I

CITY OF LOS ANGELES

SAM YORTY, mayor

CITY COUNCIL

JOHN S. GIBSON, JR., president

ERNANI BERNARDI
THOMAS BRADLEY
MARVIN BRAUDE
EDMUND D. EDELMAN
JOHN FERRARO
GILBERT W. LINDSAY
DONALD D. LORENZEN
BILLY G. MILLS
LOUIS R. NOWELL
JAMES B. POTTER, JR.
PAT RUSSELL
ARTHUR K. SNYDER
ROBERT J. STEVENSON
ROBERT M. WILKINSON

ROGER ARNEBERGH, city attorney

CHARLES NAVARRO, controller

CITY PLANNING COMMISSION

JOHN J. POLLON, president
MRS. ELIZABETH K. ARMSTRONG, vice president
MELVILLE C. BRANCH
EDWARD J. CROWLEY
DAVID S. MOIR

CITY PLANNING DEPARTMENT

CALVIN S. HAMILTON, director

II
THE CONCEPT FOR THE
LOS ANGELES GENERAL PLAN

JANUARY 1970
DEPARTMENT OF CITY PLANNING LOS ANGELES, CALIFORNIA

III
IV
PREFACE

This report presents a proposed Concept for

the long-range development of the City of Los
Angeles, together with the goals upon which it
is based. The concept is intended to serve as
the basic framework for the Los Angeles
General Plan, which is scheduled to be
completed by the end of 1970. The report is the
first in a series of recommendations for the
General Plan.

The General Plan is the basic component of

the comprehensive planning process. Its
purpose is to provide City officials with a guide
for decision making on planning and
development matters and to inform the public
of the expected future development of the City.

The proposals included in the Concept are

intended to be ambitious and far reaching,
looking to the attainment of the full potential of
Los Angeles. The Concept is designed to meet
the needs of a future city of five million people.
Other portions of the General Plan will be more
explicit and will be tied to specific time periods.

The Concept seeks to restructure the City in

order to eliminate or alleviate current problems
and anticipate and deal with future issues
before they become serious problems. In the
judgment of the Planning Department Staff, the
Concept would result in a physical structure
consistent with the goals and objectives of the
City’s citizens, as expressed through the Goals
Program and other planning research.

Adoption and implementation of the General

Plan is the responsibility of the elected officials
of the City - the Mayor and City Councilmen.
The future nature and form of Los Angeles
must be determined by the representatives of
the citizens, not by special interests either
public or private.

1
Adoption of the Concept recommended in this 7. An open space program utilizing both public
report will imply strong commitments to the acquisition and land use controls must be
following broad policies and actions: formulated and implemented, in order to
prevent the loss of private recreational lands
1. Continued growth should be permitted but must threatened by development and reserve
be guided by a comprehensive planning needed open lands in undeveloped areas; the
process. passage of whatever State legislation is
necessary to such a program must be
2. The funding and development of a rapid transit advocated.
system must be advocated and supported, in
order to provide for efficient movement of 8. A long-range continuing program of balancing
people within the City. Station locations should anticipated City expenditures and revenues
be confined for the most part to intensively must be established, so as to provide optimum
developed centers. Local feeder lines should be fulfillment of the need for public services.
built as an integral part of the rapid transit
system. Other elements and components of the General
Plan will show how the development of various
3. Certain areas must be designated for aspects of the city will proceed according to the
permanent retention in low-density use, and Concept. They will include five and twenty year
held inviolate from zoning actions which would implementation programs. It is essential that a long-
result in higher densities. range concept such as that described in this report
be adopted, so that these more detailed plans and
4. Changes in the State property tax laws must be programs may be completed.
advocated, such changes to provide that
assessments shall be based upon the land use The Director of Planning recommends that this
potentials designated by the general plan of a Concept be approved by the City Planning
city, not on land prices which reflect a Commission, after review and recommendation by
speculative expectation of some other use, or the General Plan Advisory Board, and be adopted
on any other interpretation as to the “highest by the City Council and the Mayor as a part of the
and best” use. General plan of the City of Los Angeles.
5. Desired development must be stimulated The chart below indicates the planning
through new approaches involving partnership Department’s schedule for preparation of the
between public and private enterprise. Concept and the Citywide Plan, and the suggested
timing of official actions by said bodies.
6. A comprehensive development code,
incorporating zoning, land subdivision and
housing regulations, must be adopted, in order
to give assurance of coordinated well-planned
development and to facilitate technological
innovations in construction methods.

SCHIDULE FOR GENERAL PLAN ADOPTION

2
 CONTENTS

PREFACE 1
INTRODUCTION
CHARACTERISTICS OF LOS ANGELES 4
Development Patterns
Urban Problems
Development Trends
THE PLANNING PROGRAM FOR LOS ANGELES 6
Comprehensive Planning Process
Goals Program
Alternative Concepts
Formulation of the Concept

CONCEPT FOR THE GENERAL PLAN

PURPOSE AND CONTENT 9
General Plan
Concept
GOALS FOR THE GENERAL PALAN 10
GENERAL FEATURES OF THE CONCEPT 11
Centers
Suburbs
ELEMENTS OF THE CONCEPT 22
Land Use
Housing 23
Policies
Features
Commerce 26
Policies
Features
Industry 28
Policies
Features
Open Space and Recreational Lands 29
Policies
Features
Circulation 31
Policies
Features
Services Systems 35
Policies
Features
STUDIES FOR CONCEPT DEVELOPMENT 37

SELECTED BIBLIOGRAPHY 40

3
INTRODUCTION

CHARACTERISTICS OF
LOS ANGELES

The reputation of Los Angeles has long rested Los Angeles has also become a major Industrial
primarily upon the way of life of the City’s residents. center. The most important industries are
The majority of residents enjoy a unique and aerospace, entertainment, oil extraction and
pleasant style of life, characterized by the Processing, and electronics. Recent industrial
ownership and occupancy of the single-family development has taken place mainly in outlying
house. The mild and sunny climate of Southern areas, close to the workers living in the expanding
California makes outdoor recreation possible suburbs. Since land there has been relatively
throughout the year. Mountains, desert and ocean inexpensive and large acreages have been needed
are all within an hour’s drive of the Civic Center. for parking, suburban industrial districts tend to
exhibit the same sprawl as housing. The newer
aerospace industry has located mostly in the San
Fernando Valley, Which has also been the area of
Development Patterns greatest population growth.
Los Angeles grew with the automobile. More than in
any other large city, it has permitted the migration Los Angles has also become an important center of
of the middle-income population to the suburbs. As education, science and technology. Several major
a consequence, the City has become a vast universities and a number of smaller public and
agglomeration of single-family houses. private collage attract by the aerospace and
electronics industries.
Today, the only large vacant lands remaining
available for either new residential development or
for parks and open space are in the Santa Monica
Urban Problems
Mountains and in the fringe areas of the San
As the population of Los Angeles City approaches
Fernando Valley. As developable land has become
three million (in a metropolitan area of seven
scarce, construction of apartments has begun to
million), the city’s amenities are more and more
overstake that of single-family dwellings.
offset by emerging problems. These may be
Providing goods and services to the large characterized as social, economic and physical;
Population of Los Angeles requires a commercial most, however, involve aspects of all three types.
establishment of the first magnitude. The
Some of the most critical problems, such as air
commercial districts of Downtown, Wilshire,
pollution, traffic congestion, inadequate public
Hollywood, Beverly Hills and Westwood have
transportation and limited airport capacity, are
grown into an almost continuous corridor of high-
regional in nature. Their solution will require
intensity development, which has become the core
concerted action by Los Angeles.
of business, financial, cultural and governmental
activities of the Southern California region.

