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REFERENCE 0 LY

THE CONCEPT FOR THE LOS ANGELES GENERAL PLAN

CITY OF LOS ANGELES

SAM YORTY, mayor

CITY COUNCIL

JOHN S. GIBSON, JR., presidentERNANI BERNARDITHOMAS BRADLEYMARVIN BRAUDEEDMUND D. EDELMANJOHN FERRAROGILBERTW. LINDSAYDONALD D. LORENZENBILLY G. MILLSLOUIS R. NOWELLJAMES B. POTTER, JR.PAT RUSSELLARTHUR K. SNYDERROBERT J. STEVENSONROBERT M. WI LKINSON

ROGER ARNEBERGH, city attorneyCHARLES NAVARRO, controller

CITY PLANNING COMMISSIONJOHN J. POLLON, presidentMRS. ELIZABETH K. ARMSTRONG, vice presidentMELVILLE C. BRANCHEDWARD J. CROWLEYDAVID S. MOIR

CITY PLANNING DEPARTMENTCAL VI N S. HAM I LTON, d ireetor

THE CONCEPT FOR THELOS ANGELES GENERAL PLAN

JANUARY 1970

DEPARTMENT OF CITY PLANNING LOS ANGELES, CALIFORNIA

PREFACE

This report presents a proposed Concept forthe long-range development of the City of LosAngeles, together with the goals upon whichit is based. The Concept is intended to serveas the basic framework for the Los AngelesGeneral Plan, which is scheduled to be com­pleted by the end of 1970. The report is thefirst in a series of recommendations for theGeneral Plan.

The General Plan is the basic component ofthe comprehensive planning process. Its pur­pose is to provide City officials with a guidefor decision making on planning and develop­ment matters and to inform the public of theexpected future development of the City.

The proposals included in the Concept areintended to be ambitious and far reaching,looking to the attainment of the full potentialof Los Angeles. The Concept is designed tomeet the needs of a future city of five millionpeople. Other portions of the General Planwill be more explicit and will be tied tospecific time periods.

The Concept seeks to restructure the City inorder to el iminate or alleviate cu rrent prob­lems and anticipate and deal with futureissues befo re they beco me seri ous problems.In the judgment of the Planning Departmentstaff, the Concept would result in a physicalstructure consistent with the goals and objec­tives of the City's citizens, as expressedthrough the Goals Program and other plan­ning research.

Adoption and implementation of the GeneralPlan is the responsibility of the electedofficials of the City - the Mayor and CityCounci Imen. The future nature and form ofLos Angeles must be determined by therepresentatives of the citizens, not by specialinterests either public or private.

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7. An open space program uti lizing bothpublic acquisition and land use controlsmust be formulated and implemented, inorder to prevent the loss of private recrea­tional lands threatened by developmentand reserve needed open lands in unde­veloped areas; the passage of whateverState legislation is necessary to such aprogram must be advocated.

Other elements and components of the Gen­eral Plan will show how the development ofvarious aspects of the City will proceedaccording to the Concept. They will includefive and twenty year implementation pro­grams. It is essential that a long-range conceptsuch as that described in this report beadopted, so that these more detai led plansand programs may be completed.

The Director of Planning recommends thatthis Concept be approved by the City Plan­ning Commission, after review and recom­mendation by the General Plan AdvisoryBoard, and be adopted by the City Counciland the Mayor as a part of the General Plan ofthe City of Los Angeles.

8. A long-range continuing program of bal­ancing anticipated City expenditures andrevenues must be established, so as toprovide optimum fulfillment of the needfor public services.

The chart below 'Indicates the PlanningDepartment's schedule for preparation of theConcept and the Citywide Plan, and thesuggested timing of official actions by saidbodies.

City Counei r A600 hon

(Ily ?raonlng LOfllmlS$lon APOfOval

Clt~ PI.mi' iog Comm i'$S.l 00 He,a1"1 ngs.

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comprehensive development code,orporating zoning, land subdivision andJsing regulations, must be adopted, inler to give assurance of coordinatedII-planned development and to facili­e technological innovations in construc­n methods.

)ULE FOR GENERAL PLAN ADOPTION

anges in the State property tax lawsst be advocated, such changes to pro­e that assessments shall be based uponi land use potentials designated by theleral p Ian of a city, nat on land pricesich reflect a speculative expectation ofne other use, or on any other inter­'tation as to the "highest and best" use.

e funding and development of a rapidnsit system must be advocated andlported, In order to provide for effi­nt movement of peop Ie with in they. Station IDcations sh ou Id be confi nedthe most part to intensively developed

Iters. Local feeder lines should be builtan integral part of the rapid transittem.

ntlnued growth should be permittedt must be guided by a comprehensivenning process.

on of the Concept recommended inJort will imply strong commitments tolowing broad policies and actions:

1:ain areas must be designated formanent retention in low-density use,j held inviolate from zoning actionsich would result in higher densities.

sired development must be stimulatedough new approaches involving part­"Ship between public and private enter­se.

CONTENTS

PREFACE

INT RODUCT IONCHARACTER ISTICS OF LOS ANGELES

Development Patterns

Urban ProblemsDevelopment Trends

THE PLANNING PROGRAM FOR LOS ANGELESComprehensive Planning ProcessGoals Program

Alternative ConceptsFormulation of the Concept

CONCEPT FOR THE GENERAL PLANPURPOSE AND CONTENT

General PlanConcept

GOALS FOR THE GENERAL PLANGENERAL FEATURES OF THE CONCEPT

CentersSuburbs

ELEMENTS OF THE CONCEPT

Land UseHousing

policies

features

Commerce

policies

features

Industry

policies

features

Open Space and Recreational Lmds

policies

features

Circulationpolicies

features

Service Systemspolicies

features

STUDIES FOR CONCEPT DEVELOPMENT

SELECTED BIBLIOGRAPHY

lC.R.T.D. UaKARl

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INTRODUCTION

CHARAc-rERISTICS OFLOS ANGELES

The reputation of Los Angeles has long restedprimarily upon the way of life of the City'sresidents. The majority of residents enjoy aunique and pleasant style of life, ch<lracter­ized by the ownership and occupancy of thesingle-family house. The mild and sunnyclimate of Southern Californ ia makes outdoorrecreation possible throughout the year.Mountains, desert and ocean are all within anhour's drive 0 f the Civic Center.

Development Patterns

Los Angeles grew with the automobile. Morethan in any other large city, it has permittedthe migration of the middle-income popula­tion to the suburbs. As a consequence, theCi ty has become a vast agg lomerat ion ofsingle-family houses.

Today, the only large vacant lands remainingavailable for either new residential develop­ment or for parks and open space are in theSanta Monica Mountains and in the fringeareas of the San Fernando Valley. As develop­able land has become scarce, construction ofapartments has begun to overtake that ofsingle·family dwellings.

Providing goods and services to the largepopulation of Los Angeles requires a commer­cial establishment of the first magnitude. Thecommercial districts of Downtown, Wilshire,Hollywood, Beverly Hills and Westwood havegrown into an almost continuous corridor ofhigh-intensity development, which hasbecome the core of business, financial, cul­tural and governmental activities of theSouthern California region.

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Los Angeles has also become a major indus­tri<J1 cenler. The most important industries areaerospace, entertainment, oil extraction andprocessing, and electronics. Recent industrialdevelopment has taken p'lace mainly in out­lying areas, close to the workers living in theexpanding suburbs. Since land there has beenrelatively inexpensive and large acreages havebeen needed for parking, suburban industrialdistricts tend to exhibit the same sprawl ashousing. The newer aerospace industry haslocated mostly in the S,m Fernando Valley,which has also been the area of greatestpopulation growth.

Los Angeles has also become an importantcenter of education, science and technology.Several major universities and a number ofsmaller public and private colleges attractstudents and faculty from around the world.Scientists and engineers, particularly, areattracted by the aerospace and electron icsindustries.

Urban Problems

As the population of Los Angeles Cityapproaches three million (in a metropolitanarea of seven million), the City's amenities aremore and more offset by emerging problems.These may be characterized as social, eco­nomic and physical; most, however, involveaspects of all three types.

Some of the most critical problems, such asair poll ution, traffic congestion, inadeq uatepublic transportation and limited airportcapacity, are regional in nature. Their solutionwill require concerted action by Los Angeles

County, all of the 77 cities in the County,special regional districts, and the State andFederal governments. Los Angeles City, how­ever, because of its dominance in size andpopulation, is in a position to give leadershipto a comprehensive problem-solving effort.

Other problems are more directly the respon­sibility of the City. These include: blight andobsolescence, limited choice of housing types,poorly designed apartment buildings, intru­sion of residential neighborhoods by incom­patible uses of other types, inefficient strippatterns of commerdal development, hillsidesscarred by excessive grading, poor access tobeaches, inadequate park lands, and the drabcluttered appearance of older commercial andresident ia I areas.

One particu lar group of problems weighs mostheavily upon low-income and minoritypeople. Substandard housing, high unemploy­ment, and limited opportunity for highereducation lock many of the poor, aged andminority people in a physical and spiritualghetto. Elimination of the poverty, poorhousing and limited opportunities that perpet­uate this ghetto condition must be a. topconcern in the planning of the future LosAngeles.

Development Trends

Continuation of present growth and develop­ment trends of Los Angeles POints to intensi­fication rather than solution of currentproblems and to the attainment of somethingless than the City's full potential, Changes inpublic policies and business practices relatingto development and services will be necessaryIf these undesirable consequences are to beavoided.

