriel Valley 6/08 Recommendations Report Distributed in 2003 and culminated on March 20, 2004, project, the purpose of this meeting was to because, like the COG, it includes multiple cities when the SGVCOG convened a Summit on Growth. talk about Compass Blueprint and identify and a county. It also demonstrates how multiple potential demonstration projects in the San jurisdictions could officially join together to improve The Summit brought together elected officials, Gabriel Valley with the Executive Director of the the Arrow Highway corridor. policy makers, planners, and other members of SGVCOG and attending city representatives. Two the SGV communities to discuss the concerns and multi-jurisdictional corridors in the southwest
Page Demonstration Project Introductory of relinquishing Rosemead Boulevard to local presenting potential benefits and drawbacks Potential Corridor Demonstration Projects from Internal SGVCOG TAC Meetings Meeting with SGVCOG Planners TAC jurisdictions, including the legislative process for funding options, the planning process, Arrow Highway 4/10/07 and Caltrans’ repair responsibilities. Historically, and existing projects. A multi-jurisdictional This introductory meeting presented the cities have not sought out relinquishment of effort towards relinquishment seems especially Rosemead Boulevard / SR-19 background on SCAG’s Compass Blueprint Rosemead Boulevard due to three outstanding well positioned due to its ability to minimize Valley Boulevard program, the 2% Strategy, and how the program issues: assessment costs and develop a coordinated relates to the San Gabriel Valley to the SGVCOG planning process.
Planners Technical Advisory Committee (TAC), Assessment: High cost of road assessments/ which is comprised of planning and community studies can be prohibitive. Valley Boulevard
development department representatives from Maintenance: After initial lump-sum Hosted by the SGVCOG, the meeting was all member cities, staff from the County’s payment for repairs (from Caltrans), cities attended by representatives from Alhambra, San Department of Regional Planning, and are responsible for all improvements and Gabriel, Industry, Los Angeles County Supervisor representatives from the Offices of the County maintenance. District #5 (representing portions of Valley
Board of Supervisors. Liability: Once a jurisdiction accepts Boulevard in unincorporated County land), and relinquishment from Caltrans, they also must the Los Angeles County Department of Public Fourteen cities attended the meeting and accept all liability associated with that portion Works. The jurisdictions identified four key issues supported the creation of a multi-jurisdictional of the roadway. facing Valley Boulevard: corridor demonstration project.
Despite these impediments, Los Angeles Different types of development: There are While Rosemead and Valley Boulevards were County and Temple City have initiated the two distinct development patterns along offered as two previously identified opportunity relinquishment process. In Los Angeles County Valley Boulevard which tend to be divided by sites, a number of attendees offered Arrow the process took two years and $1 million to I-605. The western portion of the boulevard Highway as a potential corridor. Regardless complete (includes preparation of the project has more commercial uses and potential for of the corridor selected, the meeting attendees plans for the proposed improvements). The Los mixed-use development, while the eastern emphasized the importance of completing a Angeles County Department of Public Works end tends to be heavily industrial, making project that would produce recommendations developed short- and long-term improvements mixed-use an unlikely option. Western Valley Boulevard: Focus on met to discuss possible projects along Arrow applicable to numerous areas throughout SGV along their portions of the corridor: Cost of land and size of lots: The high cost and provide options on how to implement the of land along Valley Boulevard may be an developing a “toolbox” to guide the cities of Highway. The role Arrow Highway plays as a Alhambra, San Gabriel, Rosemead, and El boundary between several cities and the County proposed recommendations. Interim upgrades: Road and graffiti cleanup impediment to corridor planning activities. In and pavement repair work. addition, many of the lots tend to be shallow, Monte through the process of developing has had a significant impact on development the corridor. The toolbox would also provide along the corridor. The representatives identified Internal SGVCOG Planners TAC Meetings Undergrounding of utilities: Removal of utility which could prevent large-scale projects.
4/25/07 poles and placing utility lines underground. Limits on redevelopment areas: Cities may information on accessing grant opportunities, two primary issues related to corridor planning with a focus on affordable housing and along Arrow Highway: Rosemead Boulevard Permanent improvements: Roadway be limited in their ability to plan projects Three sub-groups were formed within the rehabilitation and beautification work. because Valley Boulevard does not fall within mixed-use development. SGVCOG Planners TAC to discuss each potential several cities’ redevelopment areas. Eastern Valley Boulevard: Focus on Land use policy incongruence: As a beautification and maintenance issues for jurisdictional boundary, the north and south corridor. Rosemead Boulevard is the primary At the time of the meeting, Temple City had Availability of funding for projects: How could north–south corridor in western SGV. As a State initiated relinquishment through an expedited jurisdictions access funding, particularly the cities of Industry and La Puente and sides of Arrow Highway are often subject to Route, Rosemead Boulevard has been under process to begin an extensive series of projects Proposition 1C (housing funds), to aid in the County of Los Angeles. Additionally, it different policies relating to zoning and other the jurisdiction of the California Department they had planned along the corridor. Temple planning projects along the corridor. would address jurisdictional issues, as some issues. of Transportation (Caltrans). Due to the cost City developed an extensive proposal to re- portions of Valley Boulevard in this project Underutilization of land: Because Arrow and responsibility of maintaining the corridor, purpose Rosemead Boulevard as a “Main Based on discussions with the representatives it area abut property owned by Union Pacific Highway is at the edge of many jurisdictions, CalTrans has sought to relinquish Rosemead Street/Downtown”; this proposal includes left- was recommended that if Valley Boulevard was Railroad. representatives indicated that the corridor Boulevard to local jurisdictions. turn lanes, additional pedestrian crossings, and selected as the demonstration project, it should is often not a high priority within their While some jurisdictions welcome gaining decreased speed limits. be “broken” into two discreet project areas (east Arrow Highway respective cities. For this reason, there tends control over the corridor, some have opposed this and west of I-605). Several recommendations Representatives from Claremont, Covina, to be an underutilization of land along Arrow move due to the costs and liability associated Either Caltrans or the jurisdictions may initiate were developed for these two areas: Glendora, Irwindale, Pomona, and the Los Highway and a higher level of blight. with it. The meeting discussed the process the relinquishment process, with each option Angeles County Department of Public Works
Page Representatives indicated that there are many Final Corridor Selection and Identification City of Irwindale potential directions for planning projects along of Corridor Working Group Ray Hamada, Director of Planning Arrow Highway. Three recommendations 5/08/07 emerged from this scoping session: Through a vote, members of the SGVCOG County of Los Angeles
Planners TAC approved the selection of Arrow Mark Herwick, Senior Planner
Project scope: as of the meeting, Azusa, Highway as a demonstration project. The Nicole Englund, Planning Deputy (First Baldwin Park, Covina, Glendora, Irwindale, Corridor Working Group was established and District)
and the County had expressed interest in included representatives from Azusa, Baldwin Paul Novak, Planning Deputy (Fifth District)
participating in potential planning projects. Park, Covina, Glendora, Irwindale, Los Angeles Lari Sheehan, Deputy Chief Executive Officer
Land use: representatives indicated that they County, and representatives from SCAG and the of the Community and Municipal Service favored projects that analyzed current and consultant team. Corridor Visioning and Design Workshop Cluster (Chief Executive Office) future land use patterns and context. with Corridor Working Group Implementation: Given the multi-jurisdictional Scoping Meeting with Corridor Working 3/08/08 issues Arrow Highway faces, representatives Group After completing a through analysis of the 6/25/07 stated that any potential project would need corridor a visioning and design workshop was The meeting was attended by four jurisdictions to focus significant effort on implementation held with the Corridor Working Group, SCAG, and the project’s consultants. Two necessary strategies. and the consultant team. The consultant team levels of corridor analysis were identified. First, presented potential opportunity sites along the project will consider the overall corridor Corridor Selection and Scoping Options the corridor and solicited feedback from the and subregional issues, including the regional 4/26/07 jurisdictions. A majority of SGVCOG Planners TAC transportation role of the corridor. In addition representatives involved in selecting the final to the broad-based level of analysis, the second Interviews on Multi-Jurisdictional demonstration project location chose Arrow level would look at specific issues and areas Implementation Strategies Highway. In previous meetings, jurisdictions had along the corridor and identify solutions and 6/08 requested that scoping options be provided to opportunities at unique locations. Existing A series of interviews was conducted with the them in order to make an accurate determination conditions, opportunities for Arrow Highway, and following individuals from the Corridor Working of the work they would like to see completed. opportunities for the demonstration project were Group to assess previous and possible future identified. joint planning efforts to improve the corridor. The project team presented two scoping options utilizing different levels of analysis. Option 1 Corridor Analysis and Jurisdiction City of Azusa provided basic corridor context and prototypes Interviews Conal McNamara, Assistant Director of 7/07–2/08 while option 2 provided more advanced corridor Community Development An extensive analysis of the opportunities and planning and implementation strategies. constraints facing the corridor was conducted. The sample scopes also provided a variety of City of Baldwin Park This effort included analyzing current and optional tasks ranging from mini-charrettes Amy Harbin, City Planner future demographics, land use, development, to video production. With these options, the transportation, and economic patterns for Arrow jurisdictions were better suited to develop a City of Covina Highway and understanding how these patterns final scope of work for the Arrow Highway Robert Nibor, Community Development create opportunities along the corridor. This demonstration project. Director analysis was supplemented by interviews with Shelby Williams, City Planner the Corridor Working Group representatives. City of Glendora
Jeff Kugel, Director of Planning and Redevelopment
David Chantarangsu, Assistant Director of Planning
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Page Site Context Live Oak Avenue or directly onto Arrow Highway Between Vincent Avenue and Citrus, Arrow Project Location and travels over the San Gabriel River and past Highway is shared by the cities of Azusa and well-landscaped light industrial buildings. Covina as well as the County. The County lands consist of single-family residences separated by Regional Location and Project Boundaries Live Oak Avenue and Arrow Highway merge just a frontage road and non-landscaped concrete Arrow Highway represents a major east–west past Baldwin Park Boulevard and become Arrow parkway. The majority of homes appear to be in corridor that traverses 53 miles of Los Angeles ARROW HIGHWAY Highway. At this intersection, a nursery fronts good condition, with some exhibiting a need for and San Bernardino counties (under several STUDY AREA the northern edge of Arrow Highway and acts as minor rehabilitation or maintenance. names), running from the City of Alhambra in a buffer for the rising wall of the Santa Fe Dam the west to the City of Rialto in the east. Recreation Area. The same assessment can be made for the residential units along the south side of Arrow This demonstration project focuses on the Along the south side in Baldwin Park, heavy Highway in Covina. In addition to residential eight-mile stretch of Arrow Highway within the industrial uses dominate the roadway and uses, however, Covina offers major and minor San Gabriel Valley, traveling through the cities consist largely of storage, salvage, or heavy retails centers such as the Covina Marketplace of Baldwin Park, Irwindale, Azusa, Covina, equipment businesses. Although the City of and Covina Town Square. In the Town Square and Glendora, and the Los Angeles County Irwindale constructed and landscaped the development, the Home Depot has moved to communities of Charter Oak, the Covina Islands, median, the majority of businesses are either another location in the city, leaving a large and East Irwindale. The project boundaries unscreened or screened by block walls with space unoccupied. These two projects, which run from the San Gabriel Freeway in the west little landscaping, creating an unfriendly fall within a redevelopment project area (est. to South Valley Center Avenue in the east, streetscape that conveys a message of blight 1983), provide the city with a significant approximately one-quarter mile north and south and deterioration. percentage of its annual sales and property tax of Arrow Highway (see map). revenue. Traveling east, one passes by light and heavy To understand the project context, the industrial uses as well as Irwindale’s civic The fingers of Azusa reach out and touch the demonstration project analyzed the land center. While some underutilized parcels edge of Arrow Highway, swapping jurisdictional uses, transportation systems, and economic exist, businesses appear healthy and the boundaries with the County along the northern functions within three miles north and south of roadway is improved with a landscaped right- edge of Arrow Highway. Azusa contains a blend While a key corner building at the intersection of groupings of parcels that contain a variety the corridor. The analysis and strategies also of-way, including the landscaped median that of medium density residential, auto service Citrus Avenue and Arrow Highway sits vacant, of auto-related uses, many of which are considered jurisdictions and systems outside of terminates at Vincent Avenue. uses, minor retail/food uses, and vacant or other retail, single family, and multifamily uses unscreened and poorly maintained. A large this study area when appropriate or desirable. underutilized parcels. Reflecting the marginal look to be in good condition. Additionally, new vacant parcel owned by the adjacent Oakdale condition of some uses, a portion of Arrow office development is located at the intersection Memorial Park lies approximately 800 feet back Existing Conditions Highway is within a redevelopment project area. of Arrow Highway and Grand Avenue. from the northern edge of Arrow Highway. Just behind a string of auto service uses sits a retention basin controlled by the Los Angeles The condition of Arrow Highway between Citrus County Flood Control District (LACFCD). and Glendora Avenues is heavily influenced by the presence of the San Dimas Wash, a storm drain channel that travels in a northeasterly direction, and a large set of retention basins Arrow Highway just east of Vincent Avenue controlled by the LACFCD. The channel’s VINCENT AVENUE TO CITRUS AVENUE location creates over a dozen parcels with lot depths of 60–70 feet that contain small auto Arrow Highway at Bleeker Street At the intersection of Vincent Avenue and Arrow Arrow Highway just east of Glendora Avenue Highway, the northwest and southwest corners service, retail, or food establishments. These I-605 TO VINCENT AVENUE fall within Irwindale, the northeast corner in uses have little parking and appear to be GLENDORA AVENUE TO VALLEY CENTER The Arrow Highway Corridor contains a wide Azusa, and the southeast corner in the County marginally functional. AVENUE variety of uses and amenities in various states Arrow Highway just west of Grand Avenue of Los Angeles. This intersection marks the The Arrow Highway Corridor consists largely of of condition and success. From the San Gabriel beginning of the commercial and residential CITRUS AVENUE TO GLENDORA AVENUE The storm drain channel combines with the well-maintained single family and multifamily River Freeway (I-605), one either exits along uses in the corridor. bend in the road to create two large triangular uses and small retail establishments from
Page Project Boundaries and Aerial, West
Legend
Arrow Highway Study Area Freeway/ Major Road Metrolink - San Bernardino Line LA County District Boundary Foothill Transit Bus Lines Metro - Gold Line
Arrow Highway Study Area
0 1600 3200
Page Project Boundaries and Aerial, East
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Page Glendora Avenue to the eastern project funding to ensure our fair share Use science as a basis for planning Policy LU-10.3. Evaluate the potential Policy 4.3. Improve infrastructure within the
boundary. A large number of mobile home Improve regional transportation Involve the public through education and for developing a Specific Plan for the area to create better circulation and access, to
parks can be found in this stretch of Arrow Strengthen the long-term financial position outreach programs Arrow Highway Corridor to maximize infill upgrade utilities, and to attract new users.
