HomeMy WebLinkAboutR13-Redevelopment Agency
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DEVELOPMBlIr DEPARrMBlIr
OF TIlE CIn OF SAl'I BERItARDIBO
REOUEST FOR COII'IISSIOIl/COUllCIL ACTIOIl
From:
KENNETH J. HENDERSON
Executive Director
Subject: ADOPrION OF TIlE DOWNTOWN
UHllAl'I PLAl'I
Date:
June 26, 1992
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SvnoDsis of Previous CommissionlCounci1/Committee Action(s):
On December 2, 1991 the Community Development Commission authorized
the establishment of a Downtown Planning Task Force and an agreement
with Project for Public Spaces, Inc., to draft an urban plan for the
downtown under the direction of the Downtown Planning Task Force.
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Recommended Motion(s):
(Communitv DeveloDlllent Commission)
MOTION:
That the Community Development Commission approve and
adopt the Downtown Urban Plan as presented by Project for
Public Spaces (PPS) and Agency Staff.
A~rator
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Executive Direct r
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Contact person(s):
Ken Benderson/Maria Echeveste
Phone:
5081
Project Area(s):
Central Citv (CC)/Central Citv North (CCN) Ward(s): One(l)
Supporting Data Attached:
Staff ReDort. Downtown Plan
FUNDING REQUIREMENTS:
NIA
Amount:
Source:
NIA
Budget Authority:
NIA
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Commission/Council 1I0tes:
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KJH:MTE:mkc:0065f
COII'IISSION MEETING AGENDA
Meeting Date: 7/6/1992
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Agenda Item lI1aber:
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DEVELOPMEIlT DEPAln'MENT STAFF REPORT
Adoption of Downtown Urban Plan
J1Dle 24, 1992
Page Bumber -2-
Street-Street Scape, Farmers' Market, TGIF Concerts, and various
redevelopment projects are underway (i.e. Empire Bay, California Inn,
and the Triple "A" office building). However, the previously
referenced surveys and Town Hall meetings indicate that downtown
suffers from a negative image and is perceived to be unsafe and
uninteresting. Certain downtown tenants are leaving the downtown for
the Tri-City business area and other neighboring cities due to lack of
business and social activity. The adoption and implementation of the
Downtown Plan is an important and necessary step to continue the
revitalization of downtown.
THE DOWNTOWN PLAN
The Downtown Plan sets a course with a unique and practical strategy.
This approach relies on the City's local resources: people, physical
and economic to enhance and build upon the creation of a truly active
and interesting downtown center.
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Downtown is a mix of land-uses which can be divided into a series of
distinct districts: In-town Suburban Commercial, In-town Residential,
Industrial/Warehouse, Institutional/Office, and the Downtown Core.
Each district has its own problems; however, the central "core" area
and its problems and areas for enhancment must be given high priority.
The plan focuses on the problems and opportunities of the downtown
core. The activity and development of the core will subsequently
spread into the other downtown areas.
Project for Public Spaces addresses the issues of new development,
pedestrian environment, transportation and downtown management as major
components for the effective development of a downtown core. The
Consultant Team also presents far-reaching ideas which are selected
projects that can be developed for the downtown. The plan proposes
short and long-term recommendations to address these issues with the
objective of creating a functional and symbolic center.
MANAGEMENT OVERVIEW
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The planning and development processes for the Downtown Urban Plan have
been carried out by the Downtown Task Force and its Administrative
Team. Because of the success of these two entities in working
cooperatively and expeditiously, PPS has recommended that these two
entities remain in place, in some form, to oversee the implementation
of the short and long-term goals and objectives set forth in the Plan.
By establishing implementation teams for specific programs, projects
and activities, with the continued technical assistance from PPS a
possibility, the momentum already established by the Task Force and
Administrative Team can be further built upon and specifically
channeled toward effective implementation of the proposed plan.
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KJH:MTE:mkc:0065f
COfMISSIOIl MEETING AGENDA
Meeting Date: 7/6/1992 ~
Agenda Item lIumber: ~
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DEVELOPIIENT DEPnn.u.", STAFF REPORT
Adoption of Downtown Urban Plan
June 24, 1992
I' Page !lumber -3-
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SUMMARY
The Downtown Plan will be a guide for the City and its citizens to
cooperatively work together at enhancing the downtown.
The Downtown Urban Plan will only be effective if the citizens,
businesses and the City work jointly on implementing tools to bring new
life, activity and investment opportunities to the downtown. The
downtown plan was developed by the ideas, comments and concerns of the
citizens of San Bernardino. An Action Plan and implementation of
Short-Term Projects are the first steps to bring new life and synergy
to the downtown.
RECOMMENDATION
Staff recommends adoption of the form motion.
~ERSOII" hecutive Director
Development Department
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KJH:MTE:mkc:0065f
COMMISSIOII' MEETIII'G AGENDA
Meeting Date: 7/6/1992
Agenda Its ll'umber: --L.2.-
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San Bernardino
Downtown Plan
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PPS PRQJECf
FOR PUBLIC
SPACES, INC
IS3 WAVERLY PLACE
NEW \'ORK. NEW YORK IlrJl.'
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SAN BERNARDINO DOWNTOWN PLAN
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Prepared fur:
The City of San Bernardino
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Prepared by:
Project for Public Spaces, Inc.
153 Waverly Place
New York, NY 10014
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June, 1992
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CREDITS
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IG!MBIlRS OF 11IE MAlCR'S IlOWHTOWH TASK RlIlCIl
Mayor W.R. 'Bob' HoIc:omb
CouncIlwoman Eather &lrada
Councilwoman Horine Miller
Councilman Jack Reilly
Dr. C8Jy Lowe
Mr. BmobJohnson
Mr. !any Sharp
Mr. Allen Grsham
MI. Deborah Mandabach
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- OF QTY AIlMINJS1'RADVE 11lAM
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ICenneth Hendenon, ElrecudW! DiRctor. ile1Idopment Deponmen~ Economlc: ile1Idopment ~
AI Bou.hey. DiRctor of P1annina .ncIl1ui1c1ina Services
Ann 1IlItris, ElrecutiW! DiteCto< of Main _~ Inc.
Gene IOlIII, AssWant City Enain_
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PROIECI'RlR PUIIUC SPACES, INe. 11lAM
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Stephen Davies, Project Director
Fred Kent
Steve Gibson
Jun Sochi
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0I1II!R KEY STAFF
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Timothy e. Steinhllus. Administntor. Economic ile1Idopment AaenCY
Stlllford PlItker, Deputy Diteetor. IleW!Jopment Deponmen~ IDA
Doris Daniels, Senior Planner. Development Deponmen~ IDA
John HOOI.... Project ManlI..... Development Deponmen~ EDA
Maria Ech......te. IleW!Iopment Specialist, Development Deponmen~ IDA
Denise Moonier. AssWant PI8nner. Deponment of PI8nnina . BulIdiI1l Services
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TABLE OF CONTENTS
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ABOtrrnns PlAN ................................ i
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INTRODUC110N .................................. 1
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Goals for the Downtown Plan
Study Methodology
DOWNTOWN DISTRICTS: AN OVERVIEW . . . . . . . . . . . . . . .. 5
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DEVELOPING A DOWNTOWN CORE . . . . . . . . . . . . . . . . . .. 13
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New Development: Office, Retail. &: Residential. . . . . .. 13
Attracting New Development
Designing New Development
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Pedestrian Environment &: Transportation . . . . . . . . . .. 21
Traffic, Transit, and Pedestrian Use
Public Spaces
Parking
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Downtown Managentent ....................... 33
Events and Activities
Maintenance and Security
Retail Support
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A DOWNTOWN VISION: SELECTED PROJECTS ........... 39
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APPENDIX
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SUJIUJUUy of Public Comments
San Bernardino Town Hall Meeting
February 13, 1992
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ABOUT THIS PLAN
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This plan is designed to provide policy guidance responsive to
changing demands facing downtown San Bernardino and is intended
to identify steps that will lead to a quality urban character for the
downtown core. The plan is flexible and is a policy rather than a
regulatory plan. Nevertheless, it contains strategies for development
and transportation issues as well as specific management programs for
implementation in developing the downtown core. It presents both
graphic and written descriptions for the development of selected sites.
