HomeMy WebLinkAbout1. Biomedical Overlay Zone StudySTAFF REPORT
PLANNING DIVISION
DATE: MARCH 15, 2017
TO: PLANNING COMMISSION
SUBMITTED BY: ALDO E. SCHINDLER, DIRECTOR OF COMMUNITY DEVELOPMENT
REVIEWED BY: WILLIAM E. DAVIS, CITY PLANNER
PREPARED BY: DAVID BLUMENTHAL, PRINCIPAL PLANNER
SUBJECT: BIOMEDICAL OVERLAY ZONE STUDY
BACKGROUND
One of the fastest growing job sectors is the bio-medical industry. This not only includes medical
offices and care facilities, but also includes all the necessary support industries (manufacturing,
research and development, education, pharmaceutical, etc.). In order to capitalize on Downey’s
centralized location in the region and the three existing hospitals, the Mayor and City Council
have made it a goal to attract new biomedical businesses to the City. As such, City staff was
directed to procure the services of an outside consultant to prepare a biomedical overlay zone
that enhance the existing Zoning Code and provide a catalyst to increasing biomedical
businesses in Downey
In April 2016, the City issued a RFP to elicit proposals from professional planning firms for the
aforementioned services. At the conclusion of the competitive process, the City Council
approved a professional service agreement with Civic Solutions to study and prepare the
necessary code amendments to achieve the Council’s goal. Civic Solutions scope of work
includes a five-phase work plan. Phase 1 is the project initiation and coordination. Phase 2 is
research of bio-medical land use. This will included interviewing hospitals, universities, and
other bio-medical facilities to determine growth needs and facility requirements. Phase 3 is an
evaluation of the Downey’s existing Hospital-Medical Arts (H-M) zone and conducting a bio-
medical assessment. Phase 4 includes preparation of the new biomedical overlay zone and
any other related zoning code changes needed to support the overlay. Phase 5 is the public
outreach and presentations of the study to the Planning Commission and City Council.
DISCUSSION
Since beginning the project, Civic Solutions has been researching key issues related to the
biomedical industry, interviewing: other jurisdictions that have a cluster of biomedical
businesses, Downey’s hospitals, local universities, regional hospitals; identifying Downey’s
strengths and weaknesses, and interviewing biomedical stakeholders and experts. The have
now completed Phase 2 of the project and are ready to present their key findings to the
Planning Commission. While the full report is attached to this agenda memo, a summary of the
initial findings are:
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1. The biomedical field is highly sought after across the nation. Many jurisdictions, large
and small, have incorporated incentives into their Zoning and/or Economic Development
portfolios to attract this industry.
2. The City has the basic attributes desired by most biomedical uses. These include
upgraded utilities and fiber optic networks, ready access to large employment and
patient bases, existing hospital facilities, including the renowned Rancho Los Amigos
National Rehabilitation Center, underdeveloped land with potential for redevelopment
and proximity to biomedical clusters in Los Angeles, Orange and San Diego counties.
3. The Greater Los Angeles area is an emerging bioscience hub and Downey is already
part of that cluster. The County of Los Angeles is actively pursuing development of
bioscience clusters around the County, with Downey’s Rancho Los Amigos identified as
one of a handful of sites critical to the Los Angeles County Biosciences Master Plan.
4. The City of Downey’s biomedical potential is limited by a lack of vacant land. Being
built-out, there is a lack of available vacant land for firms seeking to “build fresh.”
Instead, new facilities will require either the conversion of older structures or the razing
of previously developed sites.
5. Cities with significant biomedical clusters across the United States provide a broad
platform of incentives to attract biomedical uses. Zoning to facilitate and encourage
biomedical uses is one of several incentives used to attract biomedical uses, but
additional incentives are typically needed.
In considering these findings, staff is seeking Planning Commission’s feedback. This feedback,
along with the City Council’s feedback, will allow Civic Solutions to proceed with Phases 3 and 4
of the project. In the next phases of the project, Civic Solutions will assess the City’s existing
ordinances and prepare appropriate recommendations to amend the Zoning Code. Once the
amendments are prepared, staff will return to the Planning Commission and City Council
through public hearings for the amendments to be considered.
EXHIBITS
A. Draft Research Summary Report, Dated January 9, 2017
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CITY OF DOWNEY
DRAFT RESEARCH SUMMARY REPORT
January 9, 2017
Introduction
The City of Downey, California retained Civic Solutions, Inc. to establish new “Biomedical
Overlay Zone” regulations and development standards to work in concert with an updated
Hospital-Medical Arts (H-M) Zone. This report summarizes the issues, background, and the
market demands related to this type of land use and forms the foundation for the next project
phases.
SECTION 1 – EXECUTIVE SUMMARY
The following points represent the primary findings from the preliminary research:
The biomedical field is highly sought after across the nation. Many jurisdictions, large
and small, have incorporated incentives into their Zoning and/or Economic Development
portfolios to attract this industry. However, significant amounts of venture capital are
required to support biomedical clusters in metropolitan areas. Los Angeles County has
upward trending biomedical venture capital investment of $74 Million in 2016. However,
this is still significantly lower than other major U.S metropolitan areas such as San
Francisco and San Diego.
The City of Downey has the basic attributes to attract biomedical businesses. The
City has the basic attributes desired by most biomedical uses. These include upgraded
utilities and fiber optic networks, ready access to large employment and patient bases,
existing hospital facilities, including the renowned Rancho Los Amigos National
Rehabilitation Center, underdeveloped land with potential for redevelopment and
proximity to biomedical clusters in Los Angeles, Orange and San Diego counties.
Additionally, success of biomedical firms is highly dependent on availability of specially
trained professionals, especially those with graduate and professional degrees. Downey
is close to several universities and vocational training centers with respected medical
schools (e.g., USC, UCLA, and UCI) and vocational medical programs (e.g., Cerritos
College, Downey Adult School).
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The Greater Los Angeles area is an emerging bioscience hub and Downey is already
part of that cluster. The County of Los Angeles is actively pursuing development of
bioscience clusters around the County, with Downey’s Rancho Los Amigos identified as
one of a handful of sites critical to the Los Angeles County Biosciences Master Plan.
There may be opportunities for the City to expand its attractiveness as part of the County’s
Master Plan by building alliances with existing companies, medical and educational
institutions, and private ventures. Downey is likely to face potential competition due to
existing alliances in nearby cities.
The City of Downey’s biomedical potential is limited by a lack of vacant land. Being
built-out, there is a lack of available vacant land for firms seeking to “build fresh.” Instead,
new facilities will require either the conversion of older structures or the razing of
previously developed sites.
Cities with significant biomedical clusters across the United States provide a broad
platform of incentives to attract biomedical uses. Zoning to facilitate and encourage
biomedical uses is one of several incentives used to attract biomedical uses, but additional
incentives are typically needed. Zoning incentives could be used to help overcome the
County-wide shortage of laboratory space (wet and dry). Labs have high, upfront costs to
retrofit buildings and this can be a substantial barrier to biomedical startup companies.
SECTION 2 – PROJECT STATEMENT
This report summarizes the results of biomedical research (Phases 1 and 2), the initial
phases of a five-phase project to establish a Biomedical Overlay in the City and to attract and
retain more biomedical jobs. In it, we identify other jurisdictions that have developed and
implemented a “Biomedical Facilities Overlay” or similar zoning district, we report the results of
interviews with medical and academic institutions with knowledge of the biomedical industry, and
we summarize key economic data and characteristics of the biomedical industry. These results
provide the basis for a “biomedical feasibility assessment” to identify Downey’s strengths,
weaknesses, opportunities and threats in attempting to expand biomedical investment and
employment.
SECTION 3 – METHODOLOGY
The Civic Solution’s project team conducted the following data collection and analysis:
1.Developed an in-depth understanding of the key issues related to the biomedical
industry. The team reviewed trade journals including Site Selection Magazine, Urban
Land Magazine, Practicing Planner, and Zoning News, reviewed web-based
information, analyzed the findings of current and applicable research papers, and
conducted interviews with experts knowledgeable about the biomedical field and
economic development strategies, such as Ahmed Enany, CEO of the Southern
California Biomedical Council (SoCalBio).
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2. Conducted research on other jurisdictions that have developed and
implemented biomedical zones. The team identified Biomedical Overlay Zone
examples and their effectiveness, as well as other geographically-based incentives
across the U.S. Cities studied included smaller to medium-sized cities such as
Carlsbad, Oceanside, Torrance, Irvine and Santa Monica and large cities, including
San Diego, Los Angeles, San Francisco, Phoenix, Seattle, Boston and many others.
The team analyzed the cities’ zoning, financial and land use tools used to attract
biomedical and health care jobs and investment, and identified patterns and anomalies
in jurisdictions with successful zoning strategies. The team then documented the
effectiveness of these jurisdictions’ methods and overall results.