Highway. Some businesses appear to be of the COG and internal and external Utilize the plan in an ongoing management development opportunities. underutilized and a vacant parcel is located working relationships process Policy 4.4. Develop zoning regulations that
at the intersection of Arrow Highway and Improve the environment BALDWIN PARK 2020 GENERAL PLAN ensure adjacent residential neighborhoods
Sunflower Avenue. Assist members to meet a full spectrum of 2004 CITY OF AZUSA GENERAL PLAN Urban Design Element are adequately buffered from potentially housing needs and economic growth Chapter 3: The Built Environment incompatible industrial uses. Other key uses found throughout the corridor Policy 1.1. Provide new City monument signs include a number of schools (primary and COMMON GROUND: FROM THE Policy 2.4. To simplify traffic flow, improve the at primary gateways: ... Maine Ave at Arrow Policy 4.5. Coordinate with the City of secondary) and churches. MOUNTAINS TO THE SEA (2001) following intersections and or road segments: Hwy, and Arrow Hwy (east City limits). Irwindale on a streetscape program, including Chapter 3: A Vision for the Future ... Azusa Avenue extension to Newburgh Street signage, to improve the appearance of Strategic Plan and General Plan Policies (between Arrow Highway and Newburgh Goal 4.0. Encourage development of the street. Pursue potential joint funding The SGVCOG maintains a Strategic Plan to LAND: Grow a Greener Southern California Street). commercial uses along Arrow Highway to opportunities. guide coordinated goals and actions for member support industrial uses and to serve travelers.
jurisdictions. The SGVCOG also helped to Create, expand, and improve public open Policy 3.1. Strengthen the four corridors (Azusa Establish programs to improve the appearance Circulation and Transit Systems create the San Gabriel and Lower Los Angeles space throughout the region Avenue South, San Gabriel Avenue, Foothill and overall function of the area, including The San Gabriel Valley is unique in Southern
Rivers and Mountains Conservancy (RMC) Improve access to open space and Boulevard, and Arrow Highway) through: potential incorporation within a Redevelopment California in that it is the only area that has six for open space and habitat preservation and recreation for all communities Arrow Highway – shall be a mix of Project Area. major freeways that cut through its geographic
development. In 2001, the RMC prepared a Improve habitat quality, quantity, and residential and commercial uses in single boundaries. These freeways have reached watershed and open space plan for the San connectivity use structures as well as mixed-use Policy 4.1. Redesignate properties fronting their capacity at peak hours. Better solutions
Gabriel and Los Angeles Rivers—Common Connect open space with a network of trails structures. Heightened design awareness on Arrow Highway from General Industrial for carrying San Gabriel Valley residents to their
Ground: from the Mountains to the Sea. Promote stewardship of the landscape is necessary, given the corridor is the to Commercial/Industrial. Encourage the jobs and employees to their homes need to
Encourage sustainable growth to balance southern edge of the City. development of support retail and service be found. Moreover, there is a strong need to The general plans from the participating environmental, social, and economic commercial uses such as restaurants (including develop affordable housing opportunities that jurisdictions provide additional context for the benefits GLENDORA COMMUNITY PLAN 2025 fast-food restaurants), service stations, personal locate people closer to their jobs, develop more Arrow Highway Corridor Demonstration Project Land Use Element service businesses, and the like. convenient transit options, and reduce traffic area. While all provide general policy direction WATER: Enhance Waters and Waterways congestion. for the corridor, a few contain specific policies Policy LU-8.3. Consider land use policy Policy 4.2. Pursue establishment of a
on the land use and design vision for Arrow Maintain and improve flood protection modifications along the Arrow Highway corridor redevelopment project area to facilitate a lot The Valley’s transit needs are served by
Highway. Establish riverfront greenways to cleanse to enhance retail, commercial, and other consolidation and to provide opportunities for various agencies from the Los Angeles County water, hold floodwaters, and extend open employment uses. larger-scale industrial users. Metropolitan Transportation Agency (Metro), The following excerpts from these plans space
reinforce the goals and strategies promoted by Improve quality of surface water and this demonstration project. groundwater
Improve flood safety through restoration 2008 SGVCOG STRATEGIC PLAN of river and creek ecosystems Gateway to the American Dream Vision Statement Optimize water resources to reduce
By 2012, the San Gabriel Valley Council of dependence on imported water San Gabriel Valley Council of Governments Governments will be recognized as the leader in [\ advocating and achieving sustainable solutions PLANNING: Plan Together to Make It Strategic Plan Update
May 13, 2008 through November 1, 2008 for transportation, housing, economic growth, Happen [\
and the environment. May 13, 2008
Coordinate watershed planning across
Three-Year Goals (2006–2009) jurisdictions and boundaries City of Azusa General Plan April 2004 Encourage multi-objective planning and
Obtain additional local, state, and federal projects
Page 10
Metrolink, Foothill Transit, and Montebello Table 1: ADT and LOS for Arterial Streets (2007) San Bernardino Freeway The proposed Metro Gold Line Foothill accessible by traveling approximately two miles Transit (not listed below). Roadway Lanes ADT PM Peak Flow LOS (I-10) and El Monte Extension will continue the Metro Gold Line north from Arrow Highway along either Azusa Busway for its entire from its current terminus in East Pasadena or Citrus Avenues. The fourth station will be Arrow Highway 4–6 26,000 East A Arterial Network length. The service is through the cities of Arcadia, Monrovia, Duarte, just south of historic downtown Glendora, Azusa Avenue 4–6 31,700 C The existing arterial street network in and more frequent compared Irwindale, Azusa, Glendora, San Dimas, La which is 180 feet east of Vermont Avenue. This Barranca Avenue 4 19,800 North E around the Arrow Highway corridor is laid out in with other area mass Verne, Pomona, Claremont, and Montclair. It is station would be directly accessible by traveling a grid pattern, providing excellent traffic capacity Baseline Road 4 12,100 B transit—15-minute projected that trains will stop at stations every approximately 1.5 miles north from Arrow and convenience to serve existing traffic Cerritos Avenue 4 13,100 North A headways during much 10 minutes during rush hour and every 20 Highway along Glendora Avenue. s/o Arrow F volumes. A majority of the streets in and near Citrus Avenue 4–6 20,600 South of the day—and operates minutes during off-peak hours. n/o Arrow A the corridor operate at an acceptable level of around the clock. In Metrolink service based on existing daily traffic volumes, Cienega Street 2 3,500 A 2007, the Silver Streak Four proposed stations could serve those living Metrolink provides regional transit service with some areas of congestion for daily and Cypress Street 4 12,000 East B served over 500,000 or working in the Arrow Highway Corridor. The through seven rail lines and 54 stations serving peak-period traffic. Covina Boulevard 4 10,700 A boardings. Duarte Station will be located just northwest of over 40,000 annual passengers. Two Metrolink Gladstone Street 4 13,200 East B the Santa Fe Recreation Dam Area at Duarte Stations offer service to those in and around Traffic patterns in the Arrow Highway corridor Grand Avenue 4–6 29,000 South B Metro Light Rail Road and Highland Avenue. the Arrow Highway Corridor. The Baldwin Park mirror the regional traffic flows observed in the Irwindale Avenue 6 20,400 C Besides operating over station is located on Downing Avenue next to San Gabriel Valley. During the AM peak period, Note: ADT data collected from cities and county for 2003–2007. A growth factor of 1 2,000 peak-hour buses The City of Azusa hosts two future station Baldwin Park City Hall and the Covina Station is the majority of traffic flows from east to west, percent was applied to bring all segments to year 2007. on an average weekday, sites: Alameda Station and Citrus Station. The located just off of Citrus Avenue just one block traveling from the residential areas of the Valley Metro also operates Alameda Station will be located off of Alameda north of the Covina Civic Center. Both stations Covina and Barranca Avenue south of Arrow and the Inland Empire to job centers in central 73 miles of rail service. The Metro Light Rail Avenue, adjacent to the historic Santa Fe Depot. are within 1–1.5 miles of Arrow Highway. Highway approaching the I-10 freeway. Los Angeles County. system consists of the Red Line subway system, The Citrus Station will be located at the site Blue Line, Green Line, and Gold Line (62 total of the Monrovia Nursery Foothill Transit This traffic pattern is reversed in the PM peak rail stations). development on the eastern In the San Gabriel Valley, 22 of the 31 cities period, with commuters returning to the San border of the City. Both are provided public bus transportation services Gabriel Valley and Inland Empire. Arrow stations would be directly under a joint powers agreement with the Foothill Highway is the primary regional east–west Transit Agency. street between the I-10 and I-210 freeways, serving both local and regional traffic accessing Foothill Transit operates 36 fixed-route local, destinations along the corridor. express, and rail-feeder lines; covers 327 square miles; and serves 15 million customers Arrow Highway currently operates at level of each year, making it the second largest fixed- service (LOS) “A” based on existing average daily route public transit provider in Southern trip (ADT) volumes. This condition suggests California. that Arrow Highway could accommodate increased traffic volumes that might result from The Covina Station can also be The Arrow Highway Corridor is served by eight redevelopment in the corridor. reached by the 281 bus line, local bus routes and the Silver Streak (bus rapid which operates along Citrus transit (BRT)), and two transit centers (Eastland The primary north–south streets in the study Metrolink Lines Avenue and also stops at Arrow Center and The Plaza at West Covina) operate Ventura County Line area (Citrus Avenue, Grand Avenue, and Azusa Highway. south of the corridor. The 492 line operates Antelope Valley Line Avenue) serve as regional connections between San Bernardino Line directly on Arrow Highway and travels from the I-10 and I-210, as well as serving local Riverside Line Montclair Plaza to the El Monte Transit Center. Orange County Line Metro Lines destinations in Covina, Glendora, and Azusa. Inland Empire-Orange County Line Metro Red Line In 2007, the 492 line served over 900,000 Most of the north–south streets currently (2007) 91 Line Metro Blue Line boardings. Amtrak Pacific Surfliner Metro Green Line operate at an acceptable level of service in the Proposed Lines Metro Gold Line existing condition, with the exception of short Terminus of Future Extensions Proposed Metro Extensions The Silver Streak travels from the Montclair segments of Citrus Avenue near downtown TransCenter to Downtown Los Angeles via the
Page 11 Socioeconomic Conditions Table 2: Sample Socioeconomic Characteristics (2000) Over 100 different demographic and economic % Renter % Commute % with no data points were gathered from the Census, Area/Jurisdiction Population Housing Units Ownership Household Size Median Income >60 Minutes Private Vehicle Claritas,7 and individual jurisdictions to assess the Arrow Highway Corridor 59,000 17,000 69% 3.60 $51,000 14% 8% existing conditions in the corridor and surrounding Los Angeles County 9,500,00 3,300,00 48% 2.84 $42,000 11% 13% cities. The data categories addressed population East San Gabriel Valley 934,000 270,000 69% 3.40 $52,000 14% 7% count and density, age breakdown, income status, Azusa 44,000 13,000 50% 3.47 $39,000 9% 12% household type and size, housing condition and Baldwin Park 76,000 17,000 61% 4.50 $42,000 11% 8% age, transportation patterns, employment status, Covina 47,000 16,000 59% 2.75 $48,000 13% 7% employer stability, wage distribution, and job Glendora 50,000 17,000 74% 2.48 $60,000 13% 4% location. Irwindale 1,500 400 66% 2.88 $45,000 6% 10% Based on the data, the corridor represents a Note: For socioeconomic analysis, Arrow Highway Corridor defined as one-half mile north and south of Arrow Highway; figures subject to rounding. blend of the participating jurisdictions and the overall County of Los Angeles. The corridor is Transit Dependent Areas in and adjacent to the Arrow Highway Corridor not particularly unique or different from any of the participating jurisdictions. This indicates that although the corridor often acts as a jurisdiction’s edge, it does not contain an overconcentration of renters or owners, affluent or destitute, single family or multifamily.
Of particular note, however, is the large percentage of residents in the corridor and throughout Los Angeles County who do not own a private vehicle. When combined with residents who take public transit, carpool, and have commutes longer than 60 minutes, the number of residents who are either dependent on or may be willing to take public transit increases to represent over 10 percent of households in the corridor.
Page 12 Opportunities and also split between the First and Fifth supervisorial Jurisdictional Boundaries within Project Area Vehicles traveling 45 miles per hour cover districts of Los Angeles County. The City of 200 feet every 3.5 seconds. Each curb cut Constraints Irwindale’s city boundary actually extends 25–75 represents a potential point of conflict—a feet beyond the Arrow Highway right-of-way and chance for an accident or decrease in traffic onto portions of parcels. As a result, Baldwin flow or speed. There are 42 curb cuts Governmental Park has little control over the streetscape. between Grand and Glendora Avenue alone Opportunity: Multiple Jurisdictions (1/2 mile), providing a potential conflict point “Many hands make light work” is an appropriate The disjointed jurisdictional and district every 2.2 seconds on each side of Arrow proverb for the improvement of Arrow Highway. boundaries make effective planning and Highway. The presence of multiple jurisdictions along the public investment more difficult because a corridor allows all parties to share in the cost jurisdiction does not control both sides of the The number of curb cuts reflects the and labor of changing the corridor. When a corridor. Areas with split control require greater development pattern that provides each corridor is contained within a single jurisdiction, effort; jurisdictions must coordinate, consider, individual parcel fronting Arrow Highway monies must be diverted from the general and appease multiple resident populations, with its own separate access point. Such fund, redevelopment budgets, or other targeted public agencies, planning commissions, and a pattern is not only inefficient, it can be programs. city councils (and the board of supervisors if dangerous. Greater efficiency in land applicable). Jurisdictions often decide to focus use and transportation can be found by With many jurisdictions already facing a planning and investment efforts in other parts of consolidating existing businesses or requiring general fund deficit, the decision to focus on the city/county where they retain sole land use, new development to share points of access. improving the look and feel of a corridor can be design, and regulatory control. another entity that may be well suited to activate capacity to accommodate even more growth difficult. Several jurisdictions within the Arrow local planners and leaders over multiple planning while retaining LOS C or better. The capacity Constraint: Transit Connections and Headways Highway corridor have been concentrating on The difficulty in creating a consistent and periods and election cycles. of the street network allows some roadways to The existing transit network does not offer creating more vibrant, livable, and economically complementary look, feel, and function is be narrowed in key areas (such as around a a direct link from the majority of the Arrow successful downtowns, leaving little money and compounded by the dozens of different general Circulation and Transit downtown) without crippling alternate routes. Highway corridor to the Covina Metrolink station. attention for Arrow Highway. plan land use and zoning designations and Opportunity: Existing Transit Systems The high capacity also means that retail A shuttle service should be explored; however, hundreds of different development standards and The concept of public transit is not a new businesses along the corridor can be exposed to it if does not work or cannot be justified then Large, costly improvements are not, however, design guidelines that govern the lands along concept for residents living along and around a large volume of automobiles and transit riders. modifications to the 281 bus route could be required to bring about meaningful change along Arrow Highway. the Arrow Highway corridor. A system of local considered. the corridor. Small, incremental actions by each bus, BRT, and light rail serves the area. Foothill Opportunity: Frontage Roads jurisdiction can alter the corridor’s image. For Additionally, the general fund deficits mean that Transit’s 492 line operates directly along Arrow A system of frontage roads runs along the Outside of Metrolink, there are limited regional example, at the intersection of Azusa Avenue revenue is seen as more important than ever. Highway while another seven bus lines cross and corridor where single family residential units front transit opportunities in the study area. An and Arrow Highway, the improvement of one Jurisdictions are hesitant to give up or rezone any stop at Arrow Highway. Two existing Metrolink onto Arrow Highway. These roadways facilitate expansion of Metrolink service (shorter corner by two or three individual jurisdictions can revenue-generating land, even if it might improve stations, two future Gold Line stations, and the residential access and increase the efficiency headways), improved connections to Metrolink create a dramatically improved intersection that the performance of the corridor as a whole. The Silver Streak BRT complement the local bus of traffic along Arrow Highway by eliminating (shuttle or local bus lines), and the addition of functions as a gateway to Azusa’s downtown and recent downturn in the housing market has not lines. numerous curb cuts. The frontage roadway BRT routes should be explored—particularly other major retail centers. helped housing’s image as a revenue loser and system could also be introduced into commercial during peak periods such as commuting hours. makes it increasingly difficult to argue for the A large pocket of transit dependent residents can uses to increase safety and efficiency. Constraint: Jurisdictional and District replacement of marginal commercial uses with be found in Azusa just north of the corridor along Headways for local bus lines should also be Boundaries new infill residential. Azusa Avenue and in the Charter Oak community Constraint: Curb Cuts decreased, as most existing bus headways are The multijurisdictional nature of the corridor also of the County near Bonnie Cove Avenue. The From Azusa Canyon Road to South Valley Center relatively long (30 minutes or more). Such represents its biggest weakness. The corridor’s Finally, Arrow Highway is controlled by all but existing systems and support for mass transit Avenue (approximately six miles), over 300 curb headways discourage transit use. existing condition can be partially attributed to championed by none. Sustained interest in and enable the corridor to expand its role as a transit cuts provide access to the various businesses the fractured jurisdictional boundaries that often improvement to the corridor will only come about provider and connection point. and frontage roads along Arrow Highway (both Constraint: Traffic Volumes place the north side of Arrow Highway in one with the long-term dedication of at least one north and south sides). Existing traffic volumes on Arrow Highway jurisdiction and the south side in another. At jurisdiction or entity. The County of Los Angeles Opportunity: Good Level of Service (as high as 30,000 ADT) reduce the potential some intersections, land can be governed by up may be best positioned to maintain interest in Much of the existing street network operates This equates to approximately one curb cut for downsizing intersections or narrowing the to three different jurisdictions. Arrow Highway is and support for the corridor. The SGVCOG is at a high level of service (LOS) and has the every 200 feet on either side of Arrow Highway. roadway. Alternative strategies to improve the
Page 13 Existing Major Centers and Transit Systems
Legend
Arrow Highway Study Area Foothill Transit Bus Lines
Jurisdiction Downtown Metrolink - San Bernardino Line
Major Retail Center Metro - Gold Line
Page 14 Existing Number of Curb Cuts (both north and south side of Arrow Highway) transit and pedestrian new development and improvements to the environment need streetscape. The introduction of additional residential units to be explored while would provide greater support for public transit maintaining the existing Constraint: Trucks and Regional Traffic service and help jurisdictions accommodate roadway lane geometry Because of its function as a regional street, projected housing demand. Many areas along on Arrow Highway. One Arrow Highway serves as an alternative the corridor offer sites suitable for affordable option is to use the storm corridor for commuters and trucks looking to housing—one of the most difficult tasks drain channels as trails. avoid traffic congestion on the I-10 and I-210 facing the San Gabriel Valley. The presence freeways. In the absence of improvements to of significant transit systems also creates Along a few streets, traffic these two freeways, it is difficult to avoid or opportunities to introduce mixed-use and volumes have created discourage this regional pass-through traffic. transit-oriented residential development. LOS F conditions, such as along Citrus Avenue Traffic calming measures could be explored by Due to the high traffic volumes along Arrow from Arrow Highway to the local jurisdictions; however, these measures Highway, access for new residential projects the Metrolink corridor would need to be balanced with local resident would require the creation of frontage roads and along Barranca and business access needs, as reducing traffic or alleys. Infill projects should be adequately Avenue from Cypress volumes in the corridor could hurt retail uses in buffered from less compatible uses such as auto Street to San Bernardino the corridor that depend on the regional traffic service centers. When placed next to retail, Road. This condition for a portion of their business. office, or other residential uses, the projects limits opportunities for should not be separated by walls. Instead, Additionally, it is not feasible to remove truck landscaping should be used to adequately traffic from Arrow Highway. Doing so would separate and buffer while still allowing access Existing Designated Truck Routes and Freeway Access only push trucks onto adjacent smaller, local from the residential to other uses to encourage streets that are not designed or suited for such walking. vehicles. Designated truck routes should be emphasized (improved signage) to discourage trucks from using local streets.