While the plan can be adopted simply by resolution of the Mayor and
Common Council, it nevertheless provides a framework for future
policy makers thereby facilitating a coordinated approach to the
continuing development of the downtown core.
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INTRODUCTION
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Downtown San Bernardino is at a turning point. There is new
interest in construction of both public and private developments in the
downtown. Efforts by the Economic Development Agency of the City
of San Bernardino and Main Street, Inc., to improve the appearance
of downtown streetscape and building facades, as well as to program
activities have begun to have a visible impact. The San Bernardino
region is one of the most rapidly growing areas in the country.
Despite these positive trends, downtown still suffers from an acutely
negative image. Perceived by many as unsafe -- or at the very least
uninteresting -- downtown falls short of being an active, important
community center. In fact it is possible to drive through downtown
and not even be aware that it is even there: there are few pedestrians
on the street, few shops, and virtually no reason for drivers to slow
down.
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If there is one overwhelming conclusion of this study, it is that there
are the resources, interest, and commitment of a broad range of the
community to see something happen in the downtown. The results
of outreach efforts, a public forum, and discussions with public and
private sector leaders and city staff all show a strong desire to work
together to rebuild the downtown and to bring new life to its public
spaces.
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In the 1990's, new approaches will be needed to assure the
revitalization of downtowns. With a weaker economy and less
development activity, cities can no longer look solely to outside
developers, chain retailers, and major privately funded capital projects
to promote downtown renewal. Cities must now increasingly rely on
their own local resources -- human, physical, and economic -- which
can be enhanced and built upon to create truly strong downtown
centers.
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This report outlines just such an approach for Downtown San
Bernardino. It is important to emphasize that, while the plan
addresses longer tenn development opportunities for the downtown,
they must be seen in the context of short-term improvements that will
bring new life and vitality to the downtown in the interim. People
want to see change in the downtown and they want to see it soon __
not in several years. The project underway to create a community
square at the comer of Court and E Streets is a beginning to seed new
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activity and vitality into the downtown. Retail, restaurants,
entertainment, and other uses follow people: we need to "grow" a
downtown from the grass roots, from real activities that become
established in the downtown. Development will follow and enhance
these activities, and will be the stronger for it.
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As such, the management of downtown is a critical component to the
success of a long term downtown plan. Events, security, maintenance
and community activities must be carefully promoted and coordinated.
The great cultural diversity within the city should be tapped and
celebrated. Moreover, the myriad of restrictions that control
downtown businesses need to be modified to encourage entrepreneurs
to make investtnents and improvements in the downtown.
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Just as the Gruen Plan of 1975 has served as a blueprint for
downtown, this new plan should now guide the next decade of
improvement. However, the two approaches could not be more
different. This plan looks holistically at the economic and social
factors of downtown, rather than regarding it just as a site for major
new development. It seeks to build on and enhance the traditional
aspects of downtown, not create superblock buildings that relate little
to the needs of pedestrians walking on the street. It looks to seed
activity from within, as well as attract major development that is
sensitively scaled, and seeks to knit together a series of public spaces,
retail, and entertainment facilities that create exciting new places for
people to stroll, shop, and enjoy.
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This plan cannot be frozen in time. It presents a vision for what is
possible given what is known today. But it should evolve and change.
As the community rediscovers downtown, new opportunities will
arise. The process initiated during this study -- the cooperation
between the public and private leadership in the city and between city
staff -- should continue to respond to new challenges and
opportunities within the basic Structure of the plan.
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While initial planning efforts focused broadly on the entire downtown
area, this plan addresses the "core" area downtown __ its heart.
Downtown is indeed a series of separate districts, each with their own
problems and opportunities, and more could be done to address these
concerns in the future. Yet if it is to prosper, the center of downtown
must be stronger and more vital.
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GOALS FOR nm DOWNTOWN PLAN
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The following goals were adopted for the downtown plan and guided
the entire planning process:
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To establish downtown in general as a
center of activity which features sites for
a variety of possible new development,
including office, retail, entertainment,
cultural, hotel, and residential uses.
To focus new development in such a way
that it reinforces various downtown
districts and, in particular, achieves a
strong sense of a "center" in the
downtown core.
To create highly usable and active public
spaces which serve as amenities and
attractions for the public.
To develop a compatible design of new
downtown buildings which reinforces a
pedestrian orientation and invigorates the
street level environment.
To develop an overall network of street
uses which improves the balance between
pedestrians and vehicles on streets within
the downtown.
S1UDY METHODOLOGY
A basic premise of this study was that, to be useful, it needed to seek
the involvement and solicit ideas from the San Bernardino community.
To achieve this goal, outreach through local media programs was
undertaken in preparation for a public meeting, held at the San
Bernardino General Ubrary. Ideas developed at the meeting are
included in an appendix.
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In addition to public outreach efforts, surveys of downtown retail
businesses, downtown employees, and shoppers at Carousel Mall were
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conducted. A total of 1,024 employee surveys was received (out of
a total of 3,000 distributed). Two-thirds of all respondents were
public sector employees, and 55% were female. Because of the size
of this sample, its results are used extensively in the report.
Supplementing this work, PPS conducted extensive interviews of
public and private sector leaders, studied traffic and pedestrian flow
using time-lapse filming, and reviewed previous downtown planning
studies (Gruen Plan, American Cities Study, etc.).
This study was guided by an administrative team representing city
agencies responsible for downtown. In addition, a blue ribbon task
force was appointed by the Mayor to review study findings and make
recommendations to the City Council about future directions for the
downtown, based on this study.
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IMPLEMENTAnON OF TIm PLAN
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It is recommended that the cooperation and coordination that has
been achieved during the planning process should continue in the
implementation of this plan. As such, both the Task Force and
Administrative Team which have guided the work to date should
continue their work in the implementation stage as well. As their first
task after adoption of this plan by the Common Council, the
Administrative Team should develop an action plan which will identify
the specific roles and responsibilities of agencies and organizations to
implement the recommendations of this report. This action plan
should be presented to the Task Force and Common Council for
approval. It is anticipated that both the Task Force and the
Administrative Team will continue to be needed in some form to
assure the ability to make timely, informed, and responsive policy
decisions during implementation and to serve as a forum to coordinate
various downtown programs and projects outlined in the plan.
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DOWNTOWN DISTRICTS:
AN OVERVIEW
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Downtown San Bernardino, a mix of land-uses developed over the
past 100 years, has evolved into a series of distinct disnicts. Each
disnict has its own particular problems in terms of vehicle and
pedestrian circulation, attracting new development, and design
improvements to buildings and public spaces. In the future, city
policies, programs, and incentives for development need to address
each different disnict in a more specific manner. In particular, if
downtown is to address its many problems, a central .core" area must
be strengthened and given a higher priority for action both in short
and long term policies and programs.
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Figure 1 shows the location of each disnict, each of which is
described below. Figure 2 shows a building and land use plan,
designating different major categories of use.
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IN-TOWN SUBURBAN COMMERCIAL
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Carousel Mall, with the adjacent snip retail centers, is the site of the
bulk of commercial activity which takes place in downtown. This area
-- the site of San Bernardino's original "Main Street" - was
redeveloped beginning in the 1960's following suburban parking and
retail building standards. Most of the buildings in this area are less
than three stories, and have large parking lots located between the
city streets and the mall, snip centers, and freestanding retail
buildings.
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The In-town Suburban Commercial disnict has virtually no public
space, except for the quasi-public Carousel Mall interior; pedesnian
access and circulation both on sidewalks and through the sea of
parking lots is difficult and unpleasant. This area is dominated by
cars and traffic, a situation only likely to increase as 5th Street
becomes a major traffic arterial connecting downtown to the
interstate.
