HomeMy WebLinkAboutR6- Economic Development ECONOMIC DEVELOPMENT AGENCY
OF THE CITY OF SAN BERNARDINO
REQUEST FOR COMMISSION/COUNCIL ACTION
FROM: BARBARA J.LINDSETH SUBJECT: ADOPTION OF THE SAN
Acting Director BERNARDINO DOWNTOWN
FRAMEWORK PLAN UPDATE
DATE: March 1, 1995
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Synopsis of Previous Commission/Council/Committee Action(s):
On February 23, 1995,the Redevelopment Committee recommended approval and adoption of the San Bernardino
Downtown Framework Plan update and Summary.
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Recommended Motion(s):
(Community Development Commission)
MOTION: That the Community Development Commission approve and adopt the San Bernardino Downtown
Framework Plan Update and Summary as presented by Project for Public Spaces(PPS)and Agency staff.
Administrator BARBARA J.LINDSETH
Acting Director
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Contact Person(s): Barbara J.Lindseth/Laura J.Muna-Landa Phone: 5081
Project Area(s): Central City Ward(s): One(1)
Supporting Data Attached: Staff Report;
FUNDING REQUIREMENTS: Amount: $ N/A Source: N/A
Budget Authority: N/A
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Commission/Council Notes:
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BJL:LML:lag:03-06.01.cdc COMMISSION MEETING AGENDA
MEETING DATE: 03/06/199995
Agenda Item Number:/`tY
ECONOMIC DEVELOPMENT AGENCY
STAFF REPORT
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Adoption of the San Bernardino Downtown Framework Plan Update
Executive Summary
Staff requests adoption of the San Bernardino Downtown Framework Plan update, which is
designed to provide policy guidance responsive to changing demands and 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. The implementation of this plan will allow the City to achieve the goals
and objectives contained in the General Plan and to create a true measurable and realistic
renaissance of Downtown.
Background
In January 1992, the City of San Bernardino, through its Economic Development Agency,
initiated a major process to develop a new plan for Downtown San Bernardino. While there has
been progress made in recent years to bring the Downtown back to life, the City recognized that
there has been no overall vision or clear direction for our Downtown. Moreover, fragmentation
and lack of unity existed, both between City agencies and between the public and private sectors.
Working with a Blue Ribbon Task Force and a City administrative team, a new Downtown Plan
was developed and adopted by the Common Council in June of 1992. The plan was designed to
provide policy guidance and was intended to identify steps that will lead to the revitalization of
downtown-- a flexible policy rather than a regulatory plan.
After almost three (3)years of real accomplishments, the Agency is now updating and expanding
the original plan to reflect the changing dynamics of Downtown. Since the adoption of the
original Downtown Plan, Court Street Square has been constructed and over 200 events have
been conducted since it opened two years ago. An experimental diagonal parking program was
initiated on Court Street and "E" Street, bringing a new sense of activity to Downtown; since
then, the diagonal parking has been made permanent along with additional landscape features.
New businesses have opened, such as Isabella's Restaurant located on "E" Street. In addition, the
State of California has plans to lease 500,000 square feet in two new state-of-the-art office towers
on the Superblock, bounded by 4th, 5th, D, and E Streets; and the new Central Police Station,
located at the corner of 7th and "D" Streets, is soon to be completed.
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BJL:LML:lag:03-06.01.cdc COMMISSION MEETING AGENDA
MEETING DATE: 03/06/1995
Agenda Item Number:
ECONOMIC DEVELOPMENT AGENCY STAFF REPORT
San Bernardino Downtown Framework Plan
February 20, 1995
Page Number 2
More importantly, the interest of the private sector has been reinvigorated through the efforts of
the Agency and the establishment of the San Bernardino Downtown Business Association(DBA)
and the leadership of Carousel Mall. The DBA is focused on both short-term issues, such as
improving security, as well as long-term development goals, such as making certain that new
development projects including the State Office Complex reinforce downtown business activity.
Moreover, Carousel Mall has initiated a major redevelopment proposal that would help to
revitalize the complex economically by improving its connections to downtown and making it a
true urban shopping center.
Anal
In September 1993, the Common Council, Community Development Commission and the San
Bernardino Downtown Business Association jointly passed a resolution "placing the highest
priority on revitalizing downtown San Bernardino, by implementing the San Bernardino
Downtown Plan to enhance Downtown as the functional and symbolic center of the City." As a
high priority, Downtown faces six(6) key challenges:
1. Attracting new development, thus making the downtown a real "center;"
2. Creating a pedestrian-friendly city;
3. Creating a comprehensive Access and Circulation Strategy;
4. Developing inviting gateways into downtown;
5. Managing safe, lively, and attractive public spaces; and
6. Ringing downtown with revitalized neighborhoods.
The above mentioned challenges are described in further detail within the Downtown Summary as
well as the Framework Plan(attached).
In an effort to encourage further citizen participation in the update of the Downtown Framework
Plan, a public forum was held at Court Street Square on July 14, 1994. Over 100 people attended
and provided comments on arts and entertainment, activities and events, new development and
services, residential development, streetscape and special amenities, traffic and transportation, and
security and maintenance. The citizens' comments were utilized to shape the development of the
Downtown Framework Plan update and summary.
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BJL:LML:1ag:03-06.01.cdc COMMISSION MEETING AGENDA
MEETING DATE: 03/06/1995
Agenda Item Number: �_
ECONOMIC DEVELOPMENT AGENCY STAFF REPORT
San Bernardino Downtown Framework Plan
February 20, 1995
Page Number 3
Summary
The Downtown Framework Plan and Summary will be a guide for the City and its citizens to
cooperatively work together at enhancing the downtown.
The Downtown Framework 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 and impacted by the ideas, comments and
concerns of the citizens of San Bernardino.
Recommendation
Staff recommends adoption of the form motion.
BARBARA J. LINDSETH, Acting Director
Economic Development Agency
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BJL:LML:lag:03-06 01.cdc COMMISSION MEETING AGENDA
MEETING DATE: 03/06/1995
Agenda Item Number: �_
v',: DRAFT
r
-' kRDINO DOWNTOWN
RK PLAN
Prepared for: The City of San Bernardino
Economic Development Agency
Prepared by: Project for Public Spaces, Inc.