Land Use Opportunity: Accommodating Residential Uses The existing residential pattern within the Arrow Highway corridor reflects a blend of medium density single family and higher density multifamily housing. Additionally, nearly one-third of units within the corridor contain rental households. Moreover, even in areas where non-residential fronts Arrow Highway, residential uses are generally as close as the next parcel.
Accordingly, the introduction of new medium and high density residential units would be compatible throughout much of the corridor. In many cases, new residential development Existing residential development in the northeast corner would be easily integrated into an existing of Arrow Highway and Bonnie Cove demonstrates the neighborhood. potential for pedestrian connections to the corridor.
Page 15 Opportunity: Dual Use Facilities for Flood California and the effects of Proposition 13. A Additionally, the storm drain channels must Control and Open Space residential property may be underutilized if its I/L be improved to connect to other existing trail The storm drain channels and flood control value is less than 0.5. systems before they can offer alternative access. basins that criss-cross Arrow Highway Incremental improvements to segments of could represent much more than fenced-off Though insufficient on their own, a combination the channel system may still provide valuable infrastructure. By coordinating with the Los of jurisdictional knowledge, visual assessment, open space and recreation resources for the Angeles County Flood Control District, the and an analysis of tax assessor data can provide surrounding neighborhood, but some may balk jurisdictions within the corridor could create a a good starting point in identifying parcels ripe at improving the system unless a master plan of
system of open spaces and trails that provides for change or redevelopment. Existing small parcels at Grand Avenue and Arrow Highway improvements is created and funded. off-road pedestrian and bicycle access to schools and colleges, local parks and regional open Wingate Park, Covina Surprisingly, a number of vacant and Constraint: Irregular and Shallow Parcels Design spaces, and bus stops and rail stations. underutilized parcels are located at key One of the greatest opportunities for the Opportunity: Extend Streetscape Improvements intersections. These parcels would be best Arrow Highway corridor, the system of storm The simplest and most direct way of improving As fuel prices rise, people will increasingly seek positioned for new retail or mixed-use drain channels and flood control basins, also the look of the corridor is to enhance the public out alternative means of transportation. The development. Midblock areas are best suited for represents one of the greatest constraints to right-of-way. flood control system represents an alternative new infill residential or mixed-use development successful development. transportation highway system that stretches consisting of a small amount of office or non- The City of Irwindale implemented streetscape throughout the region. retail commercial tenants. In redeveloping These facilities cross Arrow Highway at angles improvements from the intersection of Live midblock parcels, jurisdictions should strive to and locations that often create up to a half-mile Oak Avenue and Arrow Highway to the eastern Additionally, the storm drain channels frequently reduce and eliminate curb cuts. long segment of parcels measuring 35–75 feet city limits. The improvements consisted of pass through single family neighborhoods in depth. The generally accepted minimum a landscaped median, left-turn pockets, and and function as unsightly barriers or divisions Constraint: Resistance to Change on parcel depth for commercial development is enhanced parkway/sidewalk treatment in key between homes. Opening the channel areas to Central Park West, Baldwin Park Underutilized Parcels approximately 130 feet. areas. East of Irwindale, the right-of-way of pedestrian and bicycle access would increase In addition to the potential resistance to and Arrow Highway contains a paved and striped property values and residents’ quality of life. commercial development. In place of businesses cost of changing land use designations on Even more importantly, many of these conditions median area that would accommodate an that suffer the effects of shallow parcel depths underutilized parcels, landowners may be occur at key intersections. Irregularly shaped extension of the landscaped median. Providing adequate open space is cited by the (inadequate parking, circulation, landscaping, unwilling or unmotivated to redevelop their land. and shallow parcels can significantly diminish SGVCOG as one of the Valley’s critical issues: etc.), small parks or open spaces could beautify Property owners have owned the land for a long the development potential and commercial value Throughout the corridor, Arrow Highway “Access to parks is documented to increase the corridor and gateways to the surrounding time and receive a continuous stream of income of a corner, creating parcels and corners that sit generally enjoys 10 feet of space for a sidewalk frequency of exercise, and exposure to nature and jurisdictions. with little cost for maintenance or property empty for years. In some instances, the storm and/or parkway. The parkway along frontage greenery makes people healthier. Furthermore, tax. Such property owners would want to be drain channels have been placed underground roads, however, is asphalted over and could be parks relieve the environmental and social Opportunity: Vacant and Underutilized Parcels convinced that it is in their financial interest to through a box culvert system. significantly improved through the installation of stresses that are inherent in city life, and, as a A large number of vacant or underutilized parcels risk losing guaranteed, hassle-free income for a landscaping without any detrimental effects on developing urban environment, the San Gabriel dot the corridor. Many parcels were identified by new land use or redevelopment of existing uses. Undergrounding the channels may be the circulation or access. The parkway in other areas Valley faces many of these challenges.... It is the jurisdictions (some through the latest housing best option at key intersections. In midblock should be improved with street trees and smaller imperative that communities in the San Gabriel element update) while others were identified In some cases, while it may be in the best locations, however, the resulting shallow parcels landscape installations to soften the edge while Valley work together to focus on accommodating through a combination of visual surveys and interest of the public and jurisdictions, there may may be best used for residential uses or open respecting the needs of commercial development. 8 open space needs in a built out environment.” improvement-to-land value ratios (I/L) calculated be little financial benefit to the property owner. space. using tax assessor data. Jurisdictions would be best served by acquiring The cities of Baldwin Park and Covina have these properties and landbanking them for future Constraint: Liability, Safety, and Critical Mass already experienced success transforming storm A commercial parcel is potentially underutilized redevelopment. The existence or establishment Issues for Flood Control Facilities drain channel areas into parks with Central Park when the value of improvements is less than of a redevelopment project area will facilitate The storm drain channels and flood control West and Wingate Park. twice the value of the land—an I/L value less acquisition activities and reap greater long term basins play an important role in protecting our than 2.0. Potentially underutilized industrial benefits. communities. Concerns over liability and safety There are also many small parcels between storm properties have an I/L value of less than 1.5. may inhibit a willingness to open up these drain channels and roadways. Such parcels are Residential properties are much more difficult to facilities to the general public. of marginal value and not suitable for successful Existing landscape improvements along Arrow Highway in calculate given the high land values in Southern the City of Irwindale
Page 16 Significant Vacant and Underutilized Parcels within the Arrow Highway Corridor The parkway can be extended in areas where Legend off-street parking is eliminated due to a change in use. Underutilized or Vacant Parcel Constraint: Industrial and Autos Uses Flood Control Property While the presence of attractive landscaping and landscaped medians can improve the overall look of the corridor, the nature of industrial and auto service uses may limit the ability to create an attractive streetscape. Such uses generally rely upon walls to shield the public right-of-way from the less attractive aspects of their business.
Additionally, these businesses typically construct the barest of structures that pay little attention to building articulation or attractive fenestration. Funding for such improvements would likely need to come from the jurisdictions or other public sources. If the auto uses are consolidated, however, the jurisdictions may be able to require a higher degree of design and streetscape.
Economic Opportunity: Redevelopment Project Areas While the majority of redevelopment (RDA) project areas for each jurisdiction are located outside of the Arrow Highway corridor, the cities of Azusa and Covina maintain RDA project areas at the intersections of Azusa Avenue, Citrus Avenue, Grand Avenue, and Arrow Highway. These project areas could facilitate improvements and redevelopment of key parcels and intersections. They may also be expanded or even merged into a multi-jurisdictional redevelopment area—although this is not a simple process.
The City of Baldwin Park has long desired to place the properties facing Arrow Highway into a RDA project area and facilitate the improvement of marginal industrial uses and introduce to active commercial uses. This demonstration project and any resulting master planning efforts may help the City establish a RDA project area. The land facing Arrow Highway will likely be able to satisfy both economic and physical blight requirements of State Redevelopment Law.