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Recognizing these deficiencies, the city adopted a new development
code to rethink the type of development the city would like to see in
the future. The code incorporates design guidelines which encourage
improved pedesnian connections and bener relationships between
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aTY OF !Wi IERNAIlDINO- DOWN'roWN UIlIIAN PlAN
nouu 1 PPS PROJECT
FOR PUBLIC
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In WAVERLY 'lACE
NEW YOlK, NY 10014
lAND USE DlS11lJcrs
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CllY OF SAN BERNARDlNO- 1l0WNTOWN URBAN PLAN
lAND USE PLA!I/
FIGURE 2
PPS PROJECT
FOR PUBLIC
SPACES. INC
IB W-\HRl" PL~(E
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c:::::J RESIDENTIAL c::::J VACANT LOT
~ COMMERCIAL (OFFICES) - VACANT BUILDING
- REf AIL ~ PARKING LOTI FACILllY
c:::J INSTITUTIONAL & GOVERNMENT ~ HOTEIJ MOTEL
- OPEN SPACE f4::iI INIlUSTRIAL WAREIIOUSE
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adjacent buildings. Unfortunately, the code cannot address the
shortcomings of existing developments. In the future, therefore, the
city and property owners should focus on retrofitting the intown
suburban commercial disnict to improve pedestrian connections and
spaces. Moreover, the pedestrian connections and design of buildings
along E Street in downtown should become more
urban, with street-facing retail and parking lots located behind
buildings facing the street.
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IN-TOWN RESIDENTIAL
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A declining residential area built in the early parts of this century as
single-family bungalows and some multi-family units on individual
lots, this disnict is the site of a major development project to improve
security and reclaim the area for home ownership. As in this
proposed development, it is important to maintain the traditional
character of the neighborhood with street-facing entrances and front
porches, rather than locating garages and other barriers to create a
residential fortress.
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This neighborhood, with its proximity to Carousel Mall and the
downtown, offers great potential as a place to live. Beyond creating
owner-occupied housing, however, the city will continue to be faced
with issues such as reducing traffic on residential streets (the streets
are very wide), improving playgrounds and creating other residential
amenities, and establishing on-going security efforts to reduce crime
and increase both perceived and actual safety.
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INDUSTRlAl"IWAREHOUSE AREA
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An area with much open land as well as various separate industrial
and warehouse buildings on individual sites, this district offers vast
amounts of land for potential development. The Central City South
Guidelines and the Central City South Overlay in the Development
Code describe future developments in this area. Development of this
area, however, should be seen in context with the revitalization of the
downtown core so that new uses complement, not compete with that
goal.
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IN5l1nmONAVOFFICE DISTRICT
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This district is the site of the principal core of office and public uses
in downtown, including banks, state agencies, the County Courthouse,
City Hall, the Sun newspaper, as well as private office buildings.
Most of these uses are located in small to medium size office buildings
each with their own on-site parking lots.
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This area, while not as hostile to the pedestrian as the Intown
Suburban Commercial district, could do more to make it a more
pleasant place to walk. Street life is minimal because of the gaps
between stand-alone buildings which are poorly designed at the street
level. Since there is virtually no retail area left in this district, office
workers must venture to the downtown core or the Carousel Mall (or
outside downtown altogether) at lunchtime. This walking experience
is therefore important to the entire revitalization of downtown.
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There are two major public spaces in this district. A park located in
front of the new county administrative building is attractively
designed, but little used, in part because activities which could attract
people (such as food service) are not located adjacent to it. The City
Hall plaza, an austere and fonnal space, is virtually unusable except
as a place to walk through.
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In looking to the future of this district, the city should work with
property owners to address the problems of the area. This work
should detennine opportunities for retrofitting of existing buildings,
infilling the "gaps between the buildings, establishing common parking
garages, retail amenities, and making public spaces more usable and
active.
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DOWNTOWN CORE
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The Downtown Core, the traditional commercial center of downtown,
offers the most immediate and long-term potential for development as
a active and vital community center. Its lower-scale buildings, street
facing retail, central location in tenns of transportation and access all
are important assets. In addition, this area includes important public
facilities, such as City Hall, the Public Ubrary, and convention center,
and it abuts Carousel Mall. This district includes large amounts of
vacant or underutilized land, much of it under public ownership, that
is available for new development.
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This report focuses on the problems and opportunities of the
downtown core district: how to make it more lively and active and
increase potential for new development.
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DEVEWPING A DOWNTOWN CORE
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As noted above, the downtown core includes the heart of the
traditional retail center of San Bernardino, many public uses, major
traffic thoroughfares -- in short, all of the ingredients necessary to
create a successful downtown. Clearly, however, there is much work
to do -- to create a critical mass of uses and activities -- and this
section outlines the principal problems of the core district with regard
to:
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Attraction and design of new development, including
retail, office, and residential uses.
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Enhancement of the pedestrian environment and
reduction of traffic impacts, including improving public
spaces and parking access.
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Management of downtown, including short-term
programs and projects to increase public use as well as
maintenance, security, and support for retailers.
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Each of these topics is described in more detail below.
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NEW DEVELOPMENT: OFFICE, RETAn.., AND RESIDEN'IlAL
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Issues related to new development fall into two essential categories:
the need to attract additional private commercial development and the
overall design and integration of development to enhance pedestrian
activity in downtown.
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A1tracting New Development
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F;nil;l1gs. New development in downtown San Bernardino over the
past 30 years has mainly consisted of the building of public or
government facilities (city hall, county courthouse, public library, etc.)
or government-sponsored retail redevelopment projects, such as
Carousel Mall. While there has been some development of smaIl
private office buildings, these projects are greatly outnumbered by the
public projects. Each of these development types is described in more
detail below.
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Public Buildimzs. Today, several public sector projects have been
recently proposed, showing that downtown is maintaining its strength
as a government center. These projects include potential new state
and federal office buildings. Plans for a performing arts center,
designed 20 years ago as part of the City Hall complex, have been
recently reactivated, and funds are being sought for construction.
Private Office Buildinl!S. In contrast to public projects, there has been
no new private office development of any size in the past 15 years.
Within this time, approximately one million square feet of new office
space has been constructed in the city as part of the Tri-City
Corporate Centre. This suburban site is well-designed and offers an
attractive alternative to the downtown.
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Recently, there has been a significant private proposal for office space
by Rancon Financial Corporation, developers of Tri-City. The Rancon
project is a proposed mixed-use office and retail (with possible future
hotel and/or residential) located on city-owned land -- the entire
block bounded by E, D, 4th and 5th Streets. PPS prepared the master
plan for the block in late 1991, which consists of two new streets to
divide the very large block into four quadrants. The first quadrant
proposed for development is the comer of 4th and E: a 180,000 sq.
ft. office tower, street level retail, plaza, and parking garage (also
with street level retail).
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In recruiting tenants for Cornerstone Tower, however, resistance from
existing firms already located downtown has occurred, despite their
need for new and additional space at the lease rate being proposed.
These firms would prefer to locate to the suburban Tri-City project
because of negative perceptions about security, parking, and the
general downtown environment. PPS's employee surveys expressed
the apathetic and often negative perceptions of downtown employees.
Downtown employees perceptions show ratings of "fair" or "poor" on
most issues, especially with regard to safety, appearance and parking.
Such perceptions must be adcIressed immediately
-- by implementing downtown improvements and establishing
incentives for new development -- if the downtown is to maintain
existing private tenants, much less attract new ones.
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Retail. Downtown retail, like private office, has been stagnant. The
construction of Carousel Mall essentially replaced the old downtown,
with the result that there is virtually no sense of a "Main Street" or
critical mass of activity outside of the mall. Carousel Mall by its sheer
size and proximity continues to siphon off potential retail uses for the
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downtown' outside of the mall. In fact, there are fewer than 50
businesses outside the mall in the greater downtown area.
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Surveys of downtown employees revealed many issues important to
retail development in downtown. Employees mainly use downtown
businesses, including those at Carousel Mall, for doing errands. This
situation is due in part, to short lunch hours (only 37% have an hour,
and 21 % have half an hour or less). As a result, 44% say they usually
eat in their offices and only 27% say they "usually" go to a take-out
food place in downtown or Carousel Mall.