Under present trends, the few remaining largevacant areas wilt be subdivided for single­family residences. As population and housingdemand increase, older single-family areas willbe rebuilt with low-rise apartments of stan­dard design and minimum quality. Goodsingle-family houses will become increasinglyexpensive and low and moderate-cost housingof this type will not be built. Substandardhousing will increase, as programs for itsrehabilitation lag behind the rate of decay.Econo mic and socia I segrega t ion wi II con­tinue.

Since most of the remaining open lands in theCity will be taken for housing, little will beleft for the parks and recreation areas neededby the added population. Developed land willhave to be acquired at high cost to correct themost glaring deficiencies.

Business and financial institutions as well asgovernment offices will be concentrated moreand more in the City's central core, creatingever-increasing congestion. However, retailcommercial services in the core will continueto decline, as major stores follow their cus­tomers to the suburbs. Commercial stripsalong the major streets in older areas willdeteriorate as their trade potential decreases,and will exert a blighting influence on adja­cent residential neighborhoods. The appear­ance of most commercial areas will be littleimproved despite sporadic attempts at beaut­ification.

Transportation problems will intensify. Theincreased number of automobiles operated bythe growing population will require the con­tinuous addition of freeways, major highways,local streets and parking lots, just to keepcongestion from getting worse. More andmore land will be used for street purposes,and will be removed from the tax rolls. Thepublic transportation system wilt be limitedto buses, which will compete with auto­mobiles for space on the City's crowdedstreets and freeways. Adequate bus servicewill not be provided due to the high cost ofserving widely separated destinations, andpersons without automobiles will continue tolack mobility.

Finally, smog threatens to remain a problem.Improved techn ical methods for the red uctio nof emissions from the in ternal combustionengine can be expected; however, these will toa large extent be offset by the increasednumber of vehicles.

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S.C.R.lD_ IIRRA.'

THE PLANNING PROGRAMFOR LOS ANGELES

Planning has been of significant value inguiding the development of Los Angeles.However, It has not kept pace with the City'srapid growth. Plans for different aspects ofdevelopment have frequently not been wellcoord ina ted . Many of the prob lems wh ichhave surfaced in recent years could have beenavoided by a comprehensive planning process.

One possible way of minimizing future prob­lems would be to place a restraint upon theCity's growth. However, it is not consideredfeasible to limit population within the fore­seeable future; to attempt to do so wouldprobably result in severe economic and socialrepercussions. Furthermore, the large physicalsize of Los Angeles is adequate to accommo­date continued growth without detriment tothe City's established life style if such growthis guided by comprehensive planning.

ComprehensivePlanning Process

The following steps are the essence of thecomprehensive planning process:

1. Gather the facts: identify problems, issuesand potentials; survey land use and devel­opment; inventory human, economic andphysical resources; study population andeconomic trends and make projections.

2. Identify goals, based upon the preferencesexpressed by citizens.

3. Determine what the possibilities are: alter­native concepts for the future develop­ment of the City.

4. Select the concept which will best serve toachieve the goals.

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5. Prepare a general plan, based upon theselected concept and incorporating goals,policies and implementation programs.

6. Develop the technical means to carry outthe general plan: land development code;programming and budgeting of publicservices; systems for monitoring physical,social and economic conditions; neighbor­hood maintenance, rehabiliiation andrebuilding programs; plan review andrevision procedures.

The Los Angeles City Charter provides thaI aGeneral Plan for the City shall be preparedand adopted, and specifies its nature andcontent together with the broad proceduresfor its implementation. The Concept pre­sented in th is report is the fi rst and most basicelement of the General Plan. Completion ofthe General Plan is scheduled for late in 1970.

Goals Program

The Los Angeles Goals Program was initiatedin 1967, in response to the Planning Depart·ment's recognition that a valid plan mustreflect the needs and desires of citizens. Theopinions and suggestions of individuals andgroups were solicited. An important part ofthe program was the appointment of the LosAngeles Goals Council by joint action of theMayor and City Council of Los Angeles City,the Board of Supervisors of Los AngelesCounty, and the League of California CiIies.The Goals Council has recently published afinal report reflecting the concerns of thevarious participants and presenting its finalrecommendations for goals for the LosAngeles area.

Significantly, the recommendations of theGoals Council are not limited to the tradi­tional concerns of urban planning or to thespecific responsibilities of the Los AngelesCity government. The development of solu­tions to many of today's complex urbanproblems requires full consideration of notonly physical but also social and economicconditions and trends, in a comprehensiveregional context.

Many of the recommended goals concernproblems that require immediate attention.After careful review, the Planning Departmentstaff identified ten issues of primary concern,which are examined in a working paperentitled: "Priority Goals for Los Angeles".These urgent problems must first be dealtwith through comparatively short-range plansand programs. They will accordingly be givendetailed consideration in the development ofthe Citywide Plan and its five and twenty-yearprograms.

This Concept, however, looks not only to thesolution of current problems but also to thelong-range evolution of the best possible City.It must also provide a framework for maxi­mum achievement of the City's long-rangepotential. The Concept, therefore, deals withboth long and short range goals and policies,in the following basic areas: housing, eco­nomic growth and employment, transporta­tion, public services and facilities, recreation,open space and environmental design.

Alternative Concepts

Possible patterns for the future growth anddevelopment of Los Angeles were described in"Concepts for Los Angeles", a recent pub lica­tion of the Department of City Planning.Four alternative concepts were presen ted:"C enters", "Dispersion", "Corridors" and"Low Density".

These alternatives were based on differentfundamental assumptions relating to thenature and in terrelationsh ips of: popula tiondistribution and housing types; employmentand commercial service patterns; transporta­tion modes and routes; and open spacepatterns. Each sought to maintain desirableexisting conditions and trends and to changethose which are not desirable.

Formulationof the Concept

This Concept represents the final recommen­dat ions of the City Plann ing Department. Ithas evolved as a result of numerous detailedstudies by the Department as well as otherorganizations. The more significant of suchstudies are listed in the Bib Iiography. Invalu­able assistance was given by Goals Programparticipants and other persons concerned withthe various aspects of planning.

None of the four original alternatives wasfound to offer a unique and completelysatisfactory basis for the General Plan. TheConcept most closely resembles "Centers"but has been drawn from all four, as well asother sources.

The Concept provides a long-range view of theCity, characterized by (1) the development ofhigh intensity activity centers and their satel­lites, and (2) the preservation of low densitysuburban areas. The two contrasting types ofdevelopment are tied together by a compre­hensive transportation system and a networkof parks and open spaces.

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PURPOSE AND

General PlanAs provided by the Los Angeles City Charter,the General Plan is a comprehensive declara­tion of purposes, policies and programs forthe development of the City, incl uding, whereapplicable, diagrams, maps and text settingforth objectives, principles, standards andother features. The Genera I Plan incl udes aLand Use Element, a Ci rcu lati on Element anda Service-Systems Element. It is presented bymeans of a long-range Concept and a 20-yearCitywide Plan, which provide its framework,together with a number of sub-elements andlocal area (community) plans.

As further provided, the General Plan isintended to serve as a basic and continuousreference in (a) planning for City develop­ment, (b) developing official regulations, con­trols, programs and services, and (c) attainingcoordination of services and administrationby all governmental agencies, private organiza­tions and individuals involved in the develop­ment of the City.

ConceptThe Concept consists of this text togetherwith the accompanying map-diagram andsketches.

The purpose of the Concept is to declare thelong-range goals and policies for the develop­ment of Los Angeles and to describe thephysical features and functional relationshipsappropriate to such goals and policies. TheConcept is intended to be used as the basicreference for the preparation and mainte­nance of all other components and elementsof the General Plan.

NTENT

The Concept map-diagram (see insert) coversa large part of the, Los Angeles metropolitanregion, much of which is under the jurisdic­tion of other local governments. A regionalcontext is necessary in the Concept's presen­tation because the issues, problems andopportunities to which it is addressed do notrecogn ize po Iit; ca I bou ndaries. To govern­mental jurisdictions outside of the City of LosAngeles, the Concept is offered as a generalguide for dealing with local planning matterswhich have region-wide implications. Toregional agencies which have the authorityand responsibility for the planning and provi­sion of certain public facilities and serviceswithin the City of Los Angeles, the Conceptdeclares the intent of the Los Angeles Citygovernment as to the overall long rangedevelopment of the City.

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GOALS FOR -rHE GENERAL PLAN

The following goals are established for theCity of Los Angeles with respect to theGeneral Plan:

I. Preserve the low-density residentia I char­acter of Los Angeles: protect stablesingle-family residential neighborhoodsfrom encroachment by other types ofuses; rehabilitate and/or rebuild deterio­rated single-family residential areas for thesame use; make single-family housingavailable to families of all social andethnic categories.

2. Provide maximum convenience for theoccupants of high and medium densityhousing (apartments): locate the bulk ofsuch housing within, or near to, concen­trations of urban facilities and employ­ment opportunities; make high andmedium density housing available topersons of all social and ethnic categories.

3. Provide employment opportunities andcommercial services at locations conve­nient to residents throughout the City:reserve suitable and adequate lands forindustrial and commercial uses; make LosAngeles an attractive location for newindustries and businesses.

4. Provide adequate transportation fa ci Iitiesfor the movement of people and goods;provide a choice of transportation modes;alleviate traffic congestion; increase thespeed and convenience of all transporta­tion modes; achieve economy and effi­ciency in the movement of goods.