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Page 18 Comparison Goods Table 3: Shopping Centers by Type and Trade Area 950,000 square feet (or 150 Retail Market Analysis Retail Market Findings Consumers tend to compare goods across Trade Area percent) excess retail building brands and across retailers for items they space. Shopping Center Type Building Size (SF) Radius (miles) Population Range purchase infrequently or rarely. This habit of The corridor currently A brief market analysis was conducted to Community 100,000–450,000 3–5 40,000–150,000 comparing induces retailers to locate near each contains 1.5 million square Consequences of Over- evaluate market demand for retail building Regional 300,000–900,000 8 150,000 or more other. It also promotes larger-scale retailers feet (or 215 percent) more Retailing space throughout the Arrow Highway Corridor. Super-Regional 500,000–2 million 12 300,000 or more who can stock many different brands of similar retail building space than The market analysis was also designed to products. Source: Beyard, Michael D. et al., Shopping Center Development Handbook, 3rd edition, existing consumer spending Economics’ supply and demand identify the corridor’s commercial role in the Washington D.C.: Urban Land Institute, 1999. can support. Even if auto model suggests that when a local market area and the overall subregion. uses are removed from the Clothing, electronics, and furniture are Table 4: Supportable Retail Space, Arrow Highway Corridor, 2008 market provides too much of quintessential comparison goods. Because equation (leaving 1,587,632 a good, the price will decline Understanding Retail Markets Type of Retail Supportable Retail Building Space (SF) comparison goods have higher cost margins total square feet), the corridor to induce more consumers Convenience Goods and Services Comparison Goods 115,118 and lower sales volumes and because still provides approximately to purchase the product. In Generally, retailers provide the goods and Convenience Goods 599,052 consumers purchase these goods infrequently, 950,000 square feet (or 150 a trade area with too much services that most people need on a regular comparison goods retailers tend to locate close TOTAL 714,170 percent) excess retail building retail space, the market forces basis (convenience goods and services) at to major transportation corridors that give Auto Retail Total 75,014 space. property owners to reduce their locations close to where people live. For these access to a greater number of consumers. Table Source: The Planning Center, 2008. asking rental rates to lease their regular purchases, most consumers have built 3 shows the sizes and trade areas for shopping The corridor contains property. This generally lower up knowledge of where to go to get what they center types that provide comparison goods. Table 5: Existing Retail Space, Arrow Highway Corridor, 2008 approximately 569,000 level of rental rates can affect want, whether their discriminator is price, square feet (or 758 percent) Type of Retail Existing Retail Building Space (SF) the trade area in different ways. convenience, or quality. more auto service building Implications for Corridor Retail Local 625,580 Under the township-section grid pattern space than can be supported. Lack of Reinvestment Groceries, medicines, and hair care are typical Community/Regional 776,539 established by the Northwest Ordinance, This substantial surplus When property owners receive convenience goods and services. Because Grocery 136,039 rights-of-way usually were platted along suggests that the Arrow less rent, they respond by convenience goods and services usually have Restaurant/Bar 49,474 section lines and, consequently, corridors Highway corridor has evolved cutting their costs. They low cost margins and high sales volumes, Auto 643,851 developed along these rights-of-way at one-mile into a regional center for auto- usually cannot escape debt convenience-goods retailers are located TOTAL 2,231,483 intervals. Convenience-scale retailers quickly related uses. The surplus service, insurance, taxes, and throughout an area, close to concentrations of located along these corridors, particularly at Non-Auto Retail Total 1,587,632 is so great, however, that other fixed costs, so cost cutting households. the intersections where they formed nodes of Source: The Planning Center, 2008, using data from the Los Angeles County Assessor. the corridor could redevelop often affects maintenance, activity. 100–200,000 square feet upkeep, and reinvestment. Convenience-scale retail centers range from are assumed to capture all of the corridor’s visit verification). Using of auto service uses and Near-blight conditions, aging a single store to a small retail center of about spending on convenience goods, while the this data as our base, the Not every corridor and not every node, however, retain its role while creating and obsolete buildings, and 20,000 square feet. Convenience-scale retail corridor retailers are assumed to capture only corridor was estimated can support grocery- and pharmacy-anchored significant opportunities for weeds and debris often plague centers typically have a convenience store as 11.5 percent of the corridor’s spending for to contain 2.2 million retail centers. Nodes for comparison goods residential and targeted retail corridors with too much an anchor and draw from a trade area with comparison goods.9, 10 Comparison-goods square feet of existing retailers function most effectively and profitably development. retail. Low retail rental rates about a half-mile radius. retailers tend to attract spending from a larger retail. Table 5 categorizes when located fairly far apart, with locations prohibit owners from fixing 3-, 5-, or 8-mile radius area and therefore the amount of existing determined more by access to major arterials these problems and discourage Neighborhood-scale retail centers range from capture only a portion of the spending in the retail by type. and freeways than by conditions related to the the market from providing redevelopment. about 20,000 to 150,000 square feet in surrounding households. Table 4 summarizes immediate corridor neighborhood. The situation’s economics can trump a will size. Pharmacies and supermarkets typically the total amount of retail building space that Market Analysis Findings to change and a code-enforcement order to anchor neighborhood-scale shopping centers. spending by the corridor’s households will The corridor currently contains 1.5 million Retail Support in Arrow Highway change. The neighborhood trade area encompasses a support. square feet (or 215 percent) more retail Supportable Retail Space 1½-mile radius, serving a population of up to building space than existing consumer Household consumer spending in the trade Disinvestment 40,000 people within a 5- to 10-minute drive. Inventory of Existing Retail Space spending can support. Even if auto uses are area determines the supportable amount of In the worst situations, the deteriorating built To determine the amount of retail building removed from the equation (leaving 1,587,632 retail building space. Consumer spending environment attracts crime and pathological space, we used detailed parcel data from the total square feet), the corridor still provides support for convenience goods and comparison social behavior. Market rental rates can fall Los Angeles County Assessor (adjusted by site goods is calculated separately. Corridor retailers below the level required for debt service and
Page 19 fixed costs, driving property owners to abandon developers can face difficulties finding enough the mix (Citrus Avenue adds 20,600 and Grand residents often perceive auto-related uses as their property and leaving a trail of structural tenants to fill the in-line space. Avenue adds 29,000). Many of these vehicles unsightly and because these uses generate noise vacancies. are forced to stop for red lights at the intersection, and have the potential to create environmental Developers seeking financing for redevelopment leaving the drivers with little to do but look contamination, communities often steer them to Marginal Businesses projects present their development pro formas around and take notice of nearby businesses. out-of-the-way locations, such as a corridor that Low rental rates attract marginal businesses— and financial feasibility analyses to potential Retail Opportunities forms the boundary with other communities. from used-goods shops and check-cashing partners, investors, and financial institutions. Even with the extent of over-retailing, the market businesses, to auto repair and adult businesses— These documents must reflect prevailing rental study suggests that some sectors offer the Phasing out many of these auto-related uses that can not afford regional market rates. Low rates. Even when developers can make a potential for attracting new businesses. Although would be a legitimate policy response to the rental rates also attract new entrepreneurs persuasive case that their projects will garner this potential exists statistically, the extent of surplus. At the same time, the corridor is what starting their first business. Lacking business higher rents, the lower prevailing rents present over-retailing will limit the ability of corridor it is; Arrow Highway communities could also experience and savvy, new merchants can flock a risk and uncertainty that can raise borrowing communities to attract new retailers. Any efforts embrace this regional auto parts and service to poor business locations, lured by the low start- costs. Difficulty finding tenants and financing to lure new retailers must coincide with or follow destination as a legitimate policy response. up cost, only to be challenged or overwhelmed challenges discourage redevelopment in over- efforts to reduce the oversupply of retail building Communities could capitalize on this sector’s by a lack of customer flow. retailed trade areas. space in the corridor. attraction of regional spending by coordinating their policies for: Decreased Business Returns Retail Opportunities Grocery/Supermarket When a trade area has too many businesses More People, not More Stores The market study suggests that corridor residents’ Planning and financing assistance for in a particular field, those businesses face an The total amount of household disposable spending could support up to 227,000 square aesthetic, façade, and landscaping upgrades increased level of competition. Such competition income determines the amount of retail sales. feet of grocery/supermarket, yet the corridor might lead to some differentiation in quality of Adding more stores beyond the supportable provides only 136,000 square feet. The gap of Establishment of auto-service nodes and goods or services, but most businesses respond amount does not increase the total amount of 91,000 square feet warrants additional market districts by lowering prices. Lower prices will eventually sales; it just dilutes the level of sales among analysis, but it does suggest that it might be force some businesses to close and others to more stores. Arrow Highway communities possible to develop a grocery store–anchored Lot consolidation, coordinated access, and relocate to better locations with less intense desiring to increase retail sales should focus their center at a primary corridor node as part of interior circulation competition. efforts on increasing the trade area’s total amount reallocating retail use along the corridor.
of disposable income. Better jobs and higher Coordinated oil collection and environmental Discouraged to New Businesses wages can increase disposable income, but Restaurants and Bars protection New chain businesses tend to shy away from increasing the trade area’s number of households The market study found a gap of 68,000 square over-retailed trade areas because a simple market provides the quickest and most direct route to feet in restaurant and bars, with residents’ Business management training and analysis will usually show that there is little more retail sales. spending able to support 118,000 square feet assistance unmet or underserved demand. New businesses and the corridor providing only 49,000 square in new retail space also have to pay higher rents, Concentrating Retail at Nodes feet. This finding suggests that redevelopment Targeted workforce development putting them at a competitive disadvantage when Most retail business types, but especially for mixed-use projects at primary nodes could existing retailers are paying very low rents. convenience goods retailers, rely on visibility consider restaurants and bars for first-floor retail Unified signage, marketing, and promotion to trade area households. Increasing area space, but such projects will still need sufficient Discouraged Redevelopment households’ awareness and familiarity with an parking because most corridor residents would Developers shy away from putting new or individual business increases the likelihood still drive to new restaurants and bars. redeveloped retail space on the market when the that area residents will patronize that business. trade area is over-retailed. In a typical project, a Visibility can make heavily traveled corridors Auto Parts and Service developer will sign one or more anchor tenants seem desirable as business locations, but The market study found that the corridor provides and then try to fill the smaller in-line shops it makes intersections of corridors lucrative 569,000 square feet (or 758 percent) too with individual shops and small chain retailers, business locations. much space for auto parts and services. This who tend to pay top rent because they benefit substantial surplus suggests that the Arrow from the anchors ability to draw customers to Although Arrow Highway has an average of Highway corridor has evolved into a regional the center. In over-retailed trade areas, though, 26,000 vehicles per day, its intersection with center for auto-related uses, attracting consumer Azusa Avenue adds another 31,700 vehicles to spending from the larger region. Because
Page 20 Design Concepts and another and create more efficient and effective The central part of the corridor contains a mix commercial development patterns that have should generally be located at key nodes circulation systems. Additionally, jurisdictions of residential and commercial uses, with the been built for decades. As stated in the market in the corridor where traffic volume is the Strategies are better equipped to provide detailed greatest concentration of medium and high analysis, the amount of retail is approximately highest, and developed so as not to compete design guidance that creates more attractive density residential uses located at the major twice what is needed to adequately serve the with itself or with commercial development streetscapes through understanding the nature intersections of Arrow Highway and Azusa existing population. Commercial development inside the associated trade area. Three large This report recommends several land use, of and desired land uses within each district. Avenue, Citrus circulation, and design strategies to improve the Avenue, and Existing Pattern of Open Space and Drainage Facilities in and around the Corridor image, function, and economic performance of Understanding Existing Land Use Patterns Grand Avenue the Arrow Highway Corridor. The first step in identifying the nodes and contain. Outside districts within a corridor is to map and assess of the each Strategy #1: Identify Nodes and Districts the existing land use patterns. Few corridors jurisdiction’s The 8.5-mile corridor is a multifaceted require wholesale change, and improvements downtown, collection of residents, businesses, open spaces, should be based upon a foundation of existing Arrow Highway and infrastructure. Although the corridor may businesses, residents, and systems. represents the function as a major east–west thoroughfare most popular throughout all of the six jurisdictions, segments A large amount of residential uses currently sit location for of the corridor play different roles and are in part along the corridor, with a number of medium single family defined by their nodes of activity. and high density pockets fronting Arrow attached and Highway. The far eastern half of the corridor multifamily Nodes can center around a single significant contains the greatest amount of residential uses homes. building or can be formed by a cluster of and relatively few non-residential uses. The far activities. Often located at an intersection, western half of the corridor is largely devoid of The existing nodes tend to define the surrounding area and residential uses due to the industrial nature of commercial land create a district. By identifying the corridor’s the City of Irwindale and the industrial sector of use patterns nodes and districts, jurisdictions can plan land Baldwin Park. reflect the uses that complement and build upon one traditional strip
Existing Pattern of Residential and School Land Uses in and around the Corridor Existing Pattern of Commercial and Industrial Land Uses in and around the Corridor
Page 21 commercial nodes are present at the same three Street Typology of Roadways in and around the Corridor intersections where medium and high density Legend housing is present. The remaining commercial largely consists of auto-service and small retail Arrow Highway Study Area stores. Sit-down restaurants are largely limited to the downtown areas. Food establishments Roadway (width increases in the corridor are generally limited to fast food with higher ADT) establishments. Transit Route Industrial uses are almost exclusively located west of Vincent Avenue. As this demonstration Truck Route project did not include an industrial market analysis, it cannot be said whether the amount of Freeway Interchange industrial development is appropriate. However, the industrial uses located within the corridor in Baldwin Park are generally considered to businesses displaced by the redevelopment of the be underperforming. The City’s General Plan downtown area along Arrow Highway. calls for the area to redevelop into improved industrial and new commercial uses. Moreover, In addition to the industrial uses, two commercial Baldwin Park is developing a master plan to nodes could also be appropriate. Irwindale has concentrate residential uses in the downtown. already introduced several successful commercial Some industrial and manufacturing businesses businesses along the corridor and is planning that would be displaced by the redevelopment a power retail center just east of the I-605. In of the downtown could be relocated onto Arrow Baldwin Park, a neighborhood commercial node Highway. would be ideally placed at the intersection of Arrow Highway, Live Oak Avenue, and Maine Open spaces are more limited and are largely Avenue (south side). At this location, there are found in the numerous schools spread while others may need to be designed to carry direct access to existing or future rail stations. framework to identify the corridor’s key nodes parcels that could be redeveloped to host a throughout the corridor. With the exception of large volumes of auto and truck traffic. Irwindale Avenue is largely used to carry and districts. small neighborhood shopping center anchored the Santa Fe Dam Recreation Facility, very few industrial and truck traffic to and from Irwindale by a supermarket. The closest supermarket opportunities for recreation are available in or The map shown on this page categorizes the and the surrounding freeways. The other three Industrial District for the residents of northern Baldwin Park is around the corridor. The drainage channels major roadways within and around the Arrow roadways carry primarily automobile traffic. With the predominance of industrial development approximately 3–4 miles away in the City of criss-cross throughout the corridor and could be Highway corridor according to their function and proximity to the freeway, the area of the Duarte. The retail analysis indicates that a improved as trails for pedestrians and bicyclists. and traffic volume. Arrow Highway serves a The secondary roadways are smaller and corridor west of Vincent Avenue to the I-605 has supermarket could be introduced at this node Two large retention facilities sit along the corridor multitude of functions, carrying over 26,000 carry lower volumes of traffic. These roadways been planned for and should continue to function and (if desired) in the power center by the I-605. at the intersections of Arrow Highway at Citrus cars and trucks per day as well as operating as also travel through residential neighborhoods. as an Industrial District. Both Baldwin Park and and Barranca Avenues. This land is presently the primary route for the Foothill Transit 492 Accordingly, re-routing truck traffic from the Irwindale have plans for redeveloping vacant While some streetscape improvements have being used only for these stormwater facilities, bus line—one of the busiest lines in the transit primary roadways to these secondary roadways and underutilized parcels within the corridor into already taken place, further improvements should although it could be developed into an accessible system. Traffic volume decreases significantly would not be appropriate. The largest volumes new or improved industrial and manufacturing be made to the parkway and sidewalk area on open space resource without hindering its past Glendora Avenue as the uses transition to a of traffic occur at the intersections of the four businesses. the southern edge of the Arrow Highway right-of- primary function. residential character. primary north–south roadways and Arrow way. Highway as well as the freeway interchanges. The City of Irwindale plans on introducing a Roadway Functions The four primary north–south routes of Irwindale, large industrial use at the intersection of Arrow Retail District Another step in identifying the nodes and districts Azusa, Citrus, and Grande Avenues also carry Nodes and Districts Highway, Live Oak Avenue, and Baldwin Park The central portion of the corridor (between within a corridor is to evaluate the role and tremendous volumes of auto and truck traffic in The combination of existing land use patterns, Boulevard. The City of Baldwin Park anticipates Vincent Avenue and Glendora Avenue) should performance of the roadways. Some roadways addition to multiple transit stations and the Silver the results of the market analysis, and the possibility of relocating manufacturing operate as the primary Retail District with may be suitable for a focus on pedestrian activity Streak (BRT). The three eastern streets also offer identification of roadway functions creates the commercial nodes at the intersections of Arrow