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Overall rating of the quality, cost and variety of goods sold downtown
was only "fair". Carousel Mall is used to buy clothing and gifts--more
so by women than men--and most other shopping is done outside of
the city. About 47% said they used Carousel Mall once a month or
less.
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For eating out and going to a movie, Hospitality Lane was shown to
be a popular destination. Downtown was rated fair (46%) to poor
(33%) on the number of eating places and poor (44%) on the
number of evening activities (and 33% replied "don't know").
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From the perspective of business owners, 10 out of 53 respondents
said they would move out of downtown if they had the chance.
While most relied heavily on downtown employees, residents of San
Bernardino were still considered to be the majority of their customers
by most. All of these findings show the great challenge ahead to
rebuild downtown retailing.
These findings show that there is untapped retail potential in the
downtown in tenns of the needs of downtown employees. Changing
policies such as the length of lunch hours, promoting lunchtime
activities, and encouraging new retail and food outlets are among the
opportunities that are clearly desirable.
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Residential Develooment. The only residential uses constructed in
downtown in recent years has been for senior citizens. Because of the
existing perceptions of the downtown, it is not surprising that there
has been little demand for other residential development within the
core area. As downtown improves, a market can be created, but this
is a longer tenn prospect. However, within the existing in-town
residential district, there is currently a development proposal to
revitalize that area - a fact which will contribute to the overall
desirability of living downtown.
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Currently, Larcon Development is proposing a unique project called
California Inn, a single room residential complex for low and
moderate income working adults. Meeting a need in the community
for affordable housing, the project is proposed for the comer of 5th
and E Streets, adjacent to the public library and a senior citizen
housing project. This project, with its commitment to
effective management of its facility, should help to test further
feasibility for additional residential development downtown.
Rectunm""t1..1ions. For downtown to prosper, it must maximize its
potential in terms of specific market "niches" where it has a real
chance to attract potential tenants and users. Although a systematic
market study of downtown was not conducted as part of this plan, it
is clear that the development potential of downtown lies initially in
a number of areas:
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As a central focal point for government offices (city,
state, and federal), continuing to build on the extensive
government office presence already in the downtown.
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Private office development for tenants, such as law
firms and financial institutions, who utilize the above
facilities. However, such private office development in
today's economic climate will be difficult without
significant city subsidy.
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Arts and entertainment uses, including both public
projects (a perfonning arts center) as well as all types
of private retailing opportunities, including restaurants,
nightclubs, movie theaters, specialty retailing, antique
and craft stores, etc. -- uses which would not compete
directly with Carousel Mall but would build on the
lunchtime and after-work audience of downtown
employees. These uses could take place in both existing
and new small scale infill buildings.
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Housing for singles and professional adults without
children, at least in the core area. Given the
commuting nature of San Bernardino employees, there
may be a specific market for professionals who would
live elsewhere on weekends. The market for this use
will depend on successfulness in transfonning the
perception of downtown as a desirable place to be.
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Since these new development projects cannot be estab1ished
overnight, it is important to build upon existing activities which draw
the broader community downtown. Currently, these activities are
limited to Main Street events, the Public Library, and the California
Theater -- insufficient by themselves to re-establish downtown as an
important focal point for the community. Similarly, there are
insufficient attractions that could attract the students of the two
colleges in San Bernardino (California State University San Bernardino
and San Bernardino Valley College). However, this plan addresses
short term programs which will help seed interest and demand for
more pennanent retail development.
The City of San Bernardino, as Figure 3 shows, is the principle owner
of vacant land in the downtown. Because the city owns large parcels
ofland in the downtown, it is in a unique position to leverage private
sector development, which at this point cannot work without such
support. In addition, with proposed projects such as the Perfomrlng
Arts Center, the city can help to program new uses into now
underused areas making them more attractive for related private
development.
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It is clear that the city will have to continue to playa pivotal role in
encouraging new private development, especially in today's depressed
market where financing is extremely difficult. Already, the city
controls much land and is willing to consider construction of needed
infrastructure, such as parking garages. However, more may be
necessary. The city must demonstrate progress with short term
projects that attract people downtown (described below). This should
include efforts to lengthen lunch hours and promote lunchtime
activities -- to get people out of their offices and into public spaces
and retail establishments. Beyond that, if the city wishes to
encourage private development, assistance with financing of the
construction may also be necessary. This makes it all the more
important to make sure that funds are spent wisely and that new
development truly does have a positive impact on downtown.
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In order to develop other opportunities for downtown, a coordinated
program which seeks to market and promote specific development
opportunities, as presented in the vision plans, below, should be
prepared. As part of this effort, more specific design concepts for new
development projects should be developed. The concepts should
describe in more detail the functional arrangement of the site; types,
location and feasibility of different land uses; ground floor uses and
design; parking requirements; and overall design character and theme.
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CITY OF SAN BERNARDINO- DOWNTOWN 1lJlIIAN PlAN
CITY OWNIlniPa()POSEI) DEVE:LOPMmIT 'AIIMl'J "
PlGUItE J.
PPS PROJECT
FOR PUBLIC
SPACES. INC
In WAVERLY P1.ACE
NEW YOlK. NY 10014
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CITY OF IAN uaNARDINOo'CENTIlAL CITY COMPANY
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(This work has been completed for the Rancon development site, as
an example).
Using the guidelines and design concept drawings prepared, public-
private partnerships to implement the proposals described in the
vision plan can be established. When appropriate, the redevelopment
agency should work with property owners to solicit development
interest for specific sites that would meet the design concepts
proposed. The city should also sponsor short-term projects which will
help to develop a market for the proposed development. The 'VISions"
section of this report describes four possible projects in more detail.
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Designing New Development
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Findings. For new development to have a significant impact on the
downtown, it needs to be more than just a series of isolated
structures. Every new building created in the downtown should be
seen as a piece of a mosaic, that once finished, will result in a
downtown which has a series of public places and a coherent urban
fabric.
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The approach to development to date has not lived up to expectations.
Most buildings constructed prior to the adoption of the new
development code, with the Main Street overlay district, are poorly
designed at street level, with setbacks, blank walls, and mirrored glass
which do little to create an interesting pedestrian experience.
Moreover, the Gruen Plan instituted a second level pedestrian
circulation system around City Hall, with an elevated plaza and a
bridge over E Street. Fortunately this plan was never completed (a
performing arts center and office building were to be built on the
Court and 4th parking lot) so that there is now an opportunity to re-
establish street level-- and reinforce the remaining existing retail core
of downtown. For projects proposed after the establishment of the
overlay district, problems have emerged with regard to enforcement
of guidelines and when guidelines have not been developed to address
a specific issues.
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From the perspective of re-establishing a strong street-level
downtown, the issue of preselV8tion of existing buildings becomes
especially important. The vast majority of buildings built prior to
World War II have been demolished in the core area of downtown.
What is left, therefore, becomes even more important, especially on
the block of Court to 4th, E to D, where the largest concentration of
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older buildings remains. If a coherent urban fabric is to be created,
then the scale and identity of existing buildings needs to be respected
when new development occurs on adjacent vacant sites.
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Recommmdations. In its new development code, the City has
established guidelines for new infiU, small scale construction as well
as for some basic issues relating to public plazas and ground floor
design for large developments. The overlay disnict needs to be
expanded and strengthened with regard to a number of issues,
including:
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the prohibition of new second level walkways and plaza
spaces;
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more specific guidelines for large scale office, retail, and
residential development, including location and design
considerations for parking garages;
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more specific guidelines for design of usable public
spaces (seating, orientation, adjacent retail uses, etc.).
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However, these standards cannot, by themselves, create effective new
development. As noted above, the city, by virtue of its ownership of
many vacant parcels, can work with property owners to set forth a
vision for specific development sites that meet the guidelines and can
be used to market plans to prospective developers, as well as amend
the development code with regard to overlay disnict guidelines.
Existing spaces should be retrofitted to better connect second level
spaces to street-level developments and public spaces around City
Hall, while maintaining the second-level bridge to Carousel Mall.