153 Waverly Place
New York, NY 10014
Original Plan Prepared: June 1992
Updated: February 1995
CREDITS
MAYOR AND COMMON COUNCIL
Maypr Tom Minor
Council Member Edward V. Negrete - First Ward
Council Member F. J. Curlin, M.D. - Second Ward
Council Member Ralph Hernandez - Third Ward
Council Member David Oberhelman - Fourth Ward
Council Member Jerry Devlin - Fifth Ward
Council Member Valerie Pope-Ludlam - Sixth Ward
Council Member Norine Miller - Seventh Ward
MEMBERS OF CITY ADMINISTRATIVE TEAM
Timothy C. Steinhaus, Administrator, Economic Development Agency (EDA)
Barbara J. Lindseth, Acting Director, Development Department, EDA
Al Boughey, Director of Planning and Building Services
Ann Harris, Executive Director, Main Street, Inc., EDA
Gene Klatt, Assistant City Engineer, Public Works Department
Emily Wong, Project Manager, Development Department, EDA
John Hoeger, Project Manager, Development Department, EDA
Laura J. Muna-Landa, Development Specialist, Development Department, EDA
PROJECT FOR PUBLIC SPACES, INC. TEAM
Stephen Davies, Project Director
Fred Kent
Jun Sochi
DOWNTOWN BUSINESS ASSOCIATION
Sam Catalano, President
TABLE OF CONTENTS
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Goals for the Downtown Plan
Planning Process
DOWNTOWN DISTRICTS: AN OVERVIEW . . . . . . . . . . . . . . . . . . . . . . . . 9
A FRAMEWORK PLAN FOR DOWNTOWN . . . . . . . . . . . . . . . . . . . . . . . 13
New Development: Office, Retail, & Residential . . . . . . . . . . . . . . . 14
Attracting New Development
Creating a Pedestrian-Friendly City . . . . . . . . . . . . . . . . . . . . . . . . . 19
Designing New Development
Public Spaces
Comprehensive Access and Circulation Strategy . . . . . . . . . . . . . . 22
Traffic, Transit, and Pedestrian Use
Parking
Downtown Gateways . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Vehicle Gateways
Metrolink Station
Downtown Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Events and Activities
Maintenance and Security
Retail Support
Downtown Neighborhoods . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
APPENDIX
Summary of Public Comments - Public Forums (1992 & 1994)
INTRODUCTIOI
In January, 1992, the City of San Bernardino through its Economic Development
Agency initiated a major process to develop a new plan for Downtown San
Bernardino. While there had been progress made in recent years to bring the
downtown back to life, the City recognized that there was no overall vision or clear
direction as to what downtown should be. Moreover, there was much fragmentation
and lack of unity, both between city agencies and between the public and private
sectors.
Working with a Blue Ribbon Task Force and a city administration team, a new
downtown plan was developed and adopted by the Common Council in June of
1992. The plan was designed to provide policy guidance and was intended to
identify steps that will lead to the revitalization of downtown -- a flexible, policy
rather than a regulatory plan.
After two years -- two years in which there has been real accomplishment -- the
EDA is updating and expanding this original plan to reflect the changing dynamics
of downtown. Since June 1992, Court Street Square has been constructed and
over 200 events conducted since it opened one year ago. An experimental
diagonal parking program was initiated on Court Street and "E" Street, bringing a
new sense of activity to downtown: the diagonal parking has been made permanent
on Court Street. New businesses have opened, filling the newly renovated parking
lot at Court Street Square several nights a week. The State of California has
committed to lease 500,000 square feet in two new state-of-the-art office towers on
the Superblock (the block bounded by 4th, 5th, "D", and "E" Streets).
More importantly, the interest of the private sector has been reinvigorated through
the efforts of the Economic Development Agency and the establishment of the San
Bernardino Downtown Business Association (DBA) and the leadership of Carousel
Mall. The DBA is focussed on both short-term issues, such as improving security,
as well as long-term development goals, such as making certain that new
development projects like the State office complex reinforces downtown business
activity. Moreover, Carousel Mall has initiated a major redevelopment proposal that
would help to revitalize the complex economically by improving its connections to
downtown and making it a true urban shopping center. In September 1993, the
DBA, the Common Council of the City of San Bernardino, and the Community
Development Commission jointly passed a resolution "placing the highest priority
on revitalizing downtown San Bernardino, by implementing the San Bernardino
Downtown Plan to enhance downtown as the functional and symbolic center of the
City."
1
About the 1992 Plan
During the planning process in 1992, the extent to which downtown suffered from
an acutely negative image was fully discovered. Perceived by many as unsafe --
or at the very least uninteresting -- downtown was clearly falling short of being an
active, important community center. In fact, it was possible to drive through
downtown and not even be aware that it was even there: there were few
pedestrians on the street, few shops, and virtually no reason for drivers to slow
down.
The planning process discovered something as important as the negative attitudes:
that there was -- and still are --the resources, interest, and commitment of a broad
range of the community to see something great happen in the downtown. The
results of outreach efforts, a public forum, and discussions with public and private
sector leaders and city staff all showed a strong desire to work together to rebuild
the downtown and to bring new life to its public spaces.
The downtown plan developed in 1992 reflects the realities of the 1990's, when new
approaches are 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 as they did in the 1980's. 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.
The plan outlined just such an approach for Downtown San Bernardino. While
addressing longer term development opportunities for the downtown, it also
stressed the need for short-term improvements to 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 to create Court Street
Square at the corner of Court and "E" Streets is a beginning to seed new activity
and vitality into the downtown. As past development demonstrates, retail,
restaurants, entertainment, and other uses follow people: to "grow" a downtown
from the grass roots, activities need to be established in the downtown.
Development will follow and enhance these activities, and will be the stronger for
it. As such, the construction of a 500,000 square foot State office complex on the
Superblock, is an important accomplishment, but one that should be viewed in
terms of an overall continuum of downtown improvements --from a small, short-term
improvement to a long-term major development.
The management of downtown is also 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
2
should be tapped and celebrated as is beginning to happen in Court Street Square.
Moreover, the myriad of restrictions that control downtown businesses still need to
be modified to encourage entrepreneurs to make investments and improvements
in the downtown.
The 1992 Plan replaced the Gruen Plan of 1975, which had served as a blueprint
for downtown. However, the approach in 1992, compared with 1975, could not
have been more different. The 1992 plan looked holistically at the economic and
social factors of downtown, rather than regarding it just as a site for major new
development. It sought 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 looked to seed activity from within, as well as
attract major development that is sensitively scaled, and sought to knit together a
series of public spaces, retail, and entertainment facilities that create exciting new
places for people to stroll, shop, and enjoy.
Any 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
the planning process -- the cooperation between the public and private leadership
in the city and between city staff -- has continued to respond to new challenges and
opportunities within the basic structure of the 1992 plan. This updated plan
presents these opportunities and challenges, following the same principles and
goals of the original plan.