5. Provide needed public services to aIIpersons and businesses: achieve economy,flexibility and efficiency in the provisionof services, both those furnished by theCity of Los Angeles and those furnishedto Los Angeles citizens by other govern­mental jurisdictions; provide suitable sitesfor public facilities at locations conve­nient to their users.

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6. Provide a full range of facilities for leisuretime activities at locations readily acces­sible to all persons: furnish adequate localrecreational services; develop specializedrecreationa I faci Iities; preserve the shore­line for public use.

7. Conserve the City's natural resources andamenities: preserve open space; protectoutstanding geographical features; mini­mize air pollution, water pollution, noiseand litter.

8. Enhance the quality of the City's physicalenvironment: integrate a/l aspects of theCity's development through the applica­tion of urban design principles; establishthe identity of the various communities ofthe City; preserve historical and culturalfeatures; control the placement of com­mercial signs; provide landscaping inintensively developed areas.

More specific goals and objectives are con­tained in the Citywide Plan and the variousGeneral Plan sub-elements.

The above goals are declared to be consistentwith and supportive of those more compre­hensive goals relating to all facets of urbanactivity which have been identified by the LosAngeles Goals Council. These broader goals,in general, call for: promotion of the generalwelfare and public convenience; attainment ofeconomic health and balance, including fullemployment; availability of equal opportu­nities for education and employment topersons of all social, economic and ethnicgroups; availability of adequate housing, witha choice as to types and locations, to personsof all social, economic and ethnic groups;alleviation of poverty; achievement of socialorder; ava i labi Iity of adequate recreati onalfaci lities to a/I persons; en han cement of thevisual en vi ron ment of the City; a/leviation ofpollution and noise; preservation of naturalfeatures and historic development.

EN RAL FEATUR SOFTH CONC P

The Concept is designed to accommodate afuture popu lation of 5,000,000 personswithin the City of Los Angeles, and over11,000,000 persons withi n the metropolitanstudy area included on the map-diagram. TheConcept envisions employment levels ofabout 2,750,000 for the City and over5,350,000 for the study area. The Conceptdoes not specify the ti me for the attai nmentof these levels; based on projections made in1969, it appears that they will not be reacheduntil sometime beyond the year 2000.

The Concept features five basic components:

1. M~jor "centers" having a high intensity ofdevelopment and activity: employment,ho using, retai I services, busi ness services,government services and entertainment.

2. Low-density'" "suburbs" comprisedmainly of single-family residences withnecessary facilities for local business andpublic services.

3. Open spaces of various sizes. includingsmall public and private parks and plazasin centers; neighborhood and communityparks and recreational facilities insuburbs; district and regional parks andrecreational facilities, including golfco urses; Iarge natura I areas; and a netwo rkof trails and/or corridor parks connectingother open spaces to the maximum extentfeasible.

4. Industrial areas distributed throughoutthe City at locations convenient to bothplaces of residence and freight transporta­tion facilities, developed in a manner toassure compatibility with adjacent landuses of other types.

5. A comprehensive transportation system,including: a fully developed highway andfreeway system, a rapid transit networkwith feeder lines, and local bus transit; aregion-wide air terminal system servinglocal and inter-city movement; and afreight movement and terminal system.

• See "Land Use-Housing". page 23, for residentialdensity categories_

The Concept map-diagram (insert in backcover) indicates the citywide form to be takenby each of the described basic componentsand shows their interrelationships. The Con­cept allocates to the centers over half of theprojected population growth and over two­thirds of the employment growth of LosAngeles after 1970. The provision of bothhigh-density housing and places of employ­ment in centers is intended to minimize traveltime between home and work. The placementof a major part of new residential growth incenters is expected to lessen the pressures fordevelopment of medium intensity housing(apartments) in suburban areas, so as toreserve them primarily for single-familyoccupancy by families of various incomelevels.

In the "R egionaI Core" I comprised of theDowntown, Wilshire, Miracle Mile, Hollywoodand Beverly Hills Centers, together with inter­vening and peripheral areas, a much higherdensity of population and employment isdesignated than elsewhere in the City, asconsistent with established trends in land useand development. Figure 1 is a hypotheticalsketch of parts of the Regional Core, illustrat­ing the contrast in building intensitiesbetween centers and suburban areas.

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Centers

Centers will vary in size, shape and intensity.They will be the dominant physical elementsin the City due to their high developmentintensity and concentration of people andactiviti es.

The physical form of a center is indicated bythe accompanying illustrations. Figure 2 is aconceptual diagram of the center's compo­nents. Figure 3 indicates how the variouscomponents might be organized in an actualcenter - Miracle Mile. Figures 4 and 5 areconceptual diagrams that show future activitydistribution and physical form, respectively_Figure 6 is an oblique aerial photograph ofthe Miracle Mile Center today. Figure 7 is asketch of its possible future development.

Each center will have a "core", which will bethe focus of activity. Figure 8 is a sectionalview of a core. The core will contain the rapidtransit station, high -rise office structures,department stores, hote1s, theaters, restau­rants and government offices, It will bedesigned to function on a three-dimensionalbasis, with extensive use of air rights topermit development over streets. The corewill not be rigidly defined in a physical sensebut will extend about one-quarter mile in alldirections from the transit station.

The Concept map-diagram designates 48 cen·ters within the metropolitan study area, ofwhich 29 are located within the City of LosAngeles. Center designations are based upon:existing concentrations of population andemployment; potential locations of popula­tion and employment growth, as indicated bycurrent trends and projected growth patterns;geographical considerations relating to trans­portation rou tes; and the min imum spacing ofrapid transit stations necessary to the attain­ment of an adequate avera II speed.

-----_/"------

Rooftops will be developed as landscapedplaz.as and open spaces for both public andprivate use. Schools, churches, governmentoffices and public facilities can be located onupper Ieve Is, usi ng landscaped rooftops astheir grounds.

Fig. 1 Regional COloe with centers and suburbs

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The major emphasis in the core will be onbusiness activities; however, the core willusually include housing, which in some caseswill occupy the upper floors of multiple­function structures.

Automobiles and delivery trucks will, for themost part, be restricted to the ground level.Interconnected pathways for pedestrian circu­lation will be provided at the second floor andhigher levels. This nearly complete separationof vehicles, transit and pedestrians willenhance the convenience, safety and pleasant­ness of the core.

Centers wi II also include local concentrationscalled "l1odes". These may number as manyas twenty or as few as two. Nodes will beconnected to the rapid transit station in thecore and to each other by a secondary transitsystem operating on its own grade-separatedright·of-way. Nodes will contain commercial,residential and institutional uses, with inten­sities usually somewhat less than that of thecore. A node may be oriented to somespecialized use but will usually contain res­idential and service commercial facilities.Nodes of higher intensities will be designedsimilarly to the core, with grade·separatedpedestrian circulation.

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Fig. 2 Conceptual Diagram of a Center

Satellite

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_____ Secondary Tral1'.>lt

Where a node is distinctly separated from thecenter but connected to it by the secondarytransit system, it is termed a "satellite".Spaces between the core, nodes and satellitesand lands at the periphery of centers wi IIusually be occupied by medium intensity uses- residential, commercial, institutional orrestricted industrial - and, in some cases, byparks and open space.

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Fig. 3 Conceptual Diagram of Miracle Mile

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Pede~tr;on Ways

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0 ~niDr HIgh :)chool

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Fig. 4 Conceptual Activity Diagram of Miracle Mile

Fig. 5 Conceptual Form Diagram of Miracle Mile

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Fig. 6 Miracle Mile today

Fig. 8 Sectional view of center core

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Fig. 7 Concept Sketch of Miracle Mile

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uburbs

'i. m,le

freeway

_ Majo. Hwy

.......... Pe.oe~trlcm Way

Fig. 9 Conceptual Diagram of a Suburb

Fig. 10 Conceptual Diagram of EI Sereno

Those parts of the City located outside of thecenters are referred to as suburbs. Suburbswill contain the lower density residentialareas. Convenience retail services wi II beprovided in local shopping and business areaslocated as specified by the loca! area (commu­nity) plan elements of the General Plan. Theseareas will also serve as focal points for varioustypes of neighborhood activities.

Figure 9 is a conceptual diagram of a subur­ban area. Figure 10 translates the diagraminto an actual case - EI Sereno. Figure 11 isa conceptual activity diagram of EI Sereno andFigure 12 shows its conceptual physical form.Figure 13 is an oblique aerial photograph ofthis community today. Figure 14 is a sketchfrom the same viewpoint showing how itmight look in the future.

Essential to the Concept is the preservation ofexi sti ng stab Ie si ngle-fa mi Iy neighbo rhoodsand the rehabilitation of deteriorated single­family neigh borh oods. Where older si ngle­family areas are beyond rehabilitation, theywill be rebuilt for the same use, with slightlyhigher densities being permitted in some casesso as to meet the demands of populationgrowth.

The subu rbs wi II aIso contai n the bu Ik of theCity's open space, including neighborhoodand community parks and recreational sites,scenic preserves, and specialized recreationalfacilities.

Manufacturing will continue to be largelylocated on Ja nd in suburban areas wh ich hasbeen previously zoned or developed for indus­trial purposes. Zoning code provisions wi!!assure the development of industrial areas in amanner compatible with adjoining residentialuses.

The automobile will continue to provide theprincipal means of transportation in the sub­urbs. Completion of the freeway and highwaynetworks proposed by the General Plan willbe necessary to accommodate the highvolume of traffic. Local bus service willcontinue to be provided.