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PEDESTRIAN ENVIRONMENT &: TRANSPORTATION ISSUES
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Although streetscape improvements constructed last year have helped
considerably, downtown still lacks an active pedestrian environment.
Pedestrian traffic is very low (except over the bridge to the Carousel
Mall), and people often drive from one part of downtown to another
rather than walk. In fact, 46% of downtown employees said they
never strolled or window shopped downtown.
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The lack of an active streetlife and vitality in the downtown
contributes to the perception of insecurity, blight, and the sense that
downtown is not a good place to locate or run a business. It makes
people uncomfortable or unwilling to walk very far from a parking lot
to their destination. Creating a more effective pedestrian environment
is therefore absolutely essential if the downtown is to be revitalized.
This section describes the three most important areas regarding
activation of pedestrian areas in downtown: relationship to vehicular
traffic, creation of public spaces, and parking.
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Traffic, Transit and Pedestrian Use
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F;nil;",~_ Vehicular traffic currently dominates downtown streets.
There is no hierarchy of vehicles versus pedestrians in the street
network downtown: all streets are basically oriented more to the
needs of people in vehicles than those on foot. Time-lapse
photography of E Street and Court Street on a typical weekday shows
that these streets operate with virtually no congestion, even during
peak periods. The time-lapse also shows that space now allocated for
moving vehicles is excessive, and that re-allocation to pedestrian or
parking use is possible for the foreseeable future. Not surprisingly,
downtown employees were evenly split about whether traffic
congestion is or is not a problem, but virtually no one thought it a
serious problem.
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Since the construction of streetscape improvements in downtown,
additional red or no-parking zones have been instituted, in part to
facilitate traffic flow. This has increased the already excessive space
for vehicular traffic, while making it less convenient for downtown
shoppers to park.
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E Street -- which is downtown's Main Street -- is the most critical
challenge for downtown. As noted, it is not congested and, in fact,
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people can drive at relatively high speeds dangerous for a downtown.
There is some on-street parking, but it is minimal. The poor
pedestrian environment is reflected by narrow sidewalks and the lack
of usable public spaces. Recently constructed streetscape
improvements have made a major difference in overa1l image, but
activity is still light, in part because sidewalks were not widened.
(However, streetscape elements were designed to be relocatable in the
future if widenings did occur.)
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Crossing streets is also difficult in downtown: 45% of employees said
that crossing streets was "a problem" or "serious problem," with
women more critical than men on this issue. Not only are the streets
wide, but the speed and dominance of vehicles make pedestrians wmy
about crossing streets. Another problem is the size of blocks, which,
at about 600 feet, are two to three times longer than blocks in other
cities, including New York City and downtown LA. In such a
situation, pedestrians are unlikely to walk to comers to cross a street
and yet, no provision has been made for mid-block crossings. For
example, there is no crosswalk at the entrance to Carousel Mall or at
the "Breezeway" between 4th and Court Streets -- despite the number
of pedestrians who jaywalk at these locations.
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Court Street, which is not a major through street, is also too wide for
the volume of traffic it carries. This width acts as an additional
barrier to pedestrian traffic. As with E Street, sidewalks are also too
narrow, but, unlike E Street, they have not yet been improved with
streetscape treatments.
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Finally, public transportation is an important activity on downtown
streets. Beginning earlier this year, bus routes through the downtown
were reorganized to consolidate bus activity along 4th Street. The
addition of the 4th Street Transit Mall (not actually a mall, but simply
enhanced waiting areas and easier transfers) is a positive addition to
the downtown and can be built upon to increase transit usage and
general pedestrian activity along 4th Street. (See Figure 4 for map of
existing bus routes)
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Transit usage by downtown employees remains very light, however.
Most employees drive (84%) or carpool: only 2% take the bus.
Adequacy of bus service was a serious problem for 21 % of employees,
but 59% did not know enough to even rate bus service.
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FOR PUBLIC
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NEW YORk, NY 10014 .
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p.........m....d..ticms. Improving the pedestrian environment in
downtown San Bernardino should involve a rethinking of the
utilization of streets and developing a bener balance between
pedestrians and vehicles. Figure 5 shows a proposed new street
hierarchy plan for downtown which develops a network of mixed
pedesnian and vehicular streets. These streets should have posted
reduced traffic speeds: "Pedestrian ArealSpeed Limit 20 MPH", on-
street diagonal or parallel parking, and wider sidewalks. A median
snip in some areas may be desirable, as well as neckdowns at
intersections to reduce the distance for pedestrians to cross. In
addition, Court Street and the new streets in the Rancon project,
which are not major vehicular streets, should lIllow car access but be
primarily oriented to pedestrians. They should include narrow lane
widths, parallel or diagonal parking, wide sidewalks, and possible
special paving tteattnents (such as brick) to the street space itself.
Table One shows specific reconunendations for each mixed
pedesnianlvehicular street or primary oriented to pedestrians.
-
""
...
...
...
...
...
11III
...
11III
...
...
...
Implementation of streetscape and traffic changes may continue to be
done in a phased manner. In the shon term, improvements requiring
minimal capital construction should be undertaken. As the existing
streetscape plan is expanded, sidewalk widenings, neckdowns and
other improvements should be included in the project. In newly
constructed areas, improvements should be relocated when sidewalks
are widened.
""
...
""
...
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...
TABLE ONE: PROPOSED PEDl!STRlAN/VEHCULAR IMPROVEMENTS
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MIXED PEDESTIUAN/YEIIICllLAR
PRIMARY PEDESTIlIAN
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.PROPOSED PRlMAR\' PEDESTIlIAN (NEW STIlEE'I')
COIlE AIIEA
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-
.DG1lIlE. PPS PROJECT
FOR PUBLIC
SPACES. INC
IS) WAVERLY 'LACE
NEW VO.". NY 10014
1"10-'" ~
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Signalized and clearly marked midblock crossings will be necessary in
several locations to respond to existing and future pedestrian use
patterns. These include the entrance to Carousel Mall on E Street, the
"Breezeway" connection on Court Street and crosswalks in connection
with the new streets proposed for the Rancon Superblock (0, E, 4th,
and 5th Streets).
III!
...
IIlI!
..
Finally, while the transit mall and new bus shelters in downtown have
greatly improved the comfort of using public transportation, the low
utilization by employees should be increased through promotional and
marketing efforts. While this should be a long-tenn effort, it will
eventually help relieve the demand for parking and take advantage
of the city's "hub" position within the bus system.
IIlI!
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Public Spaces
"'"
Findings. There are no outdoor public spaces in downtown which are
well used. Plazas and public gathering spaces that do exist are
elevated (City Hall Plaza) or devoid of adjacent retail or food uses
which would help to activate them (County Administration Building
park). Most downtown employees rated the number of comfortable
places to sit outside as "poor" (62%) or "don't know" (21%), and
women were more critical than men (71% said "poor".) Two-thirds
of employees said that they never sit in an outdoor park or plaza.
...
IIlI
...
...
...
...
The fanner's market, which recently opened on the parking lot at
Court and E Streets, has successfully transfonned this space into an
active community gathering place on Saturday mornings. This
program illustrates the potential that programming can play in
creating a successful public space. The short-tenn improvement
program, described below, can hopefully continue these efforts.
...
IIlI
...
IIlI
...
Recommendations. Existing public spaces in downtown need to be
retrofitted and new public areas created to serve unmet needs. Figure
6 illustrates existing public spaces and new public spaces associated
with new development areas.
...
...
o
A major new public square at Court and E Streets: A space to
act as a central focal point for the community, this highly
programmed space can be developed in an experimental way
under the short-tenn improvement program. Suggested uses
include markets, concerts, and special events, as well as places
for people to sit, eat, and socialize. A portion of the square
"'"
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lIIII
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26
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CJ1Y OF SAN aERNAIlDINO- DOWNTOWN UIlIlAN PLAN
flGUIlE I PfS PROJECT
FOR PUBLIC
SPACES, INC
ISJ .AVERLY PLACE
NEW Yoak. JIll' 10014
..
JIE)V DEVELOPMJ!NT lITES . PUBLIC "ACES
..