Format for the Updated Plan
The updated plan is presented in two separate documents. In the Framework Plan
-- presented here -- overall policy issues and opportunities are presented, for both
the downtown and its core area. A separate summary report specifically describes
the recommendations for the "center" of downtown and presents the downtown plan
in renderings and graphic form.
Planning Process
A basic premise of the 1992 planning process 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 Central Library. Ideas
developed at the meeting are included in an appendix.
3
In addition to public outreach efforts, surveys of downtown's retail businesses,
employees, and shoppers at Carousel Mall were 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.
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.
For the update, a series of focus group discussions was held with key stakeholders,
including the Downtown Business Association, City Staff, the Main Street Board,
and City Council representatives. A public forum was also held in Court Street
Square. This updated plan represents the expanded direction and fine tuning of the
original plan that emerged from those meetings. In addition, this updated plan
reflects planning work completed since the original 1992 plan, such as the
development of site concepts for the Superblock, a redevelopment concept for the
perimeter of Carousel Mail to improve its connection to downtown, and permanent
streetscape improvements to "E" Street, Court Street, and 4th Street.
It should be noted that this updated plan did not involve extensive surveys as was
done in 1992. The survey data presented in this report is somewhat out of date,
therefore, and does not reflect any improvement in perceptions that may have
developed as a result of projects and programs implemented over the past two
years. Still, the data provides useful insight into the problems and potential of
downtown.
DOWNTOWN LAND USE DISTRICTS:
AN OVERVIEW
Downtown San Bernardino, a mix of land-uses developed over the past 100 years,
has evolved into a series of distinct districts. Each district 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 district 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.
4
f/�
Figure 1 shows the location of each district, each of which is described below.
In-town Suburban Commercial
Carousel Mall, with the adjacent strip retail centers, is the site of the bulk of retail
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, strip centers, and freestanding retail buildings.
The In-town Suburban Commercial district has virtually no public space, except for
the quasi-public Carousel Mall interior; pedestrian 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.
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 pedestrian connections
and better relationships between 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 district to improve pedestrian connections and spaces. Moreover, the
pedestrian connections and design of buildings along "E" Street, 2nd Street, and
4th Street in downtown should become more urban, with street-facing retail and
parking lots and garages located behind buildings facing the street. These changes
have been proposed in the downtown plan, as part of the redevelopment of
Carousel Mall.
In-town Residential
A residential area built in the early parts of this century as single-family bungalows
and some multi-family units on individual lots, this district has undergone rapid
decline and is experiencing significant security problems. To reclaim this
neighborhood, it is vital to address rehabilitation of existing housing as well as new
infill construction that will encourage home ownership. In constructing new
housing, 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-type environment.
9
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This neighborhood, with its proximity to Carousel Mail 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. A comprehensive community
development strategy must therefore be developed.
Industrial/Warehouse Area
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 -- unique for a major urban center. The Central City South Guidelines
and the Central City South Overlay in the Development Code describe future
developments in this area which focuses on industrial and commercial development
anchored by San Bernardino's two shopping malls -- Inland Center and Carousel
Mall. These plans are largely stalled, however.
Given its proximity to downtown, a future Metrolink Station, and supermarkets and
neighborhood shopping, this area should be evaluated for major "New Town," with
high density single and multiple family dwellings on the open tracts of vacant land.
Such a major redevelopment project would clearly reinforce efforts to revitalize the
downtown in general by providing new residents who will patronize stores and
businesses.
Institutional/Office District
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. With
the development of State office buildings on the Superblock at E and 4th Streets,
this district is expanding.
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.
10
ll/
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 formal space, is virtually
unusable except as a place to walk through.
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 determine opportunities for
retrofitting of existing buildings, in filling the gaps between the buildings,
establishing common parking garages, retail amenities, and making public spaces
more usable and active.
Downtown Core
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 terms of
transportation and access all are important assets. In addition, this area includes
important public facilities, such as City Hall, the Public Library, convention center,
and it abuts Carousel Mall. This district includes large amounts of vacant or under
utilized land, much of it under public ownership, that is available for new
development.
11
A FRAMEWORK PLAN
FOR DOWNTOWN
Downtown 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. It includes the "Downtown Core" district, as well
as significant portions of the institutional/government district as well as Carousel
Mall, part of the Suburban Commercial district. This section outlines the principal
problems of the Downtown with regard to:
• Attraction and design of new development, including retail, office, and
residential uses.
• Enhancement of the pedestrian environment and reduction of traffic
impacts, including improving public spaces and parking access.
• Management of downtown, including short-term programs and
projects to increase public use as well as maintenance, security, and
support for retailers.
Each of these topics is described in more detail below.
NEW DEVELOPMENT: OFFICE, RETAIL, AND RESIDENTIAL
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.
Attracting New Development
Findings: 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 small private office buildings, these projects are greatly
outnumbered by the public projects. Each of these development types is described
in more detail below.
12
Public Buildings: Today, two new state office buildings are in progress for the
Superblock site. The construction of the building for Caltrans, shows that downtown
is maintaining its strength as a government center with local, State and Federal
facilities. The Superblock project is a proposed mixed-use office and retail located
on the entire block bounded by "E", "U', 4th and 5th Streets. Initially, Project for
Public Spaces prepared the master plan for the block in late 1991 for private office
development. Other potential projects include a federal office building. Plans for
a performing arts center, designed 20 years ago as part of the City Hall complex,
have been reactivated, and funds are being sought for construction. The Downtown
plan recommends a site for this complex on city-owned land next to the public
library, reinforcing the civic use of this block and taking advantage of new adjacent
parking to be built for the Superblock project.
Private Office Buildings: 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 Center. This suburban site is well-
designed and offers an attractive alternative to the downtown.
In recruiting tenants for downtown, however, resistance from existing firms already
located downtown has occurred. Many 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 addressed
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.
Retail and Entertainment: Downtown retail, long stagnant, is beginning to expand.
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 traditional retail uses for the downtown outside of the mall. In
fact, there are fewer than 50 businesses outside the mall in the greater downtown
area. However, recent businesses -- such as and Isabella's Restaurant -- have
been able to demonstrate that there is an opportunity for new downtown retail which
concentrates on arts and entertainment type uses. Also, proposals to redevelop
Carousel Mall to connect the center to downtown -- through new entrance plazas
and perimeter retail creating an urban edge to the mall -- will help make the
distinction between downtown and the mall less abrupt and more complementary,
even with an increased amount of retail space and fourth anchor store being
planned for the mall.
