CC - Item 1A - Rosemead FCMUO-Background Report-Final-20200820
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Background Research and Analysis Report
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Table of Contents
I. Introduction...................................................................................................................... 1
II. Land Use Policy Review .................................................................................................. 10
III. Mobility Review .............................................................................................................. 26
IV. Infrastructure Review ..................................................................................................... 35
V. Development Review Process ........................................................................................ 45
VI. Recent State Legislation ................................................................................................. 47
VII. Conclusion ...................................................................................................................... 48
VIII. Appendices ..................................................................................................................... 49
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Background Research and Analysis Report
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I. Introduction
Project Overview and Objectives
This Background Research and Analysis Report for the Freeway Corridor Mixed-Use Overlay Zone Existing
Conditions and Opportunities Analysis Study (Study) is intended to provide an understanding of existing
policies and programs related to the six opportunity areas identified as part of the Freeway Corridor
Mixed-Use Overlay Area (Study Area). This includes local policies and programs, as well as those from
larger regional and, in some instances, statewide agencies.
The impetus for this Study was identified within the City’s 2018–2020 Strategic Plan as part of the
identified Strategies and Action Items related to economic development. Action Item C for economic
development was to:
“C. Create an Overlay Zoning District for opportunity sites along the I-10 Freeway with freeway
ingress and egress off ramps.”
This concept is further supported by the Vision 2020 General Plan and establishment of Mixed-Use
Residential/Commercial land use categories, among other policies.
Senate Bill 2 (SB 2) Grant Funding
To aid in the implementation of the Overlay Zoning District, the City applied for and received a Senate
Bill 2 (SB 2) grant from the State of California. The Overlay Zoning District intends to provide new
opportunities for housing, economic revitalization, and attractive placemaking. Moreover, the Overlay
Zoning District will position the City to better address the anticipated increases in Southern California
Association of Government (SCAG) Regional Housing Needs Assessment (RHNA) allocations for the
upcoming 6th cycle (October 2021 – October 2029). Specific goals related to the SB 2 grant funding are
provided below:
a) The principal goal of this program is to make funding available to all local governments in
California for the preparation, adoption and implementation of plans that streamline housing
approvals and accelerate housing production.
b) This grant program is meant to facilitate planning activities that will foster an adequate supply of
homes affordable to Californians at all income levels. It is designed to help local governments
meet the challenges of preparing and adopting land use plans and integrating strategies to
promote housing development.
c) Funded activities are intended to achieve the following program objectives:
• Accelerate housing production
• Streamline the approval of housing development affordable to owner and renter households
at all income levels
• Facilitate housing affordability for all income groups
• Promote development consistent with the State Planning Priorities (Government Code
section 65041.1)
• Ensure geographic equity in the distribution and expenditure of allocated funds
Based on the findings in this report as well as feedback received from stakeholders and community
members, conceptual development concepts that consider current development approaches,
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placemaking, and design opportunities and constraints will be prepared along with a list of
recommendations for consideration. This will provide the City with identification of key concepts
applicable to mixed-use development and individual elements that could be brought forward into the
Freeway Corridor Mixed-Use Overlay Zone.
Community Outreach
As part of this Study, the City’s Consultant completed stakeholder interviews virtually via Lifesize in eight
30- to 45-minute-long virtual interview sessions on June 4, 2020, June 18, 2020, and June 25, 2020. These
interviews were held with a range of participants familiar with the City of Rosemead and its current
development review processes to better understand any issues or concerns associated with ongoing
mixed-use development in the City and adoption of a new mixed-use overlay zone designation. The
stakeholders interviewed encompassed a variety of individuals, which included landowners, developers,
architects, real estate professionals, business owners, and institutional representatives. Themes heard
relevant to this Study have been summarized below, with the full summary located within Appendix A.
1. Development standard requiring certain percentages for commercial/retail and residential
space in mixed-use developments is seen as restrictive and limiting development potential.
• Residential/Commercial Mixed-Use Overlay: Residential/Commercial – 33% commercial,
67% residential; and Mixed-Use High Density Residential/Commercial – 25% commercial,
75% residential; unless otherwise modified by the Planning Commission.
• Garvey Avenue Specific Plan (GSP-MU): Residential/Commercial – 35% nonresidential,
65% residential. If community benefits are provided, may be modified to 30%
nonresidential, 70% residential.
2. Primary mixed-use development standards should be modified to be in keeping with the
surrounding region (i.e., height, floor area ratio, parking requirements).
3. Location of required commercial/retail uses in mixed-use development should be more
strategic (i.e., intersection corners vs. midblock locations).
4. New mixed-use developments are desirable to provide new housing and business options and
increase City revenue.
5. City review processes and administration are business-friendly and proactive.
Study Area Boundary
The Study Area comprises six individual and geographically separated opportunity areas (refer to Exhibit
1). These individual opportunity areas were selected based on their proximity to the Interstate 10 corridor,
location along primary City corridors, and adjacency to public transit lines.
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: Opportunity Areas Map
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Existing Conditions and Character
The following section provides a summary of existing conditions and characteristics of each opportunity
area within the Study Area. While a majority of the opportunity areas are defined by existing commercial
uses, the existing conditions and character of the Study Area vary greatly due to their geographic
dispersion and underlying land uses that have allowed for their incremental development over time.
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II. Land Use Policy Review
Land Use Goals and Policies
The following section outlines goals and policies from the City’s existing planning documents that are
relevant to the Study Area.
General Plan
The General Plan discussion below includes the Land Use and Housing Elements of the City as it relates to
the Study Area. While discussion on these elements has been completed in a general manner, greater
emphasis has been placed on the Land Use Element within this section due to its current and future
evolution of the Study Area. It should be noted that the Land Use Element touches upon Economic
Development and Revitalization within the City, and relevant components have been included under the
Land Use Element section below.
Land Use Element
The Land Use Element designates the distribution and general location of land uses, such as residential,
commercial, mixed-use, open space, and public uses within the City. The Land Use Element also addresses
the permitted density and intensity of these various land use designations, as reflected on the City’s
General Plan Land Use Policy Map.
As shown in Exhibit 2 and described in more detail below, current land use designations within the Study
Area include:
Opportunity Area Current Land Use Designations
One (Del Mar Avenue) • Commercial
• Public Facilities
• Mixed-Use: Residential/Commercial
(60 du/ac, 4 stories)
Two (San Gabriel Boulevard) • Commercial
• Mixed-Use: Industrial/Commercial
Three A (Walnut Grove Avenue/Hellman Avenue) • Commercial
Three B (Valley Boulevard/Walnut Grove Avenue) • Commercial
• High Intensity Commercial (Area 2)
Four (Rosemead Boulevard/I-10) • Commercial
Five (Valley Boulevard/Temple City Boulevard) • Mixed-Use: Residential/Commercial
(60 du/ac, 4 stories)
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: General Plan Land Use Map (dated February 2018)
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Mixed-Use Land Use Categories
The City has three existing mixed-use land use categories, which include Mixed-Use
Residential/Commercial (MRC), Mixed-Use High Density Residential/Commercial (MHRC), and Mixed-Use
Industrial/Commercial (MIC). Portions of Opportunity Areas One and Five are designated Mixed-Use High
Density Residential/Commercial, while portions of Opportunity Area Two are designated Mixed-Use
Industrial/Commercial. Descriptions of the mixed-use land use categories identified in the General Plan
Land Use Element have been provided below.
Mixed-Use Residential/Commercial (MRC)
The Mixed-Use Residential/Commercial category allows vertically or horizontally mixed commercial,
office, and residential uses, with an emphasis on retail uses along the ground floor. Pedestrian
connections among the uses, and as appropriate to surrounding neighborhoods, should be provided. The
Mixed-Use designation will allow for mixed-use and commercial infill development. Furthermore, parcels
may be assembled and consolidated to create larger, integrated development sites. All mixed-use projects
are subject to review and compliance with the City’s adopted mixed-use design guidelines.
Mixed-Use High Density Residential/Commercial (MHRC)
The Mixed-Use High Density Residential/Commercial category permits vertically or horizontally mixed-use
commercial, office, and residential uses, but greater residential densities are permitted and encouraged.
Retail uses shall be emphasized along the ground floor of street frontages, and pedestrian connections
among the uses and surrounding neighborhoods should be provided.