Page 22 Proposed Nodes and Districts for the Arrow Highway Corridor
Major/Minor Industrial Node
Major/Minor Commercial Node
Minor Mixed-Use Node
Minor Residential Node
Minor Residential/Industrial Node
Industrial District
Retail District
Residential District
Highway at Azusa, Citrus, and Grand Avenues. Due to the over-retailed nature of the corridor, other businesses and those shoppers seeking to be up to 700–1,000 throughout the corridor—is lower traffic volumes and contains the largest Over 100,000 vehicles per day pass through it will be important to concentrate and improve compare prices and goods. not substantial enough to justify the retention proportion of housing. Marginal commercial these intersections, providing commercial existing retail into this district while removing of the existing surplus of retail establishments. establishments should be replaced by high businesses with the largest exposure to potential marginal commercial development elsewhere Additional medium and high density housing Instead, this new housing would help ensure the quality corridor housing to support the retail in customers in the corridor. in the corridor. Other neighborhood-serving should be introduced along the primary north– success of the retail establishments concentrated the adjacent district and offer opportunities for commercial nodes are appropriate in the other south roadways away from the intersections and in the Retail District. accommodating new growth. Smaller, secondary nodes should be created two districts; however, the majority of auto along Arrow Highway at midblock locations. through the introduction of mixed-use retail and a service uses retained should be relocated This housing will help cities to accommodate the Residential District The character of Arrow Highway could be consolidation and redevelopment of auto service and concentrated in the retail district. The future growth and introduce new product types The Residential District applies to the eastern changed in this district to slow down traffic. uses at the intersections of Arrow Highway at concentration of uses also benefits the retailers, that can attract a variety of household types. The portion of the corridor from Glendora Avenue The existing on-street parking spaces could, for Hollenbeck and Barranca Avenues. who benefit from exposure to customers from housing can also provide some retail support, to the western border of the City of San Dimas. example, be replaced by extended landscaped although the amount of housing—estimated to This area of the corridor experiences much parkways that act as traffic calming devices
Page 23 Recommended Changes on Key Parcels in the Corridor
13 16 1 7 10 4 5 14 18 19 20 15 17 2 6 8 3 11 12
9 13
Page 24 Strategy #2: Redevelop and/or Avenue across from the shopping center. 10. Azusa Avenue: Redevelop existing density residential if more comprehensive relocated, extend high density development Redesignate Key Parcels within the The introduction of other smaller retail uses, commercial uses (including furniture store redevelopment is not possible. eastward to and including the RV storage Corridor particularly a cluster of restaurant uses, could and car wash) and vacant lands into strong parcel. serve a gap in the local market (unless already commercial node. The Azusa Discovery Center 15. Barranca Avenue: Reconfigure existing This report contains many recommendations developed in the future power center). could be integrated into a larger commercial uses, relocate other uses, and consolidate auto 19. Bonnie Cove Avenue: Convert auto and that broadly address the overall corridor. center. A new site plan should be developed service uses into the two triangular collections boat service and other retail uses to medium During the analysis of the corridor, however, 5. Vincent Avenue: Relocate residential units on either side that emphasizes shared access of parcels that flank Arrow Highway. This density residential. The corner retail center a number of parcels (shown on the map, left) and develop along with adjacent vacant parcels and attractive landscaping. site is underutilized and could accommodate should be retained and improved. If the entire demonstrated a specific potential or need into high quality industrial or small retail uses. the entire square footage of auto services area can be redeveloped as one project, it for change and/or redevelopment. Unless Residential uses are more appropriate on the 11. Hollenbeck Avenue: Redevelop existing supportable by the corridor (70–90,000 square could accommodate a horizontal and/or vertical otherwise noted, all streets intersect with Arrow southern side of Arrow Highway, where the City retail stores into mixed-use node with up to feet). mix of uses, with up to 30–40,000 square feet Highway. Additional detail is provided on of Irwindale is building new residential uses. 30–40,000 total square feet of retail along of commercial to form a small neighborhood some recommended changes throughout the with 250–300 dwelling units. The site enjoys good exposure and multiple retail node. remainder of this report. 6. Vincent Avenue: Redevelop existing points of access. The assemblage of businesses into mixed office/retail space to 12. Hollenbeck Avenue: Either consolidate businesses could generate enough demand and 20. Sunflower Avenue: Redevelop abandoned 1. I-605 and Live Oak Avenue: Develop better utilize the land and create a transition to and improve auto service uses or replace resources to incorporate attractive landscaping and vacant parcels and auto service shop vacant land into retail power center to take Retail District. with corridor residential uses. If auto service and signage and create an auto-service node. into medium density residential uses. advantage of freeway proximity. The power uses are reconfigured to more efficiently share Approximately 100–125 units could be center should be developed so as not to 7. Lark Ellen Avenue: Replace dilapidated access and land, the existing square footage 16. Grand Avenue at West Laxford Street: constructed on these sites and would integrate compete with the retail created in the Retail auto and other retail uses with small lot single can be placed on approximately one-half of the Develop primarily vacant parcel owned by the well into the surrounding neighborhood, which District or potential retail development along family residential, possibly a motorcourt existing sites. The remaining half could be used Oakdale Memorial Park into medium density contains a large amount of medium and high Arrow Highway in Baldwin Park. Restaurant product that takes access from North for corridor residential farther inward toward residential. Approximately 300 townhomes density housing. uses could be especially appropriate and serve Clydenbank Avenue. The uses farther to the midblock location. could be placed on the site. a gap in the market. the west and across the street could also be converted to residential use and extend the 13. Storm Drain Channels and Retention 17. Grand Avenue: Convert marginal 2. Live Oak Avenue and Arrow Highway: well-maintained corridor residential already in Basins: Develop channels and basins into commercial parcels into open space and Introduce a high quality large-scale industrial existence. pedestrian and bicycle pathways throughout incorporate small transit substation for Foothill use. This may require a change in the general the corridor. The channels ultimately Transit bus lines. These parcels adjacent to plan land use designation 8. Lark Ellen Avenue: Redevelop retail center connect to the San Gabriel River channel, the storm drain channels are too shallow to into a small mixed-use node with 5–10,000 South Hills Park, and the Angeles National support successful commercial businesses and 3. Maine Avenue: Replace industrial with square feet of retail and 80–120 units of Forest. Examples of parks have already should be developed into parks to improve the neighborhood shopping center anchored by residential. The site is approximately 2 acres been developed in Baldwin Park and Covina. aesthetics of the corridor and possibly integrate supermarket. There is sufficient demand in size and would need to be developed at an Jurisdictions must coordinate with the Los into the channel improvements. in the corridor to support a national chain FAR of approximately 1.5–2.0. Angeles County Flood Control District. supermarket. The transit substation should be located on the 9. Azusa Avenue at West Grondahl Street: 14. Citrus Avenue: Investigate converting northwest corner of the intersection and the 4. Maine Avenue: Replace existing industrial Redevelop large retail building and smaller existing mobile home park and commercial open space should extend eastward to the flood with manufacturing and industrial uses retail across the street into medium and high uses into a larger multi- or mixed-use center control facility. displaced by the downtown redevelopment, as density residential. The retail businesses with 20–30,000 square feet of retail and well as smaller mixed-use developments. The will not perform as well so far back from the 300–400 homes. Alternatively, the corner 18. Glendora Avenue: Convert existing retail majority of the existing industrial uses are old intersection (indicated by the temporary use commercial parcels should be reconfigured to into mixed-use development (if gas station and present problems either in performance occupying the large building). Such residential avoid blocking retail buildings with a corner moves) on western side of Glendora Avenue or code enforcement, or both. If mixed-use uses would be highly compatible with the building (currently a vacant Conroy’s). Eastern and high density residential on eastern side. is introduced, it should be located on the surrounding uses and enhance activity around parcels should be redeveloped into medium Relocate RV storage to Barranca Avenue (see southeast corner of Arrow Highway and Maine a major retail node. #14). If residents of mobile homes can be
Page 25 Conceptual Illustrative of Consolidated Auto Service Uses and Midblock Corridor Residential Development That Could Be Constructed on Remaining Land
W. Arrow Highway (Frontage)
E. Arrow Highway
N. Aldenville Ave W. Alcross Street
N. Fenimore Ave
Page 26 without reducing the roadway capacity. The The majority of existing auto service uses reflects Conceptual illustration of consolidation of auto service businesses east of the intersection of Arrow Highway and Barranca Avenue relocation of marginal commercial businesses a one business–one parcel–one curb cut pattern would minimize the need for the on-street of development. As a result, Arrow Highway is parking, creating a more pedestrian-friendly inundated with curb cuts, which can slow down character in the Residential District. Special traffic and create hazardous driving conditions. attention should be paid to the access to and orientation of small, neighborhood-serving Auto service uses benefit from locating near each commercial nodes, which would be appropriate other and operate out of buildings that can be at Bonnie Cove and Sunflower Avenues. easily constructed in a variety of configurations to serve multiple tenants. By consolidating several The streetscape has been improved through the businesses onto one parcel, the amount of land introduction of a landscaped median; however, needed can be cut by a third and access can be additional improvements would be required— shared. This reduces the number of curb cuts particularly along the southern edge—to create a and can improve visibility for businesses. streetscape more welcoming and attractive for a residential and commercial area. The aerial at the bottom of the page shows the existing conditions at the intersection of Arrow Strategy #3: Concentrate and Relocate Highway and Cerritos Avenue. With a street Auto Service Uses frontage of approximately 1,200 linear feet, a curb cut occurs an average of every 100 feet. conceptual buildings, however, occupy less than at 45–55 miles per hour. The frontage The corridor contains a substantial amount of half of the current land area. system also provides a space where auto service retail, approximately 569,000 more A conceptual illustrative on the opposite page customers can park in front of the square feet than can be supported. The corridor demonstrates what could be achieved by Additionally, access is reduced from 12 curb stores without creating a giant bay may have developed into a regional center for redesigning, reconfiguring, and consolidating cuts to 2 by using a frontage road system. of parking. The building is brought auto service businesses, but, there remain a auto service uses into a single area. The amount The frontage road allows easy access, quickly forward to the street and designed to large number of businesses that are severely of square footage provided in the conceptual taking cars off of Arrow Highway and allowing showcase more like a retail store than dilapidated and/or located on extremely marginal buildings is approximately two-thirds of what customers to navigate to the individual an industrial use. or underutilized parcels. Some of these uses mar is currently on the ground in the aerial. The businesses without other vehicles bearing down the image and performance of the corridor. The concept of consolidating auto Aerial of Existing Conditions at the Intersection of Arrow Highway and Cerritos Avenue. Note the 12 curb cuts. service (or other businesses) can be applied to the two triangular collections of parcels that flank Arrow Highway. townhomes constructed at 20 units per acre. These sites are underutilized and could The townhomes (or flats if desired) would be accommodate the entire square footage of auto compatible with the adjacent multifamily housing services supportable by the corridor (70–90,000 and could benefit from an improvement to the square feet). The site enjoys good exposure and adjacent flood control facility as either a large multiple points of access. The assemblage of open space or system of trails. businesses could generate enough demand and resources to incorporate attractive landscaping Corridor housing—also referred to as boulevard and signage and create an auto-service node. housing—usually consists of medium or high density housing developed on its own or as part Strategy #4: Introduce Corridor Housing of a mixed-use development. Depending upon The illustrative on the opposite page the location and context, densities range from demonstrates what could be developed in the 12–50 units per acre with building heights of areas formerly used as auto service facilities. 2–5 stories. More heavily urbanized settings can The illustrative shows approximately 80–90 see higher densities and heights as land values can support the additional costs associated
Page 27 with structured parking and construction Corridor housing can also help accommodate requirements. new growth. Much of the San Gabriel Valley is already built out, with the majority developed at Replacing commercial lands with residential is lower density levels unsuitable for intensification. often seen as a lose–lose concept, particularly on Corridors provide a bank of land that can be very a corridor. The jurisdiction loses potential sales appropriate for residential development. Arrow tax revenue and must absorb the cost of servicing Highway already plays host to a large amount of new housing. As discussed in the market low, medium, and high density housing. New analysis, however, there is a cost to retaining residential would easily join the neighborhood marginal commercial. Preserving marginal fabric of those homes fronting Arrow Highway or commercial can depress the retail market and located immediately behind commercial parcels. actually decrease the total sales tax revenue generated in a community. The current level of mass transit on Arrow Highway provides a valuable amenity to new By replacing marginal commercial properties, housing, both in the long term for residents 215 S. Brea Boulevard, Brea, CA Senior Artist Lofts, Burbank, CA Paseo Villas, San Jose, CA corridor housing can actually generate revenue to use in place of a private automobile and in for the jurisdiction. Some communities analyze the short term, as an increasing number of the break-even point for housing to determine financing packages and grants favor residential what housing prices need to be to generate developments located near transit systems with sufficient property tax revenue to cover the costs frequent headways. of servicing the new housing. Not all of these analyses, however, consider the sales tax revenue Corridor housing can be placed on parcels as generated by new housing. shallow as 150 feet in depth. The 150 feet depth allows for rear access through an alley In a market that is already over-retailed, the to minimize direct access from the primary quickest and easiest way to create new sales is roadway. On corner parcels, direct access from to introduce new households. With a potential the primary roadway may not be necessary. to introduce up to 1,000 new households, the Live/work products and corridor retail uses can new housing in the corridor could generate up also be placed on such lots, though slightly to $188,000 in annual sales tax revenue. The deeper lots may be desired to provide sufficient communities immediately surrounding the new parking for customers. Several sketches and housing could expect to share in up to $58,000 photographs are provided to the right to illustrate in revenue generated through convenience how corridor housing and commercial can work. shopping. The communities could also receive a portion of the remaining revenues generated Strategy #5: Create Green Highways for through comparison goods shopping. Pedestrians and Bicyclists Beyond the appeal of changing a concrete-lined When combined with property tax revenue drainage channel into a landscaped recreation (assuming an average sales price of $400,000), amenity is the potential to offer access through 1,000 new homes could generate a total of and between communities for pedestrians and $600–800,000 in annual revenue for the bicyclists. The three storm drainage channels corridor jurisdictions. This amount would offset a that pass through the corridor extend from the large portion of the cost of servicing new housing San Gabriel River to the Walnut Creek Wash and (depending upon the jurisdiction and their become the Big Dalton Wash, Little Dalton Wash, allocation). and San Dimas Wash.
Wilshire Vermont Station, Los Angeles, CA Wilshire Vermont Station TOD, Los Angeles, CA
Page 28 Existing Pattern of Open Space and Drainage Facilities in and around the Corridor
3
1 2 1. Existing channel configuration at Arrow Highway and Grand Avenue
The channels primarily travel through residential space plan for the San Gabriel and Los Angeles The two retention areas behind hundreds of back yard walls. The River—Common Ground: from the Mountains facilities located channels are occasionally placed underground to the Sea), the channels also pass by larger along the corridor 2. Existing channel configuration just south of Gladstone High School and the through culvert systems, such as when parks, such as South Hills Park in Glendora, offer additional intersection of Arrow Highway and Azusa Avenue passing under a roadway or retail center. At and ultimately terminate at the Angeles National pathways and open some locations, however, the channels remain Forest. The map on the following page shows space. Each facility uncovered and can divide and isolate parcels the relationship of the current rights-of-way for is approximately 18 fronting Arrow Highway. the channels and nearby schools and parks, acres in size and illustrating the channels’ potential as pathways. could offer a system At the intersection of Arrow Highway and Grand of paths or a larger Avenue, a string of parcels as shallow as 35 The channel rights-of-way range from system of active Arrow Highway feet try to support small commercial businesses. approximately 50–75 feet with the actual open space. While Unimproved and inaccessible to the general channel measuring 25–30 feet across. Access stormwater would public, the channels create swaths of no-man’s- roads run along both sides of the channel and occasionally cover lands that are fenced off and forgotten. measure approximately 10–30 feet in width. the ground and the These access roads could be improved to allow facilities would need Citrus Avenue When combined with potential linear parks along pedestrians and bicyclists to travel alongside to be closed to the 3. The two large retention basins could provide open space and recreation areas Arrow Highway (see Design Strategy #1), school the channels without impeding access for public, uses such that could connect to a system of pedestrian and bicycle paths along the channels. facilities, and other community/regional parks, official flood control access or activity. The as athletic fields along the drainage channels. The potential the channel pathways could allow individuals three channels run a combined 5.8 miles in and playgrounds tolerate flooded conditions well benefits of community gardens strategically to travel to school, work, or even the nearby length through the corridor. The total acreage and could be used soon after the waters have located along the channels include beautification mountains separated from the congestion, of the potential pathways, calculated as 10 receded. of the channels, restoration of native plants, pollutants, and costs associated with auto travel. feet in width on both sides of the channels, is fostering community involvement, educational approximately 14 acres—equal to the combined Additionally, a collaborative effort between outreach, and the opportunity for community Community gardens provide places for people to learn and Not only do the channels connect with the San size of Hollenbeck and Gladstone Parks. residents, schools, and nonprofit organizations members to grow their own produce. socialize, oftentimes in locations previously considered Gabriel River (see the RMC watershed and open could be developed to form community gardens unusable.