13
Surveys of downtown employees revealed many issues important to retail
development in downtown. Employees mainly use downtown businesses, including
those at Carousel Mail, 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.
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.
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").
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 terms
of the needs of downtown employees. Changing policies such as the length of
lunch hours, promoting lunchtime activities, and encouraging more entertainment,
new retail and food outlets are among the opportunities that are clearly desirable.
Residential Development: The only residential uses constructed within 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. However, as downtown improves,
there is substantial opportunity to revitalize existing neighborhoods and create new
neighborhoods immediately surrounding the core downtown district -- thus creating
a 24-hour community. This effort should capitalize on existing city programs to
create and rehabilitate housing throughout the city.
Recommendations: 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:
14
• 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.
• 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.
• Carousel Mall contains over a million square feet of retail space.
Carousel Mall needs to physically become a more integral part of the
downtown by creating public spaces at its major entrances, and
create a retail presence all along its perimeter that would accessible
from the sidewalk. In this way, Carousel Mall would have a stronger
presence on the street rather than hide behind expanses of asphalt,
parking garages and empty spaces. In addition, some of its parking
capacity located near the intersection of Fourth and T" Streets could
accommodate the parking needs of future evening entertainment and
restaurant facilities that will be located in the center of downtown.
• Arts and entertainment uses, including both public projects (a
performing arts center) as well as all types of private retailing
opportunities, including restaurants, nightclubs, 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. A multiplex movie
theater should be pursued as an anchor for a downtown
entertainment district. Other entertainment uses could take place in
both existing and new infill buildings.
In addition, the feasibility of bringing working artists to downtown
should be explored, by creating opportunities for galleries, studios,
classes, and even housing or live/work spaces -- especially to take
advantage of existing vacant buildings. Artists can also be used to
enliven public spaces through outdoor displays of permanent and
rotating public art.
• Housing for families as well as senior citizens, and single
professionals, located in both single family and multi-family housing
projects primarily in neighborhoods adjacent to the Downtown Core.
(See "Downtown Residential" below.)
15
Since these new development projects cannot be established overnight, it is
important to build upon existing activities which draw the broader community
downtown. Programs at Court Street Squ,.ee, for example, need to continue to
expand. The Central Library, located at 6th and "E" Streets, is also not recognized
as the draw to downtown and could do more to better relate to downtown activity.
The potential to create "Rhythm Alley," between Court and 4th Streets, to connect
existing jazz and nighttime uses at La Casita and Copasetic Cafe, is another
example of building on existing resources, and creating a strong identity for an area
that can attract other complementary uses.
The City of San Bernardino, as Figure 2 shows, is the principle owner of vacant
j land in the downtown. Because the city owns large parcels of land 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 Performing Arts Center, the city can help to program new uses into now
under used areas making them more attractive for related private development.
It is clear that the city will have to continue to play a pivotal role in encouraging new
private development, especially in today's depressed real estate market. Already,
the city controls much land and is willing to consider construction of needed
infrastructure, such as parking garages. However, more may be necessary. 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.
In the short term, the city must demonstrate progress with 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.
In order to develop other opportunities for downtown, a coordinated program which
seeks to market and promote specific development opportunities should be
prepared. As part of this effort, more specific design concepts for new development
projects may need to 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. When appropriate, the EDA should work with property
owners to solicit development interest for specific sites that would meet the design
concepts proposed.
16
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CITY OWNED/PROPOSED DEVELOPMENT PARCELS FOR I
- SPACE
153 HAVE
NEW YOR
PROPOSED DEVELOPMENT SITES
CITY OF SAN BERNARDINOIREDEVELOPMENT AGENCY
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__ CITI'OF SAN BERNARDINOICENTRAL CITY COMPANY
CREATING A PEDESTRIAN FRIENDLY CITY
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.
New development will also not function unless it is knit together with streets,
sidewalks, and public spaces which balance the needs of people on foot with those
in vehicles. Creating a more effective pedestrian environment, including more
sidewalk space in key areas, is therefore absolutely essential if the downtown is to
be revitalized. Although the diagonal parking experiment and streetscape
improvements constructed in recent years have helped considerably, efforts to
reduce vehicular dominance of streets, including excessive speeds, need to be
continued and expanded. (These issues are discussed in detail in the next
section.)
More, usable and lively public spaces are also needed. While Court Street Square
is a good beginning, other public spaces in downtown need to be retrofitted and
new public areas created to serve unmet needs and to serve as the focal point for
new development.
Designing New Development
Findings: The approach to new development in downtown 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.
From the perspective of re-establishing a strong street-level downtown, the issue
of preservation of existing buildings becomes especially important. The vast
majority of buildings built prior to World War If 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
17
of 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.
Recommendations: In its new development code, the City has established
guidelines for new infill, small scale construction, as well as for some basic issues
relating to public plazas and ground floor design for large developments. The
overlay district needs to be expanded and strengthened with regard to a number of
issues, including:
• the prohibition of new second level walkways and plaza spaces;
• more specific guidelines for large scale office, retail, and residential
development, including location and design considerations for
parking garages;
• more specific guidelines for design of usable public spaces (seating,
orientation, adjacent retail uses, etc.).
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 district
guidelines.
Public Spaces
Findings: The construction of Court Street Square addresses a major shortcoming
of downtown, which previously lacked any well-used public space. Plazas and
public gathering spaces that did exist were elevated (City Hall Plaza) or devoid of
adjacent retail or food uses which would help to activate them (County
Administration Building park). A central focal point for the community, Court Street
Square was designed to be a highly programmed space. Under the direction of
Main Street, uses have included markets, concerts, and special events, as well as
simply a place for people to sit, eat, and socialize. The square opens onto the
adjacent parking lot the upgrading of which has recently been completed, that often
serves as spillover or supplemental programming space. In addition, because the
square is accessed from both street-level and the adjacent second plaza., it
connects the two spaces visually and functionally.
18
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Recommendations: While Court Street Square is a good beginning, other public
spaces in downtown need to be retrofitted and new public areas created to serve
as the focal point for new development or redevelopment. Special attention needs
to be paid to amenities for these spaces -- fountains, seating, public art, trees and
arbors for shade, flowers, and dramatic night lighting. Figure 3 illustrates existing
public spaces and new public spaces associated with new development areas.
Recommended new/retrofitted spaces include:
• New courtyard entrances to Carousel Mall with active retail edges.
The existing courtyard on "E" Street should be retrofitted, and new
courtyard/plazas created at the South Entrance to Harris' and new
entrances to all of Carousel Mall's anchor department stores. These
spaces will help improve the pedestrian connections between the Mall
and downtown -- and create amenities for shoppers and visitors to
Carousel Mall.