Mixed-Use Industrial/Commercial (MIC)
The Mixed-Use Industrial/Commercial category accommodates light industry, research and development,
and office uses. The emphasis is on businesses that provide career-oriented and trade jobs. Commercial
uses should be limited to those that support the primary industrial and office uses.
High Intensity Commercial Land Use Category
It is worth mentioning that Opportunity Area Three B currently has an existing High Intensity Commercial
(HIC) land use designation, specifically identified within the General Plan Land Use Element (refer to
Exhibit 3). This specific land use designation includes land use and building size requirements. Descriptions
of this land use category have been provided below.
High Intensity Commercial Area 2 (HIC-2)
This area is located on the southeast corner of Valley Boulevard and Walnut Grove Avenue, and includes
three parcels totaling approximately 3.3 acres. Rubio Wash is located just south of site, and a combination
of commercial and single-family residential land uses are located to the east.
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: High Intensity Commercial/Commercial Designation Land Use and Building Size Requirements
for High Intensity Commercial Area 2 (Land Use Element (Apr. 2010): Table 2-4)
Land Use Goals and Policies
Overarching goals and supporting policies of the Land Use Element that guide the growth and
development of mixed-use developments in the City have been identified below. In addition, relevant
goals and policies related to mixed-use developments but relevant to other land use categories have been
included.
Relevant Goals and Policies
Goal 3: Creation of vibrant, attractive mixed-use development.
Policy 3.1: Encourage mixed-use development as a means of upgrading established uses and
developing vacant parcels along arterials and providing new commercial, residential, and
employment opportunities.
Policy 3.2: Use the Mixed-Use High Density Residential/Commercial land use designation as a
vehicle to help strengthen and revitalize Rosemead’s central business district.
Policy 3.3: Provide adequate buffering between existing residential and commercial or light
industrial uses within designated Mixed-Use areas, as well as in adjacent areas.
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Policy 3.4: Encourage pedestrian friendly commercial and residential planned developments
wherever possible.
Policy 3.5: Promote lively and attractive ground-floor retail uses that will create public revenues
needed to provide for City services and the City’s tax base.
Other Relevant Policies
Policy 1.2: Provide guidelines and standards to ensure adequate buffering and screening between
lower density residential uses and adjacent higher density residential or non-residential uses to
mitigate potential land use conflicts.
Policy 2.1: Establish a well-balanced and carefully planned collection of signature retail anchors,
general retail outlets, casual to upscale restaurants, and upscale overnight accommodations
which can take advantage of the High Intensity Commercial designated sites’ accessibility to major
roadway corridors.
Economic Development Goals and Policies
In addition to the City’s 2018-2020 Strategic Plan that included strategies related to economic
development, the City’s General Plan includes economic development related goals and policies. As
previously mentioned, rather than a standalone Element of the General Plan, the City’s economic
development related goals and policies are located within the Land Use Element. The Land Use Element
includes proactive strategies that are intended to facilitate and encourage the revitalization of the City’s
commercial and industrial corridors. In particular, the Land Use Element specifically identifies strategies
for facilitating mixed-use development along commercial corridors to increase the quality of commercial
offerings to residents, retain important industrial districts, and focus on regional commercial activity at
key locations that are easily accessible. Goal 5 highlighted below identifies strategies specifically related
to mixed-use developments.
Relevant Goals and Policies
Goal 5: Targeted land use changes that improve housing and economic opportunities for residents and
businesses and achieve City fiscal and environmental objectives.
Policy 5.1: Encourage revitalization of Garvey Avenue east of the SCE easement by promoting
mixed-use development that integrates commercial uses with higher-density multiple-family
residential uses.
Policy 5.2: Encourage revitalization of the San Gabriel Boulevard corridor south of Hellman Avenue
to Park Street and then again south of the SCE easement to Rush Street by promoting mixed-use
development that integrates light industrial and office/business park uses.
Policy 5.3: Preserve the established Central Business District along Valley Boulevard, and establish
opportunities for large commercial and residential mixed-use developments.
Policy 5.4: Establish a specific plan to create a “downtown” Rosemead between Walnut Grove
Avenue and Rosemead Boulevard.
Policy 5.5: Continue to support development of Rosemead Place as a commercial center, placing
emphasis on improved freeway access and visibility and high-quality landscaping design.
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Policy 5.6: Require that future commercial projects adjacent to the San Bernardino Freeway, south
of Marshall Street, be developed in a manner that:
• complements established commercial uses;
• capitalizes on the high visibility provided by the adjacent freeway through high quality
design and signage; and
• incorporates the highest construction standards possible.
Policy 5.7: Encourage development of high quality commercial or mixed-use center in the vicinity
of the intersection of Valley Boulevard and Temple City Boulevard.
Mixed-Use Overlay Zones
Table 1 provides a summary of both the maximum allowable as well as typical mixed-use build-out
potential as identified in the City’s Land Use Element.
Table 1: Summary of Mixed-Use Buildout Potential by Land Use Designation
Mixed-Use Residential/
Commercial (MRC)
Mixed-Use High Density
Residential/Commercial
(MHRC)
Mixed-Use Industrial/
Commercial (MIC)
Maximum DUs/Acre
or FAR
25-30 DU/Acre
1.6:1 FAR
40-60 DU/Acre
2.0:1 FAR
2.5:1 FAR
Typical DUs/Acre
or FAR
30 DU/Acre
1.6:1 FAR
48 DU/Acre
2.0:1 FAR
1.0:1 FAR
Housing Element
The 2014–2021 Housing Element provides for the identification and analysis of existing and projected
housing needs and articulates the City’s official strategies and programs for conserving and improving
existing affordable housing, providing adequate housing sites, assisting in the development of affordable
housing, and promoting equal housing opportunities. Of note, the Study Area contains several opportunity
sites, alternative sites, and vacant land that are intended to aid the City in meeting the low-income
housing needs of the community (refer to Exhibit 4 and Exhibit 5). Those low-income housing sites within
the Study Area include portions of Opportunity Area One identified as vacant, portions of Opportunity
Area Three B identified as an alternative site, and portions of Opportunity Area Five identified as an
opportunity site that is vacant.
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: Housing Inventory Sites (Housing Element (Oct. 2013): Appendix C)
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: Housing Inventory Sites (Housing Element (Oct. 2013): Appendix C)
Garvey Avenue Specific Plan
Relevant to this Study is the Garvey Avenue Specific Plan (GSP), adopted in February 2018. Opportunity
Areas One and Two are located just north of the GSP area. The GSP established a new community vision
for a mixed-use environment along one of the City’s primary corridors to better serve the surrounding
area and to create an attractive and convenient shopping and entertainment destination for local and
subregional residents. The community vision statement for the GSP area is:
To revitalize the Garvey Avenue corridor from a commercial/industrial area into a vibrant
commercial, residential, and mixed-use district, with a compliment of local and sub regional
serving retail, entertainment, and service businesses, office space, and community uses, all tied
together with public improvements that create a vibrant and enjoyable pedestrian environment.
As part of the GSP, new land use and development standards were established for those properties
located within the specific plan area. This included establishment of the Garvey Avenue Specific Plan
Incentivized Mixed-Use (GSP-MU) zoning district. The GSP-MU zoning district is intended to allow for
development of a wide range of uses, provide the greatest possible flexibility in development choices, and
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enable carefully integrated buildings with active ground-floor commercial uses in vertical and horizontal
orientations. Exhibit 6below portrays the zoning designations within the GSP area.
Table 2 (page 22) provides a cross comparison of key development standards between the City’s existing
mixed-use overlay zones and the GSP-MU zone within the GSP.