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I!:XIS11NG PIlBUC "ACES
PROPOSED PUBLIC "ACES
NEW DEVD.OPMENT lITES
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Findings. Parking is a complex issue in any downtown, and the
perception of availability is determined by many factors, including
overall attractiveness and ease in walking from one place to the next.
In San Bernardino, parking is abundant, but is not conveniently
located for many users, such as shoppers and employees who wish to
park as close to their destination as possible. As a result, the
perception of parking by employees is that it "is a problem" (31 %) or
a "serious problem" (29%); 41 % also rated the number of convenient
parking spaces as "poor". This perception is exacerbated by the poor
pedestrian environment, which makes any walk an uninteresting and
uncomfortable one. Women are particularly critical about parking, as
they are about safety, showing a close relationship between the
overall negative perception of downtown and their willingness to walk
any distance to parking.
-
-
should include a multiple use parking lot that can be
programmed for markets as well as to serve nearby retail uses.
In addition, the square should be accessed from both street-
level and the adjacent second plaza, connecting the two spaces
visually and functionally.
..
-
...
o
Retail plazas or courtyards associated with specific
developments: These spaces should be activated by adjacent
uses (such as cafes) and be programmed with events and
activities that reinforce the entertainment or retail uses which
surround them. (Example: Antique Alley, California Theater
Plaza, and Rancon development).
-
"'"
-
..
-
o
Office building plazas: small scale areas at the entrances to
major office buildings which have no other public outdoor
space. These plazas should feature seating areas, landscaping,
and adjacent food service. (Example: Proposed government
office site at Rialto and E Streets and Carousel Mall site at 2nd
and E).
-
..
-
...
..
o
Residential plazas: Similar to office building plazas but even
smaller spaces with places for people to sit and relax next to
residential the building entrances. Housing projects will also
require private outdoor spaces for use by residents. (Example:
California Inn)
..
-
..
-
-
Parking
..
-
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Ill!
-
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28
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Ill!
-
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..
..
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Even a brief glance at the land use map (Figure 2) shows that vast
amounts of land are currently used for parking in downtown,
principally on open lots, but also in two garages at Carousel Mall and
City Hall. The proliferation of parking lots diminishes pedestrian
activity throughout the downtown. Unfortunately, the number of
parking lots have increased in recent decades as buildings are
demolished to provide more adjacent parking for office and retail uses.
Not all lots are well utilized, and the city's Facilities Management
Department reports that the vacancy rate exceeds 30% in downtown.
,..
...
,..
..
...
..
..
There is no comprehensive parking strategy for downtown that takes
into consideration future needs. A Parking Assessment District,
overseen by the Parking Commission, provides some guidance, but it
is essentially a mechanism by which property owners can provide
parking for their employees and customers off-site. Under the
development code, the city recognizes that it is difficult to meet on-
site parking requirements in the downtown and does not require
parking unless a building is enlarged more than 25% or if use is
changed and a building is expanded up to 25% more in size. Even
then, a parking study can be undenaken to demonstrate how parking
can be handled off site. However, more can be done to reduce on-site
parking requirements and better manage shopper parking in general
in the downtown.
...
,.
..
...
..
...
..
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Moreover, there is little attempt to manage existing parking: to reduce
illegal on-street parking or to encourage people to park in the City
Hall Garage, instead of in parking lots, to maximize the amount of
short-term, convenient parking for shoppers. At the same time, the
amount of on-street parking has been decreasing--a factor that
reinforces perceptions of shoppers and other users that downtown is
inconvenient.
...
...
...
...
...
..
As development occurs, existing lots will be eliminated, and new
garages will be required. To entice developments such as Rancon, the
city may be required to finance and build the garage as pan of a
development incentive agreement. However, if there is not overall
effective management of all downtown parking, this garage could
exacerbate abuse of on-street or parking lots by employees who are
supposed to park in the garage, but won't.
...
...
,.
..
ill
From a design perspective, new garages can, if improperly located and
designed, negatively impact the downtown. For example, a garage
would be most problematic on the Court/4th -D to E Block as it
would use up all vacant land and negatively impact existing historic
...
...
ill
29
,.
...
...
...
buildings. At other locations, parking garages will face major streets
or development sites. Currently, there is a lack of guidelines in the
Main Street Overlay District concerning ground floor design, vehicular
access, user safety as well as structure character of garages.
-
.,
...
RPN\mmPI'JdatioDS. An overall strategy for parking is proposed to deal
with existing perceptions as well as long-term changes required when
new development occurs (see Figure 7). Fundamental to this
strategy is the need for the Parking District and Commission to
strengthen its role in downtown over the long term. This should
involve simplification of parking requirements for downtown
businesses. [t is recommended that tenants and building owners only
be required to provide, through the Parking District, sufficient parking
for employees. There should be no on-site parking requirement for
existing small retail businesses or new infill buildings. (Parking
requirements for construction of large office developments should
remain, however.) The Parking Commission should take over the
responsibility of assuring that there is an adequate supply of parking
for downtown customers, both on the street and in existing lots. This
may be done through enforcement or special downtown employee
parking permits, as well as incentives for using public transit and
carpools.
~
...
..
...
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...i
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...
..
...
III
...
III
In the short term, several programs are recommended. First,
increasing the on-street diagonal or parallel parking will help reduce
impact of traffic on pedestrians as well as increase parking supply.
This program should begin on Court Street, and be expanded to E
Street in the future.
...
III
...
III
As new development occurs, adjacent parking garages will be
required. Figure 7 shows proposed locations for new garages. When
possible, common garages serving multiple uses should be encouraged.
As garages are built, the city should consider establishing a Parking
Authority, with bonding powers, to build and manage all parking in
the downtown. Since authorities must generate income to support
their activities, this recommendation is feasible only when a fee
structure is in place sufficient to underwrite such efforts.
...
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30
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EXISTING .AIlItDlG DISI'IlICT
.l'JGtlU 7 . PPS PROJECT
FOR PUBLIC
SPACES, INC
153 WAVEItLY PLACE
NEW YORK. NY 10014
CITY OF SAN BEIlNARDINO- DOWNTOWN VIlIWl PIAN
,AIlKING
..
~___ PROPOSED DIAGONAL .AIlKINGION I1'IIEET
-
.
PROPOSED PVnlIIE .AIlKING _ LOCA11OIlS
..
_ ____ COIlE AIlE4
..
-~,,~,"&Jii DIn'ING PAllDNC lDI'S TO BE PIIASI!D OW WITII DEYELOPMENT
T\l."":.4 ~
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EXISTING .AIlKING .ACIU1Y
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DOWNTOWN MANAGEMENT
-
.
...
..
The concept that downtowns can be managed emerged as an
important concept in the 1980's. It was realized that such activities as
coordinating retail activities, improving maintenance and security, and
sponsoring promotions and events was an important, and often
overlooked, component of downtown revitalization.
...
..
...
..
In San Bernardino, Main Street, Inc., a private non-profit corporation
funded largely through city grants, was established to revitalize
downtown, improve its economic and social environment, and create
a safe, comfortable place in which to work, live, shop, invest, and be
entertained. Since its founding in 1987, Main Street has acted as a
facilitator and clearinghouse for downtown activities and has
mobilized community resources and energy to improve the downtown.
Among the activities of Main Street are events, the fanner's market,
newsletters and training programs, a facade and signage grant
program, retail recruitment, and coordination of streetscape
improvements. Main Street's program area is shown in Figure 8.
...
..
...
.
..
ill
..
..
Three of the most important management programs are discussed
below: events and activities, maintenance and security, and retail
assistance.
..
ill
EVENTS AND ACTIVlTIES
..
ill
Fini!iTlgs. As noted, Main Street has organized many events and
activities in the past few years, and recently opened a fanner's market
on the Court and E parking lot. Other current events include a series
of Friday TGIF concert/parties and other similar activities. Despite
the strides made in recent years, however, the employee survey
showed that much more needs to be done to increase the number of
events and promote them more widely. In the employee survey,
roughly one-third of employees rated the number and types of events
as "poor" and another one-third answered "don't know".