• An entertainment-oriented plaza with cafes, kiosks, and street
performers as part of the proposed cineplex complex at 4th and "E"
Streets. This space would be animated by adjacent retail and
entertainment uses, with outdoor cafes and special amenities.
• A new state plaza on "E" Street and 4th Street as part of the
Superblock project, with an immediately adjacent restaurant and
retail. This space should provide an amenity for building employees
and visitors, as well as draw other users of downtown.
• "Rhythm Alley" -- an alley connecting 4th and Court Streets with
outdoor seating and performance areas -- linking several jazz clubs
and other night spots.
The Breezeway -- a pleasantly scaled walkway between 4th and
Court Street which needs minor improvements and more active
adjacent uses.
19
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CITY OF SAN BERNARDINO-DOWNTOWN URBAN PLAN FIGURE 3 PPS PROJECT
FOR PUBLIC
PUBLIC SPACES SPACES, INC
153 WAVERLY PLACE
NEW YORK. NY 10014
• EXISTING PUBLIC SPACES
OPROPOSED PUBLIC SPACES
y,, NEW DEVELOPMENT SITES
CREATING A COMPREHENSIVE ACCESS AND CIRCULATION STRATEGY
The lack of a continuing street life and vital;'( 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.
An effective pedestrian strategy for downtown cannot be accomplished in a
vacuum. There needs to be a coordinated approach to downtown transportation
and circulation issues, including parking, public transportation, bicycling, and the
connection of downtown to the new Metrolink Station. Successful downtowns
integrate all of these functions. In the heart of downtown -- "E" Street, "D" Street,
sections of 4th Street, and Court Street -- streets should, for example,
accommodate parking, diagonal and parallel, to serve adjacent businesses. Streets
should also accommodate safe and comfortable pedestrian crossings, as well as
a mix of traffic -- public transportation and private vehicles. California, through its
stringent air quality regulation, also requires employers to reduce automobile use
by employees, a factor which can help frame other downtown circulation
improvements.
This section describes the three most important areas regarding activation of
pedestrian areas in downtown: relationship to vehicular traffic and transit and
parking.
Traffic Transit and Pedestrian Use
Findings:. A major planning recommendation in 1992 was to address the problem
of vehicular dominance of downtown streets. There was no hierarchy of vehicles
versus pedestrians in the street network downtown: all streets were 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 in January of 1992
showed that these streets operate with virtually no congestion, even during peak
periods. The time-lapse also showed that space now allocated for moving vehicles
is excessive, and that re-allocation to pedestrian or parking use seemed possible
for the foreseeable future. Because of the lack of congestion, people could drive at
relatively high speeds, which further reduced the feeling that this was a downtown
at all.
20
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SPACES,BUS ROUTES FOR PUBLIC
LINES 153 WAVERLY PLACE
1-3 BUS NEW YORK. NY 10014
LINES 4-5 BUS LINES
6-8 BUS LINES
9-11 BUS
Parking was limited to a few spaces on the streets, where drivers parked parallel
to the curb. During the construction of streetscape improvements in downtown,
additional red or no-parking zones were also instituted, to facilitate traffic flow. This
increased the already excessive space for vehicular traffic, while making it less
convenient for downtown shoppers to park.
Crossing streets was also perceived to be 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 made pedestrians wary 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
situations, the provision of mid-block crosswalks in key locations becomes central
for pedestrian mobility.
With regard to pedestrians, sidewalks are generally very narrow. Recently
constructed streetscape improvements have made a major difference in overall
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
widening did occur.) This width acts as an additional barrier. As with "E" Street,
sidewalks are also too narrow, but, unlike "E" Street, they have not yet been
improved with streetscape treatments.
As part of any reconsideration of downtown circulation, consideration for bicycling
should be investigated. While currently light, the City lacks a bicycle policy, a city
wide network of designated routes, and, for commuters, adequate facilities.
To begin to address these problems, an experimental diagonal parking program
was initiated, first on Court Street and then on "E" Street between 2nd and 6th
Streets. The purpose of the experiment was to test the impact of diagonal parking
on both traffic flow and pedestrian activity, and to make modifications as necessary
to address problems that emerged.
Finally, public transportation is an important activity on downtown streets. In 1992,
bus routes through the downtown were reorganized to consolidate bus activity
along 4th Street. (See Figure 4 for existing bus routes map.) The creation of the 4th
Street Transit Mall (not actually a mall, but simply enhanced waiting areas and
easier transfers), while a positive addition to the downtown, needs to be modified
with the development of the Superblock. Sidewalks are currently too narrow to
accommodate shelters and the anticipated increased pedestrian traffic.
Although transit ridership remains very light, ridership is increasing, as more bus
service is added. In addition, with the 1993 opening of Metrolink Commuter rail
21
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service from San Bernardino to downtown Los Angeles, connecting bus service to
downtown may also increase. Metrolink offers many potential benefits to downtown
if effective public transit links are created.
Recommendations: Improving the pedestrian environment in downtown San
Bernardino should continue to involve a rethinking of the utilization of streets and
developing a better balance between pedestrians and vehicles. A comprehensive
strategy for downtown circulation is needed which:
• Creates streets which balance pedestrian and vehicular needs. A
hierarchy of streets should be established to create more pedestrian-
friendly access on "E" Street, Court Street, and 4th Street in particular
-- as well as more clearly identified major vehicular streets. The
concept of traffic calming -- slowing speeds to about 20 MPH in
downtown -- should be tested and implemented.
• Establishes an overall management system for parking, including
parking requirements, enforcement, rate structure, and new
development (see below.)
• Works to increase utilization of public transit and establishes a
connection to the Metrolink station.
• Creates an effective integration of bicycles downtown into a city-wide
bicycle network.
• Continues programs to reduce private auto commuting, such as ride
sharing and van pooling.
Figure 5 shows a proposed new street hierarchy plan for downtown which develops
a network of mixed pedestrian and vehicular streets. These streets should have
posted reduced traffic speeds: "Pedestrian Area/Speed Limit 20 MPH", on-street
diagonal or parallel parking, and wider sidewalks. A median strip 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
Superblock project, which are not major vehicular streets, should allow car access
but be primarily oriented to pedestrians. They should include narrow lane widths,
parallel or diagonal parking, wide sidewalks, and possible special paving treatments
(such as brick) to the street space itself. Table One shows specific
recommendations for each mixed pedestrian/vehicular street or primary oriented to
pedestrians.
