LA 2028 Olympic Legacy Street Improvements Plan

The 2028 Olympic Legacy Street Improvements Plan is a comprehensive feasibility study that evaluates improvements for accessibility, mobility, safety, sustainability, resiliency, and public health in the communities surrounding four Olympic Sports Park Venues. Funded by a California Department of Transportation (CalTrans) grant, StreetsLA will use this study to identify street maintenance and infrastructure issues around Olympic and Paralympic venues. This project is unique because it uses a goal based process to inform improvements. The project overlays an asset management assessment of the technical conditions of assets in the project area with a community led qualitative assessment of how well the assets are supporting city goals. Guided by a Technical Advisory Committee and Community Advisory Committee,the Plan will help illuminate transportation needs that currently exist, develop solutions, and prioritize mobility (motorized and non-motorized) and sustainability improvements to historically underinvested communities surrounding select Olympic venues. The project is anticipated to be completed by February 2023.

There are nine venues in the project that serve Angelenos today and will host Olympic events in 2028. They are:

• LA Memorial Coliseum (Exposition Park)
• Banc of California Stadium (Exposition Park)
• Dedeaux Field (University of Southern California)
• Galen Center (University of Southern California)
• Crypto.com Arena (LA Live)
• Microsoft Theater (LA Live)
• LA Convention Center (LA Live)
• Grand Park
• City Hall

This Plan will also provide a framework for developing similar legacy plans around other Olympic venues as they are identified in future years.

The work of StreetsLA and this project is guided by Strategic Plan goals: Equity, Safety, Accessibility, Sustainability, Resiliency, and Public Health. The project team reviewed and summarized numerous City Plans to understand current policies around transportation investments, sustainable infrastructure, and racial equity.

Although the plans may differ in how they define equity, sustainability, health, safety, and resiliency, their vision for how streets can be leveraged to achieve these borders goals are closely intertwined.

As an update to the General Plan Transportation Element, Mobility 2035 establishes the policy foundation for transportation system that provides for safe and efficient movement of pedestrians, bicyclist, transit riders, motorist and truck drivers.

The Enhanced Watershed Management Plan for the Upper Los Angeles (UPLA) watershed provides a roadmap for municipalities throughout Los Angeles to comply with federal water quality mandates; improve the quality of the city's rivers, creeks, and beaches; and address current and future regional water supply challenges.

Resilient Los Angeles outlines the City's approach in preparing for natural disasters and addressing underlying chronic stressors such as economic insecurity, climate change, and aging infrastructure. It includes strategies that help to fortify the city's infrastructure, protect its economy, improve safety outcomes, and strengthen community collaboration.

The Sustainable City Plan is a roadmap for achieving an environmentally healthy, economically prosperous, and equitable city. The plan consist of short term (by 2017) and long term (by 2025 and 2035) targets across various categories including environmental justice, mobility and public transit, urban resilience.

The Los Angeles Department of Transportation's (LADOT) Mobility Investment Program instituted a comprehensive project development process and directed investments where they best support the city's policy framwork as expressed in the Mobility Plan 2035, the Sustainable City Plan, Plan for Healthy Los Angeles, and LADOT's Strategic Plan. This effort resulted in a map-based project scoring platform that prioritize the highest performing mobility investments that best align with the City's mobility goals and policies related to safety, health, access, sustainability and equity.

The First/Last Mile Guidelines outline the processes, roles, and responsibilities between LA Metro and local jurisdictions in planning, designing, and constructing first/last mile (FML) Improvements for new rail transit and bus rapid transit (BRT) corridor projects. The guidelines expand upon LA Metro's First/Last Mile Strategic Plan (2014) and Metro Board Motions 14.1 and 14.2 (2016). which outlined activities to implement First/Last Mile networks around Los Angeles County transit stations and stops.