4
County, all of the 77 cities in the County, special Since most of the remaining open lands in the City
regional districts, and the State and Federal will be taken for housing, little will be left for the
governments. Los Angeles City, however, because parks and recreation areas needed by the added
of its dominance in size and population, is in a population. Developed land will have to be acquired
position to give leadership to a comprehensive at high cost to correct the most glaring deficiencies.
problem-solving effort.
Business and financial institutions as well as
Other problems are more directly the responsibility government offices will be concentrated more and
of the City. These include; blight and obsolescence, more in the City’s central core, creating ever-
limited choice of housing types, poorly designed increasing congestion, However, retail commercial
apartment buildings, intrusion of residential services in the core will continue to decline, as
neighborhoods by incompatible uses of other types, major stores follow their customers to the suburbs.
inefficient strip patterns of commercial Commercial strips along the major streets in older
development, hillsides Scarred by excessive areas will deteriorate as their trade potential
grading, poor access to beaches, inadequate park decreases, and will exert a blighting influence on
lands, and the drab Cluttered appearance of older adjacent residential neighborhoods. The
commercial and residential areas. appearance of most commercial areas will be little
improved despite sporadic attempts at
One particular group of problems weighs most beautification
heavily upon low-income and minority People,
substandard housing, high unemployment, and Transportation problems will intensify. The
limited opportunity for higher Education lock many Increased number of automobiles operated by the
of the poor, aged and minority people in a physical growing population will require the continuous
and spiritual ghetto. Elimination of the poverty, poor addition of freeways, major highways, local streets
housing and limited opportunities that perpetuate and parking lots, just to keep congestion from
this ghetto condition must be a top concern in the getting worse. More and more land will be used for
planning of the future Los Angeles. street purposes, and will be removed from the tax
rolls. The Public transportation system will be
limited to buses, which will compete with auto-
mobiles for space on the City’s crowded Street and
freeways. Adequate bus service will not be
provided due to the high cost of serving widely
Development Trends separated destinations, and persons without
automobiles will continue to tack mobility.
Continuation of present growth and development
trends of Los Angeles points to intensification rather Finally, smog threatens to remain a problem,
than solution of current Problems and to the improved technical methods for the reduction of
attainment of something less than the city’s full emissions from the internal combustion engine can
potential. Changes in Public policies and business be expected, however, these will to a large extent
practices relating to development and services will be offset by the increased number of vehicles.
be necessary if these undesirable consequences
are to be avoided.

Under present trends, the few remaining large

vacant areas will be subdivided for single-family
residences. As population and housing Demand
increase, older single-family areas will be rebuilt
with low-rise apartments of standard design and
minimum quality. Good Single-family houses will
become increasingly expensive and low and
moderate-cost housing of this type will not be built.
Substandard housing will increase, as programs for
its rehabilitation and social segregation will
continue.

5
THE PLANNING PROGRAM
FOR LOS ANGELES

Planning has been of significant value in guiding 5. Prepare a general plan, based upon the
the development of Los Angeles. However, it has selected concept and incorporating goals,
not kept pace with the City’s rapid growth. Plans for policies and implementation programs.
different aspects of development have frequently
not been well coordinated. Many of the problems 6. Develop the technical means to carry out
which have surfaced in recent years could have the general plan: land development code;
been avoided by a comprehensive planning programming and budgeting of public
process. services; systems for monitoring physical,
social and economic conditions; neighbor-
One possible way of minimizing future problems hood maintenance, rehabilitation and
would be to place a restraint upon the City’s growth. rebuilding programs; plan review and
However, it is not considered feasible to limit revision procedures.
population within the foreseeable future, to attempt
to do so would probably result in sever economic The Los Angeles City Charter provides that a
and social repercussions. Furthermore, the large General Plan for the City shall be prepared and
physical Size of Los Angeles is adequate to adopted, and specifies its nature and Content
accommodate continued growth without detriment together with the broad procedures for its
to the City’s established life style if such growth is implementation. The concept presented in this
guided by comprehensive planning. report is the first and most basic element of the
General Plan. Completion of The General Plan is
scheduled for late in 1970.
Comprehensive
Planning Process Goals Program
The following steps are the essence of the
Comprehensive panning process:

The Los Angeles Goals Program was initiated in

1. Gather the facts: identify problems, issues 1967, in response to the Planning Department’s
and potentials; survey land use and recognition that a valid plan must reflect the needs
development; inventory human, economic and desires of citizens. The opinions and
and physical resources; study population suggestions of individuals and groups were
and economic trends and make projections. solicited. An important part of the program was the
appointment of the Los Angeles Goals Council by
2. Identify goals, based upon the preferences joint action of the Mayor and City Council of Los
expressed by citizens. Angeles City, the Board of Supervisors of Los
Angeles County, and the League of California
3. Determine what the possibilities are: alter- Cities. The Goals Council has recently published a
native concepts for the future development Final report reflecting the concerns of the various
of the City. participants and presenting its final
recommendations for goals for the Los Angeles
4. Select the concept which will best serve to
area.
achieve the goals.

6
Significantly, the recommendations of the Goals Formulation
Council are not limited to the traditional concerns of Of the concept
urban planning or to the Specific responsibilities of
the Los Angeles City government. The This Concept represents the final recommendations
development of solutions ton many of today’s of the City planning Department. It has evolved as a
complex urban Problems requires full consideration result of numerous detailed Studies by the
of not only physical but also social and economic Department as well as other organizations. The
Conditions and trends, in a comprehensive regional more significant of such Studies are listed in the
context. Bibliography. Invaluable assistance was given by
Goals program Participants and other persons
Many of the recommended goals concern Problems concerned with the various aspects of planning.
that require immediate attention. After careful
review, the planning Department Staff identified ten None of the four original alternatives was found to
issues of primary concern, which are examined in a offer a unique and completely satisfactory basis for
working paper entitled: “priority Goals for Los the General Plan. The Concept most closely
Angeles”. These urgent problems must first be dealt resembles “Centers” But has been drawn from all
with through comparatively short-range plans and four, as well as other sources.
programs. They will accordingly be given detailed
consideration in the development of The Citywide The Concept provides a long-range view of the
Plan and its five and twenty-year Programs. City, characterized by (1) the development of high
intensity activity centers and their satellites, and (2)
This Concept, however, look not only to the the preservation of low density Suburban areas.
Solution of current problems but also to the Long- The two contrasting types of development are tied
range evolution of the best possible City it must together by a comprehensive transportation system
also provide a framework for maximum and a network of park and open spaces.
achievement of the City’s long-range Potential. The
concept, therefore, deals with both 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 and
Development of Los Angeles were described in
“Concepts for Los Angeles”, a recent publication of
the Department of City Planning. Four alternative
concepts were presented; “Centers”,”Dispersion”,
“Corridors” and “Low Density”.

These alternatives were based on different

fundamental assumptions relating to the nature and
interrelationships of: population distribution and
housing types; employment and commercial service
patterns; transportation modes and routes; and
open space Patterns. Each sought to maintain
desirable existing conditions and trends and to
charge those which are not desirable.

7
8
 PURPOSE AND CONTENT

General Plan
As provided by the Los Angeles City Charter, the The Concept map-diagram (see insert) covers a
Genera! Plan is a comprehensive declaration of large part of the Los Angels metropolitan region,
purposes, policies and programs for the much of which is under the jurisdiction of other local
development of the City, including, where governments. A regional context is necessary in the
applicable, diagrams, maps and text setting forth Concept’s presentation because the issues,
objectives, principles, standards and other features. problems and opportunities to which it is addressed
The General Plan includes a Land Use Element, a do not recognize political boundaries. To
Circulation Element and a Service-Systems governmental jurisdictions outside of the City of Los
Element. It is presented by means of a long-range Angeles, the Concept is offered as a general guide
Concept and a 20-year Citywide Plan, which for dealing with local planning matters which have
provide its framework, together with a number of region-wide implications. To regional agencies
sub-elements and local area (community) plans. which have the authority and responsibility for the
planning and provision of certain public facilities
and services within the City of Los Angeles, the
As further provided, the General Plan is intended to Concept declares the intent of the Los Angeles City
serve as a basic and continuous reference in (a) government as to the overall long range
planning for City development, (b) developing development of the City.
official regulations, controls, programs and
services, and (c) attaining coordination of services
and administration by all governmental agencies,
private organizations and individuals involved in the
development of the City.

Concept
The Concept consists of this text together with the
accompanying map-diagram and sketches.

The purpose of the Concept is to declare the long-

range goals and policies for the development of Los
Angeles and to describe the physical features and
functional relationships appropriate to such goals
and policies. The Concept is intended to be used as
the basic reference for the preparation and
maintenance of all other components and elements
of the General Plan.

9
 GOALS FOR THE GENERAL PLAN

The following goals are established for the City of 6. Provide a full range of facilities for leisure time
Los Angeles with respect to the General Plan: activities at locations readily accessible to all
persons: furnish adequate local recreational
1. Preserve the low-density residential character services; develop specialized recreational
of Los Angels: protect stable single-family facilities; preserve the shoreline for public use.
residential neighborhoods from encroachment
by other types of uses; rehabilitate and/or 7. Conserve the City’s natural resources and
rebuild deteriorated single-family residential amenities: preserve open space; protect
areas for the same use; make single-family outstanding geographical features; minimize air
housing available to families of all social and pollution, water pollution, noise and litter.
ethnic categories.
8. Enhance the quality of the City’s physical
2. Provide maximum convenience for the environment: integrate all aspects of the City’s
occupants of high and medium density housing development through the application of urban
(apartments): locate the bulk of such housing design principles; establish the identity of the
within, or near to, concentrations of urban various communities of the City; preserve
facilities and employment opportunities; make historical and cultural features; control the
high and medium density housing available to placement of commercial signs; provide
persons of all social and ethnic categories. landscaping in intensively developed areas.