22
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FOR PUBLIC
PROPOSED STREET HIERARCHY
SPACES,
YORK.153 WAVERLY PLACE
PRIMARY VEHICULAR NEW
MIXED PEDESTRIANIVEHICULAR
PEDESTRIAN SEEN PRIMARY
PROPOSED PRIMARY PEDESI�N (NnV STREET)
COREAREA
TABLE ONE: PROPOSED PEDESTRIAN/VEHICULAR IMPROVEMENTS
POSTED SIDEWAIR PARKING MEDIAN STRIPS MIDBIOCC
SPEED IDATIS WIDENINGS CROSSINGS
Parallel Diagonal
E STREET X X X X(part) X
D STREET X X X
ARROWHEAD X X
3rd STREET X X
COURT STREET X X X X
4th STREET X X X X
G-STREET EXTENSION X X X X X
Sth Saica X
F Strc m X
Implementation of streetscape and traffic changes may continue to be done in a
phased manner. With the construction of the Superblock project, sidewalk
widening, neckdowns and other improvements should be constructed on "E" Street
between 2nd and 6th Streets, and 4th Street oetween "D" and "F" Streets. This will
help create the strong pedestrian connections necessary between the Superblock
and downtown retail. The 4th Street project should modify locations of bus waiting
areas and shelters to reduce impact on adjacent uses. In addition, a bus
information center should be established on 4th Street.
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
Superblock ("D", "E", 4th, and 5th Streets).
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 related to increased
service. While this should be a long-term effort, it will eventually help relieve the
demand for parking and take advantage of the city's "hub" position within the bus
system.
Parkin
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.
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.
23
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 guidancp,, but it is essentially a mechanism by
which property owners can provide parking ror 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 undertaken 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.
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. As development occurs, such as on the Superblock or behind the
California Theater, existing lots will be eliminated, and new garages will be
required. However, if there is not overall effective management of all downtown
parking, garages could exacerbate abuse of on-street or parking lots by employees
who are supposed to park in the garage, but won't.
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 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 overall design character of garages.
Recommendations: 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 6) . 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. It 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.
24
In the short term, the diagonal parking experiments on Court Street, having proved
to be successful, should be made permanent and extended to the block between
"D" and Arrowhead. The "E" Street diagonal parking should continue to be
monitored and refined. Future experiments should be considered for portions of 4th
Street and "D" Street as well.
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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PARKING FOR PUBLIC
EXISTING PARKING DISTRICT SPACES, INC.
153 WAVERLY PLACE
DIAGONAL PARKING/ON-STREET NEW YORK. NY 10014
• PROPOSED FUTURE PARKING GARAGE LOCATIONS
CITY CENTER
EXISTING PARKING LOTS TO BE PHASED OUT WITH DEVELOPMENT Met /n
DOWNTOWN GATEWAYS
The important entrance points to a downtown are critical introductions areas for
visitors and regular users as well. For visitor, gateways are where first impressions
of the area are created and directional information conveyed regarding the location
of landmarks, services, districts and major streets. For regular users, such as
shoppers and commuters, the design and appearance of gateways have a major
impact on their overall impressions of the downtown.
In San Bernardino, the predominant gateway is by vehicle. However, a new
gateway at the Metrolink Station is beginning to develop with the opening of
commuter rail service. Both gateways are discussed below.
Vehicular Gateways
Findings: Presently, the vehicular entrances from the 1-215 freeway to the center
of the City are not distinguished or attractive, tending to reinforce negative
perceptions about Downtown San Bernardino as one arrives into the city. There
are no strong visual cues to let drivers know that they have actually entered
Downtown San Bernardino, nor signage telling people about key destinations. As
one drives into Downtown along 2nd Street after exiting the 1-215, the lack of
defined edges as result of setting low buildings behind parking lots, creates
unattractive and unmemorable entrances. These are uneventful places to drive
along and are not pedestrian friendly. Many unattractive or deteriorating buildings
that greet visitors driving along 5th Street, which tends to heighten people's security
fears about downtown.
Recommendations: The appearance of the both the east-west and north-south
gateway streets (2nd, 4th, 5th, G, H, and Arrowhead Streets) should be improved
with landscaped medians, historic style street lights, orientation signage and public
art to welcome visitors to Downtown San Bernardino and guide them to their
destination within downtown. Streetscape improvements should be combined with
facade improvements to buildings and, if appropriate, redevelopment of sites to
upgrade properties along gateway streets. In some instance, these sites are
opportunities for major new residential development discussed below.
Metrolink
Findings: The Sante Fe/Metrolink depot, located just west of the Interstate 215 on
3rd Street, is a grand structure -- soon to be restored -- built in the historic Spanish
tradition of many other train stations found in Southern California. The return of
regular commuter service has created a significant opportunity to reuse and
renovate this transportation facility. While current ridership is currently low, service
will expand beyond San Bernardino to Redlands.
26
Metrolink has created another means of getting to Downtown San Bernardino and
will allow Downtown residents an additional means of access to other points along
Metrolink's route. However, Metrolink's presence is minimal, because of its
somewhat remote location relative to downtown as well as the lack of development
around the station.
Recommendations: Stronger vehicular, transit, and pedestrian connections should
be created from the Downtown and its surrounding neighborhoods to the rail
station. These improvements can be accomplished, in part, through the "gateway"
programs described above. Transit connections should be studied as part of the
proposed comprehensive downtown circulation study.
For the station itself, a major upgrading now in planning stages needs to be
accompanied by a redevelopment of the surrounding area. This plan should
consider both short term cosmetic improvements as well as longer term
development opportunities created by the renewal of the station.
27
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 division of the Economic Development
Agency, 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. With the completion of Court
Street Square, Main Street has served as the overall manager for the space, both
coordinating events by others as well as sponsoring their own events, such as
Friday Night TGIF party.
Among the other activities of Main Street are 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 7.
Three of the most important management programs are discussed below: events
and activities, maintenance and security, and retail assistance.
Events and Activities
Findings: As noted, Main Street has organized many events and activities in the
past few years, especially since the opening of Court Street Square. Main Street
is continuing outreach to the community to make sure that the Square is
programmed as often as possible. Types of events that have occurred in the
Square -- that could not have occurred before include theatrical performances,
chess tournaments, film festivals, and even weddings.
Events 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 a performing arts
center, and build new community support for downtown.
City regulation, policies, and fees have long 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
28
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CITY OF SAN BERNA.RDINO-DOWNTOWN URBAN PLAN FIGURE 7 PPS PROJECT
FOR PUBLIC
MANAGEMENT ZONES SPACES, INC.