Page 29 Storm Drainage Facilities and their Proximity to Local Schools and Parks, Illustrating their Potential Use as an Interconnected System of Pathways
Angeles National Forest
Bradbury
Duarte
Azusa Citrus Station Azusa Station
Glendora
Irwindale h s a W
n lto a D
le t t i L L.A. County
Dalton Wash g Bi ash as W San Dim L.A. County
ash W lton Da L.A. County Baldwin Park Big
Covina Station San Dimas Baldwin Park Station Covina West Covina
Page 30 Legend Increase headway from 20 minutes to 10- Construct bus turnouts to minimize traffic 15 minutes during peak periods on route delay, positioned after the intersection. The Channel a Schools 1 Parks 280 (Azusa–Puente Hills Mall via Azusa turnouts should be at least 120 feet in a. Merwin Elementary School 1. Santa Fe Dam Recreation Area Avenue). total length to fit a 40 foot bus: 40 feet for Channel Path Extension b. Alice M. Ellington Elementary School/YMCA 2. Central Park West transition, 40 feet for the stopping area, and
c. Gladstone High School 3. Irwindale Community Park Coordinate local Foothill Transit bus routes 40 feet for transition back into traffic. Utility Easement d. Valleydale Elementary School/CDC Valleydale 4. Valleydale County Park with Gold Line and Metrolink commuter rail
e. Christbridge Academy 5. Gladstone Park services. Extend raised medians along Arrow Highway Freeway f. Paramount Elementary School 6. Slauson Park to improve traffic operations, reduce mid-
g. Azusa High School 7. Finkbiner Park Add weekend services to Route 498 (Citrus block left turns and improve safety. Major Road h. Foothill Middle School 8. Ole Hammer Park College–Downtown Los Angeles via Grand
i. Charles H. Lee Elementary School 9. George Manooshian Park Avenue). Reduce the number of driveways and curb
Metrolink - San Bernardino Line j. Azusa Pacific University (West) 10. C. Linder Equestrian Park Explore the feasibility of implementing a bus cuts along Arrow Highway for traffic safety k. Citrus Community College 11. Hollenbeck Park shuttle type service between the Gold Line and operational improvements. Metrolink - Gold Line l. Azusa Pacific University (East) 12. Cypress Ball Park Citrus Avenue Station and the Metrolink
m. Cullen Elementary School 13. Dalton County Park Covina Station. Extend and enhance bike trails/routes and Existing Metrolink Station n. Goddard Middle School 14. Dawson Park pedestrian friendly intersections.
o. Valencia Elementary School 15. South Hills Park Implement local bus circulators connecting Proposed Metrolink Station p. Cypress Elementary School 16. Gladstone Park the Covina Metrolink Station to major activity Strategy #7: Beautify the Corridor’s Right- q. Fairvalley High School 17. Louie Pompei Sports Park centers within the area (shopping centers, of-Way r. Clifford D. Murray Elementary School 18. Horsethief Canyon Park schools, parks, etc). Comparable systems The area in which the jurisdictions can exert the s. Center Middle School 19. San Dimas Canyon Park include OCTA’s Station Link service or the greatest amount of influence on the look and feel t. Gladstone Street School/Azusa USD new “I” Shuttle in the City of Irvine. Some of the corridor is in the public right-of-way. By u. Rainbow Christian Pre-School routes run during the midday peak period improving the parkway, median, and building v. Sierra High School Continuation/Azusa Adult to take workers to lunch areas while other forms, the jurisdictions will be able to define the Education Center routes run during the peak periods and take corridor’s districts, nodes, and gateways. w. Foothill Christian Pre-School passengers to transit stations. x. Arrow High School Extension of Raised Median
y. Glendora High School Consider the possible implementation of a The extension of the raised median in the City of z. Arma J. Shull Elementary School Bus Rapid Transit (BRT) system on Arrow Irwindale would enhance the streetscape, reduce Highway in the future. This system would the number of left turning vehicles, and improve There are a number of areas along the channel many other bus lines stop along the corridor, The following is a list of potential improvements operate similar to the Metro Rapid or Foothill through traffic flow. The raised median should system that are large enough to accommodate a leading to major transit centers including current to the transit systems and roadway design and Transit Silver Streak between the Montclair contain a combination of native, drought tolerant community garden. The individual garden plots and future rail stations. In recognition of the operation. Transit Center and the El Monte Transit landscaping as well as periodic elements of are generally 10 feet by 20 feet in size, although growing transit infrastructure and expected Center. The Silver Streak serves as a regional public art and signage. they could be as small as 10 feet by 10 feet. population growth, Arrow Highway is well Transit Improvements system whereas a BRT along Arrow Highway Together, the system of channels and retention positioned to expand its transit service. would primarily serve more local destinations. Through the industrial and retail districts, the basins could offer a substantial amount of open Increase headways from 30 minutes to 10– landscaping should be low lying and include space so desperately needed in the San Gabriel Additionally, while Arrow Highway currently 15 minutes during peak periods on Foothill Roadway Improvements taller trees with elevated canopies (or no canopy) communities. operates at a Level-of-Service A, future growth Transit routes 281 (Glendora–West Covina to allow businesses to gain exposure to both
may apply pressure on the corridor. Small Mall via Citrus Avenue), 488 (Glendora– Implement traffic signal coordination on Arrow eastern and western streams of traffic. In the Strategy #6: Enhance Transit Operations operational and safety improvements to the street West Covina via Grand Avenue) and 492 Highway, Grand Avenue, and Citrus Avenue retail district, trees (or a cluster of trees) in and Connections Along Arrow Highway could improve traffic flow and make for a better (Montclair–Arcadia via Arrow Highway). to improve traffic flow. If a BRT system is the median should be spaced approximately In addition to serving as a major east–west environment for transit services and pedestrians These routes operate on Arrow Highway introduced, the buses would most likely 75–100 feet apart, while trees in the median of corridor for auto and truck traffic, Arrow Highway while minimizing congestion at peak hours. and/or have connections to the future Gold employ a signal prioritization system. the industrial district should be spaced 50–75 provides a critical link for mass transit. The 492 Line Citrus Station and the Covina Metrolink feet apart. The median in the residential district bus line operates directly on Arrow Highway and Station. should be more lush and the trees—placed every
Page 31 25–50 feet on-center— should exhibit large, Conceptual Illustrative #1: Right-of-Way at Arrow Highway and Grand Avenue Improved with a Landscaped Median and Transit Substation/Food/Retail Business on the Northern Edge expansive canopies to soften the street edge and acts as a natural buffer.
Transit Substation in Right-of-Way The existing level of transit service, presence of marginal parcels, and excellent level of service along Arrow Highway could allow the treatment of the right-of-way to expand beyond a decorative element and traffic calming device. The right-of-way could help define the corridor by incorporating transit facilities at key intersections. There are three intersections within the corridor where multiple bus lines meet at bus stops on Arrow Highway: Azusa, Citrus, and Grand Avenues. These bus lines carry passengers to local downtowns, employment centers, nearby rail stations, and transit centers.
This report provides two illustrations of potential improvements to the right-of-way. The first maintains the existing roadway structure and places a transit substation on the northwest corner of Arrow Highway and Grand Avenue. The parcels at this corner are too shallow to support a number of successful commercial businesses; however, they could offer an excellent location for a bus substation combined with a small food establishment and/or retail establishment.
The idea is to provide an attractive space where transit riders could gather in the morning and grab a quick breakfast (or a quick snack on the way home from work). The small substation would display a real-time electronic timetable of the schedule for local buses, Metrolink, Metro Gold Line, and the Silver Streak. During non-commuting hours, the food or retail transit substation could be located on either or Parkways The southern side of Arrow Highway at Barranca Additionally, the overhead power and phone establishment would benefit from a corner both sides of Grand Avenue and host food or Other potential improvements include the Avenue has become a place for trucks to stop lines should be moved underground if at all location and a small but adequate parking area. retail establishments as well as open space areas creation of wider sidewalks and parkway and rest beside the oleander-screened fence of possible. The parkway areas are generally 10 feet similar to Euclid Avenue in the City of Ontario. landscaping to improve the pedestrian the retention basin. By improving the retention wide, which is wide enough for a very pleasant The second concept expands the median’s role At the intersection, left turn pockets would be environment. These measures could be basin and expanding the parkway, the fence and combination of walkway and landscaping. The and physical dimensions to incorporate the introduced to facilitate traffic flow. accomplished by removing on-street parking in oleander could be replaced by attractive street powerline poles not only add visual clutter to the transit substation in the center of the roadway. the residential district and narrowing the existing trees and a view of trails and wide open spaces. streetscape, they also bisect the parkway and The marginal parcels are converted into the curb lane. create physical obstacles. new northern travel lanes of Arrow Highway. A
Page 32 Conceptual Illustrative #2: Right-of-Way at Arrow Highway and Grand Avenue Improved with a Transit Substation/Food/Retail Business in an Substantially Expanded Median Bus Stops Bus stops represent highly interactive pieces of street furniture that are used by many and viewed by all who travel the corridor. At a minimum, bus stops should include a sign (with digital schedule if possible), a shade/ weather structure, sitting area, and trash can designed to emphasize the identity of the jurisdiction, the corridor, or both.
Building Form The relationship of the buildings to the street along the corridor is relatively consistent and interacts with the street edge. While the corridor’s role as a major east–west thoroughfare for cars and trucks makes it unlikely that Arrow Highway will become a Grand Boulevard for walking and shopping, consideration should be given to the creation of form-based design guidelines or zoning for the corridor.
Not all uses, however, will so easily mold to some of the generic form-based prototypes currently presented in the planning and design field. The auto service uses that dominate the current landscape of the corridor will require
Bus stops can reinforce local identity and improve function. An example from Albuquerque (NM), is shown on the left, while a stop in San Bernardino (CA) is shown on the right.
Page 33 special attention due to the nature of their work, storage needs, and work area requirements.
Ultimately, the goal is to create a more successful, attractive, and livable corridor. By leveraging the regulatory control jurisdictions hold over the public right-of-way, the image of the corridor can be significantly improved.
Example of an attractively designed auto service business in South Carolina.
Page 34 Implementation Institutional Structures for Corridor Planning Institutional Cooperation redesigning the urban environment to increase Otay Ranch Development, Chula Vista, CA Mechanisms The ways that jurisdictions can cooperate El Camino Real, San Mateo County, CA vitality, expand variety, and reduce congestion. Joint Exercise of Powers Agreement range along a continuum from purely voluntary Grand Boulevard Initiative cooperation to the formal establishment of new Downtown Waterfront, San Diego, CA The Otay Ranch development Overview legal entities with specified regulatory powers. The Bay Area’s El Camino North Embarcadero Visionary Plan and JPA in Chula Vista also involved Real—the major arterial the creation of a joint The division of Arrow Highway among several Voluntary Cooperation running from San Francisco The 1997 North Embarcadero Visionary Plan exercise of powers agreement (JEPA) between jurisdictions complicates efforts to revitalize and At the simplest and least formal level of to San Jose—is undergoing (NEVP) for the downtown San Diego County and the City of Chula enhance the corridor in many ways. cooperation, two or more jurisdictions could transformation overseen waterfront in San Diego was Vista. According to the Local Government work together to study problems and make by an ad-hoc committee whose intent is to developed by the city, the Commission, a JEPA—more commonly rehabilitate 43 miles of the corridor. Centre City Development known as a joint powers agreement—is an To create identifiable functional recommendations back to their respective districts, adjacent jurisdictions need to planning commissions, councils, and boards. Corporation (CCDC), and the alternative way to establish a formal, legal have substantially similar (or at least California Government Code Section 65101 For more than 40 miles between San Francisco Port of San Diego. agreement between two or more entities that complementary) land use regulations and (within the local planning chapter) allows two and San Jose, El Camino is a traffic-choaked share a common power and jointly implement design standards in district areas. more legislative bodies to: arterial road lined with strip commercial In 2003, a Joint Powers Authority was created programs. This process, however, did not centers, used car lots, fast-food drive-throughs, by the San Diego Unified Port District and the entail creating a new, separate government and suburban bric-a-brac that has grown up CCDC to bring the schematic design phase organization. Instead, the two entities Each jurisdiction can approach the issue of …authorize their planning agencies, or excess auto services differently, but each any components of them, to meet jointly to over decades. People who live in San Mateo and development of the financing/phasing developed a plan for the area and under joint jurisdiction’s treatment of auto services will coordinate their work, conduct studies, develop and Santa Clara counties avoid El Camino Real plan for the project to a successful conclusion. ownership managed the decision-making 11 affect the range of viable uses on adjacent plans, hold hearings, or jointly exercise any whenever possible. The schematic design for the NEVP won process, including annexation of county land and nearby properties. power or perform any duty common to them. the unanimous support of both the Board of into Chula Vista to complete the 23,000-acre The Grand Boulevard Initiative includes a 47- Port Commissioners and the CCDC’s Board site. member task force with representatives from of Directors at a special joint meeting held Reducing the excess supply of retail uses Joint Planning Agency or Commission and concentrating retail at nodes might Two or more jurisdictions could appoint a joint both San Mateo and Santa Clara Counties, in October 2005. Both boards adopted a San Gabriel Valley, CA affect individual jurisdictions differently; planning commission or agency to prepare all 19 cities along the corridor, Caltrans, resolution to approve the recommended first Housing Endowment and Regional Trust JPA a means to share the burden of forgone an advisory master plan, general plan, and/ local transit agencies, civic groups, business phase of the project. taxable sales could increase the likelihood or specific plan for the corridor area. The organizations, and labor unions. To date, 10 The San Gabriel Valley Council of effectively addressing the over-retailing agreement creating a joint planning agency cities, the San Mateo County Transit District, Talega Specific Plan, Orange County, CA of Governments (SGVCOG) problem. or commission could delegate regulatory and the San Mateo City/County Governments Talega Joint Planning Agreement/Authority proposed the formation of a authority (e.g., zoning or specific plan) or Association have adopted the tasks force’s housing endowment and regional guiding principles. The City of San Clemente and Orange County trust (HEART) JPA to oversee a Coordinated landscaping, streetscaping, and could retain that power within each underlying medians will require adjacent jurisdictions to jurisdiction. A joint planning agency or created the Talega Joint Planning Agreement housing trust fund. As proposed, coordinate public works activities. commission, however, represents a more An El Camino Real Incentive Program and Authority in 2005 to the HEART JPA would consist of all 31 San formal level of cooperation because it creates a Planning Grant has also been established regulate the development Gabriel Valley cities and therefore require 16 This section describes alternative ways the new legal entity. California Government Code and offers significant financial incentives to of approximately 792 acres cities to approve it at the COG level. Requiring Arrow Highway jurisdictions could coordinate Section 65101 specifically allows two or more the jurisdictions along the El Camino Real if in the unincorporated portion of the county a majority of member agencies is customary their efforts to revitalize and enhance the legislative bodies to: they conduct planning studies to upgrade the and partially in the city’s Sphere of Influence. in forming a JPA; however, a JPA for Arrow corridor. The first part describes the type of appearance of the street, provide more housing As member agencies, the city and the Highway could be created by only those institutional structure that will guide and …create a joint area planning agency, planning and jobs in the corridor, and increase transit county retain the power to adopt and enforce jurisdictions wishing to participate. To date, maintain the cooperation effort. The second commission, or advisory agency for all or usage. building, zoning, planning, and other land use the HEART JPA has not been established. part describes the types of projects that the prescribed portions of their cities or counties regulations in their jurisdictions. jurisdictions could work on jointly to address which shall exercise those powers and perform The coordination of this program supports corridor-wide or node-specific issues. Finally, those duties under this title [Title 7, Planning the performance target of ensuring that all the third part recommends some initial steps to and Land Use] that the legislative bodies projects and programs implement the County’s start a cooperative planning effort. delegate to it. Visioning Commitments and Goals, including