3. Conducted interviews with key stakeholders and experts. The team interviewed
key management staff at selected local and regional hospitals, universities and other
medical/vocational programs, and biomedical businesses and associations in Downey
and nearby areas. These organizations included the Rancho Los Amigos National
Rehabilitation Center, Kaiser Permanente Health Center, Presbyterian
Intercommunity Hospital (PIH Health), Hoag Memorial Hospital, Cerritos College,
Downey Adult School, the Southern California Biomedical Council (SoCalBio), the
University of Irvine Medical School, Keck School of Medicine of USC, Loma Linda
University, and the Crean College of Health and Behavioral Sciences at Chapman
University. The interviews helped in understanding the biomedical sector and the
City's biomedical assets, needs and attributes. The interviews also provided insights
into biomedical institutions and businesses that might consider locating in Downey or
form alliances with medical facilities already in Downey.
4. Identified Downey’s key strengths, weaknesses, opportunities, and threats.
Combining the information gathered from the above methods, the team organized the
findings to identify effective zoning practices adopted by other jurisdictions, the
requirements of industry firms and stakeholders, and the attributes of the Greater Los
Angeles area’s emerging biomedical hub to develop a SWOT (strengths, weaknesses,
opportunities, and threats) assessment.
5. Conducted further analysis of issues identified and summarized analysis in the
report. Based on initial findings, the team evaluated additional data outside of the work
scope as necessary in the course of research, analyzed issues, and included
additional observations, as appropriate, throughout the report. This additional research
includes the evaluation of cities with successful biomedical clusters that do not provide
zoning incentives, as well as interviews with heads of organizations in such areas,
such as with Matthew Phillips, Director of the Sacramento Area Technology Alliance’s
MedStart program.
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SECTION 4 – RESULTS
4.1 Key Stakeholder Interviews
4.1.1 Main Findings
1. Several regional and local universities and institutions are interested in developing or
expanding relationships with organizations in the City.
2. The City has a good foundation to help establish a biomedical hub, especially one
centered on existing niche markets, such as the rehabilitative research and services
provided at the Rancho Los Amigos.
3. The recent trend to attract biomedical uses includes the development of flexible spaces
that adapt to the changing needs of growing companies. Additionally, high-quality housing
and transportation facilities help attract the biomedical industry’s typically younger
workforce.
4. More biomedical uses in the City would provide better opportunities for local schools to
help students transition into the biomedical industry, improve the local labor pool and help
maintain and attract new biomedical facilities.
5. Local jurisdictions can make a large impact by facilitating public and private coordination.
In many of the newer biomedical developments, public agency input and participation are
often critical to the projects’ success.
4.1.2 Interviews with major local hospitals and biomedical facilities
Kaiser Permanente Health Center, Downey Campus. Gregg B. Durkee, Chief Operations
Officer, spoke about Kaiser Permanente’s (KP) current plans to expand their Downey
facilities with a “Bed Tower”, now in the planning and permitting phase. He oversees
inpatient and outpatient hospital facilities and noted the center has about 4500 employees,
including physicians. KP seeks locations that are easily accessible and that have a high
community need. For these reasons, he felt Downey was a good location for their facility.
KP’s mission is to improve the overall health of a community, and that includes addressing
non-medical needs. In addition to seeking and providing local employment, KP brings
hundreds, even thousands of patients weekly into the City and many of these folks provide
secondary benefits to City through retail sales and use of local services.
Mr. Durkee felt the City of Downey has been easy to work with and added that he
understood the City has its rules. And while KP has a “really good relationship” with the
City, KP would always appreciate opportunities to improve communications and expedite
building permit processing. He expressed support for the City’s efforts to attract more
biomedical uses.
KP is significantly invested in medical research, and also looks for opportunities to partner
with and/or encourage local medical-oriented businesses, such as kidney dialysis services
or skilled nursing facilities existing in Downey. Mr. Durkee added that KP Downey has a
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strong internship program with Cerritos College in their Hospitality Services program. He
has been impressed with the City of Downey’s accomplishments in the last 10 years, and
would like to receive further information on the City’s biomedical overlay project.
PIH Health (Presbyterian Intercommunity Hospital), represented by Debra Legan, Vice
President, Marketing, Business Development and Community Benefit.
PIH, a multi-campus hospital with locations in Downey and Whittier, currently partners with
the Keck School of Medicine at the University of Southern California (USC) Medical School
to provide interns and doctors at PIH. PIH offers offices for resident doctors and interns.
Speaking about the City of Downey, Debra Legan said the City staff is great to work with
and has been very supportive of PIH. However, PIH would be concerned about the type
of biomedical uses attracted by an overlay in Downey. Ms. Legan stated that PIH is
heavily dependent, financially, on outpatient services with a large medical patient load.
PIH’s primary program focus is on meeting medical care needs of low and moderate
income families. Consequently, PIH’s business health would not benefit from increased
competition by additional general medical services to Downey which may not be in the
best interests of PIH or its patients.
However, Ms. Legan stated, developing an overlay, or some other incentive program, that
attracts more professional-level jobs in a range of bio-medical fields and promotes the
construction of high quality housing would be beneficial.
Rancho Los Amigos (RLA), represented by Jorge Orozco, Chief Executive Officer of RLA
Rancho Los Amigos National Rehabilitation Center (RLA) is a world-renowned public
hospital located in Downey that works with cutting edge medical technology, including
stem cell implants and robotic, artificial limbs. RLA specializes in rehabilitation/restorative
medical services (particularly for spinal/cranial injuries) that use local vendors for orthotics,
prosthetics, and prescription drugs, when possible. The campus is currently undergoing
an expansion that is expected to be completed in 2019. RLA works closely with Keck
School of Medicine at USC and also the University of California, Los Angeles and Loma
Linda University.
Jorge Orozco stated that Downey is well liked by RLA employees and considered “a good
place to work.” To help grow the area’s biomedical uses and assist RLA’s future
operations, Mr. Orozco said that the City should consider facilitating more networking
opportunities between hospitals, developers, businesses and academic sectors, such as
a local biomed “summit” meeting sponsored by City. He added that RLA would be very
open to public-private partnerships to expand medical services, biomedical research,
manufacturing and uses. He added that some of RLA’s main vendors, including
rehabilitation therapy and medical equipment, are located within the City.
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4.1.3 Interviews with universities, research institutions, non-profits and bio-
medical trade association
Cerritos College, represented by Sandy Marks, MSN, MS(HCA), RN, the Instructional Dean
of the Health Occupations Division
Located in the City of Norwalk, Cerritos College offers a number of Associate Degrees
related to medical specializations. Discussing the possibility to collaborate with the City
of Downey, Sandy Marks stated that Cerritos College would be interested in building
partnerships and programs that would benefit the community and surrounding areas. The
College would be interested in learning more about the demographic and socioeconomic
characteristics about the area’s population, and specifically about the retired, geriatric,
and uninsured components of the population.
Cerritos College would be interested in exploring opportunities to host classes off site.
Noting that classes offered in this type of scenario would typically accommodate up to 60
students. If the City of Downey would be interested in this, facilitating the development
of buildings designed to allow these types of spaces is necessary. Ms. Marks said that
having local biomedical businesses where students could work or complete internships
would be beneficial. Additionally, a competitive advantage for community college nursing
programs is the presence of another higher education facility dedicated to providing the
Associate Degree of Nursing graduates with the additional two years of education needed
to obtain their Bachelors of Science in Nursing. Another critical need for Cerritos College
students, and other students generally, is the need for child care up to the age of 12. Ms.
Marks advocated for the inclusion of child care centers, such as part of a college laboratory
center for child development classes.
Chapman University, Crean College of Health and Behavioral Sciences, represented by
Janeen Hill, Ph.D., Dean of Crean College.
The Crean College of Health and Behavioral Sciences at Chapman University, located in
Orange, California, provides advanced healthcare education and conducts
interdisciplinary health sciences research.
Dr. Janeen Hill said the college does have existing affiliations with nearby hospitals and
health care facilities, but the partnership details were not discussed during the interview.
The College has attempted partnerships with Los Angeles County and is particularly
interested in establishing connections with the Ranchos Los Amigos Rehabilitation Center
in the City of Downey. She added, however, that initial College efforts in this regard have
so far, not been successful and that perhaps the City of Downey could be instrumental in
facilitating such partnerships.
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Downey Adult School, represented by Marianna Pacheco, Director of Academic Programs
at Downey Adult School.
The Downey Adult School (DAS) offers several medical and dental occupational training
programs for Licensed Vocational Nurses, Phlebotomy, EKG/ECG Technicians, Medical
Assistants, Dental Assistants, and others.
Ms. Pacheco noted that a positive step the City could take to help grow DAS’s heath career
training would be to promote “externships” to provide clinical work experience at hospitals,
labs and other medical businesses. Additional opportunities for these placements could
be provided by expanding medical uses and biomedical businesses, particularly near
Rancho Los Amigos and the Kaiser Permanente hospitals, as well as on County of Los
Angeles land in Downey. Further, she felt the City should partner with outside agencies
to promote biomedical uses.
Speaking about the positive attributes currently in the City of Downey, Ms. Pacheco stated
that generally speaking, the City has good infrastructure and Downey’s supply of land is
seen as sufficient. DAS currently offers classes at the Columbus High School campus in
Downey. Ms. Pacheco added that DAS intends to expand the school’s medical and dental
training and suitable classroom space is available at that campus to accommodate the
expansion.