153 WAVERLY PLACE
NEW YORK. NY 10014
PROPOSED IIIGH ACTIVITY EXPERIMENTAL ZONE
BUSINESS IMPROVEMENT DISTRICT
MAIN STREET PROGRAM AREA
,GIL MORT9
that not only were city restrictions onerous, but license fees and taxes were too
high. For example, a Business Improvement District (Figure 7) imposes a double
business license fee on retail businesses within its boundaries, but the proceeds
are not dedicated specifically to downtown projects.
Recommendations: 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 permits 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.
Maintenance and Securitv
Findings: 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.
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.
Although police report actual crime rate is relatively 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 a "Problem Oriented Policing (P.O.P.)" Program to
address target areas. 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. The Downtown
Business Association is taking the lead in this effort.
29
Recommendations: 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.
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.
Retail Support
Findings: Main Street has 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, and there
is a particular need for retail recruitment for anchor attractions, like movie theaters
and major restaurants, that will increase general foot traffic in the downtown.
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 is beginning 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 could 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.
I
30
Recommendations: Court Street Square should continue to incubate both activity
as well as to test the viability of specific new businesses. Local entrepreneurs and
existing businesses should continue to be encouraged to participate in activities,
events, and markets on the Square. In addition, an antique or crafts market should
be considered for the square to help build support for permanent such uses in the
downtown.
Efforts such as the facade and signage grant program, retail promotions, and other
similar initiatives should continue in the future. Main Street and EDA should place
particular emphasis on the High Activity Zone designed to expedite the city
approvals necessary to start a business downtown.
i
I
31
DOWNTOWN RESIDENTIAL
Downtown San Bernardino can become a truly mixed use area by creating
connections to and revitalizing existing residential areas immediately adjacent to
the north and east of the downtown core. These residential areas provide both
housing options for downtown workers and a population base that will shop and
utilize the entertainment and cultural opportunities available in Downtown.
Creating Neighborhoods
Findings: Existing residential areas adjacent to downtown are severely blighted,
which detracts from the viability of downtown itself. In the residential community
north of 5th Street, there are extensive social problems and deterioration, in part
because of the lack of owner occupied housing and the increased number of non-
single family residences. There are many vacant lots where new housing should
be constructed. The feelings of neighborhood is further diminished by streets that
are much too wide for residential streets.
The EDA's "Neighborhood Spirit" program is a comprehensive focused
neighborhood improvement strategy to address both social needs and physical
blight within identified target neighborhoods, as well as construction of new infill
housing. While the "Spirit" program has identified target neighborhood close to
Downtown, none in its first year are immediately adjacent.
In addition, there is opportunity for new housing. Both the Sante Fe railway yard
south of the Rialto, in the EDA's Central City South redevelopment area, and the
present location of Cal Trans are opportunities for future mixed use residential
communities. However, residential is not currently considered as a potential use
for this site.
Recommendations: Residential areas north, south and east of Downtown should
be targeted for revitalization and new construction and master plans prepared
(Figure 8). In both existing and future residential areas, ordinances should allow
for infill housing, smaller lots and higher density single family home ownership.
However, new housing should not be constructed without a comprehensive
residential development or neighborhood revitalization plans that will shape these
neighborhoods into socially supportive and secure places where people know and
work together to "grow" their community. Such comprehensive programs should
address security, recreation, social services, etc.
Importantly, residential streets should scaled in such a way that it pulls the houses
on both sides of the street closer together to create a more intimate and cohesive
neighborhood environment. By narrowing residential streets, vehicular speeds are
also reduced to a comfortable level for pedestrians and residents. Some of the
32
wider residential streets such as "F", "G", "H" and 7th Streets should become
neighbor boulevards with landscaped medians. Attractive public spaces,
comfortable pace of vehicular traffic begins to create a stronger perception of
community and promotes a more secure environment for children and the elderly
who live in these neighborhoods.
33
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CITY OF SAN BERNARDINO-DOWNTOWN URBAN PLAN FIGURE S PPS PROJECT
FOR PUBLIC
DOWNTOWN RESIDFWTIAL NEIGHBORHOODS SPACES, INC.
153 WAVERLY PLACE
NEW YORK. NY 10014
IMPLEMENTATION
The implementation of the Downtown Plan began during the planning process in
1992 -- stemming from the concept that small-scale, incremental improvements
based on the community's own visions of what it needs can provide quick,
productive enhancements that sets the stage for meaningful long term
development. Under the Economic Development Agency, including its Main Street
division, Court Street Square has been constructed and diagonal parking created.
These and other improvements helped to create the momentum for the new
Government Center project and the proposed redevelopment of Carousel Mall.
Figure 9 graphically presents the Downtown Plan. Additional graphics are included
in the separate summary report.
The Economic Development Agency and the City of San Bernardino will continue
to take the leadership in the renewal of the downtown, working with local
businesses and the Downtown Business Association as well as other city agencies.
Implementation of the plan requires the following actions on the part of the EDA and
the City:
• Policy changes with regards to zoning and ordinances which currently
restrict many downtown activities. These changes must involve
coordination with the Department of Planning and Building Services
as well as the creation of a high activity zone managed by all of the
city departments with regulations impacting the downtown.
• Additional planning studies, especially with regard to downtown
circulation. Requests for proposals should be issued in the near
future for the circulation study to assure that development proposed
in this plan can be accommodated within the street network.
• Construction of improvements to public spaces -- with special focus
on "E" Street, 4th Street, and Court Street sidewalk widenings and
streetscape improvements. It is important that improvements on the
Superblock site be implemented with the construction of the complex,
with other streetscape improvements completed so that when the
state offices open there is an inviting connection between the state
buildings and downtown.
Management programs for Court Street Square and
maintenance/security efforts -- under the direction of Main Street.
Increasing the number of activities and events, as well as outreach to
the community, is an ongoing effort. The Downtown Business
Association can also play a role in management activities, especially
with regard to downtown security.
34
• Investment in downtown development through financial loans, grants,
assistance in site assemblage, and project management assistance
to maintain existing downtown users and attract new users. This, of
course, is a central function of EDA. The three high priority projects
for the EDA should be:
• The Superblock (Phase I now in development, but future
phases of development are possible).
• The California Theater/Entertainment complex. A parking
garage will be constructed on the site as part of the
Superblock project, as well as the parking structure on the
Superblock itself. Along with proposed changes to Carousel
Mall will help make this site a very attractive location for a
multiscreen cinema and retail complex.