: GSP Zoning Map (Garvey Avenue Specific Plan (February 2018) – Figure 3.1)
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Zoning Code
The Zoning Code promotes growth of the City in an orderly manner, preserves and protects the integrity
and character of its residential neighborhoods, maintains vital areas for business activities and protects
the quality of life, enhances its visual character and avoids land use conflicts, creates a comprehensive
plan for which public services and infrastructure can be planned, and ensures that existing properties are
well maintained. Current zoning designations within the Study Area include:
Opportunity Area Current Zoning Code Designations
One (Del Mar Avenue) • Medium Commercial (C-3)
• Light Multiple Residential (R-2)
• Medium Multiple Residential (R-3)
• Planned Development (P-D)
Two (San Gabriel Avenue) • Medium Commercial (C-3)
Three A (Walnut Grove Avenue/Hellman Avenue) • Medium Commercial (C-3) with a Design
Overlay (D-O)
Three B (Valley Boulevard/Walnut Grove Avenue) • Medium Commercial (C-3) with a Design
Overlay (D-O)
• Regional Commercial (C-4) with a Design
Overlay
• Planned Development (P-D)
Four (Rosemead Boulevard/I-10) • Medium Commercial (C-3) with a Design
Overlay (D-O)
• Planned Development (P-D)
Five (Valley Boulevard/Temple City Boulevard) • Medium Commercial (C-3) with a Design
Overlay (D-O) and a Residential/Commercial
Mixed-Use Overlay (RC-MUDO)
In reviewing the locations of the above-mentioned zones on the City Zoning map (refer to Exhibit 7), it
became apparent that the Study Area is predominantly zoned for commercial-related uses. However,
several Planned Development designations are also associated with the opportunity areas. Moreover,
Opportunity Area Five specifically contains an existing mixed-use overlay, the Residential/Commercial
Mixed-Use Overlay (RC-MUDO). As noted in Chapter 17.28 – Overlay Zones of the Zoning Code, the
purpose of the RC-MUDO is:
…to provide opportunities for well-designed development projects that combine residential with
nonresidential uses, including office, retail, business services, personal services, public spaces and
uses, and other community amenities designated with the mixed-use land use designations in
the City of Rosemead General Plan, and consistent with the policy direction in the General Plan.
The intent of this overlay zone is to accomplish the following objectives:
1. Create a viable, walkable urban environment that encourages pedestrian activity and
reduces dependence on the automobile, through a streetscape that is connected, attractive,
safe and engaging.
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2. Provide complementary residential and commercial uses within walking distance of each
other.
3. Develop an overall urban design framework to ensure that the quality, appearance and
effects of buildings, improvements and uses are compatible with the City design criteria and
goals.
4. Create quality residential/commercial mixed-use development that maintains value through
buildings with architectural qualities that create attractive street scenes and enhance the
public realm.
5. Provide a variety of open space, including private, recreation areas and public open space
and parks.
6. Revitalize commercial corridors with residential/commercial mixed-use developments that
attract and encourage market-driven private investment.
7. Encourage parking solutions that are incentives for creative planning and sustainable
neighborhood design.
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: Zoning Map (dated February 2018)
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Existing Mixed-Use Overlay Zone Comparison
Table 2 provides a summary of key development standards for the existing mixed-use zoning designation
within the City in comparison to the Garvey Avenue Specific Plan. In addition to these summarized
standards, the Zoning Code also contains additional standards related to parking and loading, landscaping
and screening, and signage, among others that have not been identified here.
Table 2: Summary of Key Mixed-Use Standards
Zoning Code Garvey Avenue Specific Plan
Residential/Commercial Mixed-Use
Development Overlay
(RC-MUDO)
Incentivized Mixed-Use
(GSP-MU)
Maximum Density GP MRC Des.
25-30 du/ac
GP MHRC Des.
40-60 du/ac
W/o Community Benefits
25 du/ac
With Community Benefits
80 du/ac
Floor Area Ratio
(FAR)
GP MRC Des.
1.6:1
GP MHRC Des.
2.0:1
W/o Community Benefits
Comm - 0.75 max.; MU – 1.6 max.
With Community Benefits
Comm – 1.0 max.; MU – 3.0 max.
Land Use Mix GP MRC Des.
67% Res, 33% Comm.
GP MHRC Des.
75% Res., 25% Comm.
W/o Community Benefits
65% Res., 35% Non-Res.
With Community Benefits
70% Res., 30% Non-Res.
Maximum Height GP MRC Des.
45 ft., three stories
GP MHRC Des.
55 ft., four stories
75 ft.
Ground Floor Height 8 ft. min. Non-Res. – 14-ft. min.
Res. – 10-ft. min.
Setbacks
• Front • 12-feet from back of curb
• On Arterial:
0 min., 3 ft. max.
• Non-Res.:
No min.
• Res.:
10 ft. min.
• Side • Interior:
May be 0 but otherwise shall be
10-ft. min;
Adj. to Res., park, or school: 10-ft.
min.
• Side Street:
No min. unless abutting res., park,
or school – 20-ft. min. within 25-ft.
of property line.
• Adj. to Non-Res.:
No min.
• Adj. to Res., park, or school:
10-ft. min.
• Adj. to R-1 or R-2 Zone:
10-ft min. from property line,
increasing at a 60-degree angle.
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Zoning Code Garvey Avenue Specific Plan
• Rear • 10-ft. min. if abutting res., park, or
school; otherwise no min.
• Adj. to Res., park, or school:
20-ft. min.; otherwise no min.
• Adj. to R-1 or R-2 Zone: 25-ft from
property line, increasing at a 60-
degree angle.
Variable Height Setbacks Adjacent to R-1 or R-2 Zoning District
• Front • When the RC-MUDO zone street
frontage is opposite R-1 or R-2
zones, the inclined plane set forth
in subsection (a)(1) of this section
shall be used, commencing at a
height of 35 feet and located 20
feet from the front property line
facing the residential zone.
• n/a
• Side • Establishing a height 15 feet above
the finished grade of adjacent
residential property line and
located 10 feet from the side
property line, a 60-degree incline
plane is projected that establishes
the height limitation.
• All res., non-res., and mixed-use
developments shall have a side
variable height when abutting R-1
or R-2 zones. This specifies a
setback minimum of 10 feet from
the property line, with the height
increasing at a 60 degree angle
from that point.
• Rear • Establishing a height 15 feet above
the finished grade of adjacent
residential property line and
located 25 feet from the rear
property line, a 60-degree incline
plane is projected that establishes
the height limitation.
• All res., non-res., and mixed-use
developments shall have a side
variable height when abutting R-1
or R-2 zones. This specifies a
setback minimum of 25 feet from
the property line, with the height
increasing at a 60 degree angle
from that point.
Mixed-Use Overlay Zone Comparison
The following tables provide a summary of key mixed-use development standards from cities located in
the vicinity of the City of Rosemead. These key mixed-use development standards are intended to provide
a baseline understanding of what other municipalities are looking for when considering mixed-use
developments. These cities include Alhambra, El Monte, San Gabriel, and Temple City.
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Table 3: City of Alhambra – Alhambra Pacific Plaza and Alhambra Place Specific Plans
Alhambra Pacific Plaza1 Alhambra Place2
Height Min: n/a
Max: 65 feet
Min: n/a
Max: 75 feet
Density Min: n/a
Max: 72 du/ac
Min: n/a
Max: 43 du/ac
F.A.R. Min: n/a
Max: 2.5
Min: n/a
Max: Res. - 0.8 / Comm. – 0.3
Good Neighbor Guidance provided in Design Guidelines. Guidance provided in Design Guidelines.
1 Alhambra Pacific Plaza Specific Plan; 2 Alhambra Place Specific Plan
Table 4: City of El Monte - Mixed/Multiuse Zone
Mixed/Multiuse Zone (MMU)1
Height Min: n/a
Max: 4-stories/50 ft
Density Min: 25 du/ac
Max: 35 du/ac
F.A.R. Min: n/a
Max: 1.0
Good Neighbor Distance between buildings: 10 ft with increase of 5 ft for every 10 ft of height, or
fraction thereof, above 25 ft.
1 Chapter 17.45 - Mixed/Multiuse Zone
Table 5: City of San Gabriel – Valley Boulevard Specific Plan (VBSP)1
Mixed-Use Transit
Oriented (MU-T)
Mixed-Use Corridor
(MU-C)
Mixed-Use Corridor/
Residential (MU-C/R)
Height
>50,000 square feet of retail – 5 stories (67 ft);
<50,000 square feet of retail – 4 stories;
Adjoining Single-Family zone - 3 stories.
Density 20 to 40 du/ac 20 to 40 du/ac 20 to 40 du/ac
F.A.R. 3.0 with max of 0.7 for
nonresidential uses
2.0 with a maximum of 0.7
for nonresidential uses
2.0 with maximum 0.7 for
nonresidential uses
Good Neighbor Minimum 15-foot setback required next to residential zones.