Loma Linda University, represented by Dr. Garry Fitzgerald, Administration Advisor, former
Vice President of Business at the University
Loma Linda University is a Seventh-day Adventist, coeducational health-sciences
university located in Loma Linda, California. The University comprises eight schools,
including Medical, Dental and Nursing schools and the Faculty of Graduate Studies, and
has a faculty of between 800 – 1000 professors/physicians at any given time. The
University has an affiliated Medical Center, which, according to Dr. Fitzgerald, operates
the largest children’s hospital and neonatal intensive care unit, in terms of number of beds,
west of the Mississippi. The University’s mission is focused on medical instruction,
research, and health services and is committed to diversity in its faculty and student body.
It is guided by religious principles of the SDA church.
Dr. Fitzgerald said the University is interested in expansion and is “very open” to partnering
or discussions with public agencies (including cities). He added that the University has
started satellite medical facilities in the cities of Murrieta and Indio, and has also worked
closely with the City of San Bernardino.
University officials have been looking at sites in other areas, particularly for facilities
specializing in neuroscience. He is very familiar with the City of Downey and felt that the
presence of the Rancho Los Amigos Hospital could offer positive teaching and research
opportunities for the University faculty and students. He added that there is already some
exchange of medical residents with RLA.
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He felt the biomedical industry was rapidly expanding and that Loma Linda University
students benefitted from and were part of that expansion. In terms of incentives needed
to attract and retain biomedical uses, he felt public agencies typically should expect to
provide land, financial benefits or both. For example, the U.S. Federal government worked
with the City of San Bernardino and the Loma Linda University Hospital to develop a
medical center on a portion of the decommissioned Norton Air Force Base.
He said that the biggest challenge in expanding biomedical uses, particularly academic
and research facilities, are readily available investment capital and financing. He added
that public-private partnerships are one way universities are securing the necessary
capital. For example, Loma Linda University partners with Quest Diagnostics, a private-
sector laboratory specializing in sports medicine and medical testing.
University of Southern California, Keck School of Medicine, represented by Randolph W.
Hall, Ph.D., Vice President, Research
The Keck School of Medicine of the University of Southern California was established in
1885 as the region’s first medical school, and was the second professional school founded
at USC. Following a $110 million gift from the W.M. Keck Foundation in 1999, the school
began an expansion program to become one of the most highly regarded medical schools
in the nation. The School also invested in new research efforts including the Zilkha
Neurogenetic Institute which seeks to expand scientific knowledge of some of the most
debilitating diseases of the brain, such as Alzheimer’s and Parkinson’s.
Dr. Hall indicated it would be difficult for Downey to develop a biomedical hub due to the
lack of a concentrated collection of medical schools and other institutions that can attract
research grants/investment. However, he also said that Rancho Los Amigos represents
the City’s best opportunity for expanding into the biomedical sector. USC has a
relationship with RLA in research, especially neurological research, and has residents
there as well. He mentioned Dr. Charles Liu, MD, PhD, director of the USC Center for
Neurorestoration and Chair of the Department of Neurology at RLA. He noted that Dr. Liu
regularly works with emerging biomedical firms on experimental therapies to treat
paralysis and other conditions, and there are some spin off opportunities for
entrepreneurial activities located near RLA. He said that within biomedical hubs, close
proximity is very important for doctors, staff and patients to quickly walk between hospitals,
medical offices, labs, etc.
Southern California Biomedical Council (SoCalBio), represented by Ahmed A. Enany,
President and Chief Executive Officer
The Southern California Biomedical Council (SoCalBio) is a nonprofit trade association
serving biomedical related businesses and organizations throughout the six counties
which make-up the Greater Los Angeles region (Los Angeles, Orange, Ventura, Santa
Barbara, Riverside and San Bernardino).
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Mr. Enany stated that Downey is part of the Greater Los Angeles area’s regional
biomedical draw and suggested that the City of Downey should aspire to be a hub of
biomedical employment.
Discussing the specifics of a successful biomedical overlay, Mr. Enany said that such
zoning could allow biomedical uses in zones where they are not typically allowed, but
where access, transportation and space is well suited for biomedical uses. Additionally,
the City may want to consider the provision of development incentives, such as increased
floor area ratio (FAR), lot coverage, and/or building height, to promote a minimum
“employees per acre” ratio.
Mr. Enany talked about the three basic types of biomedical uses: 1) research and
development, 2) medical services, and 3) medical manufacturing. Of these, he felt that
the City of Downey could be most successful in attracting medical manufacturing and
“niche” biomedical uses related to medical rehabilitation by building on the national
recognition of Rancho Los Amigos. He stated the City needs to look at geographic
competition for biomedical uses to further identify the other niche markets Downey can
best fill. He doubted that bio-tech uses such as medical research and development were
feasible in Downey, since the City is not closely affiliated with a university or research
institution. “Biotech” industries are typically associated with cell biology and chemical
research; not with mechanical or electronic research and manufacturing.
SoCalBio advocates for all new development to include universal access as it helps
support biomedical uses and development. Other development techniques that prove
beneficial for biomedical uses is “flex” or convertible office space; that is, commercial
space that is interchangeable between wet and dry laboratory space and offices. “Wet”
laboratory space refers to laboratories where chemicals, drugs, or other material or
biological matter are handled in liquid solutions or volatile phases, requiring direct
ventilation, and specialized piped utilities (typically water and various gases). Special
focus should be paid to expanding incentives for medical laboratory space development
and more business park/manufacturing-zoned areas with vacant or re-developable land.
From a municipal standpoint, Mr. Enany stated that it is important for Downey to develop
a “toolbox” of strategies to attract biomedical uses and job seekers. For example, one
primary tool is to promote higher density, high-quality apartment homes close to transit,
similar to that found in Irvine. Housing in the form of condominiums, courtyard homes,
and larger single-family residences also help to attract biomedical job seekers and
businesses seeking to locate in areas with high quality housing options. The City’s location
near the Norwalk/Santa Fe Springs Metrolink Station can help facilitate this approach.
According to Mr. Enany, the City already has a few key tools. These consist of the
promotion of its centralized location between Los Angeles and Orange counties with
affordable land costs. Also of locational importance, is being surrounded by four major
freeway connections and the proximity to the Metrolink Orange County Gold Line stop in
Santa Fe Springs/Norwalk.
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The City of Downey should pay special attention to local utilities and increasing capacity
when necessary. For example, increasing water and wastewater capacity, which is
typically a critical need for biomedical uses, may be required for some businesses or
organizations. Fiber optic cable installation, such as that done by the City on Paramount
Boulevard, has proven to be a very desirable attribute for site selection. It may also be a
benefit to explore a potential collaboration with surrounding cities like Santa Fe Springs,
Pico Rivera, Norwalk, and Paramount to address some issues better suited to regional
responses.
University of California, Irvine Medical Center, represented by Paul Da Vega, Senior
Project Manager, and John Gilway, Executive of Governmental Relations
The University of California, Irvine (UCI) Medical Center is located in the City of Orange,
and is consistently ranked as one of the nation’s best hospitals. In addition, the UCI
School of Medicine is ranked as one of the nation’s top medical schools for research. The
Medical Center is currently the only university-based hospital in Orange County, and
currently does not have any formal partnerships with the City of Orange or biomedical
companies.
Hoag Memorial Hospital Presbyterian is a not-for-profit health care network based in
Newport Beach, with two hospitals, 10 urgent care centers and seven health centers
located in nine Orange County cities. The Newport Beach hospital is a 414-bed general
medical and surgical facility. According to Stephen Jones, Vice Chairman of the Board of
Hoag Hospital, a “biomedical overlay” approach was tried in the San Francisco area to
attract biomedical uses to Mission Bay, but the approach didn’t work because it couldn’t
dislodge “solidified clusters” of biomedical uses located elsewhere in the region.
He noted that biomedical companies follow where specialized physicians and medical
researchers live and work, physicians follow hospitals, and hospitals tend to follow
universities with medical schools and research. This may explain, at least in part, why a
portion of Kaiser Permanente’s planned Medical School moved to Pasadena, California.
There is a higher concentration of physicians and medical researchers already living in
that area.
He also noted that hospital expansions and new medical centers are, in his experience,
beginning to get “push back” from nearby residents who are concerned about additional
traffic, parking impacts, etc. This is why appropriate zoning and development standards
are so important to attract biomedical uses.
The medical industry is becoming more specialized and diverse. He felt that Downey
could succeed in attracting specialized biomedical uses area by building on its strengths.
The City should focus on whether there is an “unfilled biomedical services niche” that it
can fill. For example, the administrative and mail order pharmaceutical facility run by
Kaiser Permanente may be a springboard for complementary uses.
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4.2 City Zoning Survey
4.2.1 Main Findings
1. There are several zoning tools that cities utilize to attract biomedical uses. Such tools are
typically designed to meet the needs of the individual jurisdiction based on its biomedical
goals, existing development patterns and the community’s preferences on development
character.
2. The most typical land use approach to encourage biomedical uses is to create a base
zone that allows the use “by right”, that is, without requiring discretionary approvals.