3. Provide employment opportunities and More specific goals and objectives are contained in
commercial services at locations convenient to the Citywide Plan and the various General Plan sub-
residents throughout the City reserve suitable elements.
and adequate lands for industrial and
commercial uses; make Los Angeles an The above goals are declared to be consistent with
attractive location for new industries and and supportive of those more comprehensive goals
businesses. relating to all facets of urban activity which have
been identified by the Los Angeles Goals Council.
4. Provide adequate transportation facilities for the These broader goals, in general, call for: promotion
movement of people and goods: provide a of the general welfare and public convenience;
choice of transportation modes; alleviate traffic attainment of economic health and balance, including
congestion; increase the speed and full employment; availability of equal opportunities for
convenience of all transportation modes; education and employment to persons of all social,
achieve economy and efficiency in the economic and ethnic groups; availability of adequate
movement of goods. housing, with a choice as to types and locations, to
persons of all social, economic and ethnic groups;
5. Provide needed public services to all persons alleviation of poverty; achievement of social order;
and businesses: achieve economy, flexibility availability of adequate recreational facilities to all
and efficiency in the provision of services, both persons; enhancement of the visual environment of
those furnished by the City of Los Angeles and the City; alleviation of pollution and noise;
those furnished to Los Angeles citizens by preservation of natural features and historic
other governmental jurisdictions; provide development.
suitable sites for public facilities at locations
convenient to their users.

10
 GENERAL FEATURES
OF THE CONCEPT

The Concept is designed to accommodate a future The Concept map-diagram (insert in back cover)
population of 5,000,000 persons within the City of indicates the citywide form to be taken by each of
Los Angeles, and over 11,000,000 persons within the described basic components and shows their
the metropolitan study area included on the map- interrelationships. The Concept allocates to the
diagram. The Concept envisions employment levels centers over half of the projected population growth
of about 2,750,000 for the City and over 5,350,000 and over two-thirds of the employment growth of
for the study area. The Concept does not specify Los Angeles after 1970. The provision of both high-
the time for the attainment of these levels; based on density housing and places of employment in
projections made in 1969, it appears that they will centers is intended to minimize travel time between
not be reached until sometime beyond the year home and work. The placement of a major part of
2000. new residential growth in centers is expected to
lessen the pressures for development of medium
The Concept features five basic components: intensity housing (apartments) in suburban areas,
so as to reserve them primarily for single-family
1. Major “centers” having a high intensity of occupancy by families of various income levels.
development and activity: employment,
housing, retail services, business services, In the “Regional Core”, comprised of the
government services and entertainment. Downtown, Wilshire, Miracle Mile, Hollywood and
Beverly Hills Centers, together with intervening and
2. Low-density* “suburbs” comprised mainly of peripheral areas, a much higher density of
single-family residences with necessary population and employment is designated than
facilities for local business and public services. elsewhere in the City, as consistent with
established trends in land use and development.
3. Open spaces of various sizes, including small Figure 1 is a hypothetical sketch of parts of the
public and private parks and plazas in centers; Regional Core, illustrating the contrast in building
neighborhood and community parks and intensities between centers and suburban areas.
recreational facilities in suburbs; district and
regional parks and recreational facilities,
including golf courses; large natural areas; and
a network of trails and/or corridor parks
connecting other open spaces to the maximum
extent feasible.

4. Industrial areas distributed throughout the City

at locations convenient to both places of
residence and freight transportation facilities,
developed in a manner to assure compatibility
with adjacent land uses of other types.

5. A comprehensive transportation system,

including: a fully developed highway and
freeway system, a rapid transit network with
feeder lines, and local bus transit; a region-wide
air terminal system serving local and inter-city
movement; and a freight movement and
terminal system.

*
See “Land Use-Housing”, Page 23, for residential
density categories.
11
12
 Centers

The Concept map-diagram designates 48 centers

within the metropolitan study area, of which 29 are
located within the City of Los Angeles. Centers
designations are based upon: existing
concentrations of population and employment;
potential locations of population and employment
growth, as indicated by current trends and
projected growth patterns; geographical
considerations relating to transportation routes; and
the minimum spacing of rapid transit stations
necessary to the attainment of an adequate overall
speed.

Centers will vary in size, shape and intensity. They

will be the dominant physical elements in the City
due to their high development intensity and
concentration of people and activities.

The physical form of a center is indicated by the

accompanying illustrations. Figure 2 is a conceptual
diagram of the center’s components. Figure 3
indicated how the various components might be
organized in an actual center – Miracle Mile. Figure
4 and 5 are conceptual diagrams that show future
activity distribution and physical form, respectively.
Figure 6 is an oblique aerial photograph of the
Miracle Mile Center today. Figure 7 is a sketch of its
possible future development.

Each center will have a “core”, which will be the

focus of activity. Figure 8 is a sectional view of a
core. The core will contain the rapid transit station,
high-rise office structures, department stores,
hotels, theaters, restaurants and government
offices. It will be designed to function on a three-
dimensional basis, with extensive use of air rights
to permit development over streets. The core will
not be rigidly defined in a physical sense but will
extend about one-quarter mile in all directions from
the transit station.

Rooftops will be developed as landscaped plazas

and open spaces for both public and private use.
Schools, churches, government offices and public
facilities can be located on upper levels, using
landscaped rooftops as their grounds.

13
The major emphasis in the core will be on
business activities; however, the core will usually
include housing, which in some cases will occupy
the upper floors of multiple-function structures.

Automobiles and delivery trucks will, for the most

part, be restricted to the ground level.
Interconnected pathways for pedestrian circulation
will be provided at the second floor and higher
levels. This nearly complete separation of
vehicles, transit and pedestrians will enhance
the convenience, safety and pleasantness of the
core.

Centers will also include local concentrations

called "nodes". These may number as many as
twenty or as few as two. Nodes will be
connected to the rapid transit station in the core
and to each other by a secondary transit system
operating on its own grade-separated right-of-way.
Nodes will contain commercial, residential and
institutional uses, with intensities usually
somewhat less than that of the core. A node Fig. 2 Conceptual Diagram of a Center
may be oriented to some specialized use but
will usually contain residential and service
commercial facilities. Nodes of higher intensities
will be designed similarly to the core, with grade-
separated pedestrian circulation.

Where a node is distinctly separated from the

center but connected to it by the secondary
transit system, it is termed a "satellite".
Spaces between the core, nodes and satellites
and lands at the periphery of centers will
usually be occupied by medium intensity uses –
residential, commercial, institutional or restricted
industrial – and, in some cases, by parks and
open space.

Fig. 3 Conceptual Diagram of Miracle Mile

14
15
Fig. 6 Miracle Mile today

Fig. 8 Sectional view of center core

16
 Fig. 8 Sectional view of center core

Fig. 8 Sectional view of center core

17
Suburbs

Those parts of the city located outside of the

centers are referred to as suburbs. Suburbs will
contain the lower density residential areas.
Conveniences retail services will be provided in
local shopping and business areas located as
specified by the local (community) plan elements of
the General Plan. These areas will also service as
focal points for various types of neighborhood
activities.

Figure 9 is a conceptual diagram of a suburban

area. Figure 10 translates the diagram into an
actual case – EI Sereno. Figure 11 is a conceptual
activity diagram of EI Sereno and Figure 12 shows Fig. 8 Sectional view of center core
its conceptual physical form Figure 13 is an oblique
aerial photograph of this community today. Figure
14 is a sketch from the same viewpoint showing
how it might look in the future.

Essential to the Concept is the preservation of

existing stable single – family neighborhoods and
the rehabilitation of deteriorated single-family
neighborhoods. Where older single-family areas
are beyond rehabilitation, they will be rebuilt for
the same use, with slightly higher densities being
permitted in same case so as to meet the
demands of population growth.

The suburbs will also contain the bulk of the City’s

open space, including neighborhood and
community parks and recreational sites Scenic
preservers and specialized recreational Facilities.

Manufacturing will continue to be largely located

on land in suburban areas which has been
previously zoned or developed for industrial
purpose. Zoning code provisions will assure the
development of industrial areas in a manner
compatible with adjoining residential uses.

The automobile will continue to provide the

principal Means of transportation in the suburbs.
Completion of the freeway and highway networks
proposed by the General Plan will be necessary to
accommodate the high volume of the traffic. Local Fig. 10 Conceptual Diagram of El Sereno
bus service will continue to be provided.