1 VBSP Note: Standards vary if residential or retail/office only.
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Table 6: City of Temple City - Mixed-Use Districts1
Mixed-Use Low (MU-L) Mixed-Use Medium (MU-M)
Height Min: n/a
Max: 3 stories/45 ft
Min: n/a
Max: 4 stories/60 ft
Density Min: 10 du/ac
Max: 20 du/ac
Min: 20 du/ac
Max: 40 du/ac
F.A.R. Min: none
Max: 1.5
Min: 1.5
Max: 2.0
Good Neighbor Minimum 15-foot setback required adjacent to residential zones.
1 Mixed-Use Districts Note: Standards differ if Multi-Family only or Commercial only.
Mixed-Use Design Guidelines
Mixed-Use Design Guidelines were adopted by the City on September 25, 2007. They are intended to
serve as a guide to ensure that mixed-use developments are designed in a sensitive manner, are respectful
of adjacent properties, and exhibit the degree of architectural and design integrity desired by the City.
The design guidelines touch on several individual design topics including:
• Public Realm and the Pedestrian Environment
• Site Design
• Building Design
• Building Height
• Storefront
• Lighting
• Common Areas/Open Space
• Compatibility with Adjacent Properties
• Parking
• Access
As noted in both the City’s General Plan and the Mixed-Use Design Guidelines documents, all mixed-use
developments within the City are subject to adherence to and compliance with these design guidelines.
However, it should be noted that while design guidelines provide a baseline framework for ensuring
quality design in new developments, they are generally subjective in nature and may be interpreted
differently by various individuals. Moreover, several hybrid development standards exist within the
Mixed-Use Design Guidelines, which may be confusing or misconstrued by developers, property owners,
and the community.
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III. Mobility Review
The City’s General Plan Circulation Element identifies transportation and mobility related components as
well as relevant goals and policies for the Study Area. The following section provides a high-level overview
of the existing transportation and mobility related components within the Study Area as it relates to the
individual opportunity areas. Refer to Exhibit 8 for the location of the following Roadway Classifications
within the City.
Roadway Classifications
Freeways
Interstate 10, or the San Bernardino Freeway, is a six-lane freeway with high-occupancy vehicle lanes and
high-speed bus lanes in both directions. It bisects the commercial/retail areas of the City and provides
direct access to nearby Interstate 710 and Interstate 605, with direct connection to the City of Los Angeles.
Interstate 10 is adjacent to or near Opportunity Areas One, Two, Three A, and Four.
Major Arterials
Major arterials connect traffic from minor arterials and collectors to other parts of the City and nearby
freeway interchanges. Relevant to the Study Area, San Gabriel Boulevard, Valley Boulevard, and
Rosemead Boulevard are all classified as major arterials and are directly adjacent to Opportunity Areas
Two, Three B, Four, and Five.
Minor Arterials
Minor arterials carry traffic between local streets and major arterials. Relevant to the Study Area, Del Mar
Avenue, Walnut Grove Avenue, and Temple City Boulevard are all classified as minor arterials and are
directly adjacent to Opportunity Areas One, Three A, Three B, and Five.
Collector Roads
Collector roads primarily function to connect a neighborhood area with nearby arterials. Relevant to the
Study Area, Hellman Avenue is classified as a collector road and is directly adjacent to Opportunity Areas
One, Two, and Three A.
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: Circulation Plan for Major Roadways (Circulation Element (Feb. 2010)
– Figure 3-4)
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Transit Network
METRO
METRO is the primary public transit provider within the City. It operates a number of transit lines
throughout the City that service the larger San Gabriel Valley while also providing connections to regional
transit facilities, such as the El Monte Regional Bus Transfer Station. The El Monte Station, a part of the
METRO Silver Line, provides express service to regional destinations along Interstate 10 Freeway such as
San Pedro and Downtown Los Angeles.
METRO bus lines that service roadways adjacent to the Study Area include the following Local or Limited
and Express lines (refer to Exhibit 9):
• Opportunity Area One (Del Mar Avenue)
o Line 487 (Express)
o Line 489 (Express)
• Opportunity Area Two (San Gabriel Boulevard)
o Line 176 (Local or Limited)
• Opportunity Area Three A (Walnut Grove Avenue/Hellman Avenue)
o Line RX (Express)
• Opportunity Area Three B (Valley Boulevard/Walnut Grove Avenue)
o Line 76 (Local or Limited) – peak, weekday headways under 15 minutes.
o Line RX (Express)
• Opportunity Area Four (Rosemead Boulevard/I-10)
o Line 266 (Local or Limited)
• Opportunity Area Five (Valley Boulevard/Temple City Boulevard)
o Line 76 (Local or Limited) – peak, weekday headways under 15 minutes.
o Line 267 (Local or Limited)
Background Research and Analysis Report
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: METRO San Gabriel Valley Regional System Map (2017)
August 20, 2020
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Other Transit Providers
A number of other transit providers operate within or through the City. These include both the Rosemead
Explorer as well as the Montebello Bus Lines, as further described below.
Rosemead Explorer
The Rosemead Explorer offers affordable transportation with flexible hours for local residents. It operates
on a fixed-route system and is funded by the City through Proposition A transportation funding. The City
also provides an affordable Dial-A-Ride component for residents who are 55 years or older or have
permanent disabilities, with the option to travel anywhere within a 5-mile radius of the City.
The Rosemead Explorer fixed-route system currently operates along roadways adjacent to all of the
identified Opportunity Areas (refer to Exhibit 10). These include Del Mar Avenue, San Gabriel Boulevard,
Hellman Avenue, Walnut Grove Avenue, Valley Boulevard, Temple City Boulevard, and Rosemead
Boulevard.
: Rosemead Explorer Map (Jan. 2013)
Background Research and Analysis Report
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Montebello Bus Lines
Montebello Bus Lines provides transportation services to residents of Montebello and neighboring cities,
including the City of Rosemead. Line 20 is a local route that operates between the City of San Gabriel and
the southern boundary of the City of Montebello along San Gabriel Boulevard and provides weekday and
weekend service with headways less than 15 minutes (refer to Exhibit 11).
: Montebello Bus Line 20 Map (2020)
August 20, 2020
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Bikeway Network
The General Plan Circulation Element identifies potential bicycle infrastructure related improvements
along cross-town routes that overlap with major roadways. As seen in Exhibit 12 below, potential on-
street, Class II bicycle facilities relevant to the Study Area include Del Mar Avenue, Walnut Grove, and
Valley Boulevard.
: Existing and Potential Future Bicycle Routes Map (Circulation Element (Feb. 2010)
– Figure 3-6)
Background Research and Analysis Report
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Pedestrian Network
While the individual opportunity areas are geographically disconnected, it is worth mentioning the
existing pedestrian network conditions within the vicinity of the individual areas. Existing conditions were
assessed at a high-level utilizing Google Street View, dated February 2019.
• Opportunity Area One
(Del Mar Avenue)
o Existing sidewalk network in place, generally 4 to 5
feet in width, with overhead powerlines limiting
sidewalk width in some locations.
o Tree canopy limited with some sidewalk areas
containing newer street tree plantings.
o Numerous driveway cuts.
o Limited pedestrian amenities.
o Streetlights present on all streets, with some gaps.
Looking south on Del Mar Avenue
• Opportunity Area Two
(San Gabriel Boulevard)
o Existing sidewalk network in place, generally 4 to 5
feet in width, with some areas appearing as wide as 6
feet.
o More mature and continuous street tree canopy,
some pockets with no trees.
o Numerous driveway cuts.
o No overhead power lines.
o Newer bus shelters with pedestrian amenities. Area
generally has limited pedestrian amenities.
o Streetlights present on all streets.
Looking south on San Gabriel Boulevard
• Opportunity Area Three A
(Walnut Grove/Hellman Avenue)
o Existing sidewalk network in place, generally 4 to 5
feet in width, with overhead powerlines limiting
sidewalk width in some locations.
o No street trees.
o Newer bus shelters with pedestrian amenities.
o No streetlights in immediate vicinity.
Looking west on Hellman Avenue
August 20, 2020
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• Opportunity Area Three B
(Valley Boulevard/Walnut Grove Avenue)
o Existing sidewalk network in place, generally 4 to 5
feet in width, with overhead powerlines and ground
mounted electrical equipment limiting sidewalk
width in some locations.
o Continuous and newer street tree plantings in some
areas, some pockets with no trees.
o Numerous driveway cuts.
o Newer bus shelters with pedestrian amenities. Area
generally has limited pedestrian amenities.
o Streetlights present in most areas, noticeable gaps.