• Carousel Mall Redevelopment and Expansion. With its public
spaces owned by the City, the City has been and continues to
play a key role in the redevelopment and expansion of
Carousel Mall. In addition, public improvements and
developments outside the mall, including streetscape
improvements and the Superblock and Entertainment Centers,
are also necessary in order to undertake a coordinated
approach the revitalization of downtown as a whole.
This comprehensive strategy requires that both short term improvements and longer
term development strategy be continued to be pursued concurrently. The result,
however, should go beyond economic return to consider what this project means
to the community itself.
All too often, in implementing policies and undertaking new development, the
overall vision is sometimes forgotten. For San Bernardino, the true test of the plan
is whether a new center of community life is created: a place where there are
comfortable places to walk and mingle with others. These places, especially in Los
Angeles, are infrequent and fragile. However, the steps taken place to date give
confidence that San Bernardino can and will re-define its downtown to become a
center of community as well as economic activity.
35
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APPENDIX
SUMMARY OF PUBLIC COMMENTS
TOWN MEETING
February 13, 1992
Security
Horse and bike patrols
Walking police
Light streets better at night
More drug busts
Traffic, Transportation, and Parking
Slow auto traffic
Remove pedestrian bridge
Directional signs to downtown
1-215 landscaping
Better balance between pedestrian and auto
Street median on "E" Street
Diagonal street parking
Close off streets
Trolley loop
Amtrak connection
People movers
Reduce dedicated parking
Better traffic signs
Better signage of public parking lots
Mall parking lot more friendly
Management
Better communication of downtown events
Involve both colleges
Business recruitment
Target people with most disposable income
Lower permit fees
Group advertising for downtown merchants
Tourist map
Council/EDA need to focus on downtown
Events
Concerts
Petting zoo
Roller rink
/1
Sports activities
10 k's
bike races
volleyball tournament
lawn bowling
Carnivals
Craft shows
Recycle awareness/environmental exhibit
Childrens' art project/fair
Swap meets/flea markets
Classic movie festivals
Job/career fairs
Shooting range
Street dances
Trade shows
Summer festival...different theme each week
Ethnic folk festivals
Market night
Street fairs
Music Festivals
Outdoor movies and lectures
Antique fairs
Open air theater/shows
Talent shows
School work displays
Fashion shows
Mimes, face painting, puppets
Parades
Student activity, events & competitions
Flower shows
Street entertainment
Quality theaters
Performing arts center
IMAX theater
Games, chess, Shuffleboard
Horse drawn carriages
Have college performing groups use downtown
Special Amenities
Remove center divider wall on "E" Street
Relocate Harris truck delivery area
Add graphics, banners and flags to empty buildings
Interim uses for vacant buildings and lots
Shade structures
Graphics on pedestrian bridge
Neon accents on buildings
4
Mural on old ice building
Colorful tents
More benches and tables
Water and fountains
Public Art
More places to sit
Green it up
Cobblestone streets
More flowers
Childrens' garden
Bandstand and/or stage area
Wave pool
Lights on buildings
Food
Food market with food to go
Outdoor restaurant
Farmers Market Pizza
International Market
Fast food festival
Coffee houses
Ice Cream
Beer Garden
Bar/watering hole
Food vendors
Cook offs i.e. Taste of San Bernardino, Chili Cook Off
Pancake Breakfasts
Ethnic foods
Mini Brewery
Other Ideas
Childrens' Museum/Nursery/Day Care
More housing downtown
1-
SUMMARY OF PUBLIC COMMENTS
PUBLIC FORUM AT COURT STREET SQUARE
July 14, 1994
Arts and Entertainment
More public art (sculptures, murals, fountains)
Art films
Arts extensions classes from universities
Public art by local artists which reflects diversity/history of community
Cultural/theater district with Multi-screen cinema and California Theater as anchors
Route 66 Museum
Route 66 Mural
Centralized box office location for all performing arts activities
Art colony style residential area for visual and performing artists
Restore California Theater
Children's activities, such as a miniature railroad
Rollerskating in mall
Create an "art walk"
Space for local historical exhibits
Activities and Events/Ideas for Court Street Square
More youth activities (dances, games, etc.)
Lecture series with well known speakers
More multi-day events such as Route 66 and the Main Street Jazz Festival (like a
Mariachi Festival or Gospel Festival)
Small music ensembles
More community groups to sponsor events in Square
Keep music as attraction
Move library book sale to Court Street Square
Santa Claus parade
Technology, arts and craft exhibits at mall
Space for people to display personal historical exhibits and collections
Heath fair
New Developments and Services
Quality child care centers
More activities for senior citizens (shopping, entertainment, health care)
Exercise path network through downtown
Target youth: joint efforts with schools
Market downtown conventions
Bookstore in Superblock
More classes/college extension programs
Residential Development
Enhance home owner opportunities
More apartments (higher scale) downtown
Renovate older homes
Address security concerns
Develop upscale high rise residential
Code enforcement/demolition of condemned housing
Develop model fix-up project on one block (suggested: 6th-7th/D to E)
Median strips on residential streets
Find homes for homeless people living on vacant lots
Relocate shelters out of downtown
Streetscape and Special Amenities
Flower vendors
Pedestrian scaled signs
Arbors for shade
Pedestrian malls (temporary or permanent)
More plants and trees, less desert feel
Community gardens
High activity zone to allow for controlled experiments (sandwich boards, vending,
etc.)
Improve appearance of 5th Street offramps and corridors to downtown
Establish design continuity
Widen sidewalks
Giant chess set/playing area
Fountains
More grass/lawns
"Lightscaping"
Water parks
Accessible public toilets
More color in sidewalks and streets
Drinking fountains
Enhanced street furniture
Outdoor play area for kids
Traffic and Transportation
Retain diagonal parking
Remove diagonal parking: widen streets
Downtown trolley loop
Bike lanes
Tramway to Airforce base
Horse drawn trolleys
Directional signs from freeway to downtown
Relocate buses to 5th Street
Longer signals for pedestrians
Encourage drivers to use another street than E Street if in a hurry
Crosswalk between 4th and 5th on E Street
Remove plastic bollards in diagonal parking areas
Security and Maintenance
More security, especially at night
Maintenance, security, and code enforce better coordinated (by one entity)
Old fashioned "beat" cops
More litter removal
More activities for kids to prevent graffiti and get kids off street
Outdoor security cameras
Other
Eliminate County Health Department restrictions on events and activities
Improve appearance of rooftops ("roof appeal")
Maximize use of regional parks
Emphasize role of San Bernardino as biggest county in country/gateway to desert
Emphasize geothermal energy as asset
Need 90 day implementation period for ideas!
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