Page 35 Joint Powers Authority more jurisdictions. Government Code 65300 Two or more jurisdictions could create a joint authorizes cities and counties to adopt a general Cooperative Projects Yosemite National Park, CA Southern and Northern California powers authority and delegate to the new plan for any land outside of their boundaries that Santa Clarita, CA Wawona Specific Plan Sales Tax Rate and Revenue Sharing authority the power to plan and zone all or comprises the joint planning area. Santa Clarita Valleywide Plan portions of the corridor, to construct and maintain Also within Mariposa County In Alameda County, the Cities of Livermore, improvements, and any other local powers. Joint Specific Plans The Santa Clarita Valleywide and located completely within San Leandro, and Dublin impose a 1 percent COMMUNITY CONSENSUS MAP CREATION Because a joint powers authority (JPA) would Another possible solution to guide future Plan is a 20-year general Yosemite National Park, the local tax rate while the remainder of the Cities The Guiding Principles have been formulated to serve as the plan forPhase IVthe of the OVOV Santa process led to theClarita development of a land use plan map which lays out areas suitable unincorporated community imposes 0.95 percent. Special taxing districts constitute a new legal entity, it could be given development, and sometimesframework for theconnect preparation of a unified existing General Plan for the for future development while preserving significant ecological areas. Producing such a map required Santa Clarita Valley by the City of Santa Clarita and County of analysis of various data sources which included, but were not limited to, aerial photography, topographical Los Angeles. They have been written in consideration of the features, infrastructure, and trail plans. Coupling these factors with the goals of community residents will extensive public input received during the One Valley, One Vision Valley leadjointly to a vibrant and preparedsustainable future for the Santaby Clarita Los Valley. of Wawona has a specific may impose an additional amount, which is bonding and revenue power, and it could be pieces of the urban fabric,process is through a surveys,specific stakeholder interviews, plan. children and youth activities, Visioning Workshops, and the Valley Congress. Angeles County and the City plan that addresses its unique regulatory and added to the standard statewide rate. delegated many local powers and responsibilities Major themes have been identified and its principles are TH AERIAL PHOTOGRAPHY summarized below. VALLEYWIDEof Santa GENERAL Clarita. PLAN The plan contains all required planning issues. Entirely privately owned, land beyond planning. A specific plan is a special set of development MAY 2007 Surveying the land through aerial photography A COLLABORATIVE PROCESS BETWEEN allowed staff to comprehensively analyze the Valley’s features. Areas of existing development in Wawona is managed by the county. The South of Los Angeles on the Palos Verdes standards that apply to a particular geographic general plan elements.could Policies be easily identified inand order to keep programs with the ESSENTIAL GUIDING PRINCIPLES & residents’ goal of growth management by locating planning.lacounty.gov www.santa-clarita.com higher densities adjacent to existing and planned were developed by othertransit corridorsgroups and activity centers.involved In order to in plan is multi-jurisdictional in the sense that Peninsula, the Cities of Rancho Palos Verdes The San Gabriel Valley Council of Governments area. Under California law,Growth specific shall occur according to the objectives plans of each community create with higher http://www.santa-clarita.com/vgp/new preserve environmental resources and minimize densities adjacent to transit and activity centers 1 MANAGEMENT OF GROWTH the impact on the Valley’s topography, many of the
the long-range planningrural areasprocess, will retain low densities including while existing both the county and the Parks Service must and Rolling Hills Estates have an “extra- is a joint powers authority created by 31 Y a single, coordinated planning process for developed areas will serve as centers of activity. A common, diverse set of land use designations shall support the needs of each community’s current and 2 LAND USES future residents cities, three county supervisor districts, and development and infrastructure. The specific VISIONpublic OF THEagencies FUTURE and residents of the valley. The approve land use plans for the area. statutory” sales tax sharing agreement based Redevelop old commercial areas while encouraging the expansion of commercial and retail uses
3 VITAL ECONOMY to provide job opportunities for local residents The Santa Clarita Valley is a OUNT planningwonderful place area to live, work, also play, includes the unincorporatedSEAs on the sales tax generated by the Peninsula three water agencies. A JPA is the most formal plan is not part of the general plan. Legally, the and raise a family. The Valley is a Coordinate the expansion of infrastructure with new developments without impacting mosaic of unique villages with 4 INFRASTRUCTURE services provided to current demand Significant Ecological Areas (SEAs) are
growing ethnic diversity, each with Cities of Anaheim and Orange, CA Shopping Center in Rolling Hills Estates. The A C A communities of Stevenson Ranch, Castaic,important Val or sensitive land and water individual identities, surrounded by level of agreement and cooperation. California specific plan functions as a zoning ordinance. systems that are valuable as plant or animal Development shall be located & designed in a manner to protect & a greenbelt of forest lands and minimize impact on environmental resources & improve energy efficiency communites and are often important to the 5 ENVIRONMENTAL RESOURCES natural open spaces. These villages Verde, Agua Dolce, and the future Newhallpreservation of threatened orArchstone endangered Gateway Specific Plan City of Rancho Palos Verdes receives 8.2 are unified by the Valley Center Government Code Sections 6500–6536 enable species. Connectivity between significant activity core, a beautiful Ensure that a mix of housing types are developed to serve a diverse natural habitats play an important role in population within each neighborhood environmental setting that 6 RESIDENTIAL NEIGHBORHOODS maintaining biotic communities. SEAs are not percent of the revenues generated by the includesRanch. the skyline and Santa When Clara River, a vibrant completed, and it will be adopted the use of joint powers authority, with Section Government Code Sections 65450–65457 state preserves, but instead, are areas where it is
growing economy, and a rich history of common social VENTUR vital to facilitate a balance between new Maintain streets and highways according to common standards and develop a range of unified arterials values. The Valley’s network of roads, transit, and trails 7 MOBILITY by both jurisdictions, which will then retaindevelopment and resource conservation. The City of Anaheim and shopping center annually. 6503.5 reading, in part: that a local government may “prepare specific links these villages and provides access to a wide offering of quality education, cultural, recreation, and
Public services and facilities shall be expanded to support community social services and facilities. TH 8 SCHOOLS & PUBLIC SERVICES needs and population growth individual land-use power to implement the the City of Orange worked plans for the systematic implementation of the Life in the Santa Clarita Valley will continue to be exciting, enjoyable, and rewarding through a broad 9 RECREATION Establish a Valleywide trails network and develop new parks range ofplan housing types, in an increase addition in quality jobs in to their ownTOPOGRAPHY general plans. collaboratively to permit the Similarly, the City of Chico shares 5 percent of Whenever a joint powers agreement provides general plan for all of or part of the area covered close proximity to all neighborhoods, and transit-oriented villages complemented by excellent A significant amount of land in the Santa Clarita development of an 884-unit its sales tax revenues with Butte County, which for the creation of an agency or entity that is by the general plan.” Previously cited Section schools, attractive parks and other recreational region consists of areas of steep terrain. The amenities, expanded trail networks, and preserved connection of these areas creates a natural buffer Do you want to be a part of Santa Clarita Valley's future? natural resource areas. As the Valley moves forward, it is around the entire Valley. Beautiful ridgelines can crucial Lathat sound Grange, and sustainable planning CA principles been seen in apartment complex on a 21-acre site that was settled litigation over Chico annexations that separate from the parties to the agreement 65101 allows cooperating jurisdictions to jointly shape new villages and enhance 140000 all directions 120000 Follow OVOV's progress by visiting our web site: established neighborhoods.14 within the 100000 S
}þ E 80000 Implementing policies to·| increase R bisected by the jurisdictional boundary of the the county was against. http://www.santa-clarita.com/vgp/new Don Pedro Lake SpecificValley basin. Plan C 60000 mobility and accessibility, manage A and is responsible for the administration of the exercise the power to create specific plans or to 0 - 10% Slope 40000 traffic congestion, improve air quality, 10 - 15% Slope for updates on scheduled community meetings. 20000 15 - 25% Slope and conserve water and energy 0 25 - 50% Slope 50% + Slope cities. Approximately 12 acres of the site are We need your feedback! resources throughout the Valley is 0-10% 10-15% 15-25% 25-50% 50+% agreement, such agency or entity shall…cause delegate that power to a joint planning agency or SLOPE essential to maintain the overall high TH a notice of the agreement or amendment to commission. quality of life. A specific plan was devised located within Orange, which accommodates a City of San Leandro and Alameda County be prepared and filed with the office of the PHASE I PHASE II PHASE III in thePHASE late IV 1980s forPHASE Lake V PHASElittle VI over half of the proposed units. Joint Redevelopment Area Discovery 5 Policy Development & Vision¦§¨ & Guiding Principles Background Report Don LandPedro, Use Map Development a rural community& Plan Adoption Secretary of State. Specific plansOVOV are PROCESS used in many differentVisioning Process Environmental Impact Report contexts, and may be initiated by eitherCOMPLETE the local COMPLETE COMPLETE project straddlingIN PROGRESS the countyFUTURE AfterFUTURE several years of working jointly through The City of San Types of Cooperative Projects for Planning, government or the developer. Specific plans can line between Mariposa complexities surrounding infrastructure and Leandro and Alameda Implementation, and Finance be policy oriented, regulatory oriented, or both. and Tuolumne counties. The two counties service provision to the site, the City of Orange County maintain a A variety of projects can be coordinated and had an agreement regarding financing and adopted the Archstone Gateway Specific Plan joint redevelopment implemented among multiple jurisdictions to A multi-jurisdictional specific plan would address procedural responsibilities during the CEQA and the City of Anaheim approved a conditional area that was created by the Alameda County address subregional issues or improve lands and coordinate development type and intensity, and processing phase of the subdivision. The use permit for the area within their respective Board of Supervisors and San Leandro’s within two or more jurisdictions. design, infrastructure needs, and implementation Mariposa County 2006 General Plan maps out jurisdictions. Both jurisdictions maintain land redevelopment agency. An amendment to a and financing mechanisms across jurisdictional the vision for future planning efforts between use authority and provide their own services memorandum of understanding delegates Joint General Plans boundaries to maintain a certain level of the two counties for Lake Don Pedro through and utilities, but the exterior of the project redevelopment jurisdiction of County area The general plan is California’s version of the consistency throughout the designated area. a Town Plan, which applies different policy is intended to give the appearance that it is projects to the redevelopment agency. master or comprehensive plan. Required by approaches than those found in the county located in one city. Government Code Section 65300, it provides A specific plan for Arrow Highway, or for portions general plan. According to the city, the project area was the road map for future development for a city or of the corridor, could deal with a variety of created to “cooperatively address the problems county. joint planning and financial issues that arise if The plan does not provide guidance for future of blight existing in contiguous city and county development is shifted among jurisdictions. For administration of the specific plan but county areas.” Both entities retain separate control A joint general plan contains the same example, some cities might end up with more or staff foresees its implementation occurring over the planning and implementation of mandatory elements as a general plan, but less retail or housing, which can be redistributed separately by the two counties. projects within their respective incorporated is developed in collaboration between two or based on an overall strategy for the corridor.
Page 36 Sales Tax Sharing between the two entities. In Los Angeles County, Sales Tax Sharing Based on Clarification of an amendment to both redevelopment plans, and unincorporated areas. However, the two In California, because of the limitations placed cities collect the maximum 1 percent local sales “Place of Sale” which triggers additional legislative review and public authorities maintain an administrative by Proposition 13 on how much cities can tax rate. But not all cities are required to impose Uniform Local Sales and Use Tax Regulation documentation. A public hearing, preparation relationship for certain reporting and raise through property taxes, communities are the same amount. 1802 authorizes cities and counties to divide of a report that contains maps and descriptions notification requirements. There is also a particularly reliant upon sales tax revenues. the revenues from a retail establishment that of the blighted areas, the proposed method Joint Project Area Redevelopment Advisory Sales tax is typically distributed to jurisdictions Some cities make arrangements to pay for straddles jurisdictional boundaries, with sales of financing the program, and in some cases Committee that meets on a monthly basis to based on the location where retail transactions services provided by the respective county by being made in more than one jurisdiction. New changes to the general plan may be required for discuss projects and programs in the area. take places. Sales tax sharing allows local providing a percentage of the city’s local tax that retail along Arrow Highway can split revenues modifications to project area boundaries. Copies jurisdictions to distribute tax revenue differently the State Board of Equalization pays directly to based on the percentage of sales occurring at of the ordinance adoption, the amendment, and City of Covina and Los Angeles County to compensate jurisdictions that may feel the the county. A city may adopt an ordinance to each place. A separate sub-permit is issued for a description of the project areas must be sent to Coordinated Repayment of RDA Debt impact but not receive the benefit of retail impose a local tax rate of less than 1 percent, the same location in each jurisdiction. This is not all possible affected public bodies. activity. meaning the remainder of the 1 percent that considered revenue sharing, but is a clarification As the authorized would otherwise go to the city will default to the made by the Board of Equalization of “place of Specific plans are also often used to improve recipient of the This could be important in Arrow Highway if county. The county must also pass an ordinance sale.” the areas that may at the same time be subject tax increment retail activity is removed from the midblock confirming the agreement. to a redevelopment plan. Based on the previous pass-through, Los areas and concentrated at the nodes. Joint Redevelopment Project Areas specific plan discussion, the jurisdictions could Angeles County eliminated the time limit Jurisdictions along Arrow that lose revenues This arrangement could particularly benefit Los Redevelopment (RDA) project areas enable simultaneously prepare and adopt both a on the City of Covina’s 1983 Revitalization when commercial uses are relocated to nodes Angeles County if the unincorporated portions redevelopment agencies to receive and spend redevelopment plan and a specific plan, bringing Redevelopment Project No. 2. Eliminating in other jurisdictions could recoup that revenue along Arrow Highway continue to take on a larger property tax revenues from the adoption of a stakeholders together at the beginning of the the time limit will enable the Covina through such an agreement. There are four share of housing obligations, as defined by the redevelopment project in blighted areas. The new development process. Redevelopment Agency to issue debt to types of sales tax sharing: RHNA process. increment of property tax revenues resulting from finance continued redevelopment activities new investment in the area finances debt issued Coordinated Repayment of Redevelopment Debt including a housing development, near the 1. Sales tax rate sharing between cities and Sales Tax Revenue Sharing to pay for the project. Government Code Section 33333.6 establishes Covina Metrolink station, a loft and mixed counties, which is by far the most common Government Code Section 55700, et al, time limits for incurring and repaying use project, and the reconstruction and method authorizes two or more jurisdictions to share The concept of tax-increment financing (TIF) is indebtedness and for the duration of plan expansion of the Citrus Valley Health Partners sales tax revenues to offset impacts of residents to use the future growth in property tax revenues activities for redevelopment plans adopted Hospital. This type of collaboration can 2. Sales tax revenue sharing, which is of one community shopping in another. The generated within a redevelopment area to finance prior to January 1, 1994. An agency may not extend the useful life of a redevelopment area less common, but occurs under special jurisdictions involved may negotiate an the redevelopment program itself. Most often, establish indebtedness beyond the later of 20 that still stands to benefit from redevelopment circumstances agreement’s specific terms, but each legislative redevelopment agencies issue bonds against years from the adoption of the redevelopment activities. body must adopt the agreement by ordinance this property tax “increment” to pay for public plan or January 1, 2004. After this time, an 3. Sharing revenues based on sales taxes as an with a two-thirds majority vote. This type of investments inside the redevelopment area. Each agency no longer has the authority to pay City of Carlsbad “extra-statutory” provision, occurring when agreement could allow each jurisdiction to local government with property tax authority in indebtedness or receive tax increment revenues Infrastructure Financing District a jurisdiction extracts a portion of sales tax receive its current percentage of corridor sales the area—including the cities, county, school unless blight remains within the project area. revenues to pay for services tax revenue in the future, as mid-block retail is district, and any special district—share a pool of Following the opinion of the phased out and new retail is concentrated at key property tax revenue. Jurisdictions could also work together to repay Attorney General validating the 4. Sales tax sharing based on clarification of nodes. redevelopment debt by making agreements with use of IFDs, the City of Carlsbad “place of sale” Joint RDA Project Areas each other to divide the debt repayments. This formed a 200-acre IFD in 1999 Sharing Revenues Based on Sales Taxes California Health and Safety Code Section 33210 could be a way to divide debt proportionally, in to fund the public works for a new hotel Sales Tax Rate Sharing Jurisdictions can also agree to share general authorizes two or more agencies within different keeping with the benefit each jurisdiction reaps located adjacent to Legoland theme park. Cities and counties in California can share revenues (property taxes, fees, etc.) based on communities to conduct their redevelopment from the redevelopment area; or it could be a the sales tax rate. In almost 20 counties in the level of sales tax collections. One jurisdiction activities jointly. way to divide debt disproportionately, as a way of the state, cities collect less than 1 percent of receives some amount of revenues from the compensating jurisdictions for accepting RHNA the total sales tax rate, called the local sales other—based on either a formula or a set Additionally, the legislative body of one obligations or surrendering sales tax revenue. tax portion, with the remainder levied by amount. Revenue sharing generally takes place community may delegate the redevelopment the county governments. The pass-through through negotiations between the two legislative of an area with a shared boundary to the Infrastructure Financing Districts amount is the amount that goes to the county bodies, as there is no statutory authorization for neighboring jurisdiction, per Health and It may also be possible to create an and can be negotiated on a contractual basis sharing revenues based on sales tax collection. Safety Code Section 33213. This requires interjurisdictional TIF district without a blight