Looking east on Valley Boulevard
• Opportunity Area Four
(Rosemead Boulevard/I-10)
o Existing sidewalk network in place, generally 4 to 5
feet in width, with some areas as narrow as 3-feet.
Overhead powerlines and ground mounted
electrical equipment limiting sidewalk width in some
locations.
o Little to no tree canopy.
o Portions with numerous driveway cuts.
o Newer bus shelters with pedestrian amenities. Area
generally has limited pedestrian amenities.
o Streetlights present on all streets, with some gaps.
Looking south on Rosemead Boulevard
• Opportunity Area Five
(Valley Boulevard/Temple City Boulevard)
o Existing sidewalk network in place, generally 4 to 5
feet in width, with some areas appearing as wide as
6 feet. Overhead powerlines and ground mounted
electrical equipment limiting sidewalk width in
some locations.
o Tree canopy limited with some sidewalk areas
containing newer street tree plantings, with pockets
of more mature trees.
o Portions with numerous driveway cuts.
o Newer bus shelters with pedestrian amenities. Area
generally has limited pedestrian amenities.
o Streetlights present on all streets. Looking east on Valley Boulevard
Background Research and Analysis Report
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IV. Infrastructure Review
Existing Utility Facilities
As part of this background report, a high-level analysis of the City’s existing infrastructure conditions was
undertaken in relation to the individual opportunity areas. This includes sewer, storm drain, water,
electric, and gas utilities.
The six individual opportunity areas contain a wide range of existing land uses, including single-family and
multi-family residential, commercial/retail, restaurant, hospitality, office, and light industrial, among
others. As part of future entitlement project submittals to the City, applicants will need to coordinate with
the various utility providers to ensure adequate infrastructure capacity is available to support their
individual projects.
Existing Studies References
The following infrastructure-related documentation was reviewed as part of this background report
analysis:
• Los Angeles County Sewer Maps dated 09/18/2012, 06/19/2017, 09/18/2012
• Los Angeles County Flood Control District Storm Drain Maps dated 07/1963
• City of Rosemead Storm Drain Improvements dated 04/15/1992, 07/18/1994, 06/15/1993
Sewer Infrastructure Overview
The following is a high-level overview of existing sewer infrastructure conditions located adjacent to
individual opportunity areas. Sewer service in the City is provided by Consolidated Sewer Maintenance
District of Los Angeles, while the infrastructure is maintained by the Los Angeles County Department of
Public Works.
Opportunity Area One
Along Del Mar Avenue, a 12” vitrified clay pipe
(VCP) sanitary sewer line slopes south to the
intersection of Del Mar Avenue and Emerson
Place, where it turns east along Emerson Place.
Also along Del Mar Avenue, another 12” VCP
sanitary sewer line slopes from Garvey Avenue
north to Emerson Place, where it joins the
northerly pipe and flows east on Emerson Place.
Los Angeles County Sewer Network (date 09/18/2012)
August 20, 2020
Page 36 of 55
Opportunity Area Two
Along San Gabriel Boulevard starting at Hellman
Avenue and continuing beyond Emerson Place,
an 8” VCP sanitary sewer line slopes south on
San Gabriel Boulevard.
Opportunity Area Three A
At the intersection of Walnut Grove Avenue and
Hellman Avenue, there are two sewer lines.
Along Hellman Avenue west of Walnut Grove
Avenue, an 8” VCP sanitary sewer line slopes
east and then turns south down Walnut Grove
Avenue. East of Walnut Grove Avenue, an 8”
VCP sanitary sewer line slopes south along
Ramona Boulevard before turning west onto
Hellman Avenue. This line continues west along
Hellman Avenue before turning south onto
Walnut Grove Avenue.
Los Angeles County Sewer Network (date 09/18/2012)
Los Angeles County Sewer Network (date 09/18/2012)
Background Research and Analysis Report
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Opportunity Area Three B
Along Walnut Grove Avenue, an 8” VCP sanitary
sewer line slopes north from the Rubio Wash
before turning east onto Valley Boulevard.
Along Walnut Grove Avenue, an 8” VCP sanitary
sewer line flows south to Valley Boulevard
where it connects into the 8” VCP sanitary
sewer line that flows east.
Opportunity Area Four
Along Marshall Street, a 12” VCP sanitary sewer
line slopes east to Rosemead Boulevard where
it connects into another 12” VCP sanitary sewer
line that slopes south along Rosemead
Boulevard on the westerly side of the street.
Along the easterly side of Rosemead Boulevard,
another 8” VCP sanitary sewer line slopes south.
Los Angeles County Sewer Network (date 09/18/2012)
Los Angeles County Sewer Network (date 09/18/2012)
August 20, 2020
Page 38 of 55
Opportunity Area Five
Along Valley Boulevard, an 8” VCP sanitary
sewer line slopes west to Temple City
Boulevard. Along Temple City Boulevard, a 15”
trunk sewer that is maintained by the Sanitation
District. This line slopes south as well.
Storm Drain System Overview
The following is an overview of existing storm drain infrastructure conditions located adjacent to
individual opportunity areas. Storm drain infrastructure in the City is provided by the Los Angeles County
Flood Control District. Maintenance of the storm drain infrastructure is provided by the City of Rosemead
or the Los Angeles County Flood Control District. Maintenance responsibility is noted in each Opportunity
Area.
Opportunity Area One
Along Del Mar Avenue, a 33” reinforced oncrete
pipe (RCP) storm drain slopes south from
Hellman Avenue to just north of Emerson Place,
where it increases to a 54” RCP as it connects to
the storm drain on Emerson Place.
Just south of the intersection of Del Mar Avenue
and Whitmore Street, a 48” RCP storm drain
runs along Del Mar Avenue north to Emerson
Place, where it joins with the 54” RCP storm
drain on Emerson Place that runs east to the
Alhambra Wash. The storm drain Infrastructure
in this opportunity area is owned and
maintained by the Los Angeles County Flood
Control District.
Los Angeles County Sewer Network (date 09/18/2012)
L.A. County Storm Drain Network (date 06/15/1993)
Background Research and Analysis Report
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Opportunity Area Two
Beginning at the intersection of Hellman
Avenue and San Gabriel Boulevard, a 24” RCP
storm drain runs south along San Gabriel
Boulevard. The 24” RCP line continues until
approximately 280 feet south of the inter-
section of San Gabriel Boulevard and Dorothy
Avenue, where it increases to a 30” RCP as it
continues south along San Gabriel Boulevard
until discharging into the Alhambra Wash. The
storm drain infrastructure in this opportunity
area is owned and maintained by the Los
Angeles County Flood Control District.
Opportunity Area Three A
Walnut Grove Avenue and Hellman Avenue do
not have storm drain facilities in the
intersection. The closest storm drain facilities
are located to the west at the intersection of
Rockhold Avenue and Hellman Avenue. A 42”
RCP storm drain runs south on Rockhold
Avenue, west on Hellman Avenue, and
continues south on Rockhold Avenue until it
discharges into the Alhambra Wash. The storm
drain infrastructure adjacent to this opportunity
area is owned and maintained by the Los
Angeles County Flood Control District.
Los Angeles County Storm Drain Network (date 06/15/1993)
Los Angeles County Storm Drain Network (date June 1965)
August 20, 2020
Page 40 of 55
Opportunity Area Three B
At the intersection of Valley Boulevard and
Walnut Grove Avenue, there is a 48” RCP storm
drain on the west side of the street coming from
the north. The 48” RCP continues south through
the intersection to its termination point into the
Rubio Wash. This storm drain facility is owned
and maintained by the Los Angeles County Flood
Control District. At the intersection of Walnut
Grove Avenue and Valley Boulevard are two
catch basins on the northwest corner and two
catch basins on the northeast corner. These
catch basins are owned and operated by the City
of Rosemead. They convey runoff into a 27” RCP
storm drain that slopes south along the east side
of Walnut Grove Avenue and terminates into the
Rubio Wash. Coming from the east along Valley
Boulevard, a 27” RCP slopes west and connects
into the 27” RCP at the intersection of Walnut
Grove Avenue and Valley Boulevard. In the
image below, the blue lines denote facilities
owned and maintained by the Los Angeles
County Flood Control District, and the purple
lines denote facilities maintained by the City of
Rosemead.