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Low Ri:,e

l'Iedlum Ri:,e

Fig, 12 Conceptual Form Diagram of EI Sereno

19

Fig. 13 EI Sereno today

,..,...•

'-I ~ ';

""~

C '7~

"~

"n ~

:.\ i'-'t:~l r.>

~~

r~

I;;.

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."

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I; l:,-:'"

\~\

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Fig. 14 Conoept sketch of EI Sereno

20

View of a suburban area

ELEMENTS OF -rHE CONCEPT

This section sets forth the policies for theConcept in terms of the General Plan ele­ments specified by the Los Angeles CityCharter. It also describes the features of eachelement.

The Concept does not include programs forimplementation of the General Plan. Theseare specified 'in detail, for five year andtwenty year time phases, in the Citywide Planand the various sub-elements and area plans.Implementation will involve a continuousprocess of balancing land use intensities withcirculation and service facilities.

22

Land Use

The Land Use Element is intended to guidethe locations, densities and building inten­sities of housing, commercial development,industrial development and open space.

HousingPolicies1. Provide housing densities and types in the

locations specified in accordance with thefollowing table:

Dwelling Units per acreDensity Category (gross, including streets) Persons per acre Locations

High

Medium

Low-medium

Low

40 and above

24-39

7-24

7 and under

80 and above

5Q.100

20-75

30 and under

Centers

Centers; fringes of centers; suburbs,near commercial areas and on somemajor highways.

Fringes of centers; suburbs in RegionalCore; other suburbs near commercialareas

Suburbs

2. Encourage a range of housing types of theindicated densities and a range of housingcosts within each center and suburbanarea, in order to create a variety andchoice of residential life-styles; in centersincorporate housing, where appropriate,in multi-functional buildings along withdifferent but compatible uses.

3. Provide effective procedures in the zoningcode for "planned residential develop­ments", the process of planning housingin unified developments; and encouragethe use of such procedures for new orrebuilt housing.

4. Encourage innovations in housing con­struction, including prefabrication,through municipal sponsorship and appro­priate building legislation.

5. Develop and adopt improved standards ofdesign and construction for the mediumdensity apartment.

6. Preserve desirable residential neighbor­hoods and restore deteriorating residentialneighborhoods, through programs for con­servation, rehabilitation and rebuilding ofhousing.

7. Promote the construction of an adequatesupply of housing for all persons, throughthe advocacy of and participation infederal! y sponsored and private programsdirected to that end.

8. Increase the availability of sound anddesirable housing to low-income persons,through programs of government assist­ance.

9. Provide high-q ua Iity publ ic faci lities andservices and promote high-quality com­mercial services in all residential commu­nities.

23

FeaturesThe Concept provides for a fuJI variety ofhousing types and densities to meet the needsof an expanded and differentiated populationand to increase the range of choice. Thefollowing table indicates the proposed generaldistribution of housing and population:

OCCUPI ED DWELLI NG UNITS

Location Multiple Family Single Familv Population

CENTRAL LOS ANGELESCenters, in Regional Core 330,000 700,000

Centers, other 145,000 345,000Suburbs, Regional Core 50,000 40,000 225,000

Suburbs, other 80,000 200,000 830,000

WESTERN LOS ANGELESCenters 90,000 210,000Suburbs 88,000 85,000 490,000

SOUTHERN LOS ANGELESCenters 15,000 35,000Suburbs 42,000 30,000 215,000

SAN FERNANDO VALLEYCenters 225,000 570,000Suburbs 135,000 310,000 1,380,000

TOTAL,CENTERS 805,000 1,860,000TOTAL, SUBURBS 395,000 665,000 3,140,000

GRAND TOTAL 1,200,000 665,000 5,000,000

In centers, housing will be in the form ofmedium-density and high-density apartments,In the larger centers, particularly those in theRegional Core, high intensity housing willpredominate; most residential structures willbe "medium rise" with a height of four toeight stories or "high rise", with a height ofnine stories or more. In some cases, housingwill occupy the upper floors of high-risecommercial buildings. Planned residentialdevelopment regulations will be applied tomajor apartment complexes In order to insurecompatibility with surrounding developmentsand reserve adequate open spaces on theirsites. Figure 15 illustrates a high-densityhousing node in a center.

In surburban areas, the single-family dwellingwill continue to pr~ominate.Nearly all goodquality single-family neighborhoods wilt bepreserved. New hillside single-family housing

,will for the most part be clustered so as tominimize grading and reserve a maximumamount of usable land for outdoor living.

24

Fig. 15 High Density Residential Node with

secondary transit stop

Most older deteriorated single-family neigh­borhoods will be rehabilitated, or be rebuiltwith the same type of housing where rehabi li­tation is not feasible. However, old single­family areas adjacent to centers throughoutthe City, and in large parts of central LosAngeles, will be rebuilt with townhouses(attached single dwellings), which will providemost of the amenities of single-family living atlow-medium densities and also considerablyincrease the population capacity. Figure 16shows a townhouse development.

For the most part, subu rban apa rtments wi IIbe of the low-rise type, with medium densitiesand two or three story heights. They willusually be located near community and neigh­borhood commercial areas, within walking

distance of shopping, services and other localactivities. Some medium-density housing willbe provided on highway frontage properties,in lieu of previously permitted commercialuses.

An improved quality will be required forlow·rise apartment structures by means ofplanned development procedures or otherzoning code provisions. Larger sites will berequired, in order to provide more usableopen space, better pedestrian access andcirculation, adequate parking for both resi­dents and guests, noiseproofi ng and privacyfor individual dwelling units.

Fig. 16 Low-medium density townhouse development

25

FeaturesThe Concept indicates two general categoriesof commercial development: high intensityfacilities located in centers and local retail andservice facilities in suburbs. The fqllowingtable indicates the proposed general distri­bution of commercial and office employment(including governmental):

Commerce

Policies1. Provide for the development of high­

density concentrations of offices, housing,shopping and entertainment at selectedlocations near rapid transit stations,encouraging the development of multi­function buildings in which different butcompatible uses may exist in the samestructure.

Location Number of Employees

2. Provide for the development of adequatelocal commercial retail facilities andservices in residential neighborhoods,through the specification of appropriatestandards and features in local area plans.

3. Eliminate unneeded and poorly locatedcommercial strips along major highways,and discourage or prohibit the develop­ment of sim]lar strips in the future bymeans of appropriate zoning and develop­ment legislation.

4. Locate commercial employment andservices so they are directly accessible toresidential areas, or to transportationfac\l ities providi ng adequate and conve­nient service from residential areas.

6. Insure that commercial facilities are madecompatible with adjacent residential areasby means of zoning and developmentcode provisions consistent with goodurban design principles, such as adequatelandscaping and buftering, performancestandards, and design review of proposeddevelopmen1S.

26

CENTRAL LOS ANGELESCenters, in Regional Core 745,000

Centers, other 155,000Suburbs, Regional Core 70,000

Suburbs, other 130,000

WESTERN LOS ANGELESCenters 130,000Suburbs 60,000

SOUTHERN LOS ANGELESCenters 20,000Suburbs 75,000

SAN FERNANDO VALLEYCenters 280,000Suburbs 185,000

TOTAL, CENTERS 1,330,000TOTAL, SUBURBS 520,000

GRAND TOTAL 1,850,000

Centers will contain large office buildings,department stores and specialized shops, Theywill offer desi rable sites for corporationsseeking west coast locations' for their head­quarters or major branch offices. They willalso contain convenience retail facilities fortheir own residents and persons living inadjacent suburbs. Centers will offer a widerange of job opportunities, primarily in thesales, service, management, entertainment andgovernmental administrative fields.

In the suburbs, community business districtswill continue to serve as the focal points forlocal shopping, civic and social activities.Where their expansion is necessary, it will inmost cases take place by means of intensifi-

cation rather than site enlargement, as illus­trated by Figure 17. Neighborhood shoppingareas wi II conti nue to prov ide dai IY conve­nience services to suburban areas. Existingplanned shopping centers with off-street park­ing will be retained. In older areas, strategi­cally located portions of commercial stripswill be converted to retail concentrations. Insome cases, they will be deepened to providethe land needed for building expansion andparking.

Fig. 17 Intensification and expansion ot <; community center

Some of the existing commercial strip zoningon major streets will be converted to auto­mobile-oriented commercial facilities,intended to serve both the traveler and thelocal residents. These will be designed toprovide efficient drive-in service, making useof various technological innovations so as tomaximize their functional efficiency and min­imi ze parking needs. Figure 18 ill ustrates afacility of this type.

1-----.----".

Fig. 18 Automobile-oriented commercial facility

27

Industry

Policies

1. Facilitate the development of industrythrough the designation and reservation ofindustrial lands in the quantities needed.

2. Locate ind ustria I districts so as to beaccessible to places of residence, or totransportation faci I ities providingadequate and convenient service fromresidential areas.

3. Insure the compatibility of industrialfacilities with adjacent residential areasthrough zoning and development codeprovisions consistent with good urbandesign principles, such as adequate land­scaping and buffering, performance stan­dards. and design review of proposeddevelopments.

4. Promote the location of new and diversi­fied business and industry in the City bymeans of publicly and privately sponsoredprograms directed to that end, includingspecial assistance in site selection anddevelopment.