Executive Directive (ED) No. 27 supports Mayor Garcetti's commitment to ensure fairness diversity, equal opportunity, and transparency in city government. Initiatives stemming from ED No. 27 include:

• Designating a Racial Equity Officer for each city department;
• Developing Racial Equity Plans that assess key departmental functions;
• Establishing the City of Los Angeles Racial Equity Task Force; and
• Conducting an assessment of citywide hiring policies and practices

The Repairing LA's Broken Sidewalk Strategy describes the City's approach to improving the sidewalk repair program. In addition to its recommendations for updating sidewalk inspections criteria, this plan provides short-term sidewalk repair response strategies and long-term solutions to guide future investments.

The Los Angeles Urban Forest Equity Streets Guidebook provides an assessment of the distribution of existing tree canopies and proposes strategies to expand the city's urban forest more equitably. Organized by streets typologies, the strategies offer potential design solutions for integrating trees within the broader management of streets and urban landscapes in the region.

This work is driven by six goals that are important to the City of Los Angeles: Equity, Safety, Accessibility, Sustainability, Resiliency, and Public Health.

An equitable street network is one that accommodates the needs of all Angelenos and where the benefits of infrastructure investments are distributed among areas that need them the most.

Planning and designating streets for the most vulnerable users ensures streets will be safe for all. Using a "Complete Streets" framework enables safe access for all transportation users and expands the function of streets beyond mobility.

Streets needing more safety improvements include those classified as a High Injury Network corridor, streets with the highest level of traffic stress, or street segments where a sidewalk exists but there is no lighting.

Streets on the High Injury Network corridor have a year over-year pattern of excessive, serious, and fatal injury crashes.

Exisiting city plans and policies have set the following performance targets relating to safety:

Ensures 80% of street segments do not exceed target operating speeds by 2035 (Mobility Plan 2035)

Streets, sidewalks, and other assets should be designed to accommodate and meet the needs of children, seniors and people with disabilities as well as broader communities experiencing disproportionate economic and health burdens.

Streets that are missing sidewalks on at least one side or streets that are missing at least one curb ramp at an intersection indicate a need for accessibility improvements.

Exisiting city plans and policies have set the following performances targets relating to accessibility:

Install pedestrian access ramps at 100% of intersections by 2035 (Mobility Plan 2035) Bring all sidewalks to good condition by 2035 (Mobility Plan 2035)

Streets can also expand ecological resilience and mitigate the impacts of climate change. Using the public right-of-way to expand the city's urban forest provides critical shade to pedestrians, improves air quality, promotes stormwater management, and improves community health and well-being. Streetscape improvements that integrate green infrastructures, such as trees, bioswales, and green alleys, can also protect vulnerable residents from the impacts of urban heat islands, flood risks, and poor air quality. When integrated into streetscape improvements, green infrastructures elements also operate as traffic calming elements that make it safer for people to walk and bike.

The absence of sufficient tree canopy presents risks for rising temperatures and creates higher land surface temperatures.

Existing city plans and policies have set the following performance targets relating to sustainability: Source 70% of our water locally by 2035 and capture 150,000 acre ft/year of stormwater by 2035 (Sustainable Plan) Reduce urban heat by 3 degrees Fahrenheit by 2035 (Mobility Plan 2035)

Designing, planning, and operating streets to serve multiple purposes gives the City greater flexibility to adapt to future demands and to address ongoing stressors and unexpected emergencies. This approach ensures investments made today will continue to benefit residents well into the future. Restoring, building, and modernizing aging infrastructure; strengthening regional systems; and targeting investments in the most vulnerable communities help to expand the city’s capacity for resilience.

Poor pavement conditions affect the larger transportation system and people's ability to access key destinations.

Existing city plans and policies have set the following performance targets relating to resiliency: Increase number of roadway segments that have a level of B (Average PCI of 80) or better by 2035 (Mobility Plan 2035)

Enhancements that support walking, biking, and transit ridership reduce the reliance on more auto-centric modes for short trips and can result in positive health outcomes for those using active modes of transportation. Coordinating streetscape investments near transit station areas and major bus stops extend the reach of transit, ultimately contributing to a more balanced transportation system by providing a variety of cost-effective options for people to move around in ways that best suit them.