Opportunity Area Four
Rosemead Boulevard between Marshall Street
and the I-10 Freeway does not have storm drain
facilities. The closest storm drain facilities are
on Rosemead Boulevard north of Marshall
Street. The 30” RCP line slopes from the north
on Rosemead down to Marshall Street where it
turns into a 48” RCP and slopes west onto
Marshall Street. The storm drain infrastructure
adjacent to this opportunity area is owned and
maintained by the Los Angeles County Flood
Control District.
L.A. Storm Drain Network (date 04/12/1993)
L.A. Storm Drain Network (date 07/18/1994)
Background Research and Analysis Report
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Opportunity Area Five
At the intersection of Temple City Boulevard
and Valley Boulevard is a 36” RCP storm drain
on Temple City Boulevard that slopes south to
Valley Boulevard where it is intercepted by a
90” RCP from the west, sloping east. The 90”
RCP terminates east of the intersection at the
Eaton Wash. The storm drain infrastructure
adjacent to this opportunity area is owned and
maintained by the Los Angeles County Flood
Control District.
Water Distribution System Overview
The following is an overview of existing water infrastructure conditions located adjacent to individual
opportunity areas. Water service in the City is provided and maintained by a number of individual water
companies including Golden State Water Company, San Gabriel County Water District, San Gabriel Valley
Water District, California American Water Company, and Amarillo Mutual Water Company.
Opportunity Area One
Del Mar Avenue has a 6” water main that runs along the west side of the street. Water lines branch off
this line onto Hellman Avenue to the west along the the north side of the street as well as two additional
lines that branch off onto Hellman Avenue to the east along the south side of the street. At the
intersection of Hershey Avenue, a 6” line branches off the 6” line in Del Mar Avenue and runs along the
south side of the street. At Dorothy Avenue, a 6” branch runs east on Dorothy on the north side of the
street. All of these water lines are owned and operated by Golden State Water Company.
Opportunity Area Two
San Gabriel Boulevard has two water mains that are owned and maintained by two different water
purveyors. Golden State Water Company has a 6” water main that runs from the south on the east side
of the street until Emerson Place, where it turns west crossing San Gabriel Boulevard and continues west
into Emerson Place along the southern portion of the road. The other water line on San Gabriel Boulevard
is owned and operated by the San Gabriel County Water District. This 8” main runs north along San Gabriel
Boulevard on the west side of the street. At the intersection of Hellman Avenue and San Gabriel
Boulevard, a 6” branch comes off this line and runs west on Hellman Avenue.
Opportunity Area Three A
At the intersection of Hellman Avenue and Walnut Grove Avenue, a 6” water main owned and operated
by the San Gabriel County Water District runs along the south edge of the road. There is also an 8” water
line that runs along the north side of the street and is owned and operated by Golden State Water
Company.
L.A. Storm Drain Network (date 01/29/1968)
August 20, 2020
Page 42 of 55
Opportunity Area Three B
Walnut Grove Avenue has two water mains that run north/south. On the east side of Walnut Grove
Avenue is a 6” water line that is owned and operated by the California American Water Company. This
line continues north of Valley Boulevard, but an 8” line branches off onto Valley Boulevard and runs on
the south edge of the street. On the west side of Walnut Grove Avenue is an 8” line that runs north to
Valley Boulevard where it branches into an 8” line and a 6” line, and runs west on Valley Boulevard on
both the north and south edges of the street. These lines are owned and operated by the San Gabriel
County Water District.
Opportunity Area Four
Marshall Street has a 6” water main that crosses Rosemead Boulevard. At this intersection, Rosemead
Boulevard has a 12” water main that runs north/south along the east side of the road. Both water lines
are owned and maintained by California American Water Company.
Opportunity Area Five
At the intersection of Temple City Boulevard and Valley Boulevard, a 6” water line runs along the west
side of the street. Two lines branch off this line at the intersection. A 12” water line branches off on the
southwest corner of the intersection and continues west on the south end of Valley Boulevard. An 8”
water line branches off on the northeast corner of the intersection and continues east on the north end
of Valley Boulevard. At the intersection of Strang Avenue and Valley Boulevard, this line branches farther
with a 6” line that runs south on Strang Avenue on the east side of the street. These lines are owned and
maintained by California American Water Company.
Electrical Services Infrastructure Overview
The following is a high-level overview of existing power infrastructure conditions located adjacent to
individual opportunity areas. Power service in the City is owned, operated, and maintained by Southern
California Edison.
Opportunity Area One
Along Del Mar Avenue, overhead power lines run along the east and west sides of the street within the
City right of way.
Opportunity Area Two
San Gabriel Boulevard has underground dry utilities for the area between Hellman Avenue and Emerson
Place.
Opportunity Area Three A
At the intersection of Walnut Grove Avenue and Hellman Avenue, overhead power lines run along the
south edge of Hellman Avenue. North of Hellman Avenue on Walnut Grove Avenue, the electrical facilities
are underground and south of Hellman Avenue. On Walnut Grove Avenue, the overhead power lines run
along the west side of the road within the City right of way.
Background Research and Analysis Report
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Opportunity Area Three B
North of Valley Boulevard, overhead power lines run along the west side of Walnut Grove Avenue. There
are no overhead powerlines crossing Valley Boulevard within the intersection. Slightly south of the
intersection on Walnut Grove Avenue, overhead powerlines run along the west side of the road. Within
the study area, the electrical facilities on Valley Boulevard are underground.
Opportunity Area Four
Along Rosemead Boulevard, south of Marshall Street, overhead power lines run along the east side of the
street within the City right of way. North of Marshall Street along Rosemead Boulevard, there are
overhead power lines within the City right of way on the east and west sides of the street. The electrical
facilities in Marshall Street are underground.
Opportunity Area Five
At the intersection of Valley Boulevard and Temple City Boulevard, electrical utilities cross the intersection
underground. North of the intersection on Temple City Boulevard, there are overhead power lines within
the City right of way. Along Valley Boulevard, the electrical utilities are underground.
Gas Services Infrastructure Overview
The following is a high-level overview of existing gas infrastructure conditions located adjacent to
individual opportunity areas. Gas service in the City is owned, operated, and maintained by the Southern
California Gas Company.
Opportunity Area One
Hellman Avenue has a 6” gas main line that runs from the west to Del Mar Avenue and then proceeds
south on Del Mar Avenue on the east side of the street. Two-inch laterals stem from this line east on
Hellman Avenue, Hershey Avenue, Dorothy Avenue, and Whitmore Street. Along Del Mar Avenue just
south of Dorothy Avenue, a lateral that jogs west, north on Del Mar Avenue, and west down the alley.
Opportunity Area Two
San Gabriel Boulevard has two gas lines that run along the east and west edges of the road. The east side
of the road has a 2” gas line, and the west side of the road has a 4” gas line. The 2” gas line on the east
side of the road has a 2” branch that goes east on Hellman Avenue. The 4” gas line has 2” laterals that
branch off to the west on Whitmore Street and Emerson Place.
Opportunity Area Three A
At the intersection of Walnut Grove Avenue and Hellman Avenue, a 6” gas line runs along the south edge
of Hellman Avenue.
Opportunity Area Three B
At the intersection of Valley Boulevard and Walnut Grove Avenue, a 2” gas line runs along Valley
Boulevard on the southern edge of the road. This line has 2” branches that run along Walnut Grove
Avenue for a very short distance north and south.
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Opportunity Area Four
At the intersection of Marshall Street and Rosemead Boulevard, two 2” gas lines run north south along
the western and eastern edges of Rosemead Boulevard, one line on each side of the street. Marshall Street
has a 2” gas line that runs east west on the north side of the street.
Opportunity Area Five
Valley Boulevard has a 4” gas line that runs along the north side of the street. At Strang Avenue, the line
crosses Valley Boulevard and increases to an 8” line as it continues southeast on Valley Boulevard. At the
intersection of Valley Boulevard and Temple City Boulevard, a 6” gas line branches off the 4” line in Valley
Boulevard and goes north on Temple City Boulevard on the east edge of the road. Also, at the intersection
of Valley Boulevard and Temple City Boulevard, a 3” lateral branches off onto Temple City Boulevard and
goes south on the west side of the road.
