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CC - Item - General Plan Update Studyr ROSEMEAD CITY COUNCIL STAFF REPORT TO: THE HONORABLE MAYOR AND CITY COUNCIL FROM: JEFF ALLRED, CITY MANAGER DATE: SEPTEMBER 22, 2009 SUBJECT: GENERAL PLAN UPDATE STUDY SUMMARY As the City Council and Planning Commission are aware, a moratorium is in effect on mixed-use development due to concerns regarding inconsistencies between the City's current zoning regulations and recently adopted General Plan. The current General Plan allows for high density mixed-use residential/commercial development along all major arterials. However, the current Zoning Code does not provide adequate provisions to regulate such developments. On April 14, 2009, the City Council appointed a Subcommittee consisting of Mayor Margaret Clark, Council Member Polly Low, and staff to discuss the future of mixed-use development in the City of Rosemead. The Subcommittee was to analyze the current 2008 General Plan and make recommendations to the Planning Commission and City Council as to whether the Land Use Element should be amended. Recommendation The Subcommittee recommends that the City Council: 1. Amend the Land Use Element of the General Plan to limit the locations of mixed-use residential/commercial development in the City to specific designated areas (nodes), with limitations on both density and building height; 2. Authorize staff to prepare mixed-use development standards, and process a comprehensive Zoning Map update. ANALYSIS Over the last five months, the General Plan Subcommittee has analyzed the current land use policy regarding mixed-use development. In addition, Hogle-Ireland, a professional land use planning firm, was consulted for technical analysis. The analysis and studies included completing property surveys to document current land usage where mixed-use is proposed, reviewing mixed-use regulations of other municipalities in the San Gabriel Valley, APPROVED FOR CITY COUNCIL AGENDA: Joint City Council and Planning Commission Meeting September 22, 2009 Paoe 2 of 6 and evaluating the realistic potential of achieving lower mixed-use densities with stringent mixed-use development standards. In summary, the careful comprehensive assessment and study of several land use scenarios guided.the Subcommittee to a determination of an appropriate framework for mixed-use development in the City. It is the Subcommittee's recommendation. that the General Plan be amended to designate four key areas (nodes) in the City for mixed-use development with limitations on both residential density and building height. The following is a description of these four areas. Attachment A illustrates their locations. Mixed-Use Area One would include a portion of the City's downtown, consisting of several parcels on the north and south side of Valley Boulevard, between Muscatel Avenue and Rosemead Boulevard. Several parcels on the south side of Bentel Avenue, near Ivar Avenue, would be included in this area. This district would limit development to 30 residential units per acre and building height to three stories. Mixed-Use Area Two would be located at the northeast end of the City, at the intersection of Valley Boulevard and Temple City Boulevard, and would include all parcels on north side of Valley Boulevard to Abilene Street. This district would limit development to 60 residential units per acre and building height to four stories. Mixed-Use Area Three would be located along the north and south side Garvey Avenue between Charlotte Avenue and Walnut Grove. This district would limit development to 30 residential units per acre and building height to three stories. Mixed-Use Area Four would be located on the east end of Garvey Avenue, and include parcels between Stingle Avenue and the Rio Hondo River. This district would limit development to 60 residential units per acre and building height to four stories. In addition to limiting mixed-use development to these four areas, the Subcommittee recommends that majority of all other portions of the City that are currently designated for mixed-use development be changed to their original General Plan designation as stated in the 1987 General Plan. If the Planning Commission and City Council vote to approve this amendment, it would affect the existing General Plan in the following ways: Mixed-Use Residential/Commercial land will decrease by 299 acres Joint City Council and Planning Commission Meeting September 22, 2009 Paqe 3 of 6 • Low Density Residential land will increase by 9 acres • Medium Density Residential land will increase by 16 acres • High Density Residential land will increase by 19 acres • Commercial designated land will increase by 203 acres • Mixed-Use Industrial/Commercial land will increase by 52 acres The following table provides a comparison between the existing General Plan and the proposed alternative with respect to estimated population, number of dwelling units, and non-residential square footage at the year 2025. Table 1 Development and Population Caparisons between Current General Plan and Proposed Mixed-Use Alternative Dwelling Units Population Current General Plan Land Use Policy 20,738 80,386 Proposed General Plan Land Use Policy Alternative 15,914 61,686 Estimated Decrease in Development 4,824 18,700 Regional Housing Needs Assessment (RHNA) and Proposed Land Use Policy Prior to reaching a recommendation on an alternative land use policy, staff consulted with GRC Associates, the City's Housing Element consultant, to analyze the realistic residential