18
Fig 11 Conceptual Activity Diagram of El Sereno

Fig 12 Conceptual Form Diagram of El Sereno

19
Fig. 13 El Serono today

Fig. 14 Concept sketch of El Sereno

20
21
ELEMENTS OF THE CONCEPT

This section sets forth the policies for the Concept

in terms of the General Plan elements specified by
the Los Angeles City Charter. It also describes the
features of each element.

The Concept does not include programs for

implementation of the General Plan. These are
specified in detail, for five year and twenty year time
phases, in the Citywide Plan and the various sub-
elements and areas plans. Implementation will
involve a continuous process of balancing land use
intensities with circulation and service facilities.

22
Land Use

The Land Use Element is intended to guide the

locations, densities and building intensities of
housing, commercial development, industrial
development and open space.

Housing

Policies

1. Provide housing densities and type in the

locations specified in accordance with the
following table:

Dwelling Units per acre

Density Category (gross, including streets) Persons per acre Locations
High 40 and above 80 and above Centers

Medium 24-39 50-100 Centers; fringes of centers; suburbs,

near commercial areas and on some
major highways.
Low-medium 7-24 20-75 Fringes of centers; suburbs in
Regional Core; other suburbs near
commercial areas
Low 7 and under 30 and under Suburbs
2. Encourage a range of housing types of the 6. Preserve desirable residential neighborhoods and
indicated densities and a range of housing restore deteriorating residential neighborhoods,
costs within each center and suburban area, through programs for conservation, rehabilitation
in order to create a variety and choice of and rebuilding of housing.
residential life-styles; in centers incorporate
housing, where appropriate, in multi- 7. Promote the construction of an adequate supply
functional buildings along with different but of housing for all persons, through the advocacy
compatible uses. of and participation in federally sponsored and
private programs directed to that end.
3. Provide effective procedures in the zoning
code for “planned residential developments”, 8. Increase the availability of sound and desirable
the process of planning housing in unified housing to low-income persons, through
developments; and encourage the use of programs of government assistance.
such procedures for new or rebuilt housing.
9. Provide high-quality public facilities and services
4. Encourage innovations in housing and promote high-quality commercial services in
construction, including prefabrication, through all residential communities.
municipal sponsorship and appropriate
building legislation.

5. Develop and adopt improved standards of

design and construction for the medium
density apartment.

23
Features

The concept provides for a full variety of housing

types and densities to meet the needs of an
expanded and differentiated population and to
increase the range of choice. The following table
indicates the proposed general distribution of
housing and population:

OCCUPIED DWELLING UNITS

Location Multiple Family Single Family Population

CENTRAL LOS ANGELES

Centers, in Regional Core 330,000 700,000

Centers, other 145,000 345,000

Suburbs, Regional Core 50,000 40,000 225,000

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

WESTERN LOS ANGELES

Centers 90,000 210,000
Suburbs 88,000 85,000 490,000

SOUTHERN LOS ANGELES

Centers 15,000 35,000
Suburbs 42,000 30,000 215,000
SAN FERNANDO VALLEY
Centers 225,000 570,000
Suburbs 135,000 310,000 1,380,000

TOTAL, CENTERS 805,000 1,860,000

TOTAL, 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 of medium-

density and high- density apartments, in the larger
centers, particularly those in the Regional Core,
high intensity housing will predominate; most
residential structures will be “medium rise” with a
height of four to eight stories or “high rise”, with
height of nine stories or more. In some cases,
housing will occupy the upper floors of high-rise
commercial buildings. Planned residential
development regulations will be applied to major
apartment complexes in order to insure
compatibility with surrounding developments and
reserve adequate open spaces on their sites.
Figure 15 illustrates a high-density housing node in
a center.

In suburban areas, the single-family dwelling will

continue to predominate. Nearly all good quality
single-family housing will for the most part be
Fig. 15 High Density Residential Node with
clustered so as to minimize grading and reserve a
maximum amount of usable land for outdoor living. Secondary transits stop.

24
Most older deteriorated single-family distance of shopping, services and other local
neighborhoods will be rehabilitated, or be rebuilt activities. Some medium-density housing will be
with the same type of housing where rehabilitation provided on highway frontage properties, In lieu of
is not feasible. However, old single- Family areas previously permitted commercial Uses.
adjacent to centers throughout the City, and in large
parts of central Los Angeles, will be rebuilt with An improved quality will be required for Low-rise
townhouses (attached single dwellings), which will apartment structures by means of planned
provide most of the amenities of single-family living development procedures or other zoning code
at Low-medium densities and also considerably provisions. Larger sites will be required, in order to
Increase the population capacity. Figure 16 shows provide more usable open space, better pedestrian
a townhouse development. access and Circulation, adequate parking for both
residents and guests, noiseproofing and Privacy for
For the most part, suburban apartments will be of individual dwelling units.
the low-rise type, with medium densities and two or
three story heights. They will usually be located
near community and neighborhood commercial
areas, within walking

25
Commerce

Policies
Features
1. Provide for the development of high-density The Concept indicates two general categories of
concentrations of offices, housing, shopping commercial development: high intensity facilities
and entertainment at selected locations near located in centers and local retail and service
rapid transit stations, encouraging the facilities in suburbs. The following table indicates
development of multifunction buildings in the proposed general distribution of commercial
which different but compatible uses may and office employment (including governmental):
exist in the same structure.
Location Number of Employees
2. Provide for the development of adequate
local commercial retail facilities and services CENTRAL LOS ANGELES
in residential neighborhoods, through the Centers, in Regional Core 745,000
specification of appropriate standards and Centers, other 155,000
features in local area plans. Suburbs, Regional Core 70,000
Suburbs, other 130,000
3. Eliminate unneeded and poorly located
commercial strips along major highways, and WESTERN LOS ANGELES
discourage or prohibit the development of Centers 130,000
similar strips in the future by means of Suburbs 60,000
appropriate zoning and development
legislation. SOUTHERN LOS ANGELS
Centers 20,000
4. Locate commercial employment and services Suburbs 75,000
so they are directly accessible to residential
areas, or to transportation facilities providing SAN FERNANDO VALLEY
adequate and convenient service from Centers 280,000
residential areas. Suburbs 185,000
5. Insure that commercial facilities are made TOTAL, CENTERS 1,330,000
compatible with adjacent residential areas by TOTAL, SUBURBS 520,000
means of zoning and development code
provisions consistent with good urban design GRAND TOTAL 1,850,000
principles, such as adequate landscaping
and buffering, performance standards, and Centers will contain large office buildings,
design review of proposed developments. department stores and specialized shops. They will
offer desirable sites for corporations seeking west
coast locations for their headquarters of major
branch offices. They will also contain convenience
retail facilities for their own residents and persons
living in adjacent suburbs. Centers will offer a wide
range of job opportunities, primarily in the sales,
service, management, entertainment and
governmental administrative fields.

In the suburbs, community business districts will

continue to serve as the focal points for local
shopping, civic and social activities. Where their
expansion is necessary, it will in most cases take
place by means of intensifi-

26
cation rather than site enlargement, as illustrated by Some of the existing commercial strip zoning on
figure 17. Neighborhood shopping areas will major streets will be converted to automobile-
continue to provide daily convenience service to oriented commercial facilities, intended to serve
suburban areas. Existing planned shopping centers both the traveler and the local residents. These will
with off-street parking will be retained. In older be designed to provide efficient drive-in services,
areas, strategically located portions of commercial marking use of various technological innovations so
strips will be converted to retail concentrations. In as to maximize their function efficiency and
same cases, they will be deepened to provide the minimize parking needs. Figure 18 illustrates a
land needed for building expansion and parking. facility of this type

Fig. 17 Intensification and expansion of a community center

Fig. 18 Automobile-oriented commercial facility

27
 Industry

Policies

1. Facilitate the development of industry For the most part, industrial districts will be clearly
through the designation and reservation of defend, being separated from residential, commercial
industrial lands in the quantities needed. and other uses by means of freeways, flood channels
and major highways and other barriers. Further
2. Locate industrial districts so as to be
protection will be provided to other land uses by
accessible to places of residence, or to
means of zoning requirements for landscaped buffer
transportation facilities providing adequate
areas, increased setbacks and service roads. Figure
and convenient service from residential
19 shows a conceptual arrangement of an industrial
areas.
district and adjacent residential neighborhood,
3. Insure the compatibility of industrial facilities featuring use of air right over low industrial building
with adjacent residential areas through for a landscape buffer strip also serving as a local
zoning and development code provision park. Most new manufacturing areas will be
consistent with good urban design principles, developed as industrial parks, with well-designed
such as adequate landscaping and buffering, points of entrance and exit, controlled site and
performance Standards, and design review building design and adequate parking areas.
of proposed developments.
The majority of industrial districts will be located in
4. Promote the location of new and diversified the suburbs, along railroads and freeways. Because
business and industry in the city by means of of the comparatively low employment density, it will
publicly and privately sponsored programs not usually be feasible to serve them by rapid transit
directed to that end, including special employees will generally use the automobile or local
assistance in site selection and development. buses for work trips. However, several of the centers
are located immediately adjacent to large industrial
areas. The latter will be mostly used for high intensity
operations such as research and development, and
will be the rapid transit station in the center.