Background Research and Analysis Report
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V. Development Review Process
Zoning Code provisions, governing development review and other administrative matters create the
procedural environment through which the City can achieve the goals and policies laid out in its General
Plan and other adopted policies. At their best, development review provisions can promote the types of
development a community wants by providing a clear, predictable path to project approval; conversely,
vague review processes with unclear requirements can cause developers a high level of anxiety, frustrate
community residents, and severely dampen a City’s ability to attract desirable growth.
Generally, prospective investors value three central qualities in any Zoning Code: 1) certainty in the
requirements and structure of the review process, 2) built-in flexibility to adjust development standards
to the needs of individual projects, and 3) opportunities to request relief from requirements that
constitute a substantial burden. Certainty about the types of development they can expect to see in their
community is also important to residents.
Existing Procedures
Section 17.28 – Overlay Zones of the Zoning Code identifies the purposes and procedures for development
projects with an overlay zone designation. These overlay designations include the Design Overlay (D-O)
and the Residential/Commercial Mixed-Use Development Overlay (RC-MUDO) zones.
Projects within the RC-MUDO zone are processed according to the procedures outlined within the D-O
zone. As part of these requirements, applicants are required to submit a precise plan of design covering
the parcel(s) proposed to be developed, as well as an application for design review. Each project is
reviewed based upon the relevant design standards in the Zoning Code’s Design Review criteria outlined
in Chapter 17.28(B)(3), as well as any applicable design guidelines—in this case, the Mixed-Use Design
Guidelines. After the Community Development Director determines that a project conforms to the
provisions of Chapter 17.28 and any adopted City Council policies, the Community Development Director
endorses the project in writing to the Planning Commission for them to approve, conditionally approve,
or deny.
For projects that require approval by the Planning Commission, the following findings must be made:
1. The plans indicate proper consideration for the relationship between the proposed building and
site developments that exist or have been approved for the general neighborhood;
2. The plan for the proposed building and site development indicates the manner in which the
proposed development and the surrounding properties are protected against noise, vibrations
and other factors that may have an adverse effect on the environment, and the manner of
screening mechanical equipment, trash, storage, and loading areas;
3. The proposed building or site development is not, in its exterior design and appearance, so at
variance with the appearance of other existing buildings or site developments in the
neighborhood as to cause the nature of the local environment to materially depreciate in
appearance and value;
4. The proposed building or structure is in harmony with the proposed developments on land in the
general area, especially in those instances where buildings are within or adjacent to land shown
on the General Plan as being part of the Civic Center or in public or educational use, or are within
August 20, 2020
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or immediately adjacent to land included within any precise plan that indicates building shape,
size or style;
5. The proposed development is in conformity with the standards of this Code and other applicable
ordinances insofar as the location and appearance of the buildings and the structures are
involved; and
6. The site plan and the design of the buildings, parking areas, signs, landscaping, luminaires, and
other site features indicate that proper consideration has been given to both the functional
aspects of the site development, such as automobile and pedestrian circulation, and the visual
effect of the development when viewed from the public streets.
Background Research and Analysis Report
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VI. Recent State Legislation
As California’s housing supply and homelessness crisis continues, the State Legislature has for the past
several years passed numerous pieces of housing legislation in each legislative session. Most recent
legislation is aimed at approving housing projects and reducing barriers to the creation of housing.
Housing Developments
SB330, the Housing Crisis Act, limits cities’ and counties’ ability to regulate housing developments,
including residential development, mixed-use development with two-thirds of the square footage for
residential, and transitional and supportive housing. It creates a preliminary application process where
existing objective development standards are those in effect when a preliminary application is submitted,
establishes time frames for when a historic determination and project approval must be made, and limits
the number of hearings.
A number of provisions address housing density. General Plan and zoning densities may not be reduced
below 2018 numbers. This includes changes to development standards that lessen intensity of housing.
Zoning may not be changed to remove housing, and there may be no on-site reduction in the number of
units.
The Housing Crisis Act prohibits local jurisdictions from imposing or enforcing new subjective design
standards.
Affordable Housing
The State Density Bonus Law (California Government Code §65915) allows for density bonuses and
additional incentives for affordable housing. California government Code §65913 expedites state and local
residential development, assuring that local agencies can sufficiently zone for affordable housing, and
encourage and incentivize affordable housing. Recent changes to the State Density Bonus Law increase
the density bonus and other concessions for 100 percent affordable housing projects. Housing projects
with a minimum of 80 percent low income units and up to 20 percent moderate income units are eligible
for a density bonus of up to 80 percent the maximum allowed density or a density bonus with no limit if
located within one-half mile of a major transit stop and qualify for at least four concessions, reduced
parking requirements, and a height increase of up to 3 stories or 33 feet when located within one-half
mile of a major transit stop.
Objective Design Standards
The State of California has adopted recent legislation to address the statewide housing shortage and now
requires a streamlined and ministerial process for specific residential developments, including multi-unit
residential development and mixed-use development with two-thirds of the square footage for residential
use. These types of projects must be reviewed against existing objective standards rather than through a
discretionary entitlement process. An Objective Standard per state law is defined as:
One that involves no personal or subjective judgement by a public official and uniformly
verifiable by reference to an external and uniform benchmark or criterion available and
knowable by both the development applicant and the public official prior to submittal.
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VII. Conclusion
This Background Research and Analysis Report will inform development of the Freeway Corridor Mixed-
Use Overlay Zone. Feedback and comments received from the Stakeholder Interviews have been
integrated into Appendix A of this document to capture local insights on mixed-use developments in the
City, such as what is and is not working with the existing mixed-use zoning overlay, in order to better
inform this effort.
It should be mentioned that a number of common themes emerged as part of the literature review related
to the Study Area. These common themes include:
• Small, individual parcels with likely individual ownership;
• Generally lower, one- and two-story building heights;
• Varying pedestrian environment conditions;
• Adjacency to existing single-family residences;
• Building stock generally older in nature, with some appearing to have upkeep and maintenance
concerns; and
• Ongoing vacancy issues noted in 2019 Google Street View review.
The future Freeway Corridor Mixed-Use Overlay Zone will need to consider these existing Study Area
conditions as it is developed and provide creative solutions to ensure that future mixed-use development
is realistic, viable, and context sensitive. Moreover, to ensure the City continues to get projects that meet
the expected level of character and design, objective design standards will need to be crafted, rather than
relying on the existing Mixed-Use Guidelines.
Background Research and Analysis Report
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VIII. Appendices
A. Stakeholder Interviews Summary
Introduction
As part of the initial evaluation of the City’s existing mixed-use development standards and overlay
districts, the consultant team conducted a series of interviews with a range of participants familiar with
the City of Rosemead and its current development review processes. These interviews were conducted to
understand the concerns and issues associated with development and adoption of a new mixed-use
overlay zone designation. The stakeholders interviewed encompassed a variety of individuals, which
included landowners, developers, architects, real estate professionals, business owners, and institutional
representatives.
The City’s consultant team conducted eight 30- to 45-minute-long virtual stakeholder interview sessions
via Lifesize on June 4, 2020, June 18, 2020, and June 25, 2020. A total of 11 interviewees in groups of one
to two people were interviewed. The confidential interviews were conduct by the consultant team—Diane
Bathgate and Matt Ottoson of RRM Design Group. To encourage candid responses, no City staff members
were present during the interviews. Participants were asked a series of questions regarding overarching
goals and concerns as well as specific topics related to mixed-use developments. Individuals attending
were given the opportunity to discuss issues of significance to them that were not otherwise discussed or
addressed from the facilitated questions.
Themes
A number of similar themes emerged from stakeholders about major issues related to mixed-use
development in the City. While stakeholders may have ultimately differed on precise changes to make,
there was clear agreement that a number of the existing mixed-use development standards require
modifications to be more responsive to reflect existing market conditions, make projects feasible, and
achieve City policy goals. Generally, stakeholders thought the City’s existing mixed-use regulations were
for the most part in keeping with contemporary design standards. However, a number of specific
development standards were identified that were perceived to be outdated and in need of improvement
to achieve the desired vision for the Freeway Corridor Mixed-Use Overlay. The following is a list of themes
heard during the interviews. A comprehensive list of comments received, organized by topic, has also
been included.