However, this approach also may allow competing or non-supportive land uses that could
potentially discourage desirable biomedical uses. The most successful cities with
biomedical clusters achieve a “synergy” by attracting both primary biomedical uses and
supportive uses. It appears that this is best achieved through zoning which specifically
encourages appropriate uses, while restricting uses that detract from the purpose of the
zone. For example, all-inclusive industrial zones that also allow biomedical uses,
generally do not result in successful biomedical clusters.
3. Two planning studies currently underway, the City’s Imperial Highway Corridor Study and
the Los Angeles County’s Rancho South Campus Master Plan offer significant
opportunities for expanding and intensifying biomedical uses in Downey. Initial estimates
for the South Campus Plan alone indicate a possibility to designate about 40 acres across
Imperial Highway from the Kaiser Permanente Hospital for eventual redevelopment of
County facilities with biomedical uses.
4. A more specific approach that some cities use is a biomedical overlay that adjusts
development standards of the base zone to provide additional flexibility for or reduce
development costs of biomedical uses.
5. Overlay zones, or other zoning tools that allow biomedical uses in areas where the base
zoning would not normally allow them, such as manufacturing, Business Park or
commercial zones. The overlays may also provide incentives such as exceptions to
building height limits, maximum lot coverage or flexible floor area ratios (FAR) based on
numbers of patients or type of use.
6. The most consistent attribute of cities and counties with biomedical zoning is a focus on
the uses permitted in the zones and their relationship to supporting institutions.
7. In areas that are nearly built-out, recent focus is on the appropriate relationship between
biomedical (or light industrial) uses and existing residential development.
8. Some of the more unique zoning tools are in-zone density transfers and density increases
based on the inclusion of certain uses.
4.2.2 Jurisdictions with Biomedical Districts
There are a number of local governments and regional planning agencies that have either
investigated or acted to adopt zoning measures to promote biomedical and other related uses.
This section of the report is accompanied by two tables. The first is Figure 1 and represents a
snapshot of the main attributes of cities across the U.S. with zoning that allows, encourages or
incentivizes biomedical uses.
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The second, Attachment 1, is a zoning comparison matrix that describes these attributes in
greater detail. The matrix represents a range of options for biomedical zoning techniques to
provide a complete picture of the “zoning landscape” across the nation. These techniques range
from industrial zones that provide the basic standards to allow biomedical uses, to zones that are
designed specifically to incentivize biomedical uses. It includes a description of the zones’
standards, development intensity allowed, availability of other incentives and major institutions
that anchor the zone, if any.
Figure 1 – City Survey Zoning Attributes
A few prominent biomedical “zones” in the U.S. are not included in the list; for example, Boston’s
Bioscience Corridor. This is because these “zones” are not the result of any direct city land use
City/ County Base Zones
allow
Biomedical
Uses
Use of
Biomedical
Overlay
Types of Zoning Incentives
Provided for Biomedical Uses
Aliso Viejo, CA Nothing additional, but allows “wet”
labs.
Carlsbad, CA Nothing additional, but provides
process for medical campus
development in existing zones.
Inglewood, CA Increased lot coverage and building
height.
Irvine, CA Increased FAR and building height;
Zone discourages competing uses.
Jupiter, Florida Increased building height.
Lyndon, WA Increased lot coverage and building
height.
Mangonia Park,
FL
None, but provides expedited permit
processing.
Montgomery
Co., MD
Increased FAR and building height. In-
zone density transfers.
Oakland, CA Increased FAR.
Phoenix, AZ Zone discourages non-biomedical
uses.
Poway, CA Zone discourages non-medical uses.
Sacramento,
CA
Nothing additional.
San Diego (La
Jolla), CA
Increased height; zone discourages
non-biomedical uses. Proximity to
UCSD.
San Francisco,
CA
Increased FAR and building height.
Santa Monica,
CA
Nothing additional.
Torrance, CA Nothing additional.
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or zoning action. That is, they do not involve the application of public agency zoning or land use
regulation. Rather, they rely heavily on local academic or medical institutions, networks of
economic development incentives, or non-profit and private sector construction to create the
space most needed by biomedical start-ups. These types of incentives are discussed in greater
detail at the end of this section, as cities with successful biomedical zones tend to also provide
other non-zoning incentives, as well.
The most straightforward incentive is to adopt a base biomedical zone (comparable to Downey’s
H-M Zone) specifically to permit biomedical uses by right, plus accessory uses that are compatible
with and supportive of the primary biomedical uses. In this method, the zone will include the
entire geographic area where those uses are desired, along with the use and development
standards specific to the biomedical industry. The zone will identify all permitted, and conditionally
permitted uses allowed in the zone. Additionally, uses that are not seen as complementary can
be discouraged by prohibiting them. The cities that best demonstrate this type of zoning are the
California cities of San Diego, Irvine, Santa Monica; and Phoenix, Arizona, and Montgomery
County, Maryland. These jurisdictions created zones that identify the biomedical uses to be
encouraged and developed standards that contributed to the jurisdictions’ desired development
patterns in ways that met the needs of the biomedical industry.
Phoenix’s Biomedical Campus is an example of a successful, multi-faceted biomedical zone.
The zone is comprised of zoning standards specific to the biomedical industry, and was
augmented by financial incentives that created a comprehensive economic development
package. Included in this report is an analogue study by the Concord Group that analyzes the
City of Phoenix’s Biomedical Campus, and evaluates the economic and employment impacts of
the development on the City. Please refer to Attachment 4 for that study.
Some cities set maximum FARs for biomedical uses to 1.0, or lot coverage to 30 percent to
preserve smaller-scale compatibility, while other, more densely populated cities allow FARs up to
3.0 or lot coverage of 100 percent. Of the 16 cities with biomedical zoning surveyed, there was
no identifiable pattern that emerged that suggested that most biomedical zoning was provided a
substantial increase in the development intensity beyond similarly intensive commercial zones.
The overwhelming similarity in the biomedical zones’ mechanisms for incentivizing biomedical
uses was in streamlined permitting of such uses, and the generally broad nature of those uses.
Typically, biomedical zones allow a complete mix of bioscience-related uses, such as those
described in the City of San Diego’s Zoning Ordinance which allows manufacturing of biochemical
research and diagnostic compounds to be used primarily by universities, laboratories, hospitals,
and clinics for scientific research and “developmental testing purposes” and “biological,
biomedical, and pharmaceutical products”, and “scientific, engineering, and medical instruments.”
Additionally, cities allow compatible uses that have the effect of supporting, possibly even
attracting biomedical uses. Typical types of compatible uses would be general office, restaurants
and coffee shops, public transportation facilities, and service uses geared to biomedical
employees.
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The second method to use zoning to incentivize biomedical uses is to develop general base zones
that include standards that facilitate the development of biomedical using a more generalized
approach. This approach can be seen in the City of Aliso Viejo, which has a focused industrial
zoning geared to high-tech companies and corporate headquarters. However, within the
industrial zones, the City fosters the development of uses critical to the biomedical industry, such
as wet laboratory space.
Finally, there are cities that have adopted zoning overlays that alter certain standards for an
area’s base zones. This method would typically identify a base zone that accommodates a broad
spectrum of uses, such as commercial and industrial uses, but that on their own either do not
allow or do not incentivize the development of biomedical uses.
An overlay would then be applied to allow biomedical and other compatible uses. The overlay
may also provide special standards for the incentivized uses above what the base zone allows.
This would generally amount to an intensification of certain development standards, such as
building height or an increase in the Floor Area Ratio. The City of San Francisco is a good
example of this type of zoning incentive. That city’s Life Science and Medical Special Use
District allows certain encouraged uses, such as Medical Services, Life Science Offices, and Life
Science Laboratories are exempt from the City’s FAR and height limitations. Jupiter, Florida’s
Biomedical Research Protection Zone is another example, which allows a six foot increase in
building height for each floor of the development that will have at least 20% wet lab space.
Another type of overlay is San Francisco’s Life Science Special Use District, located to encourage
bioscience and biotech uses in proximity to the University of California, San Francisco (UCSF)
campus at Mission Bay. The City is the epicenter of one of the most successful bioscience
clusters in the nation. Included in this report is an analogue study by the Concord Group that
analyzes the City of San Francisco’s Kaiser Permanente San Francisco Medical Center Master
Plan 2013-2022, and evaluates the economic and employment impacts of the development on
the City. Please refer to Attachment 5 for that study.
The City of Inglewood provides a unique example of an overlay. Its version is called the
“Biomedical Enterprise Overlay.” This overlay provides both an incentive for biomedical uses
by allowing certain uses where they otherwise would not be allowed, while dis-incentivizing
perceived competing uses by not allowing residential-only development. As discussed later in
the section regarding the biomedical industry research, the City of Inglewood’s overlay speaks to
the delicate transition that is needed in more built-out cities between medical and residential uses.
This overlay attempts to protect the residents’ quality of life while maintaining competitiveness in
attracting biomedical uses. While this is not typical in municipal zoning ordinances, the sentiment
is often expressed, as it was in an interview with an administrator from Hoag Memorial Hospital
in Newport Beach, who stated that “I do not expect there was any resistance to the hospital or its
location when it was built 60 years ago since there was nothing around it. The resistance only
comes now because neighbors do not like a hospital next to them….”