Features

Industry will generally be located in areas

previously occupied by and zoned for industrial
purposes. The following table indicates the
proposed general distribution of industrial
employment:

Location Number of Employees

CENTRAL LOS ANGELES 445,000

(Regional Core) (285,000)
(Remainder of Areas) (160,000)

WESTERN LOS ANGELES 140,000

SOUTHERN LOS ANGELES 80,000

SAN FERNANDO VALLEY 235,000

TOTAL 900.000
Fig. 19 Industrial use in suburbs

28
Open space and Recreational Lands

Policies

1. Provide adequate parks and open space

throughout the city as part of a region wide
system; preserve and restore scenic and
historic site and natural recreational areas;
preserve existing large open spaces in their
natural state; and promote small open spaces
and plazas in developed areas.

2. Provide neighborhood parks and recreational

sites within walking distance of resident of all
parts of the city; provide community parks and
recreational sites offering a variety of recreation
facilities and programs for all age group at
convenient location throughout the city; provide
other appropriate types of recreation facilities
easily accessible from employment centers;
promote the development of existing public
facilities for use for recreation or open space.

3. Promote the development of regional parks with

specialized recreation facilities; provide for
maximum public use of the mountains, beaches
and ocean for various recreational needs.

4. Develop and improve standards for the

location, size and type of each recreational
facility and program on the basic of the needs
of the people, giving careful attention to the
special needs of young adults, minority and
low-income groups and senior citizens.

29
Features

An open space network will extend throughout the they will be connected to neighborhood centers
city, containing parks and recreation facilities of all and/or other open spaces by means of liner parks
types and scales as well as important geographical or parkways occupying vacated streets or
features. easements.

The open space system will serve as a major In mountainous areas, lands unsuitable for
organizing element for the city’s form. It will residential development and natural areas desirable
separate incompatible uses and define for preservation will be incorporated into open
neighborhoods and communities. It will integrate space system, as will be the privately –owned open
urban development with natural landscape. spaces of planned developments. Privately owned
golf course will be preserved, through public
In centers, existing parks will be preserved. acquisition if necessary. Flood control channels,
Additional open space will be provided in the form power line rights-of-way, and strips adjacent to
of small plazas, which in many cases will occupy freeways will be landscaped and utilized as trails
landscaped rooftops. These will contain a variety of connecting other open space. Parts of flood control
recreation and leisure facilities, serving both channels will be developed as recreational lakes
resident and visitors. and streams, as illustrated by Figure 20. The
beaches will be preserved and developed for public
In the suburbs, parks and recreational sites will be use, and access to them will be improved.
located in all neighborhoods and communities, so
as to provide maximum accessibility to local users.
Where feasible,

Fig. 20 Proposed recreational use of flood control channels

30
Circulation

The circulation Element is intended to guide the 7. Advocate and support legislation setting
locations and characteristics of the various types of acceptable standards for the emission of air
transportation facilities which link the parts of Los pollutants by the internal combustion engine, or
Angeles with each other and with areas. for its replacement by a non-polluting
propulsion system if such standards cannot
otherwise be attained.

8. Develop appropriate standards setting a

Policies maximum noise level for various transportation
modes, and impose such standards by
1. Develop a comprehensive circulation system, ordinance.
including all appropriate modes of public and
private transportation for the movement of
people and goods.

2. As a major feature of the public transportation

system, provide a rapid transit system with
stations limited to centers expert for several
special stations to serve commuter traffic in the
location shown on the Concept map-diagram.
Include as a part of system a secondary system
connecting the core of each center with other
nodes in the same center.

3. Provide bus service on major and secondary

highways serving suburban areas, giving
access from residential areas to centers and to
community and neighborhood business areas.

4. Continue the development of the freeways,

highway and street system in general
conformity with the pattern depicted by the
Concept map-diagram, to serve as the major
transportation system serving the City,
particularly in the suburban areas.

5. Promote the development of other components

of the transportation system in accordance with
the features of this concept, including harbor,
trucking, rail and air transportation facilities.

6. Through the implementation of the other

components of this concept, make communities
more self-sufficient in order to reduce the need
for long-distance travel.

31
Fig. 21 Rapid transit station in center

32
Features

They key physical elements of the transportation

system will be mass rapid transit, highway and
freeways.

The rapid transit system will be in the form of a

network connecting the centers. It will operate in its
own grade-separated right-of-way, located either
above or below ground depending upon local
conditions and the type of equipment. It will utilize
the most technically advanced equipment and
propulsion methods available. For the most part
stations will be confined to centers in order to avoid
the delays occasioned by numerous stops and to
provide an adequate speed of operation. Figure 21
shows a rapid transit station within the core of a
center. Several “park and ride” stations will provide
for the transfer from automobiles of commuters
from outlying suburban areas as illustrated in
Figure 22.

An integral part of the rapid transit system will be a

local secondary system connecting station in the
cores of the centers with nodes. The secondary
system will also operate on a separate right-of-way,
as illustrated by Figure 23. It will provide frequent
service on a 24 hour basis.

The rapid transit system will handle much of the

movement between centers including a high
proportion of the work trips at peak traffic hours.
The Regional Core will have an excess of jobs over
resident labor force, in the amount of 650,000. A Fig. 23 Secondary transit
large proportion of its workers expected to
commute to work from outlaying suburbs by transit.

Fig. 22 “Park and ride station in suburban area

33
The automobile is expected to continue to be the The demand for air travel will be met by the
dominant means to transportation in Los Angeles. Combined use of several airports, including Los
Most people will use an automobile even to reach Angeles International, Ontario, Van Nuys, Palmdale
centers except during peak traffic hours and and Hollywood-Burbank, Terminals for vertical and
therefore adequate circulation facilities and parking short take-off and landing (V/STOL) aircraft will be
garages must be provided in each center as shown provided in the Downtown Center, and in at least
in figure 24. one center each in west Los Angeles and the San
Fernando Valley, Other heliports and helistops will
Because the intensive development of center will be provided as necessary to meet the demand and
leave little room for a high volume of vehicular to the extent that they are consistent with policies
movement, it is essential that pedestrian circulation relating to aircraft safety and noise standards.
be grade-separated from streets and that parking
garages be located at peripheries of centers. The harbor, railroads and trucking will continue to
be the primary elements in the freight distribution
A large majority of suburban transportation needs will system. Air freight is expected to increase in use
be provided by the automobile. Accommodation of and become a significant distribution method. Los
the increased traffic will require completion of the full Angeles Long Beach Harbor will continue to grow at
freeway and highway system envisioned by the a rapid rate. Railroads will increase in importance
Concept as well as improvement in local street as freight carriers with some routes combined. They
patterns, such as the elimination of unnecessary will be grade-separated from all major and
intersections and jobs. Peak-hour congestion on secondary highways. Trucking will increase in
major suburban streets will be substantially alleviated proportion to the growth of the economy, with truck
by the diversion of commuting traffic to the rapid routes designated on certain freeways and major
transit system. highways. The rapid transit system will be used to
haul freight during the night in order to help defray
the cost of the system and alleviate truck traffic.

Fig. 24 Automobile access and parking facilities in a center

34
Service System

The Service-System Element is intended to guide

the locations and characteristics of the various
public facilities and services provided to Los
Angeles residents by the City and other
governmental jurisdictions.

Policies

1. Provide essential services, facilities and

programs throughout the City to all segment of
society on the basis of need.

2. Locate related public facilities in clustered

groupings, connected with the open space
network where feasible, in order to provide
maximum convenience to their users, achieve
economies in site utilization, and permit
integrated design.

3. Continue to develop and improve standards for

public facilities and services on the basis of
need and optimum allocation of public
resources.

4. Maximize the availability and accessibility of

public facilities and provide full information
about them to the public.

5. Encourage the coordination of service and the

integration of facilities and work forces of the
different public agencies and private
enterprise, as well as the multiple use of
facilities, so as to curtail duplication and
overlap of services and to otherwise promote
economy of operation.