..
ill
..
lit
,..
,
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lit
City regulation, policies, and fees often have inhibited the ability to
stage events and bring more activity into the downtown. These
ordinances prohibit desirable activities that take place in public spaces
(such as vending and street entertainment) as well as limit uses
related to specific businesses (cafes, entertainment, banners, balloons,
etc). Moreover, most businesses surveyed felt that not only were city
..
..
...
..
33
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..
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CITY OF SAN BERNAJlDINO-1lOWNTOWN VIlBAN PIAN
AIAIWlEMENT WNES
.notlllE. pps PROJECT
FOR PUBLIC
SPACES, INC
153 WAVEItLY PLACE
NEW YOlK. NY 10014
IlIl
...
----
PROPOSED mOB AoCnVJ'IY EXPEIUMEIlTAL WNE
auSlNl!SS IMPIlOVEMENT DISTIlICI'
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restrictions onerous, but license fees and taxes were too high. For
example, a Business Improvement District (Figure 8) imposes a double
business license fee on retail businesses within its boundaries, but the
proceeds are not dedicated specifically to downtown projects.
..
...
'"
..
Long-Term Recommendations. More activities and special events to
bring life, vitality, and people to the downtown are needed, building
on the events and activities of Main Street, Inc. During the course of
the study, it was recognized that the many open lots downtown could
be turned into a positive asset for downtown, especially the parking
lot at the comer of Court and E Streets. Many events and activities
can take place on this and other parking lots and other empty-street
level spaces, seeking to attract a broad range of San Bernardino
residents. These events should include specific activities oriented to
downtown employees at lunchtime as well as events that regularly
draw the broader community on evenings and weekends. These
activities will allow experimentation with potential ideas that could
help establish downtown as an arts and entertainment district --
concepts that can be incorporated in new retail and entertainment
facilities, such as the perfonning arts center, and build new
community support for downtown.
'"
III
'"
..
'"
III
""
..
,.
...
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..
Short-Term Recommendations. At the public meeting for this study,
a series of activities were suggested that could take place with
relatively low capital costs (See appendix). Based on this list, PPS is
developing a short-term implementation strategy to provide a setting
for events and activities on the Court and E parking lot, building on
the success of the farmer's market.
II"
..
..
iIII
..
...
Moreover, to reduce unnecessary restrictions and to encourage
downtown activity, an experimental "High Activity Zone" is
recommended to streamline city approvals and reduce unnecessary
restrictions for events, activities, and retail pennits in a defined zone
downtown. (See Figure 8 for proposed boundaries). The zone would
address issues such as parking standards, vending,
entertainment/gaming licenses, sidewalk encroachments (cafes,
displays), signs, street entertainments, and awnings.
..
..
..
,
..
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...
..
..
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..
35
I""
..
11III
""
MAINTENANCE AND SECURIlY
...
Fint!ingll. Developing positive perceptions that downtown is safe and
clean is an important goal for any downtown. However, many factors
influence people's perceptions of cleanliness and safety which have to
be taken into consideration in developing appropriate responses.
""
..
III
...
Maintenance, in general, is perceived as adequate by downtown
employees: two-thirds rated the cleanliness of streets and sidewalks
as "good" (13%) or "fair" (54%). However, there were many
complaints at the same time that many downtown buildings looked
dilapidated, that vacant lots were unattractive, and there was too
much graffiti. With the construction of streetscape improvements,
maintenance becomes an even more important issue: keeping
amenities and landscaping attractive and well-maintained.
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Although police report actual crime rate is vay low in the downtown
core area, security is still perceived as a problem by many downtown
businesses and employees. For example, although 62% of employees
rated safety during the day as "Fair" or "Good", 69% rated it as "Poor"
during the evening. Women were even more critical of security
downtown. As with maintenance, there were many complaints about
the homeless and general lack of activity, which made a walk to the
parking lot or garage a fearful experience. Recently, the police
department has created a bike patrol and Main Street has begun a
Business Watch program, modeled on a neighborhood watch program.
The basis of these programs -- to increase visibility of security on the
street -- is important and can be enhanced with other efforts to attract
people to use public spaces more frequently. One possibility is to
establish a committee of downtown employees and business people to
work with the police to identify causes of perceived and actual
security problems.
Long and Short-Term RecommPJIdations. Efforts to improve the
maintenance and security of downtown public spaces should be
undertaken hand-in-hand with event programming and other
activities. Upgrading the appearance of buildings and parking lots
through short-term improvements along with regular sweeping and
cleaning of sidewalks can dramatically change the perception of
downtown. Street sweepers have the added benefit of being extra
"eyes on the street", improving security. From a security perspective,
the city should work with the police to improve the visibility of their
presence in the downtown.
III
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While a foot patrol at lunch or more bike patrols will help, the basic
issue is to attract more people. In the short term this can be
accomplished through events and activities. As development occurs,
planning should be undertaken to assure that spaces are open and
accessible and visible to the public and that areas such as parking
garages are designed with security in mind.
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1Io
RETAIL SUPPORT
...
Findi.,g.-;. City government entities have been quite active in helping
downtown retailers with facade and signage grants, special
promotions, and generally helping to encourage new retail uses.
However, retail recruitment remains a critical problem, mainly
because there is not the foot traffic in locations where there are empty
stores.
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The employee survey demonstrated that there is a market for new
retail, such as restaurants and entertainment. The short-term program
to attract people for events, entertainment, food festivals, and markets
will help to establish in people's minds that downtown can be a
destination for such uses. For example, there has been interest
expressed in antique shops in the downtown: a first step for this type
of retail should be a regular collectibles market inviting area antique
dealers to display and sell their wares. This grass-roots approach to
retail development can complement and help facilitate traditional
recruitment efforts.
...
III
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III
..
Long and Short-Term Recommendations. The short-term
improvement program should be viewed as a means of incubating new
businesses in the downtown. As such, local entrepreneurs and
existing businesses should be encouraged to participate in activities,
events, and markets on the Court and E site. In addition, new sites
of markets (such as an antique or crafts market) should be created on
the Court/4th - 0 to E Block -- in the Breezeway and in parking lots.
Adjacent vacant spaces can be used to display merchandise when the
market is not operating. This on-site market, if successful, will help
to build interest in opening permanent spaces in this area.
..
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III
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III
Efforts such as the facade and signage grant program, retail
promotions, and other similar initiatives should continue in the future.
Main Street should place particular emphasis on activities to help new
and established businesses as required. Such efforts should include
actions in the High Activity Zone designed to expedite the city
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37
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approvals necessary to start a business downtown. All such activities
should be earned out under the coordination and authority of the
Steering Committee described in the introduction.
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A DOWNTOWN VISION
...
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By addressing the issues and opportunities prescribed in this plan, San
Bernardino can dramatically change the use, perception, and
appearance of the downtown. Many recommendations have been
made in this plan--but what would downtown look like if all were
implemented?
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...
..
,..
..
This section presents the vision for downtown, a summation in
graphic form which shows concepts for both specific developments as
well as overall improvements to streetscape and public spaces. But
these drawings should be seen as more than ''pretty pictures". They
should be seen as a first step in understanding the potential of a place
to attract development.
...
..
...
The insert (next page) shows an illustrative site plan for the
downtown core. Following the site plan, four potential projects are
described in detail.
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RIALTO AVENUE
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PROPOSED
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LONG TERM DOWNTOWN URBAN PLAN
.........."""
THE CITY Of UN BEVlAllDINO
PPS PROJECT
FOR PUBLIC
SPACES, INC
IH WAVE~LY nACE
NEW YORI(. NY IUOl4
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COMMUNITY SQUARF/PERFORMING ARTS CENTER.
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ExUting parlcing lot at Court and /l Struts.
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A publi< sq...... for community ....... and activities and a new per:fonning ora ant.,..