Features

Industry will generally be located in areaspreviously occupied by and zoned for indus­trial purposes. The following table indicatesthe proposed general distribution of industrialemployment:

For the most part, industrial districts will beclearly defined, being separated from resi­dential, commercial and other uses by meansof freeways, flood channels and major high­ways and other barriers. Further protectionwill be provided to other land uses by meansof zoning requirements for landscaped bufferareas, increased setbacks and service roads.Figure 19 shows a conceptual arrangement ofan industrial district and adjacent residentialneighborhood, featuring use of air rights overlow industrial buildings for a landscapedbuffer strip also serving as a local park. Mostnew man ufacturing areas wi II be developed asindustria I parks, with well-designed points ofentrance and exit, controlled site and buildingdesign and adequate parking areas.

The majority of industrial districts will belocated in the suburbs, along railroads andfreeways. Because of the comparatively lowemployment density, it will not usually befeasible to serve them by rapid transit andemployees will generally use the auto mobileor local buses for work trips. However, severalof the centers are located immediately adja­cent to large industrial areas. The latter willbe mostly used for high intensity operationssuch as research and development, and wi II beserved by the rapid transit station in thecenter.

Location Number of Emplovees

CENTRAL LOS ANGELES 445,000(Regional Core) (285,000)(Remainder of Area) (160,000)

WESTERN LOS ANGELES

SOUTHERN LOS ANGELES

SAN FERNANDO VALLEY

TOTAL

28

140,000

80,000

235,000

900,000 Fig. 19 Industrial use in suburbs

Open Space and Recreational Lands

Policies

1. Provide adequate parks and open spacesthroughout the City as part of a region·wide system; preserve and restore scenicand historic sites and natural recreationalareas; preserve existing large open spacesin their natural state; and promote smallopen spaces and plazas in developed areas.

2. Provide neighborhood parks and recrea­tional sites within walking distance ofresidents of all parts of the City; providecommunity parks and recreational sitesoHeri ng a variety of recreati on faci Iiti esand programs for all age groups at conve­nient locations throughout the City; pro­vide other appropriate types of recreationfacilities easily accessible from employ­ment centers; promote the developmentof existing public facilities for mu Itipleuse for recreation or open space.

3. Promote the development of regionalparks with specialized recreation facilities;provide for maximum public use of themountains, beaches and ocean for variousrecreational needs.

4. Develop and improve standards for thelocation. size and type of each recrea­tional facility and program on the basis ofthe needs of the people, giving carefulattention to the special needs of youngadults, minority and low-income groupsand senior citizens.

29

Features

An open space network will extend through­out the City, containing parks and recreationfacilities of all types and scales as well asimportant geographical features.

The open space system will serve as a majororganizing element for the City's form. I twillseparate incompatible uses and define neigh­borhoods and communities. It will integrateurban development with the natural land­scape.

In centers, existing parks will be preserved.Additional open space will be provided in theform of small plazas, which in many cases willoccupy landscaped rooftops. These will con­tain a variety of recreation and leisure facili­ties, serving both residents and visitors.

In the suburbs, parks and recreational siteswill be located in all neighborhoods andcommunities, so as to provide maximumaccessibility to local users. Where feasible,

they will be connected to neighborhoodcenters and/or other open spaces by means oflinear parks or pathways occupying vacatedstreets or easements.

In mountainous areas, lands unsuitable forresidential development and natural areasdesirable for preservation will be incorporatedinto the open space system, as will be theprivately-owned open spaces of planned devel­opments. Privately owned goff courses will bepreserved, through public acquisition if neces­sary. Flood control channels, power linerights-of-way, and strips adjacent to freewayswill be landscaped and utilized as trailsconnecting other open spaces. Parts of floodcontrol channels will be developed as recrea­tional lakes and streams, as illustrated byFigure 20. The beaches will be preserved anddeveloped for public use, and access to themwill be improved.

Fig.20 Proposed recreational use of flood control channels

30

Circulation

The Circulation Element is intended to guidethe locations and characteristics of the varioustypes of transportation facilities which linkthe parts of Los Angeles with each other andwith other areas.

Policies

1. Develop <I comprehensive circulationsystem, including all appropriate modes ofpublic and private transportation for themovement of people and goods.

2. As a major feature of the public transpor­tation system, provide a rapid transitsystem with stations limited to centersexcept for several special stations to servecommuter traffic in the locations shownon the Concept map-diagram. Include as apart of the system a secondary systemconnecting the core of each center withother nodes in the same center.

3. Provide bus service on major and second­ary highways serving suburban areas, giv­ing access from residential areas to centersand to community and neighborhoodbusiness areas.

4. Continue the development of the freeway,highway and street systems in generalconformity with the pattern depicted bythe Concept map-diagram, to serve as themajor transportation system serving theCity, particularly in the suburban areas.

5. Promote the development of other com­ponents of the transportation system inaccordance with the features of this Con­cept, including harbor, trucking, rail andai r transportati on faci Iities.

6. Through the implementation of the othercomponents of this Concept, make com­munities more self-sufficient in order toreduce the need for long-distance travel.

7. Advocate and support legislation settingacceptable standards for the emission ofair pollutants by the internal combustionengine, or for its replacement by a non­polluting propulsion system if such stan­dards cannot otherwise be attained.

B. Develop appropriate standards setti ng amaximum noise level for various transpor­tation modes, and impose such standardsby ordinance.

31

'\ i I .,-Srllo!Jv~!!!~~rl'fti=-,...~.~--~A/"'--'>

6

Fig. 21 Rapid transit station in center

32

l+l+~~--~-.-- .

FeaturesThe key physical elements of the transpor­tation system will be mass rapid transit,highways and freeways.

The rapid transit system will be in the form ofa network con necti ng the centers. It willoperate in its own grade-sepa rated right-of­way, located either above or below grounddepending upon local conditions and the typeof equipment. It will utilize the most techni­cally advanced equ ipment and propu Isianmethods available. For the most part, stationswill be confined to centers in order to avoidthe delays occasioned by numerous stops andto provide an adequate speed of operation.Figure 21 shows a rapid transit station withinthe core of a center. Several "park and ride"stations will provide for the transfer fromautomobiles of commuters from outlyingsuburban areas, as illustrated in Figure 22.

An integral part of the rapid transit systemwill be a local secondary system connectingstations in the cores of the centers withnodes. The secondary system will also operateon a separate right-of-way, as illustrated byFigu re 23. It wi II provide frequent servi ce ona 24 hou r basis.

The rap id tra nsit system will hand Ie much ofthe movement between centers, including ahigh proportion of the work trips at peaktraffic hours. The Regional Core will have anexcess of jobs over resident labor force, in theamount of 650,000. A large proportion of itsworkers are expected to commute to workfrom outlying suburbs by transit. Fig. 23 Secondary transit

Fig. 22 "Park and ride" station in suburban area

33

The automobile is expected to continue to bethe dominant means of transportation in LosAngeles. Most people will use an automobileeven to reach centers except during peaktraffic hours, and therefore adequate circula­tion facilities and parking garages must beprovided in each center, as shown in Figure24.

Because the intensive development of centerswill leave little room for a high volume ofvehicular movement, it is essential that pedes­trian ci rcu latio n be grade-separated fromstreets and that parking garages be located atperipheries of centers.

A large majority of suburban transportationneeds will be provided by the automobile.Accommodation of the increased traffic willrequ ire comp letion of the fu II freeway andhighway system envisioned by the Concept, aswell as improvements in local street patterns,such as the elimination of unnecessary inter­sections and jogs. Peak-hour congestion onmajor suburban streets wi II be su bstantia II yalleviated by the diversion of commutingtraffic to the rapid transit system.

The demand for air travel will be met by thecombined use of several airports, includingLos Angeles International, Ontario, VanNuys, Palmdale and Hollywood-Burbank. Ter­minals for vertical and short take-otf andlanding (V/STO L) aircraft will be provided inthe Downtown Center, and in at least onecenter each in West Los Angeles and the SanFernando Valley. Other heliports and heli­stops will be provided as necessary to meetthe demand and to the extent that they areconsistent with policies relating to aircraftsafety and noise standards.

The harbor, railroads and trucking will can·tinue to be the primary elements in thefreight distribution system. Air freight isexpected to increase in use and become asignificant distribution method. Los Angeles­Long Beach Harbor will continue to grow at arapid rate. Railroads will increase in impor­tance as freight carriers, with some routescombined. They will be grade-separated fromall major and secondary highways. Truckingwill increase in proportion to the growth ofthe economy, with truck routes designated oncertain freeways and major highways. Therapid transit system will be used to haulfreight during the night in order to helpdefray the cost of the system and alleviatetruck traffic.

~~-----------

Fig. 24 Automobile access and parking facilities in a center

34

-. .-.~-':. ..-- ......_...,.... .. .-...._....... - - -

Service Systems

The Service-Systems Element is intended togUide the locations and characteristics of thevarious public facilities and services providedto Los Angeles residents by the City andother governmental jurisdictions.

Policies

1. Provide essential services, facilities andprograms throughout the City to all seg·ments of society on the basis of need.

2. Locate related public facilities in clusteredgroupings, connected with the open spacenetwork where feasible, in order to pro­vide maximum convenience to their users,achieve economies in site utilization, andpermit integrated design.

3. Continue to develop and improve stan­dards for public facilities and services onthe basis of need and optimum allocationof public resources.

4. Maximize the availability and accessibilityof public facilities and provide full infor­mation about them to the public.

5. Encourage the coordination of servicesand the integration of facilities and workforces of the different public agencies andprivate enterprise, as well as the multipleuse of faci! ities, so as to curta i I dup' ica­tion and overlap of services and to other­wise promote economy of operation.