35
Feature

The Concept seeks to improve the quality of Public

facilities and services, and to expand their quantity
as required to serve the larger population.

Standards for the Service-Systems Element relating

to the design, capacity, appearance, functioning
and location of public facilities will be tailored
specifically to the components of the Concept. The
compact, densely populated residential portions of
the centers will require different standards than the
low density suburbs. A municipal office complex is
envisioned for each center, integrated with other
types of uses rather than in the form of a
monumental branch civic center, Standards for
facilities in the suburbs will closely resemble those
previously developed, but their clustering will be
encouraged as illustrated by Figure 25.

The Citywide Plan sets forth general policies and 5

and 20 year programs for the following categories
of Service-Systems Elements: Recreation,
Administrative Centers, Public Libraries, Public
Education, Cultural and Historical Monuments,
Public Works Service Facilities, Public Health and
Protection Plans, and Public Utilities. In addition,
sub-elements within each of these categories
present specific policies, features and programs.

Fig. 25 Public Facility Network

36
STUDIES FOR
CONCEPT DEVELOPMENT

37
The process for formulation of the Los Angeles in broad form; however, their intent has been Made
General Plan is described in the Introduction, it is as explicit as possible. Also, in view of the
noted therein that the steps Preceding concept uncertainties as to the exact physical Patterns
development are; basic Studies and surveys, goal which will be desirable in the long-range future, the
formulation and Identification of alternatives. Concept does not include the usual land use map
but rather presents Physical form aspects by
The proposed Concept reflects the findings and means of a map-diagram supplemented by
conclusions of a large number of studies Made by sketches illustrating urban design features.
the Los Angeles City Planning Department staff,
planning agencies of other metropolitan Los A valid planning analysis cannot be made
Angeles jurisdictions, and various other public Independently for a single point of time in the
agencies. The Concept also incorporates accepted distant future; it must take into consideration the
planning and urban design principles. year by year steps which are necessary to a
progressive achievement of long-range goals
The goals for the Concept have been largely These steps will be set forth in the citywide Plan,
derived from the recommendations of the Goals which will be submitted for adoption as Part of the
Council and the various other organizations which General Plan subsequent to adoption of the
participated in the Goals program. They stress the Concept.
responses to a questionnaire widely distributed
throughout the Los Angeles area, which drew more A preliminary version of the citywide Plan has been
than 45,000 replies. The questionnaire was also prepared as an aid in evaluating the feasibility of
included in a representative sampling of the the Concept in light of various steps required to
population taken to permit the allocation of implement it: population and employment growth;
responses in proportion to the distribution of various land use redesignations; zoning code restructuring;
social and economic characteristics. rapid transit system financing and development;
reservation of open space; substantial increases in
The goals also incorporate the staff’s interpretation Public services. The preliminary Citywide Plan
of the consensus of persons who have expressed Includes policies and programs for the broad Sub-
their concern with the various aspects of planning categories of the land use, Circulation and Service-
through other means. These include the persons Systems elements, including generalized 5-year
who have attended and testified at the hundreds of and 20-year implementation Programs. It will be
public hearings and decision meetings conducted further detailed and developed during 1970, and a
by the Planning Commission and City Council in revised version will be submitted to the Planning
recent years. Commission for public hearings near the end of the
year.
The Concept must have sufficient flexibility to allow
its modification to accommodate Circumstances Due to the large size of Los Angeles, still more
which could not be foreseen at the time of its detailed plans are required for day to day use in the
formulation. For this reason, it has been necessary consideration of local planning Issues and the
to state goals and policies specialized needs of the public services and
circulation systems. These will be Included in the
General Plan as sub-elements and local area plans.

38
All aspects of the General Plan are dependent upon
anticipated population and employment
characteristics. Population and employment
projections were provided by mathematical modals
prepared by the planning Department’s System and
Data Services Division.

The studies most basic to Concept development

are those directly related to the three General Plan
elements specified by the City Charter. Designation
of land use patterns required the allocation of the
projected population and employment totals in a
manner consistent with goals and objectives for
housing types and densities, places of work and
nature of work trips, Design of the rapid transit
network, in turn depended upon home and work
locations and the probable extent of the utilization
of transit for work trips. Proposals for public
services had to be related not only to desired
standards and locations but also projected City
revenues or possible new revenue sources. Much
more study of these matters will be required in
connection with the programming and budgeting of
public facilities.

The various studies involved in the preparation of

the Concept are listed in the following bibliography.
Those most significant, or most directly applicable,
are annotated as to their nature and content. Each
of the publications listed can be inspected at the
Planning Department Library, Room 618, City Hall.
A limited number of copies of some of the papers
may be available upon request.

39
SELECTED BIBLIOGRAPHY

PUBLISHED REPORTS OF THE LOS ANGELES RESEARCH AND STATISTICS

CITY PLANNING DEPARTMENT
Background Information for the Los Angeles Comprehensive
Plan Vol.
GOALS
1. Social and Economic Characteristics (March, 1968, 36 pp. )
The report presents an economic and social profile of the City of
Planning Goals for the Los Angeles Metropolis (June, 1967, 32 Los Angeles. The first part of the report makes a statistical
pp.) A discussion paper containing a description of the Goals comparison between Los Angeles and other metropolitan areas.
Program and suggested goals and policies for housing, The second part presents an intra-city analysis population and
transportation, employment and other aspects of the City. It was housing characteristics in Los Angeles.
the first formal publication of the Los Angeles Goals Program
and was intended to stimulate public discussion and concern. Background Information for the Los Angeles Comprehensive
Plan Vol.
Goals and Reality (September, 1967, 15 pp.) An analysis of the
2. Analysis of the Land-Use Characteristics (March, 1968, 42 pp.
Goals Program and its role in formulation of the General Plan.
) This report provides a comprehensive picture of the way land is
COMPREHENSIVE PLANNING and has been used in the City of Los Angeles. It presents an
analysis of the City’s land-use patterns, Population and
Concepts for Los Angeles (September, 1967, 64 pp. ) The
employment densities, growth trends and land absorption
second step in the Department’s comprehensive planning
characteristics.
process: a detailed presentation of four alternative concepts
upon which the General Plan may be based. The Los Angeles Economy: Selected Statistics and projections
(November, 1966, 50 pp. ) An economic profile of both the City
Present trends in housing, employment and services
of Los Angeles and the Greater Los Angeles Area.
transportation, and open space are first outlined; and the
consequences of allowing these trends to continue are The Mathematical Model Development Program: Introduction
predicated. Housing density, distribution of employment and and proposed program (September, 1966, 48 pp) A summary of
services the transportation system and open space are identified progress in establishing a Mathematical Model Development
as the four major factors affecting the physical form of the City. Program by the Department of City Planning with the assistance
Taking these four factors as policy variables, the report defines of the System Development Corporation.
four concepts in which the four variables can be combines most
logically. They are: the Centers Concept, the Dispersion STAFF REPORTS AND WORKING PAPERS OF
Concept, the Corridors Concepts and the Low Density Concept. THE LOS ANGELES CITY PLANNING
The features (residence, employment and services, DEPARTMENT
transportation, and open space and recreation), implications and GOALS
way to implement the concepts are described.
Priority Goals for Los Angeles, Staff Working Paper (September,
Concepts for Los Angeles: Summary (September, 1967, 16 pp.) 1969, 78 pp.) A working paper on the Goals Program and its
A condensed presentation of the highlights of the Concepts for importance to the General Plan, Criteria for assigning priorities to
Los Angeles report. goals are given issues and goals of the first priority are
LAND USE, CIRCULATION AND SERVICE SYSTEMS discussed in detail. These issues and goals are: transportation,
air pollution, urban poverty, equal opportunity, employment and
Land for industry No. 1 Usage, Trends, Location and Available economic growth, education housing recreation, visual
Supply (June, 1969, 20 pp) This report provides data and environment and communication. This paper fulfills the first step
analysis to assist public and private organizations interested in in the Department’s comprehensive planning process: the
promoting industrial growth in the City of Los Angeles. The selection of goals for the city based upon the needs and
report describes industrial Districts for the entire City and preferences of its citizens.
summarizes existing industrial zoning and land uses within these
zones. A quantitative analysis of the land supply for future Addendum to priority Goals for Los Angeles (September, 1969,
industrial growth is provided. Trends in the usage industrial land 53 pp) A collection of staff working paper prepared as a follow-
are also measured. up to an earlier paper, “Priority Goals for Los Angeles “ The
reports were written to stimulate thought and aid the staff in
URBAN DESIGN preparing the comprehensive plan for the City of Los Angeles.
The Visual Environment of Los Angeles (January, 1970, 64 pp.) The six papers discuss. In turn problems and policies for
An evaluation of the City’s appearance in which its principal transportation, air pollution, urban poverty, equal opportunity,
features are described along with a sampling of citizen images of employment and economic growth and education.
the City. Visual criteria for developing the citywide General Plan A Preliminary Goals Report for Los Angeles and Environs
are presented. It identifies general problems, opportunities for (February, 1967, 172 pp.) A first-draft repot prepared by the
their solution and the necessary actions to achieve improvement Goals Unit of the Department of City Planning.
in the quality of the City‘s appearance.
Major Issues for Los Angeles (December, 1967, (revised), 14pp.
) A discussion of twenty major issues for Los Angeles including
traffic congestion, housing, urban poverty, air pollution and
citizen participation and involvement in community affairs.