Auto-centric modes of transportation increase levels of harmful emissions such as particulate matter 2.5 and diesel particulate matter. The reduction of these emissions can result in better health outcomes.

Existing city plans and policies have set the following performance targets relating to public health: Reduce the number of unhealthy air quality days to zero by 2025 (Mobility Plan 2035)

The technical needs assessment shows that streets around the USC Campus Sports Park and Exposition Sports Park have fewer needs than streets around other venue areas. Streets located on the west side of USC and Exposition Park show the lowest need for streetscape improvements. Many streets southeast of Exposition Park and streets near freeways, by comparison, demonstrate a high need for improvements, such as Flower Street leading to I-110, 18th Street leading to I-10, and streets that pass under I-110 near the L.A. Convention Center. Most streets in the downtown core scored low on the needs assessment, but a few segments around 3rd and Spring streets demonstrate a very high need for improvements.  

Walk audits were conducted to understand the community’s perspective of the streets within the project area and to calibrate results from the technical needs assessment, to be more reflective of how people familiar with the project area experience the streets. Walk audits were completed over a two-week period from August 31 to September 14, mostly between 4 and 6PM.

To determine the walk audit routes, the project team first selected street segments that were identified as “high need” streets according to the technical needs assessment. Proximity to the venues and the ability to create a continuous walking route were also considered. The list of streets was refined by the CAC and TAC. CAC members also sought input from community members and other stakeholders familiar with the specific routes to further refine the list of streets. Street classification type (i.e., secondary or local) was another consideration, though the majority of streets that were audited were secondary streets. In total, 15 routes were completed by 28 walk auditors. While this left many routes unaudited, the tools and methodologies for analyses are available for future use.  

The project team developed a walk audit application for use on a smartphone or tablet. The application included a digital map marked with the walk audit routes and allowed users to take photos during their audit.  

Auditors answered 37 questions for each street segment. Questions were grouped into five categories. An example of one question within each category is provided below: 

1. Sidewalk (“Would someone with a physical disability have trouble navigating this block?”) 
2. Street (“Are drivers speeding?”) 
3. Bicycle & transit (“If there is a transit stop, does it look like a comfortable place to wait?”) 
4. Crossings (“For the intersection to your LEFT when facing the block, how stressful does it feel to cross the street?”) 
5. Place (“Does the street tree canopy coverage provide adequate shade?”) 

The questions also aligned with the city goals, in accordance with the Advisory Committees’ input on the needs assessment. The availability and quality of various streetscape assets shape both the behaviors of the people using them and our assessments of how the street is performing to deliver a positive experience. Walk audit score indices were calculated for each goal by combining and weighting auditors’ subjective experience of the assets along the walk audit routes.   

1. Accessibility - ease of navigation for people with disabilities; distance between crossings; availability of seating; presence and quality of sidewalks and access ramps; wayfinding quality; obstructions to the path of travel on the sidewalk; transit stop experience 
2. Equity - availability and quality of sidewalks, access ramps, transit stops; ease of navigation for people with disabilities; protection from the elements; reflection of the history and diversity of the people who have lived here; seating; 
3. Public health - availability of places to put trash; level of trash or debris; overall block conditions; encounters with people enjoying themselves; sidewalk lighting; sidewalk cleanliness; undesirable sensations or land uses; avoidance of certain areas
4. Resiliency - overall block conditions; availability of places to put trash; level of trash or debris; street tree canopy coverage; overall desirability of street
5. Safety - availability of sidewalk lighting; conflicts with people riding bikes/ scooters on sidewalk; level of concern for personal safety; avoidance of certain areas; observations of speeding; level of stress at street crossings; distance between crossings
6. Sustainability - adequacy of protection from the elements; street tree canopy coverage; quality of maintenance; overall block conditions; general street activity

Three maps were created to compare the technical needs assessment scores with the walk audit scores across the six City goals. Each map contains six layers, representing the six goals. The maps were used to understand where there were disparities between the technical needs assessment and people’s experience of the streets. Places where people did not feel the street was supporting city goals would be a priority for consideration of future improvements. 