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The pvbIi< .quare .hould _ the foa1l point of downtown at the comer of Court
and ~ and be clesf&nal to accollllllOdaU a broad ""'Be of colllllWllity ....... and
activities. In the .hort ....... an eqoerimmtaI program .hould be initiaud to deYdop
the bat .... for the .ite and dIjiM Us lolljf-arm cIalrn I""IJI"fUIL
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The pvbIi< .q...... .hould be _'" to the existing d.....'" pIua and .uk to draw
people to ....... levd who .... currmt(y using the pIua to reach Cora""' Mall. (A
QOISIIf(I//c to Corausd MaU midblock on /l _ is also recommended.)
...
...
An attrocrive{y dtsf&nal open parlcing lot .hould be "",intain'" midbloclc on the .ite to
occommodate .hort-term parking and programm'" activitits, .uch as a rraarktt.
...
The Perfonnilljf Arts Cent.,. .hould be dtsign'" to foa the publi< .quart, and aUow Us
lobby activitits (intluding a ....taurant) to spill inta the .quare.
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43
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RANCON/SUPERBLOCK
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Ilnlinblock_4th,Slh,DIllIdE_
Land Galuiral ~ by the city. Rancon FinmIdal Corporation is the city-daignared
pnfmrtJ. d<Y<loper.
Principal1y oJfia buildin&s on thru or four siu:r, with IJ'OWld j/Dor r<l<IiI IllId
............... Sil. covl4 in<bMl< publi< buildinp or priwtte us.. (indudirrg hotel or
..../dmtUlI) as _ allows. Spou rcquiral .. pnwide all porking on-site.
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RANCON/SUPERBLOCK (continued)
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Daign
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BlocIc ,hDuId be ,ubdivided with new ,truts to allow plwed devdopmm: and redua
overall KGI. of /arJt, 600 foot bIoch. The .....truts allow .uch devdopmm: to occur
in ph.... without the proja:t /oolcing in<DmpIm. The riew ........ .hDuId be ...,.
pedmrian oriental, to ezrcnd the -ringfobri< of the downtown into the devdopment.
The north..south street should connect directly to the BreaewGy between Court and 4th
StruU.
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E Strut frontage .hDuId reinforce role.. Main Strut, with wider .idewa1Ja, ......level
retail, and continuous building frontage.
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Public .paces .hould be ",tricted to colU\Yard pi.... with adjoant ....aU and
food,/beverGge establishments:. Publ~ speas should haw: Q strong ammil;y pocklJge
including .eating, fowuaw, landscaping. and public an.
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Porking ,arag.. .hDuId be cmtroIIy located with ...... level ....au. Upper level facad.
d..ign .hDuld ditguite their parking funaion .. much .. feasible.
,.
..
TaUer buildingJ .hDuId be COnantraled .. th. major intmoctioru, with lower buildingJ
in th. interior of the block. 11Iit will help to COM"" the proja:t to lower JCaIe
buildingJ adjoant to it. Major building entrlI1U:tJ .hDuId foa comm.
,..
..
Overau building charoaer .hDuId .trongly rei... to _ring hittori< and traditional
buUdings in the downtown.
47
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"ANTIQUE ALLEY"
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InJiU sit.. on the bIodc betwun Court II1Id 4th _, D to E,
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Jl speci4/ty ruail Ullter with 0 foals on aofa, ontiq...., ...."'UI'OIIlS, nlghldubs, or
other __inment uses, buildin& on the ......... chorot:ter of the bIodc Upperlevd
us.. ""uId indud. offia ...vor ....idmtiol.
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Th. project should suIc to provide injiU buildinp ""mpotibl. in IC4!e II1Id choraaer to
existing buildinp on the bIodc
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""""""" d1ad4tion should". pl'01lidt4 through the existing llnGewc!Y, II1Id in 0 new
""urtyonI ""nnecting the llnGewc!Y to D Street, An interior orcod. within an injiU
stnI<tIU'e to ""nnea the ""urtyonI clirectlY to Court Street IlUI)' also ". dtsirol>l<.
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..
No oR-sue parking should be pennitttd on the block.
,.
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Courtyard ond other publi< spoas should b. ped..trian sailed, with obaity to program
markeu and events.
Street.level ...oa should ". proposed 0" oil buildinp Jot;ing the strut or public spoas,
"..
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CAlJFORNIA THEATER PROJECf
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Sila a4jaum '" rhe Cali(omit1 TheGm b<<ween 4th IIIId 5th _. E '" F.
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Land own<<I by the ci1y (wed as parking lot) IIIId priVOle int.....ts.
An mta'tGinmmt center which could include movie theaters, rtStQW"GlltS, nightdubi,
or other entertainment usa, buildin& on the praenu of the hutonc Califomia Theater.
Upper level wa could intlude oJfke cuuVor raidential.
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The projea should seek '" connea rhe Califomio TheGm visuallY IIIId ftmaionoIIy to
E Struts, with 0 brood pedatrit1n p/tJSo with outdoor UJ/a, <<<.
..
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Scolc of buildings '" be HUlint4ined at four ""ria or Ias. The ordaiteaural cl<sign
should seek '" extend the duuaaer of rhe Cali(omit1 Theater.
,.
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Parking should be provided in lots or garage in the interior of the iIIock.
Strut.leYe! ...... should.be required on 4th Strut IIIId E Struts.
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APPENDIX
-
SUMMARY OF PUBUC COMMENTS
SAN BERNARDINO TOWN HALL MEETING
FEBRUARY 13, 1992
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Security
...
Hone and bike patrols
Wa1ki.. police
!Jab' s~ better a, niJh'
More dn1a bus..
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Slow auto traffic
- pedesllian brldae
Ill_I signa 10 downlOWll
1.215 Iancbcapina
Bettor balance between pedestrian and aulO
Street median on E Slreet
Dlagnnal street parld..
Close off s~
TroUey loop
AmlJ'ak connection
People movm
Reduce dedicaled parkins
Bettor aaffic signa
Bettor signa.. of pubUc parki.. 10..
Mall parking lo,lIIOR! friencl1y
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Better communication of downtown nents
Invol... both coU_
Business recruitment
Ta..... people with mos' disposable income
Lower pennit fees
Group advenisi.. for downlOWll men:ban..
Tourist map
CounciVEDA need 10 focus on downlOWll
..
...
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Concert>
Petti.. zoo
Roller rink
Spom activities
IOk's
bike l8ceS
volleyball_,
lawn bowling
Carnivals
Qaft shows
Ileq<:le awarenesolenvironmental exhibi'
Childrens' an projecl/fair
Swap meets/8ea markets
Classic movie festivals
Job/career fairs
Shooting range
Stree, dances
Trade shows
Summer festival...cIifferen'lheme each week
Ethnic folk festivals
Malkel nighr
Stree, fai..
Music Festivals
Outdoor movies and Ieclures
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Antique fairs
Open oir thearer/shows
Talent shows
Sc:hooI work displays
Fuhlon shows
Mimes, face paintin& PUppell
Parades
Student activity, e>mll . .....petitions
_shows
SUeer entertainment
Quality theaten
Petforming """ cenrer
IMAX thearer
G...... c:hesa, Shumeboanl
Hone drawn c:arriaps
HaW! college performing gmupo .... downtown
...
-
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SpedalAmenilios
...
Remove cenrer divider wall on E Sftel
Relocate Harris trudt clelivery atea
Add llllIphic:s, ban..... and flap to l!IIIply buildinp
Interim uses roc vacant buiklinp and lots
Shade struCblres
Graphics on pedestrian bridge
Neon ac:cenll on buildings
Mural on old ice building
Colorful tenll
More benches and tables
Water and fountains
Public Art
More places to sit
Green. it up
Cobblestone Sb'eets
More Dowen
Childrens' pnlen
Bandstand andlor stage atea
WaW! pool
Ughll on buildinp
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Food
...
Food market with rood to go
Outdoor restaurant
Faemen Market Pizza
International Market
Fast rood restival
Coffee houses
Ice Cream
Beer Garden
Bar/watering hole
Food vendors
Cook olfs i.e. Taste of San Bemanlino, Chili Cook Off
Pancake Brealcfasll
Ethnic roods
Mini Brewety
...
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O1.i1drens' Museum
More housinS downtown
Nunery/Day Care
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