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It is difficult to predict the impact that a particular zoning incentive might have on a community
when provided to the biomedical industry. In part, this is because no comprehensive study has
been undertaken to ascertain these effects. Also, information related to a particular incentive’s
effectiveness is contained in someone’s personal experience, essentially a case study by city
staff. While this type of evaluation can be very informative, especially from an implementation
standpoint, there are problems associated with extrapolating this type of information to apply to
another jurisdiction.
However, it was identified during our research that cities with successful biomedical clusters
typically have within their boundaries, or are associated with, research universities or hospitals.
In addition to zoning mechanisms, cities wishing to attract biomedical uses can create an
“enterprise” or economic development area that is typically tied to existing universities or large
health centers. In conjunction with this, there can be financial incentives or business-support
activities. The financial incentives can be anything from direct payments made to businesses that
relocate, expand, or remain in the area, as is a signature of the City of Nashville’s economic
development portfolio, to waiving certain taxes or fees, as Oceanside, California has done. That
city recently provided millions of dollars in tax breaks to incentivize one firm to relocate to the
area.
U.S. cities where the top biomedical hubs are located focus heavily on providing support services.
These include the creation of on-demand laboratory and office space for entrepreneurial
biomedical students or start-ups, public transportation facilities and land use plans that create
entire micro-environments to attract the talented young professionals the biomedical industry
needs to grow.
In researching other jurisdictions that advertise biomedical/life-science/biotech “zones,” it is
apparent that to successfully create such zones requires a concerted focus on multiple
characteristics of a city, if not a region. Many cities and counties, such as New Orleans,
Montgomery County, Maryland, Marin County, California, and San Carlos, California, have spent
resources, sometimes considerable amounts of money, to institute an incentive scheme only to
find that the city was simply not well situated to successfully attract biomedical industries. Other
cities, like Inglewood, California and Lyndon, Washington created biomedical base zones or
overlays only to see no results. According to city staff, this outcome is a result of the complete
absence of existing biomedical industry, research universities and hospitals.
What is clear is that biomedical uses are highly sought after by many cities for their perceived
economic benefits. By investigating the areas with the most densely populated biomedical
clusters, it can be determined, generally, what attributes and characteristics are most often
prevalent, thus determining the basic characteristics and incentives that appear most attractive to
biomedical companies.
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4.3 Biomedical Industry Research
The following information represents the main findings of the biomedical industry research, which
is composed of a review of relevant trade journals such as Site Selection Magazine, Urban Land
Magazine, Practicing Planner, and Zoning News, a review web-based information, an analysis of
the findings of current and applicable research papers, and information gathered from interviews
with experts knowledgeable about the biomedical field and relevant economic development
techniques. A more descriptive explanation of these findings is provided as Attachment 13.
Main Findings
1. In 2015, Battelle Technology Partnership Practice developed the Feasibility Assessment
and Master Plan for Advancing the Bioscience Industry Cluster in Los Angeles County for
the Los Angeles County Supervisors. The group proposed, and the County Supervisors
have since begun approving, initiatives that make up the Los Angeles County Bioscience
Master Plan. In a 2011 feasibility study referenced in the Batelle Group’s analysis, one of
the potential sites for a BioHub could be Rancho Los Amigos.
2. The competition to attract bioscience/bio-tech firms has increased over the recent
decades. This competition has led to an understanding among private firms and public
agencies that quality of life plays a major role in the decisions of employees regarding
where they are willing to settle for employment in the biomedical industry. High-quality
development is a crucial need for the biomedical industry due to the attraction of the
younger generations of the workforce by cities that tend to locate in coastal areas and
seek vibrant urban environments.
3. The success of large campus-style medical centers depends, in large part, on the local
jurisdiction’s ability to provide high-quality development, public infrastructure, access, and
services. Additionally, redevelopment of existing facilities is critical to an ever-changing
healthcare and biomedical marketplace.
4. Connections between research facilities and the biomedical industry are very important.
Biomedical clusters have traditionally been centered on academic research centers. Local
governments desiring to foster the creation of new biomedical industry will need to
facilitate this collaboration with local and regional institutions.
5. For many communities, concerns are being raised about the interface between medical
uses and residential properties. Collaboration with the affected neighborhoods is critical
for success. Ideally, cities can encourage biomedical uses on the periphery or in areas
where they do not adversely affect residential neighborhoods and where they can grow
outward. Or alternatively, encouraging biomedical institutions (e.g., hospitals, major
research facilities) to disperse their operational units away from the main campus. Cities
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that are more generally built-out tend to have one option remaining, which is to provide
the path for institutions to demolish obsolete buildings and grow vertically.
6. Collaboration between public agencies and the private enterprises that make up the
contemporary life science industry will be one of the important keys to success in the years
to come, with innovation districts consisting of high-quality housing options, good public
transportation, retail opportunities, and office and research and development areas that
work together being a key component.
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SECTION 5 – S.W.O.T. EVALUATION
Based on the research conducted by the Civic Solutions team, the following evaluation represents
the City of Downey’s strengths, weaknesses, opportunities and threats (SWOT) related to
attracting biomedical uses. In conjunction with the information contained in this report, research
on relevant demographic, economic, and employment data was used to develop the SWOT
analysis. A description of the findings of this demographic, economic, and employment data is
provided in Attachments 6-12.
Strengths:
1. Central location in Greater Los Angeles area.
Downey’s central location provides a good opportunity for biomedical uses that require
access to multiple nodes in Southern California, from San Diego to Los Angeles.
2. Increasing venture capital spending in Los Angeles area.
Los Angeles County has upward trending bio-venture capital investment - $74 Million in
2016.
3. Highly-skilled workforce in Los Angeles County.
Success of biomedical firms is highly dependent on availability of specially trained
professionals, especially those with graduate and professional degrees. Downey is
relatively close to schools with respected graduate programs (USC, UCLA, and UCI).
4. Existing hospital and biomedical -related industry in the City and County.
An upcoming trend in the biomedical industry is the development of a signature complex
that emphasizes an interconnected network of partnerships with biomedical firms. LA
County currently has plans to expand its biomedical cluster, which would give Downey
opportunities for partnership with its existing medical facilities. Ranchos Los Amigos
Rehabilitation Center is highly regarded in physical therapy and prosthetics, which could
lead to future development of research space.
5. High tech infrastructure and utilities in place.
Downey has made some strategic investments to maintain quality infrastructure important
to the biomedical industry, such as high speed internet.
6. Three top research institutions (UCLA, USC, and UC Irvine) located in the region.
The presence of top research institutions are a positive sign for the Greater Los Angeles
area, and will help foster investments in the region that Downey can take advantage of.
The County of Los Angeles is actively pursuing development of bioscience clusters around
the County, with Downey’s Rancho Los Amigos identified as one of a handful of sites
critical to the Los Angeles County Biosciences Master Plan.
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Weaknesses:
1. Lack of research universities/ facilities in close proximity.
Relationships with high NIH-funded research institutions provide a key source of equity
for biomedical firms. Downey lacks a major research institution within its boundaries but
has the potential to partner with top NIH institutions, such as UCLA, USC and UCI.
2. Lack of vacant land for new development.
Most biomedical development will be remodeling or new construction in previously
developed sites in Downey, since there are no existing biomedical buildings. Downey is
mostly built-out, which will generally require that existing buildings be demolished before
new construction can begin, a cost that development in other cities on the periphery may
not include.
3. Lack of commercial/industrial buildings to convert to “wet laboratory” use.
Retrofitting lab space can be a high-up front cost and a big barrier for young biomedical
companies, but can be alleviated through construction of new buildings that are readily
equipped and meet strict requirements.
4. Lack of availability of venture capital funding, compared to other western U.S. metropolitan
centers.
Significant amounts of venture capital are required to support biomedical clusters in
metropolitan areas. The amount invested in Los Angeles County is still significantly lower
than other major U.S metropolitan areas such as San Francisco and San Diego.
5. Lower educated/trained workforce.
Average graduate education level of Los Angeles County (7% graduate degrees) is in line
with San Diego (8% graduate degrees) and Orange counties (8% graduate degrees).
Downey (4% graduate degrees) may need to attract additional qualified technical,
research and medical job seekers from neighboring counties and cities if is to successfully
expand its biomedical sector. This would, in turn, require that the City promote and to the
maximum degree possible, expand its services, housing and quality of life factors that will
attract highly educated and talented biomedical job seekers.
6. Few existing relationships with top research institutions.
Alliances among major medical schools, existing companies, local government, and
private ventures are needed to provide capital support and expedited entitlements for
biomedical firms. Downey could face potential competition with existing alliances in nearby
cities.
7. Distance to the region’s established biotech nodes and existing traffic congestion.
Downey’s distance to major biomedical clusters in Southern California and traffic
congestion limit the ability for synergistic, locational relationships with traditional
biomedical companies and research institutions.
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Opportunities:
1. Existing niche market for rehabilitative biomedical uses.
The City of Downey has a world-renowned facility, Rancho Los Amigos that provides
unique services that have the potential to contribute to the presence of a signature
complex for the City.
2. The absence of strategic investment in new, critical facilities and technologies in other
competitive markets.
While biomedical uses are highly sought after across the nation, in the Los Angeles area
there is a lack of an established biomedical hub, with development somewhat sporadic
and not well unified. To a degree, this increases Downey’s changes of becoming a hub.