Page 37 finding. Government Code Section 53395 1221 would allow TIF within certain transit the confidence of planners and elected officials. Table 6: Comparison Matrix of Cooperative Planning Projects/Systems gives local governments the authority to create village development districts. It has passed the Moving forward with more formal and regulatory Cooperative Project/System Pros Cons Infrastructure Finance Districts (IFD). Within an assembly and is pending in the senate. These cooperation will require this confidence. Joint General Plan Maintains local control over land use Non-regulatory and non-binding IFD, local jurisdictions can pay for public works provisions might not apply to Arrow Highway decisions at a regional level. Similar to a TIF district, IFDs since it currently has no rail or bus rapid transit The jurisdictions could work together through the Joint Specific Plan approved by all Maintains local control; creates Non-regulatory and non-binding; can divert property tax revenues for 30 years to lines; however, they could be particularly useful task force to form a JPA after additional study jurisdictions single, coordinated planning process may require specific legislation finance a number of capital projects, including for improvement of storm drain channels or the on the corridor. A JPA could also be formed for development and infrastructure; City or County can charge highways, transit, water systems, sewer projects, right-of-way in the area. to implement and finance jointly approved developers for cost of preparing plan flood control, child care facilities, libraries, parks, improvements and a master planning document. Joint Specific Plan approved by a Regulatory entity that can resolve Requires substantial political will and solid waste facilities. Steps towards Cooperative Planning in the The Arrow Highway corridor merits the creation joint powers authority issues that transcend jurisdictional to create a JPA, staff a board, and Corridor and adoption of a joint master or specific plan boundaries develop regulations; requires Articles of Incorporation, establishment of However, unlike TIF, which is primarily used to comprehensively guide development of all bylaws, and Operating Agreement to finance projects in redevelopment areas, Through a series of interviews with the Arrow jurisdictions. The task force (or JPA) could Sales Tax Sharing Alleviates disparity among Sales tax revenue sharing requires properties in an IFD do not have to be blighted. Highway jurisdictions, the team learned of the generate a master plan for the entire corridor that jurisdictions associated with new majority voter approval; both sales For that reason, redevelopment areas and IFDs past and possible future joint planning efforts in sets forth land use and design policy. It could development; extra-statutory sales tax rate and extra-statutory sales tax tax sharing agreement does not sharing require substantial political cannot share boundaries. Similarly, schools the area. All jurisdictions are amenable to staffing recommend or adopt specific plans for key nodes require majority voter approval leadership. cannot divert their property tax increment to IFDs a steering committee or task force that would or districts in the corridor. The master plan and like they can for TIF. serve as an advisory body for the corridor. specific plan(s) could be crafted to ensure each Joint Redevelopment/Sharing Tax Both entities maintain separate Delegating redevelopment authority jurisdiction retains local land use authority. Increment Revenue control over planning and to another jurisdiction requires an implementation of projects; tax amendment to both redevelopment In order to form an IFD, the lead jurisdiction Planning representatives from each jurisdiction increment financing available plans; may require specific must develop an infrastructure plan, notify every currently attend and participate in a Planners The County is willing to provide the leadership for redevelopment activities; legislation property owner in the affected area with a written Technical Advisory Committee as part of the necessary to begin coordinated efforts along redevelopment plan could be developed simultaneously with notice, consult with the other local governments, San Gabriel Valley Council of Governments. the corridor. Political will was cited as the most specific plan and hold a public hearing. Every affected Rather than create another institutional system important factor in creating a joint planning Infrastructure Financing District Pays for infrastructure improvements Not commonly used; cumbersome jurisdiction that will contribute its property tax and set of meetings, the Arrow Highway system for Arrow Highway. The cities often look (IFD) without blight finding required by approval process; IFDs and TIF increment to the IFD must approve the plan. corridor jurisdictions could use the existing to the County for leadership and the County redevelopment law district cannot share boundaries Even then, the city or county must get the voters’ structure and meetings system of the SGVCOG has focused more recently on working with the approval to: Planners TAC to create an Arrow Highway Task cities to help them achieve their planning goals. Force. Planning staff from each jurisdiction Following this growing interest in city-county
Form the IFD as well as representatives from the public collaboration, both County Supervisors District
Issue bonds works departments could be augmented offices have expressed a desire to create a
Set the IFD appropriations limit by representatives from local transit and multi-jurisdictional advisory committee for Arrow infrastructure agencies to act as a technical Highway. Forming the IFD and issuing bonds to finance it advisory committee. require a two-thirds voter approval, while setting the IFD appropriations limit requires a majority The jurisdictions felt, however, that the task voter approval. For this reason, among others, force would have to ultimately evolve into a no jurisdictions created an IFD for almost 10 more binding institutional structure and/or a joint years following the passage of the IFD Act. The planning effort. To be effective, the jurisdictions reluctance on the part of local officials rested thought that a purely voluntary effort would not partially in questioning the constitutionality of be as effective or sustainable. At the same time, diverting property tax from a property that was the jurisdictions are leery of giving up their land not in a redevelopment area. use authority and control over their sales tax base. A bill pending in the legislature would create another situation under California law in which Starting the corridor planning process with a TIF can be used in the absence of blight. AB voluntary vision plan or master plan will build
Page 38 Conclusions and Next A large amount of vacant and underutilized land jurisdictions, as well as representatives from the Jurisdictions should also adopt or amend design within the corridor. At some of the smaller dots the corridor and could host new housing, County Supervisorial Districts. Other members guidelines and facade improvement programs nodes, new development should be limited to Steps commercial, open space, and mixed-use should include Foothill Transit, SCAG, SGVCOG, for businesses that remain. medium and high density residential projects. development. Finally, an untapped system of and the LACFCD. The County of Los Angeles open space and pedestrian/bicycle highways is appears to be best positioned to take the lead 6. Coordinate Capital Improvement Activities 9. Replace Failing Midblock Retail with Overview available in the form of the drainage channels. as a project champion. The task force may Every fiscal year, each jurisdiction spends Residential Uses ultimately decide to form a JPA. funds to maintain and improve infrastructure In the industrial and residential districts, Extending 8.5 miles from the City of San Dimas Through coordinated improvements, the Arrow systems. Coordinating these improvements, marginal retail and auto service uses should be to the I-605, the Arrow Highway corridor Highway corridor could be refined into three 2. Create a Corridor Master Plan both within and between each jurisdiction, with replaced with midblock residential projects. The is a collection of jurisdictional and land use distinct districts. These districts, listed below, After the task force has been assembled, the the goals and strategies of redeveloping the commercial uses that are retained should be fragments. Although home to approximately would help define the corridor and provide members should work towards the creation of corridor will help jurisdictions cost-effectively limited to neighborhood-serving stores and be 60,000 residents who live in six different a basic framework to guide redevelopment a master plan for the corridor. The master plan improve the backbone systems while also located primarily at intersections. jurisdictions, a wide range of residential and activities and new development projects. may consist of a comprehensive vision plan or enhancing development potential. For example, non-residential uses can be found in the a series of specific plans for key intersections or the enhanced median started by the City 10. Coordinate with Transit Agencies to Improve corridor: 1. An industrial district that reflects the nature districts. A more detail market study should also of Irwindale could be programmed into the Transit Operations and Connections of the Irwindale and northern Baldwin Park be conducted to provide a solid foundation for capital improvement plans of the remaining The task force and/or individual jurisdictions Single and multifamily homes any land use decisions. jurisdictions. should coordinate with Foothill Transit, Retail and entertainment uses 2. A retail district that capitalizes on the Metrolink, and Metro to increase headways on Auto service centers volume of traffic and activity that takes 3. Gain Control of Key Parcels 7. Explore Implementation Mechanisms to the 492 bus line, improve connection schedules Industrial parks place on the major north–south roads The jurisdictions should begin to purchase Reduce the Competition for Retail Development between bus and rail lines, and explore the Schools and parks vacant and underutilized land along the and Expand Housing Opportunities possibility of introducing a local BRT route Large flood control facilities 3. A residential district that recognizes the corridor, particularly at the key intersection of The current oversupply of retail businesses along Arrow Highway. The opportunity to create lower traffic volumes and residential Arrow Highway and Azusa Avenue. Cities with will continue to handicap the corridor and an attractive bus substation at the intersection Lacking any cohesive design, character, or character of the City of Glendora and the redevelopment powers should begin to acquire prevent economic growth opportunities for all of Arrow Highway and Grand Avenue should purpose, the corridor functions primarily as a community of Charter Oak land in existing project areas along the corridor. jurisdictions. While one or two jurisdictions also be considered. Smaller bus stops along major east–west thoroughfare for automobiles Additionally, significant improvements of uses may reap the lion’s share of sales tax revenue, the corridor should be enhanced to project a and trucks. A large amount of auto service uses Additionally, a number of land use, circulation, that conflict with the focus envisioned for each all jurisdictions will continue to struggle with positive image for the corridor. seems to indicate that the corridor may serve as and design strategies could provide catalytic of the three districts identified in this report housing the coming growth. The task force a regional center for auto-related uses; however, improvements to the corridor that stimulate should be discouraged. should explore implementation mechanisms, Long Term (7–10 years) the existing businesses are not thriving and broader change. To comprehensively and such as those explored in this report, to protect 11. Coordinate with the LACFCD to Improve face competition from a regional center in West sustainably improve the corridor, however, the 4. Expand Redevelopment Project Areas and improve the tax base of each jurisdiction Flood Control Facilities as Trails and Open Covina. jurisdictions will need to collectively leverage The City of Baldwin Park should designate while reducing retail and expanding housing Space Amenities their political, regulatory, financial, and physical the southern portion of Arrow Highway as a opportunities. The task force and/or individual jurisdictions The corridor also suffers from an oversupply of resources. The following short-, middle-, new redevelopment project area. Significant should coordinate with the LACFCD to general retail development and a collection of and long-term steps should be considered to blight, both physical and economic, can be Mid Term (3–7 years) implement improvements envisioned by the marginal parcels created by a system of storm jumpstart and perpetuate change in the corridor. found throughout the parcels that sit along 8. Introduce New Development at Key Nodes corridor master planning document that turn drainage channels. Together, these issues the corridor. Other jurisdictions may consider Consistent with a master planning document, the storm drainage channels and retention have prevented the corridor from evolving in a Next Steps expanding existing redevelopment project areas, jurisdictions should introduce or redevelop large basins into trails and open space amenities. Any focused manner, retarding potential economic although it would be considerably more difficult. retail or mixed-use projects at the corridor’s improvements should also be coordinated with growth and prosperity. Short Term (0–3 years) key nodes. New development at the nodes the San Gabriel and Lower Los Angeles Rivers 1. Create an Arrow Highway Task Force 5. Encourage Retail and Auto Consolidation will stimulate further improvement along and Mountains Conservancy. However, the corridor benefits from a high A task force should be created either within the Marginal retail and auto uses should be the midblock locations and throughout the level of mass transit activity, both along and SGVCOG or as a separate entity to continue identified and encouraged to consolidate and remainder of the corridor. 12. Underground Overhead Utility Lines connected to Arrow Highway. A number of study on the corridor and begin to create a relocate into the retail district of the corridor. An underground utility district (or other financial Foothill Transit bus lines stop at or connect multi-jurisdictional planning effort. The task When consolidated, the number of curb cuts New development should not be limited to those mechanism) should be created to plan and through the corridor to reach nearby rail stations force should include staff from both planning should be reduced and site plans should be parcels fronting Arrow Highway and should finance undergrounding of overhead utility lines or transit centers. and public works departments from the required to include designs for shared access. also be placed along the north–south roadways along the corridor.
Page 39 Endnotes of its residents’ spending at community-scale centers, while the remainder of this spending 1. 2008 SCAG Regional Transportation Plan flows outside of the corridor. Growth Forecast. Similarly, regional-scale centers with an 8- mile-radius (16-mile diameter) trade area 2. Residential acreage calculated assuming were assumed to receive the other 50 percent 10–20 dwelling units per acre. of spending on comparison goods and that corridor would capture 6.25 percent or 1/16 3. Employment acreage calculated assuming an of its residents’ spending at regional retail average of 500 square feet per employee and a centers. Taken together, these adjustments floor area ratio of 0.50. equate to an expectation that the corridor should capture about 11.5 percent of its residents’ total 4. San Gabriel Valley Council of Governments, comparison-goods spending. http://sgvcog.org/index.cfm/83351/Critical- Issues.cfm (visited on 6/10/08). 10. The estimated amount of retail building space was reduced to account for the amount 5. Corridors is a broad category representing of retail building space that would be supported a wide range of natural and human-made by spending from outside of the corridor. The passages. Corridors can be created by or corridor contains seven community-scale retail designed for the biological world, such as a centers between 100,000 and 150,000 (none wildlife corridor, or used by and designed for larger). For these centers, the mile-wide corridor people, such as a primary arterial roadway. This occupies about 26 percent of the entire 3-mile- project evaluates ways to improve the latter. radius trade area.
6. Discussions with the SGVCOG took place Spending from corridor residents was assumed with the Planners Technical Advisory Committee to support about 26 percent of the building (TAC), which consists of representatives from all space and spending from outside of the corridor of the SGVCOG member cities and Los Angeles supports the remaining 74 percent of the County. See the Outreach and Workshop section building space. In calculating whether or not for additional discussion. there is excess retail, only 26 percent of the building space of the community-scale centers 7. Claritas is a national market analysis firm was counted. The total inventory of retail that provides annual demographic data updates building space is 2,736,929 square feet. Of using data obtained through federal government that, 690,293 square feet is in community-scale agencies, local government agencies and non- centers. Removing 74 percent of this space governmental sources such as Equifax, Valassis, (505,446 square feet) leaves an estimated ADVO, and the National Association of Realtors. inventory of 2,231,483 square feet of retail building space serving corridor residents. 8. San Gabriel Valley Council of Governments, http://sgvcog.org/index.cfm/83351/Critical- 11. Paul Shigley, “Voluntary Effort Sets High Issues.cfm (visited on 6/10/08). Goals For Bay Area’s El Camino Real,” California Planning & Development Report (June 2008): 9. Assuming community-scale centers with a 3- 6–7. mile-radius (6-mile diameter) trade area receive 50 percent of the spending for comparison goods, the 1-mile wide corridor would be expected to capture about 16 percent or 1/6
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