The needs assessment and walk audit results conclude that public health, resiliency, safety, and sustainability improvements are needed at the following locations: 

• Hill Street between Temple Street and Cesar Chavez Ave
• Pico Boulevard between Figueroa Street and Albany Street
• Jefferson Boulevard between Main Street and Maple Ave

Temple Street and Exposition Boulevard have high needs for resiliency, safety, and public health improvements. Block faces along 1st St and Spring St require some equity improvements. 

The network recommendations are intended to address underinvestment’s in the City’s multimodal networks and street assets, to support 2028 Olympic Games access, and to create a model for investing in legacy improvements that benefit underserved populations.  

Each of the network recommendations fall within one of three implementation tiers: 

• Tier 1: Investments that can be completed as part of ongoing maintenance internal to an agency (such as planting trees in empty tree wells)
• Tier 2: Investments that require minor site modifications and some multiagency/community collaboration (such as constructing new tree wells and planting trees in them)
• Tier 3: Transformational investments that will require additional funding through grants or other resources, detailed design efforts, and a change in how the public right-of-way is allocated (such as widening sidewalks and planting trees in a new planter strip)

Using results from the technical needs assessment, walk audits, information on existing and overlapping planning efforts, and feedback from the CAC and TAC, the project team developed three sets of recommendations within the walkshed of the venues:  

1. Connectivity (Tier 3): Projects focused on connecting people to and from Olympic venues and between Olympic venues
2. Systemic Improvements (Tier 1 and 2): Assets managed by StreetsLA that can be improved or implemented through routine maintenance throughout the venue areas 
3. Venue Access (Tier 1, 2, and 3): Project focused on local connections to and from Olympic venue areas

Systemic improvements comprise a series of assets managed by StreetsLA. These assets have been identified as ones that can be improved or implemented throughout the venue areas as part of routine maintenance. Five assets were identified as providing the most benefits across City goals: bus shelters, underpass improvements, making quick build bike lanes permanent, alternative shade structures, and pavement markings for bikeways. The project team held a working session with the TAC to group the assets under the corresponding City goals. Bike lane upgrades and maintenance were specifically identified by StreetsLA and LADOT as a significant systemic improvement. 

There are at least 40 underpasses throughout the venue areas. Underpass improvements were identified by the TAC and CAC as a key improvement that would address all six City goals and dramatically improve community members’ experiences walking and rolling in their neighborhoods. These improvements would be considered Tier 2 improvements, requiring multi-departmental coordination. 

Underpass improvements may include wider sidewalks, pedestrian-scale lighting, community-inspired art, safety call boxes, and other elements that enhance the walking and rolling experience. Early engagement with representatives from Council Districts stressed the importance of scoping these types of projects to include ongoing maintenance and public safety elements such as call boxes and lighting. 

Connectivity projects focus on enhancing connectivity within communities and between Olympic venue areas. These recommendations were informed by Mobility Plan 2035, LADOT’s Downtown Mobility Investment Program, LA28’s Mobility Concept Plan, community plans, and the TAC. The project team reviewed these plans to identify planned and programmed changes to the mobility landscape in each of the venue areas and to see which projects could feasibly be delivered by 2028, and those which may need to be accelerated.  

The Connectivity projects focus on five north/south corridors: 

• Vermont Avenue
• Figueroa Street
• Grand Avenue
• Broadway

In addition to the project elements described below, connectivity projects should include consistent pedestrian-scaled street lighting; tree canopy; bus stop amenities, including seating and shade; and improved pedestrian conditions at all underpasses through placemaking and safety investments. 

Early engagement with representatives from Council Districts stressed the importance of scoping these types of projects so they connect outside of this project’s area to key community destinations where they offer the potential to complement ongoing efforts for economic revitalization.  

This concept plan for Flower Street illustrates the recommended sidewalk widening and protected bike lane, based on the physical space available and assumed right-of-way. Future planning and design efforts should investigate the operational impacts to all modes of traffic and additional stakeholder feedback regarding these recommendations.  