35

Features

The Concept seeks to improve the quality ofpublic facilities and services, and to expandtheir quantity as required to serve the largerpopulation.

Standards for the Service-Systems Elemen trelating to the design, capacity, appearance,functioning and location of public facilitieswill be tailored specifically to the componen tsof the Concept. The compact, densely popu­lated residential portions of the centers willrequire different standards than the low­density suburbs. A municipal office complexis envisioned for each center, integrated withother types of uses rather than in the form ofa monumental branch civic center. Standardsfor facilities in the suburbs will closely resem­ble those previously developed, but theirclustering will be encouraged as illustrated byFigure 25.

The Citywide Plan sets forth general policiesand 5 and 20 year programs for the followingcategories of Service-Systems Elements; Re­creation, Administrative Centers, Public Li­braries, Public Education, Cultural and Histor­ical Monuments, Public Works Service Facili·ties, Public Health and Protection Plans, andPublic Utilities. In addition, sub-elementswithin each of these categories present spec­ific policies, features and programs.

Fig.25 Public Facilities Network

36

STUDIES FORCONCEPT DEVELOPMENT

The process for the formulation of the LosAngeles General Plan is described in theIntroduction. I t is noted therein that the stepspreceding concept development are: basicstudies and surveys, goal formulation andidentification of alternatives.

The proposed Concept reflects the findingsand conclusions of a large number of studiesmade by the Los Angeles City PlanningDepartment staff, planning agencies of othermetropolitan Los Angeles jurisdictions, andvarious other public agencies. The Conceptalso incorporates accepted planning and urbandesign principles.

The goals for the Concept have been largelyderived from the recommendations of theGoals Council and the various other organiza­tions which participated in the Goals Pro­gram. They stress the responses to a question­naire widely distributed throughout the LosAngeles area, which drew more than 45,000replies. The questionnaire was also included ina representative sampling of the populationtaken to permit the allocation of responses inproportion to the distribution of varioussocial and economic characteristics.

The goals also incorporate the staff's interpre­tation of the consensus of persons who haveexpressed their concern with the variousaspects of planning through other means.These include the persons who have attendedand testified at the hundreds of public hear­ings and decision meetings conducted by thePlanning Commission and City Council inrecent years.

The Concept must have sufficient flexibilityto allow its modification to accommodatecircumstances which could not be foreseen atthe time of its formulation. For this reason, ithas been necessary to state goals and policies

38

in broad form; however, their intent has beenmade as explicit as possible. Also, in view ofthe uncertainties as to the exact physicalpatterns which will be desirable in the long­range future, the Concept does not includethe usual land use map but rather presentsphysical form aspects by means of a map­diagram supplemented by sketches illustratingurban design features.

A valid planning analysis cannot be madeindependently for a single point of time in thedistant future; it must take into considerationthe year by year steps which are necessary toa progressive achievement of long-range goals.These steps will be set forth in the CitywidePlan, which will be submitted for adoption aspart of the General Plan subsequent to adop­tion of the Concept.

A preliminary version of the Citywide Planhas been prepared as an aid in evaluating thefeasibility of the Concept in light of varioussteps required to implement it: populationand employment growth; land use redesig­nations; zoning code restructuring; rapid tran­sit system financing and development; reserva­tion of open space; substantial increases inpublic services. The preliminary Citywide Planincludes policies and programs for the broadsub-categories of the Land Use, Circulationand Service-Systems elements, including gen­eralized 5-year and 20-year implementationprograms. It will be further detailed anddeveloped during 1970, and a revised versionwill be submitted to the Planning Commissionfor public hearings near the end of the year.

Due to the large size of Los Angeles, stillmore detailed plans are required for day today use in the consideration of local planningissues and the specialized needs of the publicservice and circulation systems. These will beincluded in the General Plan as sub-elementsand local area plans.

All aspects of the General Plan are dependentupon anticipated population and employmentcharacteristics. Population and employmentprojections were provided by mathematicalmodels prepared by the Planning Depart­ment's Systems and Data Services Division.

The studies most basic to Concept develop­ment are those directly related to the threeGeneral Plan elements specified by the CityCharter. Designation of land use patternsrequired the allocation of the projected popu­lation and employment totals in a mannerconsistent with goals and objectives for hous­ing types and densities, places of work, andnature of work trips. Design of the rapidtransit network, in turn, depended uponhome and work locations and the probableextent of the utilization of transit for worktrips. Proposals for public services had to berelated not only to desired standards andlocations but also to projected City revenuesor possible new revenue sources. Much morestudy of these matters will be required inconnection with the programming and bud­geting of public facilities.

The various studies involved in the prepara­tion of the Concept are listed in the followingbibliography. Those most significant, or mostdirectly applicable, are annotated as to theirnature and content. Each of the publicationslisted can be inspected at the Planning Depart­ment Library, Room 618, City Hall. A limitednumber of copies of some of the papers maybe available upon request.

39

SELECTED BIBLIOGRAPHY

PUBLISHED REPORTS OF THE LOS ANGELESCITY PLANNING DEPARTMENT

GOALS

Planning Goals for til e L os Angeles Metropolis (J una, 1967, 32 pp.l Adiscussion paper containing a descripTion of the Goals Program andsuggested goals and policies for housing, transporration. employmentand other aspects at the Ciry. It was the first formal publr~tion of theLos Angeles Goals Program and was intended to stimulate publicdiscu ssion 3'ld concern.

Goals and Realiry ISeptember, 1967,15 PP.l An analysis of the GoalsProgram and its role in formulation of the General Plan.

COMPREHENSIVE PLANNING

Conceprs for Los Angeles (September, 1967,64 pp.J The second stepin the Departmeot's comprehensive planning process: a detailedpresentation of four alternative concepts upon which the General Planmay be based.

Present trends in housing, employment and services, transportation. andopen Space are first Outlined; and the consequences of allowing thesetrends to continue are predicted. Housing density, distribution ofemployment and services, the transportation system and open space areidentified as the four major factOrs affect; ng the physical form of theCity. Taking these four factors <IS policy variables, the report definesfour concepts in which the four variables can be combined mostlogically. They are: the Centers Concept, the Dispersion Concept, theCorridors Concept and tha Low Density Concept.

The features (residence, employment and services. transporration, andopen space and recreation), implications and ways to implement theconcepts are described.

Concepts for Los Angelfw Summary <September, 1967, 16 pp.l Acondensed presentation of the highlights of Ihe Concepts for LosAngeles report.

LAND USE, CIRCULATION AND SERVICE SVSTEMS

Land for Indusrry No. 1 Usage, Trends. Location and Available Supply(June, 1969, 20 pp.l This report provides data and analysis to assist

public and private organilations interested in promoting industrialgrowth in the CitY of Los Angeles. The report describes IndustrialOistricts for the entire City and summariles existing industrial zoningand land uses within these lones. A quantitative analysis of the landSlJpply for future industrial growth is provided. Trends in the usage ofindustrial land are also measured.

URBAN DESIGN

The VillUal Enllironment of LO$ Angeles (January, 1970,64 PP.) An_tuation of the City's appearance in which its principal features aradescribed along with a sampling of citizen images of the City. Visualcriteria for developing the citywide General Plan are presented. Itidentifies general problems. opportunities for their solution and thenecessary actions to ochieve improvement in the Quality of the City'sappearance.

40

RESEARCH AND STATISTICS

Background Information for the Los Angeles Comprehensive Plan Vol.1, Social and Economic CharactBrisricG (March, 1968, 36 pp.l Thereport presents lln economic and social profile of the CitY of LosAngeles. The first part of the report makes a statistical comparisonbetween Los Angeles and other metropolitan areas. The second partpresents an intra·city analysis of population and housing characteristicsin Los Angeles.

Background Information for the Los Angeles Comprehensive Plan Vol.2., Analysis of the Land-Use Characreristics (March, 1968, 42 pp.)This report provides a comPfflhensive picture of the way land is andhas been used in the City of Los Angeles. It presents an analysis of TheCity's land-use patterns, population and employment densities, growthtrends llnd land absorption characteristics.

The Los Angelss Economy: Selected Statisrks and Projectiolls (No­vember, 1966, 50 pp.) An economic profile of both the CitY of LosAngeles and the Greater los Angeles Area.

ihe Mathematical Model Development Program: Introduction andProposed Program (September, 1966,48 pp.) A stlmmary of progressin establishing a Mathematical Model Development Program by theDepartment of City Planning with the assistance of the SystemDevelopment Corporation.

STAFF REPORTS AND WORKING PAPERS OFTHE LOS ANGELES CITY PLANNING DEPART­MENT

GOALS

Priority Goals for Los Angeles, Staff Working Paper (September, 1969,78 pp.) A working paper 00 the Goals Program and its importance tothe General Plan. Criteria lor assigning priorities to goals are given,Issues and goals of the first priority are discussed in detail. These issuesand goals are: transportation, air pollution, urbao poverty, equalopportunity. employment and economic growth, education, housing,recreation, visual environment and communication. This paper fulfillsthe first step in the DepartmenT's comprehensive planning process: theselection of goals for the City based upon the needs and preferences ofits citilens.

Addendum to Priority Goals for Los Angeles (September, 1969, 53pp.l A collection of staff working papers prapared as 8 follow·up to anearlier paper, "Priority Goals for Los Angeles." The reports wereWf'itten to stimulate thought llnd aid The staff in preparing tilecomprehensive plan for the City of Los Angeles. The six papers discuss,in lurn, problems lind policies for transporration, air pollution, urbanpoverty, equal opportunity, employment and economic growth, andeducalion.