3. The County of Los Angeles actively working to establish BioHubs around the County.
Evaluations of potential BioHub sites include the Rancho Los Amigos facility.
4. Lack of “wet lab” space in Los Angeles County.
Wet laboratory space is a critical need for a successful biomedical cluster. This type of
development is typically more expensive to construct, and difficult to convert existing
building. There are not many cities that specifically identify wet laboratories as a permitted
use, making it unclear whether a city would permit it.
Threats:
1. Competition from other jurisdictions with established biomedical cluster, such as Irvine and
Los Angeles.
Alliances with existing companies, local government, and private ventures can provide
capital support and expedited entitlements for biomedical firms. Downey could face
potential competition with existing alliances in nearby cities.
2. Unknown saturation point of the market, within the state and nation.
For decades the biomedical industry has been growing rapidly. There is very little
research to indicate at what point the market demand will be met, or how close that point
in time may be.
3. Decentralization of the Los Angeles area hubs and more movement to areas with available
greenfield development potential.
The trend in the Greater Los Angeles area tends to be construction of new facilities along
the periphery in areas with available land to develop.
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SECTION 6 – LIST OF ATTACHMENTS
1. Zoning Comparables Matrix
2. Concord Group Memorandum of Findings
3. Preliminary Biomedical Feasibility Assessment
4. Analogue Study – Phoenix Biomedical Campus
5. Analogue Study – Kaiser Permanente San Francisco Medical Center
6. Demographics
7. Employment – By Industry
8. Annual Employment
9. Employment – Commute
10. Employment – Downey Commute
11. Employment – Map Industry
12. Employment – Location Quotient
13. Biomedical Industry Research Full Report
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Agenda Page 26
CIVIC SOLUTIONS, INC.
Draft Biomedical Overlay Research, City of Downey Page 25 of 27
Colliers International. (2015). Supporting Economic Development in BioSciences. Phoenix, AZ.
Retrieved from: http://www.cmnphx.com/___WEBSITES___/0__ColliersCafe__0/pdf/2020-
vision/2020-Rpts-Large-Files-11x17/2020_EconomicDevelopmentBioSciences.pdf
County of Montgomery, MD Business Innovation Network Website. (October, 2016). Retrieved
from: http://www.mcinnovationnetwork.com/
County of Montgomery, MD Great Seneca Life Sciences Corridor Master Plan. (October, 2016).
Retrieved from:
http://www.montgomeryplanning.org/community/gaithersburg/documents/GSSCApprovedan
dAdopted_web.pdf
Crean School of Health and Behavioral Sciences Website. (October, 2016). Retrieved from:
https://www.chapman.edu/crean/
Enany, Ahmed A., President & CEO, Southern California Biomedical Council. Personal
Communication. (November, 2016).
Fitzgerald, Garry, Loma Linda University Advisor. Personal Communication. (November 16,
2016).
Foley, Paul, Principal Planner, City of Santa Monica, CA. Personal Communication. (November
14, 2016).
Friedman, K., and Nowicki, K. Just What the Doctor Ordered: Regulating Medical Uses,
retrieved from the American Planning Association Website:
https://www.planning.org/events/activity/9110876/
Friedman, K., and Nowicki, K. Developing Health Care and Life Sciences Facilities, retrieved
from the American Planning Association Website:
https://www.planning.org/events/eventsingle/3016166/
Gamble, D, and Madden, K.. November 24, 2011. Accommodating Institutional Growth Urban
Land Magazine.
Gregory, Michelle, "Planning and Zoning for Medical Districts" Zoning News, (Chicago:
American) Planning Association, March 1994).
Hall, Randolph, Ph.D., Vice President of Research, University of Southern California. Personal
Communication. (November 16, 2016).
Hill, Janeen, Ph.D., Founding Dean Crean College of Health and Behavioral Sciences at
Chapman University. Personal Communication. (November 11, 2016).
Agenda Page 27
CIVIC SOLUTIONS, INC.
Draft Biomedical Overlay Research, City of Downey Page 26 of 27
Jones Lang LaSalle Brokerage, Inc. (2014). Global Life Sciences Cluster Report. Retrieved from
JLL website: https://www.jll.com/Research/2014-global-life-sciences-report-
JLL.pdf?654be919-aef1-45a0-bef3-ab01d0a4ece6. Humphry, Roger.
Kaufmann-Brisby, Kimberly, Associate Planner, City of Sacramento, CA. Personal
Communication. (October 8, 2016).
Keck School of Medicine at USC Website. (October, 2016). Retrieved from:
http://www.keckmedicine.org/
Ladner, C. et al., Rx for a Medical District, retrieved from the American Planning Association
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Legan, Debra, Vice President, PIH Health. Personal Communication. (November, 2016).
Marks, Sandy, MSN, MS(HCA), RN, Instructional Dean of Health Occupations Division, Cerritos
College. Personal Communication. (November 7, 2016).
Mattson-Teig, B. December 15, 2015. Making the Case for More Innovation Districts. Urban
Land Magazine.
Megerdichian, Domenica K. MPA, MURP, Management Associate, Office of the City Manager,
City of Torrance, CA. Personal Communication. (November 14, 2016)
Nyren, R. September 20, 2011. Partnerships in the Life Sciences. Urban Land Magazine.
Orozco, Jorge, CEO for Rancho Los Amigos Rehabilitation center. Personal Communication.
(November, 2016).
Palm Beach, County, Florida Business Development Board Website. (November, 2016).
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Planning Information Center, City. County of San Francisco, CA. Personal Communication.
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Phillips, Matt, Director, Sacramento Area Technology Alliance MedStart Program. Personal
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https://biomedicalphoenix.com/
Agenda Page 28
CIVIC SOLUTIONS, INC.
Draft Biomedical Overlay Research, City of Downey Page 27 of 27
Quinn Allyson B., Boston Redevelopment Authority. Personal Communication. (October 4,
2016).
Rancho Los Amigos Rehabilitation Center Website. (October, 2016). Retrieved from:
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http://www.ucirvinehealth.org/about/
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Harbor UCLA. KPCC's Business & Economy.
***
Agenda Page 29
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 2 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
Inglewood,
CA
Medical
Enterprise
Overlay Zone
Applies to particular Residential-
Medical (R-M) and Commercial
(C-2) zones to allow hospitals,
convalescent facilities, medical
clinics, medical laboratories and
pharmacies with a special use
permit.
Max. Lot Coverage 70%
Max. Height 75 ft.
Additionally, the overlay
specifies most other
development standards
including setbacks, parking,
landscaping, design, etc.
None specified. While the city has one large
hospital facility, there is no
emerging bioscience business
cluster.
Centinela Hospital Medical
Center
Irvine, CA 5.5 Medical and
Science
This zone allows biomedical/high
technology uses, health care
facilities and related businesses,
medical research and education,
general research and
development, and light
manufacturing and assembly in
one master planned area.
Max. Lot Coverage 50%
Max. Building Height –
Generally None. Over 200’
requires approval from FAA.
Sub-Area Height Limits:
5.5A – 120’
5.5B – 50’
The City of Irvine does not
provide direct financial
incentives to businesses
moving to Irvine. The city
does provide a high quality of
life, high-level business
opportunities, high-skilled local
employees, public education
support, newer infrastructure,
and one of the safest cities in
the nation.
University of California, Irvine
2,700-acre Irvine Business
Complex
183-acre University Research
Park
John Wayne Airport
The Vine, business incubator
EvoNexus, non-profit venture-
capital network
Agenda Page 30
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 3 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
Jupiter,
Florida
Bioscience
Research
Protection
Overlay
The Overlay provides for the
development of bioscience
research and biotechnology
uses which are expected to be
attracted to Northern Palm
Beach County due to the
location of the Scripps Florida
Research Institute at Florida
Atlantic University’s Jupiter
Campus.
The base zone controls
development intensity, except
that a building may exceed the
maximum height for the zone by
six feet for each floor of the
building which contains more
than 20 percent of gross floor
area of wet lab space.
None specified. Palm Beach County, FL is
home to a cluster of life-
science businesses anchored
by the Scripps Florida
Research Institute and the Max
Planck Florida Institute for
Neuroscience.
Florida Atlantic University
University of Miami
West Palm Beach VA
JFK Medical Center - North
Campus
Lyndon,
WA
Medical
Services
Zoning Overlay
The purpose of the Medical
Services Overlay is to allow for
additional uses in certain
zones, such as Medical and
health care uses including
hospitals, outpatient
clinics,continuing/long term
care services, hospice
services, laboratories, medical
research facilities, etc.
For sites of at least 8 acres:
Max. Lot Coverage 60%
Max. Height 45 ft.
None specified. Lynden, WA does not have a
local university of any major
research hospitals. There are
not many biomedical-related
uses in the vicinity.
Agenda Page 31
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 4 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
Mangonia
Park, FL
Bioscience
Overlay
The purpose of the overlay is
to encourage bioscience
research and biotechnology
business, and discourage
residential development.
The overlay does not provide
additional development intensity
beyond the base zone.
The overlay provides for
“expedited review and
permitting processes” to
encourage bioscience and
biotechnology uses.