40
Presentation of Preliminary Goals Report to the City Planning discussion of the major conditions influencing the supply of
Commission (City Plan Case No. 20553), Regular Meeting, April housing. The report describes four major factors existing
27, 1967. inventory and the filtering process; land and construction costs;
Human Values and Their Relationship to Planning Goals, (April, financial investment and constraints; and institutional barriers
1967, 118 pp. Calvin S. Hamilton) A paper by the Director of such as racial discrimination and government laws and
Planning for the City of Los Angeles indicating the human regulations.
desires and objectives that must be considered in city planning
Working Paper for the Service Systems Element and Related
and the principles upon which planning should focus.
Portions of the Los Angeles City General Plan (September,
COMPREHENSIVE PLANNING 1969, 214 pp.) A compilation of several reports examining in
detail the nature, problems, costs and future needs of the City’s
A Concept for the General Plan (September, 1969, 24 pp.) A service systems. Specifically, recreation, police, fire protection,
staff paper presenting Department of City Planning health, libraries, water, power, community shelters, natural gas
recommendations on the third step of its comprehensive distribution, sewerage, refuse disposal, and education systems
planning process; the selection of a Concept for the long-range are treated.
development of the City. The first two steps, the selection of
goals and the formulation of alternative concepts to achieve The report also deals with financial problems likely to occur in
these goals, have been discussed in previous reports. the future. Results of a cost-revenue analysis show a wide gap
between expected revenues and projected needs for 1990.
The design emphasis of this Concept is twofold: the building of Systems analysis is examined as a possible method to be used
major “centers”, areas of high intensity residential and in choosing potential programs; it may provide a basis for
commercial development, and the preservation of low-density making rational choices as to the most effective, most essential,
single-family residential areas. These two contrasting types of and least expensive future programs.
areas will be unified by a comprehensive transportation system
and by a network of parks and open spaces. Public Facility Economic Requirements for the Master Plan
(June, 1969, 11 pp.) A discussion of revenue sources and
Prospectus: Comprehensive Master Plan Development Program, expenditures, and the provisions of future public facility needs in
(December, 1965 12 pp.) A prescription of the comprehensive the City of Los Angeles.
planning program for Los Angeles as it was envisioned in 1965.
Transportation in the Los Angeles Region (September, 1969, 99
Los Angeles City Planning Department Comprehensive Planning pp.) A description of major transportation problems in the Los
Program (1967 27 pp.) A collection of staff papers describing Angeles region and current trends in transportation, particularly
various comparison studies of the Comprehensive Planning with respect to the private automobile. Projections were made for
Program of the City Planning Department 1990 regarding: (1) number of private automobiles in Los
Address by Calvin S. Hamilton, Director of Planning, City of Los Angeles County; (2) size and distribution of employment and
Angeles, at the Mayor’s Planning Day (September 16, 1967) An labor force; (3) means of transportation to work; (4) public
address by the Director of Planning outlining the Department’s transportation passenger volume; and (5) daily rapid transit trip
comprehensive planning process. distance. The report contains a proposed circulation element for
the Citywide Plan which attempts to resolve existing problems
PPDS: A Planning Policy Development System (September, and reduce or minimize future problems. The major components
1968, 14 pp.) A report confirming the Los Angeles Planning of the circulation element are the freeway, highway and street
Program and the changing role of policies in the planning system, mass rapid transit, buses, air transportation and freight
process. The report also explains the methodology of the movement.
Planning Policy Development System.
The Centers Concept: Public Facilities and Transportation
Planning Policy Development System Analysis (collections of 8 (March, 1969, 64 pp.) A preliminary study of public facilities and
papers) (June, 1968) A summary of objectives for the City of Los transportation facilities, relating them to the Centers Concept.
Angeles on the following subjects: accessibility, urban The report presents a guide to the location of public facilities –
economics, housing, cultural, social, educational and suggesting which ones should be located in the core, periphery,
recreational opportunities, quality of environment, health safety and XXXXX of centers.
and substandard living conditions.
Transportation goals, objectives and problems are discussed.
URBAN DESIGN Several representative transportation systems described in
Urban Design Objectives and Principles – A Guide to the Standard Research Institute’s publication entitled “Future Public
Citywide Sketch Plan (June, 1969, 18 pp.) Provides general Transportation Systems” (1968) were presented as examples of
urban design objectives and principles for (1) physical transportation systems that might be considered for the Los
development of the whole City, (2) development of high density Angeles region. Another contains listings of other known
and low density areas, (3) major circulation components, and (4) transportation systems.
existing natural features. The urban design objectives and Transportation and the Urban Form of Los Angeles (May, 1969,
principles were used as guidelines in formulating the General 115 pp.) A historical study of how transportation facilities have
Plan. influenced the form of Los Angeles. The need for a rapid transit
A Preliminary Concept in Planning for the Central City (October, system is also discussed.
1969, 62 pp.) A staff working paper written as a “starting point” A Possible Transportation Element of the Comprehensive Plan
for a forthcoming plan for the Los Angeles Central City areas. It (July, 1969, Memorandum, 22 pp.)
identifies some of the current problems, needs and opportunities
as a basis for the plan. RESEARCH AND STATISTICS
LAND USE, CIRCULATION AND SERVICE SYSTEMS Demographic and Economic Projections. The following
projections for the City of Los Angeles were generally based on
Los Angeles City Master Plan: Objectives and Purpose: present trends.
Description of Master Plan Element (October, 1968, 47 pp.) • Population, employment, and labor force, 1960-2000, in 5
Housing Element of the Citywide Plan (First Draft) (August, year increments.
1969, 30 pp.) A discussion of housing needs and ways to meet • Population, 1970-2000, in 5 year increments, by statistical
those needs, including a summary of housing, parks, and areas.
inventory of existing housing and how it has changed since • Industrial, commercial and government employment, 1970-
1960, condition of existing housing, and projected housing 2000, in 5 year increments, by statistical areas.
demand in 1990. Major problems include residential segregation, • Occupied dwelling units (number of singles and multiples
the difficulty of providing low-cost housing and housing for the for the year 2000) by statistical area.
elderly. • Age breakdown and student population for the year 2000,
by statistical area.
The Housing Element, Centers Concept and General Plan, (Part
• Employees by place of residence for the year 2000, by
II: The Supply of Housing) (September, 1969, 16 pp.) A
statistical area.