A Preliminary Goals Reporr for Los Angeles and Environs (February,1967, 172 pp,) A first-draft report prepared by the Goals Unit of theDepartment of City Planning,

Maior Issuas for Los Angeles (Oftcember, 1967 (revised), 14 pp.l Adiscussion of twenty major issues for Los Angeles including trafficcongestion, housing, urban poverty, air pollution and citizen perticip&­tion and inVOlvement in community affairs.

Presentation of Preliminary Goals Report to the City PlanningCommission (City Plan Case No. 20553), Regular Meeting. April 27,1967.

Human Values and Their ReIn tionship to Planning Goals, IApri!. 1967,18 pp., Calvin S. Hamilton) A paper by the Director of Planning forthe City of Los Angeles indicating the human desires and objectivesthat must be considered in city planning and the principles upon whichplanning should focus.

COMPREHENSIVE PLANNING

A Concept for the General Plan ISeptember, 1969, 24 pp.l A staffpaper presenting Department of City Planning recommendations on thethird step of its comprehensive plan n Lng process: the selection of aConcept for the long-range development of the City. The first twosteps, the selection of goals and the formulation of alternotive conceptsto achieve these goals, have been discussed in previous reports.

The design emphasis of this Concept is lWofold: the building of major"centers", aNas of high intensity residential and commercial develop­ment, and the preservation of low-densitY single-family residentialareas. These two contrasting types of areas will be unified by acomprehensive tronsportation system and by a network of parks andopen spaces.

Prospecws: Comprehensive Master Plan Development Program, (De­cember, 1965, 12 pp.) A description of the comprehensive planningprogram for Los Angeles. as it was envisioned in 1965.

Los Angeles City Planning Department: Comprehenliive PlanningProgram (1967, 27 pp.~ A collection of stoff papers describing variouscomponent studies of the Comprehensive Planning Program of the CityPlanning Department.

Address by Calvin S. Hamilton, Director of PlanninfJ. City of LosAngeles, at the Mayor'li Pltmning Day ISeptember 16, 1967) Anaddress by the Director of Planning outli 11 ing the Departmen t'scomprehensive planning process.

PPDS: A Plennlng Polley Development System (September, 1968, 14pp,) A report outlining the Los Angeles Planning Program and thechanging role of policies in the plann ing process. The report alsoexplains the methodology of the Planning Policy Development System.

Planning Policy Development System Analysis (collection of B papers)(June, 1968) A summary of objectives for the City of Los Angeles onthe follOWing subjects: accessibility; urban economics; housing; cul­lural. social, educational ond recreational opportunities: quality ofenvironment; health; safety; and substandard Jiving conditions.

URBAN DESIGN

Urban Design Objectives and Principles - A Guide for the CitywideSketch Plan (June, 1969, 18 pp.) Provides general urban desil/Oobjectives and j)f"inciples for (1) physical development of the wholeCity, (2) development of high density and low density areas, (31 majorcirCUlation components and (4) existing natural features. The urbandesign objectives and principles weN! used as guidelines in formulatingthe General Plan.

A Preliminary Concept in Planning for the Central City (October,1969, 62 pp.1 A staff working paper written as a "starting point" for aforthcoming plan for the Los Angeles Central City area. It identifiessome of the current problems, needs and opporru nities as a basis for theplan

LAND USE. CIRCULATION AND SERVICE SVSTEMS

Los Angeles Ciry Master Plan: Objectives and Purpose Oescriptiof1$ ofMarter Plan Elements (October, 1968, 47 pp,)

Housing Element of the Citywide Plan (FirST Draft) (August, 1969.30pp.) A discussion of housing needs and ways to meet those needs,including a summary of housing goals; an inven tory of existing housi n9and how it has changed since 1960; condition of existing housing; andprojected hOUSing demand in 1990. Major problems include residentialsegregation, the diffIculty of providing low-cost housing and housingfor the elderly.

The Housing Element, Centers Concept, and General Plan, Part III TheSupply of Housing (September, 1969, 16 pp.l A discussion of themajor conditions influencing the supply of housing. The report

describes four major factors: existing inventOl'Y and the filteringprocess; land and construction costs; fioancial investrrn!nt and con­straints; and iostitutional barriers such as racial discrimil\3tion andgovernment laws and regulations.

Working Paper for the Service Systems Element and Related Portions ofthe Los Angeles City General Plan (September, 1969, 214 pp.) Acompilation of $evBl'"a' reports examining in detail the nature, problems,costs, and future needs of the City's service systems. Spe;:ifical1y,recnlation, police, fire protection, health, libraries, water, power,community shelters, natural 98s distribution, sewerage, refuse disposal.and education SYSlems are treated.

The rePOrt also dee Is with financial problems likely to occur in thefuture. ReSUlts of a cost·revenue enalysis show a wide ll3fl betweenexpected revenues and projected needs for 1990. Systems analysis isexamined as a possible method to be used in choosing potentialprogrems: it may J)fovide a basis tor making rational choices as 10 themost effective. most essential. and leesl expensive future programs.

Public Faciliry Economic Requirements for the Master Plan (June,1969, 11 pp,l A discussion of revenue sources and expenditures, andthe provisions of future public facility needs in the CitY of Los Angeles,

Transportation in the Los An{J6/es Region (September, 1969,99 PpJA description of major transportation problems in Ihe Los Angelesregion and current trends in transportation, particularly with respect toIhe private automobile. Projections were made for 1990 reQill"ding: (1)number of private automobiles in Los Angeles County; (2) size anddistribution of employment and labor force; (3) means of transporta­tion to work; (4) public transportation passenger volumes; and (5) dailyrapid transit trip demand. The repOrt contains a proposed circulationelement for the CitYwide Plan which attempts to N!solve existingproblems aod reduce or minimize future problems. The major compo­nenlS of the circulation element ere the freewav, highway and streetsyst&m, mass rapid transit, buses, air transportation and freightmovement.

The Centers Concept: Public Facilifies and Transporration (March,1969, 64 pp.l A preliminary study of public facilities and transportll­tion facililies, relating them to the Centers Concept. The reportpt'eSents a guide to the location of public facilities - suggesting whichones should be located in the core, periphery and outside of centers.

Transportation goals. objectives and problems are discussed. SeveralrBj)(esentative transportation systems described in Stanford ResearchInstitute's publication entitled "Future Urban Transportation Systems"(1968) were presented as examples of transportation systems thatmight be applicable to the Los Angeles region. A chan contains a listingof other known transportation sysrems,

Transportation and the Urban Form of Los Angeleli (ea 1968, 15 pp.)A histori~1 study of how transportation facilities have influenced theform of Los Angeles. The need for a rapid transit system is alsodiscussed.

A Possible Conservntion Element of the Comprehensive Plan (July,1969, Memor1lndum. 23 pp.)

RESEARCH AND STATISTICS

Demographic ancl Economic Projsctions The following projections forthe City of Los Angeles were generally based on present tr&nds.

• Population, employment and labor force, 1960-2000, in 6 yearincrements.

• Population 1970·2000 in 5 year increments, bv statistical area.• Industrial, commercial and government employment 1970-2000 in

5 year increments, by statistical area.

• Occupied dwelling units {number of singles and multiples) for Ihe'Iear 2000, by sta t istica I area.

• Age break.down and student population for the 'leer 2000, bystatistioal area.

• Employees by place of residence for the year 2000, by statisticalarea.

Revised Demographic and Economic Projections Most of the followingprojections are based upon Ihe demographic end economic projectionslisted above. After the concept was selected ex i'>ti ng proj ections wererevised to take into account the nature of centers and suburban areas.

41

• Current, 1990 and Concept population and employment for eachcenter in Los Angeles City.

• Current, 1990 and Concept population and employment forselected centers in Los Angeles County.

• 1990 and Concept population for Los Angeles CitY, by statisticalarea.

• 1990 population and population densities in centers and outside ofcenters in Los Angeles City by statistical area.

• 1990 and Concept employment for Los Angeles City, by statisticalarea.

• Number of families in four income categories, 1990 for Los AngelesCity by statistical area.

• Occupied dwelling units tnumber of singles and multiples!. 1990 forlos Angeles City by statistical area.

Financial Resource Strategy for Implementation of the Los AngelesGeneral Plan (June, 1969,69 pp.)

Part I; Short Run Revenue Strategy discusses some of the likelyalternatives available to the Mayor and City Council for improving thefinancial resources of the City. These include: t1) property tax; (2)sales tax; (3) fees, service charges, other receipts; (4) revenue-producingmunicipal departments; (5) city income tax; and (6) COUntY, Statlt andFederal grants and allocations,

Part II; Long Range Planning - Economic Strategv calls for greaterinitiative in social and economic planniog to accompany the capitalexpenditures called for in the General Plan. It includes a discussion oftaxation reform, State and Federal Grants-In-Aid and methods ofraising the economic productivity of the City.

Preliminary Geo-ECQMmic AniJlysis of Alternative Concept Plans(March, 1968, 74 pp.l An analysis of population, employment,housing and transponation in Los Angeles.