Elements of a mobility hub will be largely dependent on the transportation options that converge at that location. This example, at the 37th Street J Line Station, incorporates real-time availability, wayfinding, lighting, a bike share station, a bike hub, and a designated area for electric scooters. 

This concept plan illustrates the recommended improvements on Hill and 1st Street to provide a better pedestrian, transit, and bicycle environment. This can largely be accomplished by changes at the edges of Hill Street to make better use of available right-of-way. General purpose travel lane removal is limited to the southbound right-turn lane on Hill Street – all other existing lanes and access would remain. Future planning and design efforts should investigate the operational impacts to all modes of traffic and additional stakeholder feedback regarding these recommendations.

Project prioritization, associated cost estimates, and the identification of potential funding sources are key steps in determining how the network recommendations can be implemented. 

Among the systemic improvements, bus shelters, underpass improvements, and upgrading bike lanes scored as the highest priorities. Alternative shade structures, and pavement markings are also important to scope into future work. 

For larger scale Tier 2 and Tier 3 projects, the project team developed three prioritization criteria that align with the prioritization approach developed for the ongoing LA Metro Mobility Concept Plan. Connectivity and Venue Access Projects were scored based on three criteria: 

Using this method the high priority projects for the combined 2028 and legacy benefits are:

1.   Reimagining Expo Square 
2.  Broadway Streetscape Plan 
3.  Vermont BRT Corridor 
4. Jefferson Complete Streets Extension

In order to focus the resources available for this project, detailed data collection and Tier 1 and 2 project development were limited to the locations that best serve city goals. Detailed data collection was conducted on select streets based on the needs assessment score, the overlap with walk audit routes, and proximity to Olympic venues. 

These street segments were selected as a sample for collecting existing asset information, identifying Tier 1 and Tier 2 improvement opportunities, and providing cost estimates for these potential improvements. Cost estimates will be shared when the information is available. 

Construction cost estimates are currently unpredictable and escalating. Existing planning documents can be used as a cost basis for the projects, but more detailed planning studies will be needed to estimate costs due to the increase in projects’ extents recommended by this study. Cost estimates will be provided for the Flower and 1st at Hill projects when the information is available.  

The network recommendations will need to undergo additional planning studies and engagement to determine final extents and design elements, and ultimately the total project costs. However, the following funding sources may be leveraged to support implementation: 

• Federal
  • Rebuilding American Infrastructure Sustainably & Equitably (RAISE) 
  • Reconnecting Communities 
  • Safe Streets & Roads for All
  • Strengthening Mobility and Revolutionizing Transportation (SMART)
• State
  • Active Transportation Program (ATP) 
  • Local Partnership Program (LPP) 
  • Solutions for Congested Corridors Program (SCCP) 
  • Transit and Intercity Rail Capital Program (TIRCP) 
• Local
  • Metro Active Transportation, Transit and First/Last Mile Program (MAT)

This project concludes at an opportune time. StreetsLA is committed to advance City goals through sustained collaboration across all city agencies, as documented in Mayor Garcetti’s 2022 Interagency MOU, Improving Project Planning and Delivery in the Public Right-of-Way. The MOU provides a roadmap for interdepartmental processes for soliciting funding, delivering projects, and maintaining the transportation system. With the support of LA Metro and the LA28 Games Mobility Executives, Tier 3 projects can be advanced as legacy investments for the region, while consistent application of asset management principles bring Tier 1 and 2 investment recommendations to life.

In order to deliver key project recommendations in time for the 2028 Games, StreetsLA should actively engage LADOT, BSS, and BOE, through the interagency MOU Committee, to advance the projects to the LA28’s Games Mobility Executives. Should these projects be selected, additional community engagement to inform preliminary design is recommended. Also, refined cost estimates, suitable for both Games budgeting and to compete for alternative funding through grant resources, should be completed. The projects in this study should be included for consideration in upcoming regional, state, and federal funding opportunities. 

For any GIS related problem, map request or help please contact: bss-gis@lacity.org

For any Asset Management related problem, and assistance please contact: emas-bss@lacity.org