The City is part of a larger
cluster of sites located
throughout various
municipalities and the northern
portion of Palm Beach County,
called the Bioscience Land
Advisory Protection Board.
Montgomer
y Co., MD
Great Seneca
Life Sciences
Corridor
The zone provides increased
development intensity for
medical and biotech uses.
However, the plan hinges on a
Staging Element, which allows
property owners to apply for
increased development
intensity limits after certain
criteria are met, specifically
increased public transportation
facilities, which have yet to be
funded.
Max. FAR 1.5
Max. Height 150 ft.
In-zone density transfers
permitted.
No specific financial incentives
provided. The project is
essentially a regional plan,
relying on state funding to
provide the transportation
growth funding necessary to
ensure sustainable
development, in an otherwise
developed area.
The area is home to multiple
university satellite campuses
and county-wide business
incubation NPOs, the Business
Innovation Network in place to
help facilitate new start-ups
and entrepreneurship.
Johns Hopkins University-
Montgomery County Campus
Adventist HealthCare
University of Maryland
Walter Reed National Military
Medical Center
Agenda Page 32
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 5 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
Oakland,
CA
Industrial
Zones (CIX-1A,
CIX-1B, CIX-
1C, and CIX-
1D) allow
general
industrial uses
and “Research
and
Development
Industrial
Activities”
“Research and Development
Industrial Activities” include
biotechnology firms, "clean-
tech"/energy, environmental,
electronic research firms, or
pharmaceutical research
laboratories.
Max. FAR 2.0, 3.0 with CUP
Max. Height 85 ft.
None specified. Health care and life sciences
are identified as a growth
sector in the city, with a
specific Business Development
staff that works with business
owners to capitalize on growth
opportunities and address
challenges to growth.
University of California,
Berkeley
UCSF Children’s Hospital
Alta Bates Medical Center
Highland Hospital
Phoenix,
AZ
BioMed
Character Area
The BioMed area allows
hospitals, laboratories,
research facilities, and clinics,
and related uses.
Max. Lot Coverage 100%
Max. Height 310 – 425 ft.
The city-owned Phoenix
Biomedical Campus (PBC) is a
28-acre urban medical and
bioscience campus planned for
more than six-million square
feet of biomedical-related
research, academic, and
clinical facilities.
University of Arizona Cancer
Center
Biosciences Partnership
Building
Arizona Biomedical
Collaborative Building I
Bioscience High School
Agenda Page 33
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 6 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
Poway, CA Hospital
Campus (HC)
Zone
This zone provides for the
centralized services and
facilities for a minimum 100-
bed inpatient acute-care
hospital complex.
Max. Lot Coverage 30%
Max. Height 35 ft./ 2 stories
Property Assessed Clean
Energy Program (PACE)
Manufacturers Sales Tax
Exemption
Industrial Development Bond
Financing
(IDBs)
The city of Poway has a few
bio-medical related companies.
Success of the zone has not
been analyzed to-date.
Sacra-
mento, CA
Manufacturing,
Research and
Development
(MRD) Zone
The MRD zone allows for
“innovative technology
businesses and related support
services”, such as
manufacturing, assembly, and
scientific research and
development-type land uses.
Max. FAR 1.0
Max. Height 75 ft.
The Sacramento Region is
part of an 8-county wide trade
association for life-science
businesses called MedStart.
The group is in the process of
creating the MedZone. The
project is targeted to provide
low-cost, as-needed wet lab
space to encourage new
businesses. the MedZone is a
non-profit enterprise geared at
local research universities,
such as the University of
California at Davis, to provide
a "jumping off" point for the
transitions from research
activities to entrepreneurial
ventures.
University of California, Davis
UC Davis Medical School
Kaiser Permanente Health
Center
Incentive Health
Sutter Health
Shriner’s Hospital for Children
– Northern California
UC Davis Children’s Hospital
Mercy General Hospital
Agenda Page 34
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 7 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
San Diego
(La Jolla),
CA
Industrial Park
Zones (IP-1-1
and IP3-1)
The IP zones provide for
campus-like science and
business park development.
IP-1-1 allows research and
development uses with some
limited manufacturing
IP-3-1 allows for research and
development, office, and
residential uses.
Additionally, light
manufacturing and assembly
uses in these zones allow
“manufacturing of biochemical
research and diagnostic
compounds to be used
primarily by universities,
laboratories, hospitals, and
clinics for scientific research
and developmental testing
purposes” and “biological,
biomedical, and
pharmaceutical products”, and
“scientific, engineering, and
medical instruments”.
Max. FAR 2.0
There is no Max. Height
The city offers the San Diego
Regional Revolving Loan Fund
(SDRRLF) and Small Business
Micro Revolving Loan Fund
(SBMRLF).
Economic Growth Services
consists of two focused work
units: the Business Expansion,
Attraction and Retention
(BEAR) Team and the
Government Incentives (GI)
Team. These two teams work
directly with businesses,
business organizations, and
City departments to facilitate
new investment and to create a
business-friendly environment
that ensures a stable
economy.
San Diego boasts 27
business incubators with
many of them connected to
USCD to promote bio-tech,
bio-medical, or engineering
start-ups. The incubators
typically provide office space,
business mentoring,
investment, and other
valuable resources.
University of California, San
Diego
San Diego State University
University of San Diego
UCSD Medical Center
VA San Diego Healthcare
System
Scripps Institute of
Oceanography
Scripps Memorial Hospital La
Jolla
Scripps Clinical Research
Center, La Jolla
Agenda Page 35
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 8 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
San
Francisco,
CA
Life Science
Special Use
District
The Life Science and Medical
Special Use District was
developed to support land uses
that would benefit being close
to the University of California,
San Francisco (UCSF) campus
at Mission Bay, such as
“medical office and life science
(biotechnology) uses.”
Development standards are
controlled by the base zone,
with exceptions for certain uses:
Medical Services, Life Science
Offices, and Life Science
Laboratories are exempt from
the city’s “use size” limitations,
and vertical (floor-by-floor)
zoning controls.
None specified. Generally recognized as one
of the top bioscience hubs in
the nation, the Bay Area, and
San Francisco especially, has
hundreds of bioscience and
medical companies. San
Francisco has a multi-billion
dollar venture capital market
to help start, establish and
grow companies.
University of California, San
Francisco (UCSF) - Mission
Bay
San Francisco State
University
Santa
Monica, CA
Healthcare
Mixed
Use (HMU)
Office Campus
(OC)
2 base zoning districts allow
hospitals and related health
care facilities, and advanced
technology/ scientific research
uses.
HMU –
1.5 FAR
45 ft./ 3 stories
(up to 2.5 FAR and 70 ft./ 5
stories with “Community
Benefits”)
OC –
1.5 FAR
32 ft./ 2 stories
(up to 1.75 FAR and 45 ft./ 5
stories with “Community
Benefits”)
Network solutions including
Dark Fiber Leasing and Co-
Location Services (up to 100
gigs/second).
UCLA Health
UCLA Medical Center
John Wayne Cancer Center
Providence Saint John’s
Health Center
Santa Monica College
Agenda Page 36
ZONING COMPARABLES MATRIX ATTACHMENT 1
Attachment 1, Page 9 of 9
City Name of
zone(s)
General Zoning Description Development Intensity Other Incentives Local Facility Attractions
Torrance,
CA
Hospital
Medical Dental
(H-M-D)
District
Base zone allowing for
hospitals, rest homes, guest
homes and homes for aged,
professional offices offering
medical, dental and related
services, and other ancillary
uses.
Building height is regulated by
the Building Code of the City of
Torrance. No FAR is
established, all projects in the
zone are subject to Design
Review.
None specified. Torrance has a cluster of bio-
medical companies.
Cal State, Dominguez Hills
Cal State, Long Beach
Charles R. Drew University of
Medicine and Science
Harbor-UCLA Medical Center
Torrance Memorial Medical
Center
South County Harbor Hospital
Agenda Page 37
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---2
AT
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2
Agenda Page 39
Th
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C
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3 Agenda Page 40
Th
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C
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G
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January 5, 2017
Do
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C
A
16565.00
Ma
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The Concord Group 9 Agenda Page 46
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C
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THE CONCORD GROUP 10 Agenda Page 47
At
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7
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The Concord Group 11 Agenda Page 48
At
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8
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o
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t
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m
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Y/
Y
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#
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The Concord Group 12 Agenda Page 49
At
t
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n
t
9
EM
P
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To
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8
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6
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4
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%
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s
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4
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c
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0
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4
%
1
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,
7
8
9
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Sa
n
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a
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p
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1
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m
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7
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1
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r
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r
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To
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a
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,
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3
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1
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7
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2
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Or
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Sa
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a
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C
A
5
1
3
1
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5
4
0
%
Al
l
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h
e
r
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o
c
a
t
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o
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s
2
0
,
1
5
4
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7
%
5
6
5
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8
1
9
4
2
%
To
t
a
l
:
4
3
,
0
7
8
1
0
0
%
1
,
3
5
4
,
4
7
9
1
0
0
%
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m
m
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t
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t
o
H
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m
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Di
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t
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1
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-
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s
17
,
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4
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1
3
,
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8
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4
6
%
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4
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i
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e
s
10
,
7
5
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5
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i
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s
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6
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s
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l
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35
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8
7
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1
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m
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C
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m
The Concord Group 13 Agenda Page 50
At
t
a
c
h
m
e
n
t
10
EM
P
L
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M
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N
T
-
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So
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:
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C
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The Concord Group 14 Agenda Page 51
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The Concord Group 18 Agenda Page 55
ATTACHMENT 13
Attachment 13, Page 1 of 4
Biomedical Industry Research – Full Report
One of the most relevant research documents created recently regarding the bioscience industry
also has a direct impact on the City of Downey. In 2015, Battelle Technology Partnership Practice
developed the Feasibility Assessment and Master Plan for Advancing the Bioscience Industry
Cluster in Los Angeles County for the Los Angeles County Board of Supervisors. Battelle's
research and analysis indicates that the industry is an important economic driver for the region
and that the area could potentially be a primary bioscience hub in the nation. Finding a lack of
“early-stage venture capital” and available wet lab space, the report stated that the foundation to
build up the public-private partnerships necessary to expand the existing cluster is feasible. The
group proposed, and the County Supervisors have since begun approving, initiatives that make
up the Los Angeles County Bioscience Master Plan. These initiatives are, “an investment of $11.0
million in one-time capital funding and $1.8-$3.5 million annually in on-going funding, utilizing
existing County land and buildings, and other potential incentives, over a five-year pilot period.”