Feasibility Report: Econometric Srudy of Land Values (August, 1969,7 pp.l

REPORTS AND PUBLICATIONS OF OTHERORGANIZATIONS

A Summary of Citizen Response to the Los Angeles Goals Program/June, 1968, 11 pp., compiled by Connie Leas, Inter-ReligiousCommittee for the L.A. Region Goals Project and Charles Johnson,Department of City Planning) A report to the Goals Council oUlliningcitizen response to the Goals Program expressed in meetings anddiscussions, letters and questionnaires. The report covers the dominantthemes raised by citizens in almost all meetings and correspondence,seoondary themes less frllquently raised but still Widely discussed,al1itudes and opinions about the individual's relation to local govern­ment and miscellaneous opinions on subjects of citizen concern,

VieW$ of the Viewpointers: A report to the Goals Council (March,1968, 8 PPJ A summary of general and specific goals expressed by the"Viewpoim&rs," a group of citizen volunteers who served as speakersand discussion leaders for the Goals Program. There was a consensus fora General Plan based on a combination of the Centers and CorridorsConcepts.

Speculation: Los Angeles - 1985 (October, 1967, 6 PP.. Fred M.Zimmerman, Chairman, Technology Goals Committee) A workiogpapar for The los Angeles Goals Program prepared by the TechnOlogyGoals Committee in 1967. The paper attempts to present an overviewof what City life may be like in 1985. IT sees the dominant forces duringthe next decade and a half to be the accelerating availability of leisuretime, the increasing sense of alienation of the individual and theaccelerating dissatisfaction of the minoritY poor. It forecasts thetechnological developments that will have the greatesl impact on life inLos Angeles and sUllgests the kind of planning needed to accommodatethese changes,

Communication Goals for Los Angeles: A working paper for the LosAngeles Goals Program (February, 1968, 35 pp" L. G. Chesler and H.S, Dordick, Technology Goals Committee) A paper prepared bymembers of the Technology Goals Commitree to assist lhe Departmenl

42

of City Planning in establishing goals for future physical planning. Thepaper examines some of the technological alternatives available forimproving ghetto and city communications.

Adult Education Goals for Los Angeles: A work.ing paper for the LosAngeles Goals Program (March, 1968, 17 pp., H. S. Dordick,Technology Goals Committee) A discussion of lhe future needs forspecialiZed educational services that fall outside the formal educationalstructure of the state. An estimate of the demand for adult education inthe Los Angeles area for the year 1980 is given, and several of the moreserious problems and constramts to satisfying this demand areenumerated. The paper suggests some operational and technologicalalternatives to alleviate these constraints.

Transportation Technology Goals for Los Angeles (July, 1968,52 pp.,The Transportation Subcommittee, Technology Goals Committee) Adiscussion of the possibilities of utilizing advanced technology toimprove the quality and efficiency of transportation in SouthernCalifornia.

Health Goals for the Los Angeles Region (June, 1968, 18 pp., R. LPerruschell, A. L, Stanley, A. M. Stein, J. E. WiechersJ

Social and Human Goals for [he Los Angeles Region (January, 1967,31 pp., Inter-Religious Committee for rhe Los Angeles Region GoalsProject) A work i n9 paper intended to serve as a reference for groupdiscussions on human and social goals for Los Angeles.

Environmental Goals for the Los Angeles Region (July, 1967, 218 pp.,Envlronment,,1 Goals Commil'tee) A raport detailing the committee'srecommendations on goals and objectives for the Los Angeles metro­politan region.

Environmental Goals for the Los Angeles Region (Summary) (July,1967, Environmental Goals Commit'lllel A summary of the commitTeereport on goals and objectives for the Los Angeles metropolitan region.

Environmental Goals for Los Angeles, Progress Report IPreliminary)(September, 1966, 133 pp., Environmental Goals Committee)

Human and Social Goals: Preliminary Report, Los Angeles RegionalGoals Project (November, 1967, 6 PP _, Behavioral Sciences Committee,Los Angeles County Psychological Association) A posilion paper bythe Behavioral Sciences Committee, an advisory body to the LosAngeles City Planning Department with particular reference to theGoals Program.

Excerprs from Goals (or Communication Seminar (March, 1968, 20PpJ Excerpts from a seminar sponsored by the CommunicationCommittee of the Los Angeles Goals Program and attended byrepresentatives of the local news media.

Goals for Metropolitan Los Angeles (May, 1968, 8 pp.. the NationalAssociation of Intergroup Relations Officials, Southern CaliforniaChapter)

Reports to the Goals Council by Committees The Citizens GoalsCouncil was appointed by the Mayor and City Council of Los Angeles,the Board of Supervisors of Los AngeletS County and the League ofCalifornia CiTies. The Goals Council was organi..ed into committeeswhich produced the following reports:

• Goals for Increased Community Participation in Planning

• Goals for Employment and Economic Growth

• Goals for Housing, the Residential Environment and Urben Re­newal

• Goals for Parks, Recreation, Open Space and Urban Beautification

• Goals for Community Transportation and the Commuter Environ-ment

• Goals for Law Enforcement• Goals for Environmental Pollution Control

• Goals for Education• Evaluation of Alternative Design Concepts and their Community

Consequences

• Goals for the Ghettos and Barrios and Goals for Racial Integrationand Stability

Los Angeles Goals Program: Results of Representative Sample Survey(October/November, 1968, 16 pp. Behavior Science Corporation,tabulations prepared by Los Angeles City Planning Department) A

tabu lation of resu Its of the survey to determine the needs and desires ofLos Angeles area residents conducted by the 8ehavior ScienceCorporation for the Goals Program.

Los Angeles Goals Program Rcpresenrative Sample Survev, TotalSample, Negro S<lmple, Mexican·American Sample (November, 1968.Behavior SCIence Corporation. tabulations prepared by Los AngelesCity Planning Department) CrosHabulations of the total sample surveytaken for the Goals Program showing resulls by age, sex, income andalher groupings.

Policies for Planning (January, 1968, 78 pp., Citizens AdvisoryCommitlee, Destination Ninety Forum) Report of the CilizensAdvisory Committee at Dostinatio n N ioety Forum, prasenti ng plann ingrecommendations Cor the San Fernando Valley. The report is Iheculmination of a large citizen participation program in the Valley.

Gray Areas; A Townscape Study (December, 1967,34 pp., SouthernCalifornia Chapter, The American Institute ot Architects, reponprepared by Herbert Kahn, Raymond Kappe, Rex LottefV) A study ofthe "gI"ay" areas of Los Angeles which are characlerized by visualblight, monotony and economic stagnation. The nature of the problemis idenlified and paten tial solutions are considered.

Reconnaissance Repon, Counry General Plan Program IF ebruary,1969,40 pp., Regional Planning Commission, CountY of Los Angeles)

Preliminary Program Design (ca. 1968, 80 pp., Sourhern CaliforniaAssociation ot Governments) A first draft Dr a comprehensive workprogram outline for SCAG. It identifies, describes and shows schooul ingfor the elements that form the total SCAG program. Eech element isdescribed in terms of its purpose, method of study, work aClivitiesre<luired and resulting product.

SCRTD Preliminary Report (October, 1967, 100 pp., SouthernCalifornia Rapid Transit Dislrict)

SCRTD Final Report (May, 1968, 126 pp., Southern California RapidTransit District)

Preliminary and final proposals for a first -stage rapid transit system Corthe Los Angeles metropolitan area.

43

LOS ANGELES CITY PLANNING DEPARTMENT

CALVIN S. HAMILTON, director of planningFRANK P. LOMBARDI, executive officerGLENN F. BLOSSOM, planning officer

COMPREHENSIVE PLAN TASK FORCE

ARCH D. CROUCH, principal city planner, task force supervisionG. DAVID LESSLEY, senior city planner, task force coordinationRICHAR 0 M. TAKASE, city planning associate, task force administration

POLICI ES TEAM

ELO ISE S. BLAKE, city planner, supervisionEVE LYN GAR FIN KLE, city planning associateAL ICE D. LEPIS, planning assistantRONALD LEWIS, planning assistantRAYMOND H. YANO, planning assistantJAMES S. MAC ARTHUR, administrative internROBERT STANDEN, planning assistant"ROBERT C. MAZANEC, administrative intern*'

PUBLIC FACILITIES AND TRANSPORTATION TEAM

MAUR ICE Z. LAHAM, senior city planner, supervisionWARD KOUTN ICK, city planning associateFRANKLIN P. EBERHARD, planning assistantWI LMA LOVAN, planning assistantJIM OHI, planning assistantDENN IS DE LA VAUX, city planning associate""PH ILIP OUELLET, planning assistant"

DESIGN TEAM

ROB ERT F. DA NNE NBRINK, senior city plan ner, supervisionTHOMAS STEMNOCK, city plannerGARY A. MORRIS, city planning associateJOHN I. TOM ITA, city planning associateGARY MAZUR, planning assistantSTEVE DENT, planning assistiJnt*

GRAPHICS SECTION

GENE WOLFE, graphics supervisorE. RON DOT, planning illustratorRICHARD V. DAVID, publication headMARY LOU SHICK, cartographerRAY SHICK, cartographerAL TAK II, cartographerRAY YOSH IDA, cartographer

it former member

~~R. .D. lmmv

DATE

HT 168 .L7 L632 c.2

Concept Los Angeles

!QUi. DATE'~ ---LJ--.o:.- _

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repon and cover design - J. Tomita, G. Mazur

editorial writing - W. Lovan, P. Ouellet

photography - Ed.Rondot

concept map delineation - R. Yoshida

graphic production - M. Shick

typing - Diane Gegala

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REFERCNCE ONLY

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