1. Development standard requiring certain percentages for commercial/retail and residential
space in mixed-use developments is seen as restrictive and limiting development potential.
• Residential/Commercial Mixed-Use Overlay: Residential/Commercial – 33% commercial,
67% residential; and Mixed-Use High Density Residential/Commercial – 25% commercial,
75% residential; unless otherwise modified by Planning Commission.
• Garvey Avenue Specific Plan (GSP-MU): Residential/Commercial – 35% nonresidential,
65% residential. If community benefits provided, may be modified to 30% nonresidential,
70% residential.
2. Primary mixed-use development standards should be modified to be in keeping with the
surrounding region (i.e., height, floor area ratio, parking requirements).
3. Location of required commercial/retail uses in mixed-use development should be more
strategic (i.e. intersection corners vs. midblock locations).
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4. New mixed-use developments are desirable to provide new housing and business options and
increase City revenue.
5. City review processes and administration are business-friendly and proactive.
Comments
General Comments
• A lot of development potential along the commercial corridors – Valley Boulevard good example and
has exploded in recent years.
• Vertical mixed-use desirable – commercial at bottom, with housing on top. Would allow City to grow
and mature, attract businesses, and increase sales tax dollars.
• Consider undergrounding powerlines to enhance sidewalks.
• High demand for new residential in the area.
• Mixed-Use Overlay will help City achieve goals to provide new residential uses with increased
tax/economic revenue.
• Enhance walkability and pedestrian access along the corridors. Work with property owners on site
specific basis.
• Retail has been hit very hard recently, lots of restaurants and retail on Garvey Avenue and Valley
Boulevard that could see tough times. Potential opportunity for new housing in future.
• Need more industrial jobs to attract employment in Rosemead. This will support additional
retail/office growth.
• Limited ground-up, new single-story commercial development in Rosemead in recent years.
• New construction in the San Gabriel Valley area costs upwards of $300/square foot. This generally
translates to $3/square foot rent to future tenants. It is hard for new development to compete when
older, existing commercial/retail spaces are currently asking $1.25/square foot for rent in the City.
While the residential portion of the new mixed-use development projects on Garvey Avenue and
elsewhere in the San Gabriel Valley have been successful, often times the non-residential portions in
mid-block locations are hard to rent and those that have been able to find tenants often rent them at
a loss in order to fill these nonresidential spaces.
• Strong interest for commercial/retail in Rosemead at highly visible, accessible, and well parked
locations.
• Minimal office interest in area; however, medical office has been stable.
• Senior housing and multi-generational housing in demand. Consider retirement condos or active
senior living.
• Consider last-mile warehouse distribution, if it makes sense.
• There is a lingering vacancy rate of commercial/retail space in City, and new development just adds
to vacancy.
• New development limited by poor perception of surrounding areas.
• Mixed-use overlay areas are appealing as they are easily accessible to freeways.
• Would prefer to see additional transit stops next to opportunity areas. Need to coordinate with transit
providers if new residential development occurs.
• Ensure street frontages along Valley Boulevard are active.
• High demand for restaurants in the area but must have outdoor dining component.
• Streetscape improvements desired along opportunity areas.
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• Improve freeway offramp aesthetics.
• Developers providing affordable housing in mixed-use projects to avoid commercial/retail percentage
requirements.
• City should pursue destination retail experience in new mixed-use developments.
• Rather than requiring percentage of commercial/retail, why not a certain monetary City return on an
annual basis?
• Don’t require LEED for buildings, building code already requires.
• Make sure new projects provide community benefits.
• Consider eliminating Christian Assembly church property from overlay, no desire to redevelop with
housing.
• Provide flexibility for non-conforming properties to do improvements.
• Consider addressing property inconsistencies between General Plan and zoning in overlay zone.
• Consider expanding Opportunity Area Four across Hart Avenue.
• New housing would be good for Rosemead, in demand. Del Mar and San Gabriel Boulevard good areas
to look at.
Design and Development Standards
• Would like to redevelop in next 5 years – minimum of 4 stories desirable to make feasible.
• Rosemead lacks uniformity in design. Design all over the place in terms of aesthetic. How do you know
you’re in Rosemead?
• Need to address compatibility of single-family residences located next to future mixed-use and multi-
family uses.
• Provide incentives for lot consolidations – too many small lots.
• Expand allowed uses – reduce requirements for restaurants.
• Revise mixed-use design guidelines – too restrictive.
• Percentage of residential and commercial requirement for mixed-use projects too strict and is “one
size fits all”’ approach.
• City’s current approach to addressing compatibility of single-family residences with multi-family and
mixed-use projects is good.
• Current FAR allowances okay but think the dwelling units per acre may be low. Would prefer 20-30
dwelling units/acre at a minimum.
• Parking adjacency to commercial/retail can be limiting.
• Focus commercial/retail within mixed-use at intersection corners. Majors and other commercial/
retailers not interested in mid-block location due to poor visibility.
• Percentage ratio of commercial/retail in mixed use is too high, not enough population yet to support.
Forces commercial/retail onto second-story on small sites, which is infeasible from market
perspective.
• Reduce restrictions on restaurant uses.
• Consider shared parking or reduce parking ratios where it makes sense.
• Increase height allowed, 55-feet seems too low.
• Parking requirements too high, forces smaller lots to go underground, which increases cost. Maybe
City-provided parking structures could offset cost.
• Allow live-work use to meet commercial/office requirements.
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• Revise required percentages of residential/commercial – would like to see more residential allowed.
• No minimum density might be a good option.
• Lot consolidation incentives would be well received; however, may also encourage owners to wait
longer to redevelop.
• Current development standards flexible. Covenants, Conditions and Restrictions placed on property
are limiting factor for redevelopment.
• Commercial/retail should be located at intersection corners, mid-block might work if you have an
attractive corner tenant.
• Provide flexible options for meeting ratios of commercial/residential in mixed-use projects.
• Allow smaller restaurants spaces with outdoor dining to accommodate decreased demand for indoor
dining.
• Consider allowing common areas in mixed-use developments – offices, clubhouse, meeting rooms –
to count towards required commercial/retail percentages.
• Allow dark kitchens as use.
• Allow hotel use in mixed-use developments.
• FAR and height standards stricter than surrounding cities. Surrounding cities allow FAR up to 2 or 3.
• Allow seven-stories height as maximum, or 80-90 feet height limit. May choose 4 or 5 but developers
will provide affordable housing to increase height.
• Increase allowable height closer to freeway. Could provide gateway to City.
• Look at Garvey Avenue Specific Plan – good parking requirements. Older commercial areas struggling
to attract new tenants due to high parking demand.
• Increase height allowed to six stories.
• Don’t allow commercial/retail to be buried at back of lot. Require at street frontage.
• Provide greater flexibility in development standards.
• Approach required setbacks on project by project basis.
• Make sure churches are an allowed use.
Zoning Administration and Process
• Sometimes tough when proposing a project and building officials not on same page, having to work
through that to receive building permits can be tough.
• Would like to see City coordinate with outside agencies ahead of time for future projects – for
example, Caltrans. Could expedite permit processing time.
• City review processes more traditional - planning commission first, then City Council as needed.
• Would like to see EIR wrapped into this effort in order to avoid having to go through CEQA review as
it saves time and minimizes risk.
• City administration and review processes very business-friendly and proactive. Like that they are open
to new ideas.
• Appreciate upfront, clear process and project expectations.
• Rosemead processes better than surrounding cities.
• Feel there are too many hoops to jump through in current City processes.
• In general, City departments work well together, with good projects happening.
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Example References
• Hollywood on Sunset project as mixed-use example.
• Old Town Pasadena as consistent design aesthetic example.
• Atlantic Times Square and adjacent hotel project as mixed-use example.
• Garvey Avenue Specific Plan as parking requirement example.
• Cities of San Gabriel and Alhambra as land to building ratio example.
List of Interviewees
Barry Liu
James Lin
Jim Notley
Leo Chuang
Liang Zhong
Patric Pan
Patsy Ma
Shyamal Patel
TC Pan
Timothy Liang
Victor Tung
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B. Case Studies
The following case studies are intended to provide examples of mixed-use projects relative to the context
of the City of Rosemead. This information is intended to provide insights on what has and has not worked
well in other mixed-use projects.
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