One of the key proposals is for the County to create three to five “signature bioscience innovation
hubs,” now referred to as BioHubs, around the County. A 2011 feasibility study, referenced in the
Batelle Group’s analysis, indicates that one of the potential sites for a BioHub could be Rancho
Los Amigos.
The need for this level of economic development is understandable, given the current market for
the industry. Adam Bruns, writing for Site Selection Magazine. discusses how the competition to
attract bioscience/bio-tech firms has increased over the recent decades. In the Boston area, a
typical position in the field typically pays about $70,740 per year. Attracting this type of
employment is a top priority for many areas of the nation, and the world. However, even with
such a high-paying industry, reports indicate that some markets can price out many firms, such
as Boston and San Diego. Finding other areas, where the labor pool is skilled enough to
accommodate employers, that meet the cost requirements of firms looking to start, expand, or re-
locate operations becomes critical. In addition to cost, firms understand that quality of life plays
a major role in the decisions of employees regarding where they are willing to settle for
employment in the industry.
Echoing these findings, Julia Cox, also writing for Site Selection Magazine, states that the
biomedical industry is facing increasing competition due to, “the need for improved patient care,
as well as a shift towards more targeted and personalized medicine.” This shifting focus has
implications for cities due to the new requirements related to the need for expanded wireless
technology and the growing role of big data and informatics. The intensity of competition, she
says, puts pressure on pricing and the search for new ways to innovate existing development to
address the changing marketplace.
In resources provided by the American Planning Association, the success of large campus-style
medical centers depends, in large part, on the local jurisdiction’s ability to provide high-quality
development, public infrastructure, access, and service. These characteristics include buildings
Agenda Page 56
ATTACHMENT 13
Attachment 13, Page 2 of 4
and sites that are sustainably designed for active movement and healthy living principles. Special
focus should be placed on efficient public transportation and a grand vision for the district.
Similarly, redevelopment of existing facilities is critical to an ever-changing healthcare and
biomedical marketplace. An example of this need is demonstrated in a large medical district in
Texas, the Southwestern Medical District in Dallas. Though the district has world-renowned
institutions, such as the Children’s Medical Center Dallas, Parkland Hospital, and the University
of Texas Southwestern Medical Center, the district was no longer providing the atmosphere
desired by its clients. With superblocks to traverse and aging infrastructure, the heat-island was
found to be difficult to navigate. To address the situation, public-private partnerships were formed
to develop an urban streetscape master plan, and turn the district into a high-quality, livable
community that engages pedestrians and creates a more contemporary sense of place. JLL’s
2014 Global Life Sciences Cluster Report notes that this type of high-quality development is a
crucial need for the biomedical industry due to the attraction of the “younger generations of the
workforce“ by cities that tend to be “coastal and possess vibrant urban environments.”
In an article for Urban Land Magazine, Beth Mattsen-Teig continues this discussion, focusing on
the need for public infrastructure tailored to the needs of the biomedical industry as the foundation
of a medically-centered zone. For some cities, such as Minneapolis, this meant “improvements
to the street grids and adding greenway space.” Furthermore, just as it is important to get the
infrastructure right from the beginning are guidelines, whether zoning standards, a master plan,
or design guidelines that need to be in place for the vision of a district to come together cohesively.
The American Planning Association also identifies the secondary effects of the medical industry’s
expansion. For many communities, concerns are being raised about the transitional areas where
medical uses and residential properties meet. This is due to the tendency for medical uses to
stay open later, if not 24 hours a day, occupy commercial areas more traditionally developed for
retail-type uses, and the movement to providing more mental health and substance abuse
treatment services. To address these issues, planning and real estate professionals have
discussed how the delivery of tomorrow’s healthcare services will rely on the development of real
estate suited to the biomedical and biosciences industries. This will, in many areas, also require
the creative re-use of existing facilities and sites, especially the development of commercial space
that is flexible for multiple uses to accommodate the inevitable transitions through a business’s
life cycle.
The San Francisco Biosciences Task Force made a similar finding, noting that biomedical start-
ups typically need smaller facilities, between 2,000 and 10,000 square feet that may be part of
the new model of incubator laboratories. They also stated that, “specialized laboratory space,
meeting complex health, safety, building code and research standards are several times more
expensive than typical commercial space. “
In an article in Urban Land Magazine, Kathryn Madden and David Gamble discuss developing
new, or expanding existing medical centers in more densely populated areas. They note that
Agenda Page 57
ATTACHMENT 13
Attachment 13, Page 3 of 4
change is not impossible, but collaboration with the affected communities is critical to success.
Short of the options to provide institutions land on the periphery and grow outward, or having
institutions disperse their operational units away from the main campus, cities that are more
generally built-out tend to have one option remaining, which is to provide the path for institutions
to demolish obsolete buildings and grow vertically.
Ron Nyren, in an article for Urban Land Magazine, notes that collaboration between public
agencies and the private enterprises that make up the contemporary life science industry will be
one of the important keys to success in the years to come. Already, he states, local and regional
governments have begun pooling their monies with private and non-profit enterprises, including
universities, to help form emerging bioscience clusters that can provide the resources necessary
for the new “bench to bedside” process, the drive to translate research into healing therapies as
soon as possible. In a related article, Mr. Nyren discusses the Phoenix Biomedical Campus, one
of the nation’s best examples of this multi-sector biomedical planning approach. He writes that
the effort was the product of the state of Arizona, the City of Phoenix, and multiple state
universities. The results of which is 28-acre campus which provides, “research space for
bioscience students from the University of Arizona’s department of basic medical sciences and
Arizona State University’s department of biomedical informatics, with wet and dry labs, offices,
interaction spaces, and conference rooms.”
Delving more in-depth on the subject, Beth Mattsen-Teig, writing in Urban Land Magazine, states
that the new model for these “innovation districts” are sprouting around the world. While no
dominant model (in terms of zoning, financial, or collaborative incentives) has emerged as the
definitive example, there are some generally accepted attributes to a successful technology-
based district. One such trait is that these districts are typically anchored by major institution,
such as a “university, hospital, corporation, or research facility.” Additionally, there is a push for
mixed-use space, consisting of high-quality housing options, good public transportation, retail
opportunities, and office and research and development areas that work together in a vibrant
environment.
The 2011 California Biomedical Report noted how important connections to research facilities are
to the industry, stating that biomedical clusters have traditionally been centered around “academic
research centers, most notably the University of California (UC) campuses in San Francisco, San
Diego, Los Angeles and Orange County. San Diego’s Salk Institute, The Scripps Research
Institute and Sanford-Burnham Medical Research Institution also have been magnets, drawing
brilliant minds to build world-class laboratories and spinning out new companies to commercialize
their inventions.” JLL’s 2014 Global Life Sciences Cluster Report speaks to this further, stating
that highly ranked research university programs “remain important innovation partners and
therefore cities anchored by such institutions also continue to see growth in their biotech
industries.”
This type of development comes as part of the wave of industry back to the core cities, Ms.
Mattsen-Teig explains, in another piece in Urban Land Magazine. She identifies that the
Agenda Page 58
ATTACHMENT 13
Attachment 13, Page 4 of 4
demographic and economic forces shifting this development value high-quality places “at much
higher levels – by the market, by companies, and by individuals.” In fact, at the forefront of this
movement are the technological changes occurring in the industry and the need for more flexible
space to adapt to the market. In this environment, Ms. Mattsen-Teig notes, “big global companies
are working with networks of individuals and researchers in urban-style campuses and
neighborhoods, and they have a greater desire to locate near major institutions such as Carnegie
Mellon or Georgia Tech or MIT.” This remark expresses the need for local governments to do a
better job collaborating with local and regional institutions to help foster these relationships, as
Jorge Orozco of RLA stated in his interview.
Agenda Page 59