41
Revised Demographic and Economic Projections (Most of the Communication Goals for Los Angeles: A working paper for the
following projections are based upon the demographic and Los Angeles Goals Program (February, 1968, 35 pp., L.G.
economic projections listed above. After the concepts were Chester and H.S. Dordick, Technology Goals Committee) A
selected, existing projections were revised to take into account paper prepared by members of the Technology Goals
the nature of centers and suburban areas. Committee to assist the Department of City Planning in
establishing goals for the future physical planning. The paper
• Current, 1990 and Concept population and employment for examines some of the technological alternatives available for
each center in Los Angeles City. improving ghetto and city communications.
• Current, 1990 and Concept population and employment for
selected centers in Los Angeles County. Adult Education Goals for Los Angeles: A working paper for the
• 1990 and Concept population for Los Angeles City, by Los Angeles Goals Program (March, 1968, 17 pp., H.S. Dordick,
statistical area. Technology Goals Committee) A discussion of the future needs
• 1990 population and population densities in centers and for specialized educational services that fall outside the formal
outside of centers in Los Angeles City by statistical area. educational structure of the state. An estimate of the demand for
• 1990 and Concept employment for Los Angeles City, by adult education in the Los Angeles area for the year 1980 is
statistical area. given, and several of the more serious problems and constraints
• Number of families in four income categories, 1990 for Los to satisfying this demand are enumerated. The paper suggests
Angeles City by statistical area. some operational and technological alternatives to alleviate
• Occupied dwelling units (number of singles and multiples), these constraints.
1990 for Los Angeles City by statistical area. Transportation Technology Goals for Los Angeles (July, 1968,
52 pp., The Transportation Subcommittee, Technology Goals
Financial Resource Strategy for Implementation of the Los Committee) A discussion of the possibilities of utilizing advanced
Angeles General Plan (June, 1969, 69 pp.) technology to improve the quality and efficiency of transportation
Part I. Short Run Revenue Strategy discusses some of the likely in Southern California.
alternatives available to the Mayor and City Council for Health Goals for the Los Angeles Region (June, 1968, 18 pp., R.
improving the financial resources of the City. These include: (1) L. Petruschell, A.L. Stanley, A.M. Stein, J.E. Wiechers)
property tax; (2) sales tax; (3) fees, service charges, other
receipts; (4) revenue producing municipal departments; (5) city Social and Human Goals for the Los Angeles Region (January,
income tax; and (6) County, State and Federal grants and 1967, 31 pp., Inter-Religious Committee for the Los Angeles
allocations. Region Goals Projects) A working paper intended to serve as a
reference for group discussions on human and social goals for
Part II. Long Range Planning – Economic Strategy calls for Los Angeles.
greater initiative in social and economic planning to accompany
the capitol expenditures called for in the General Plan. It Environmental Goals for the Los Angeles Region (July, 1967,
includes a discussion of taxation reform. State and Federal 218 pp., Environmental Goals Committee) A report detailing the
Grants-in-Aid and methods of raising the economic productivity committee’s recommendations on goals and objectives for the
of the City. Los Angeles metropolitan region.

Preliminary Geo-Economic Analysis of Alternative Concept Environmental Goals for the Los Angeles Region (Summary)
Plans (March, 1968, 74 pp.) An analysis of population, (July, 1967, Environmental Goals Committee) A summary of the
employment, housing and transportation in Los Angeles. committee report of goals and objectives for the Los Angeles
metropolitan region.
Feasibility Report: Economic Study of Land Values (August,
1969, 7 pp.) Environmental Goals for Los Angeles, Progress Report
(Preliminary) (September, 1966, 133 pp., Environmental Goals
REPORTS AND PUBLICATIONS OF OTHER Committee)
ORGANIZATIONS Human and Social Goals: Preliminary Report, Los Angeles
Regional Goals Project (November, 1967, 6 pp., Behavioral
A Summary of Citizen Response to the Los Angeles Goals Sciences Committee, Los Angeles County Psychological
Program (June, 1968, 11 pp., compiled by Connie Leas, Inter- Association) A position paper by the Behavioral Sciences
Religious Committee for the L.A. Region Goals Project and Committee, an advisory body to the Los Angeles City Planning
Charles Johnson, Department of City Planning) A report to the Department with particular reference to the Goals Program.
Goals Council outlining citizen response to the Goals Program
expressed in meetings and discussions, letters and Excerpts from Goals for Communication Seminar (March, 1968,
questionnaires. The report covers the dominant themes raised 20 pp.) Excerpts from a seminar sponsored by the
by citizens in almost all meetings and correspondence, Communication Committee of the Los Angeles Goals Program
secondary themes less frequently raised but still widely and attended by representatives of the local news media.
discussed, attitudes and opinions about the individual’s relation Goals for Metropolitan Los Angeles (May, 1968, 8 pp., the
to the local government and miscellaneous opinions on subjects National Association of Intergroup Relations Officials, Southern
of citizen concern. California Chapter)
View of the Viewpointers: A report to the Goals Council (March, Reports to the Goals Council by Committees The citizens Goals
1968, 8 pp.) A summary of general and specific goals expressed Council was appointed by the Mayor and City Council of Los
by the “Viewpointers,” a group of citizen volunteers who served Angeles, the Board of Supervisors of Los Angeles County and
as speakers and discussion leaders for the Goals Program. the League of California Cities. The Goals Council was
There was a consensus for a General Plan based on a organized into committees which produced the following reports:
combination of the Centers and Corridors Concepts.
• Goals for Increased Community Participation in Planning
Speculation: Los Angeles – 1985 (October, 1967, 6 pp., Fred M. • Goals for Employment and Economic Growth
Zimmerman, Chairman, Technology Goals Committee) A • Goals for Housing, the Residential Environment and Urban
working paper for the Los Angeles Goals Program prepared by Renewal
the Technology Goals Committee in 1967. The paper attempts to • Goals for Parks, Recreation, Open Space and Urban
present an overview of what city life may be like in 1985. It sees Beautification
the dominant forces during the next decade and a half to be the • Goals for Community Transportation and the Commuter
accelerating availability of leisure time, the increasing sense of Environment
alienation of the individual and the accelerating dissatisfaction of • Goals for Law Enforcement
the minority poor. It forecasts the technological developments • Goals for Environmental Pollution Control
that will have the greatest impact on life in Los Angeles and • Goals for Education
suggests the kind of planning needed to accommodate these • Evaluation of Alternative Design Concepts and their Community
changes. Consequences
• Goals for the Ghettos and Barrios and Goals for Racial
Integrations and Stability

42
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 tabulation of results of the survey to determine the
needs and desires of Los Angeles area residents conducted by
the Behavior Science Corporation for the Goals Program.

Los Angeles Goals Program Representative Sample Survey, Total

Sample, Negro Sample, Mexican-American Sample (November,
1968, Behavior Science Corporation, tabulations prepared by Los
Angeles City Planning Department) Cross tabulations of the total
sample survey taken for the Goals Program showing results by
age, sex, income, and other groupings.

Policies for Planning (January, 1968, 78 pp., Citizens Advisory

Committee, Destination Ninety Forum) Report of the Citizens
Advisory Committee of Destination Ninety Forum, presenting
planning recommendations for the San Fernando Valley. The
report is the culmination of a large citizen participation program in
the Valley.

Gray Areas: A Townscape Study (December, 1967, 34 pp.,

Southern California Chapter, The American Institute of Architects,
report prepared by Herbert Kahn, Raymond Kappe, Rex Lottery) A
study of the “gray” areas of Los Angeles which are characterized
by visual blight, monotony, and economic stagnation. The nature
of the problem is identified and potential solutions are considered.

Reconnaissance Report: County General Plan Program (February,

1969, 40 pp., Regional Planning Commission, County of Los
Angeles)

Preliminary Program Design (ca. 1968, 39 pp., Southern California

Association of Governments) A first draft of a comprehensive work
program outline for SCAG. It identifies, describes and shows
scheduling for the elements that form the total SCAG program.
Each element is described in terms of its purpose, method of
study, work activities, required and resulting product.

SCRTD Preliminary Report (October, 1967, 100 pp., Southern

California Rapid Transit District)

SCRTD Final Report (May, 1968, 128 pp., Southern California

Rapid Transit District)

Preliminary and final proposals for a first-stage rapid transit

system for the Los Angeles metropolitan area.

43
LOS ANGELES CITY PLANNING DEPARTMENT

CALVIN S. HAMILTON, director of planning

FRANK P. LOMBARDI, executive officer
GLENN F. BLOSSOM, planning officer

COMPEREHE NSIVE PLAN TASK FORCE

ARCH D. CROUCH, principal city planner, task force supervision

G. DAVID LESSLEY, senior city planner, task force coordination
RICHARD M. TAKASE, city planning associate, task force administration

POLICIES TEAM

ELOISE S. BLAKE, city planner, supervision

EVELYN GARFINKLE, city planning associate
ALICE D. LEPIS, planning assistant
RONALD LEWIS, planning assistant
RAYMOND H. YANO, planning assistant
JAMES S. MAC ARTHUR, administrative intern
ROBERT STANDEN, planning assistant*
ROBERT C. MAZANEC, administrative intern *

PUBLIC FACILITIES AND TRANSPORTATION TEAM

MAURICE Z. LAHAM, senior city planner, supervision

WARD KOUTNICK, city planning associate
FRANKLIN P. EBERHARD, planning assistant
WILMA LOVAN, planning assistant
JIM OHI, planning assistant
DENNIS DE LA VAUX, city planning associate *
PHILIP OUELLET, planning assistant *

DESIGN TEAM

ROBERT F. DANNENBRINK, senior city planner, supervision

THOMAS STEMNOCK, city planner
GARY A. MORRIS, city planning associate
JOHN I. TOMOTA, city planning associate
GARY MAZUR, planning assistant
STEVE DENT, planning assistant *

GRAPHICS SECTION

GENE WOLFE, graphics supervisor

E. RONDOT, planning illustrator
RICHARD V. DAVID, publication head
MARY LOU SHICK, cartographer

* former member

44