development capacity under the existing and proposed land use scenarios. The purpose of this analysis was to show whether the City would be able to meet its fair share allocation of regional housing need under the reduced mixed-use land use scenario. The results of this analysis indicated that the City can adequately accommodate the additional 780 units required under Southern California Association of Governments (SCAG) Regional Housing Needs Assessment (RHNA). Mixed-Use Development Overlay Zone and Development Standards In order to ensure careful regulation and well-designed mixed-use projects, the Subcommittee further proposes that development standards be prepared concurrently with the proposed general plan amendment. Joint City Council and Planning Commission Meeting. September 22, 2009 Paae 4 of 6 The Subcommittee recommends creating a Mixed-Use Overlay zone to implement mixed- use development standards. This overlay zone would be located on properties that would be designated for mixed-use development in the General Plan, and would allow the option for developing under the base zone district or developing a mixed-use project subject to the mixed-use development standards. For instance, if a property is zoned commercial and has a mixed-use General Plan designation, the property owner or developer has the option of developing the property with commercial uses or a mixed-use project. The mixed-use development standards would 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. 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. The entitlement review process for project approval would require each project applicant to submit a comprehensive precise plan of design showing full compliance with the development standards. Each project would require approval from the City Council after a recommendation has made by the Planning Commission. The proposed standards would provide a wide range of permitted uses, as well as provisions to regulate the public realm and streetscape, site design and circulation, building Joint City Council and Planning Commission Meeting September 22, 2009 Page 5 of 6 form, land use, and architecture. Rules would also be created to address potential sensitive elements of mixed-use development, such as businesses with late hours of operation, restaurant establishments with outdoor seating, automated teller machines, convenience markets, and home occupations. To ensure that mixed-use developments create pedestrian friendly and lively street fronts, sit-down restaurants, retail uses and services will be required on the ground floor. Examples of the proposed key mixed-use development regulations are highlighted in the following table. Table 2 Proposed Mixed-Use Development Standards Lot Size 30,000 square feet Residential: Two (2) parking spaces per dwelling unit, and one (1) guest parking space for each two (2) dwelling units. A reduction in the number spaces may be approved upon the determination by the Planning Commission and City Council that a parking demand analysis Parking Requirements demonstrates that the required number of spaces exceeds actual expected demand. Commercial: The parking requirements for commercial current standards of - RMC Section 17.84 Interior Lot Lines: zero feet or 10 feet Side Streets: No minimum required unless rear yard abuts side yard of residential uses, school, or park. (20 feet within 25 feet from common property line) Rear: (1) If site abuts a residence, school or park, 10 feet is required Setbacks (2) If the site abuts non-residential uses, the minimum setback from the rear lot line may be zero (0) but shall be a minimum of ten (10) feet if more than zero (0), and (3) If the site abuts an alley, no minimum setback is required. 'A variable height limitation will also be required when abutting R-1 and R-2 zones. Front: 0 feet to 3 feet for building and 10 feet for parking lots 60 du/ac and 4 Stories: 55 feet Building Height 30 du/ac and 3 Stories: 45 feet Joint City Council and Planning Commission Meeting September 22, 2009 Page 6 of 6 Comprehensive Zoning Map Update The zoning map will require amendment to conform to the new General Plan designations, as California State law requires zoning to be compliant with the goals, objectives and policies of the General Plan. For this reason, the Subcommittee is proposing that a staff further process a comprehensive map update concurrently with the proposed General Plan amendment. The zoning map revision will specifically bring all zoning designations into compliance with the proposed General Plan land use designations, as well as establish a new Mixed-Use Overlay zone for mixed-use development. Conclusion The Subcommittee has concluded and is confident that the proposed reduced mixed-use land use scenario is appropriate for the City of Rosemead. It will promote stronger and enhanced commercial business districts in four key areas of the City, including the City's civic center. The proposed mixed-use land use scenario could stimulate and revitalize commercial corridors with both needed housing and commercial retail services. Prepared by: Sheri Bermejo Principal Planner Development Director Attachment A: Map of Proposed Mixed-Use Designations and Other Land Use Changes 1 1 .1 '•1 1 Gd s. EafOn i~a a 3 m z /p~' y Tf NAR ROWS LEGG P~ LAKE 1 Legend ll Low Density Residential (0-6 du/ac) ED Mixed Use: Residential/Commercial (30 du/ac; 3 Stories) l_l Public Facilities Medium Density Residential (0-12 du/ac) ® Mixed Use: Residential/Commercial (60 dulac; 4 Stories) Open Space - High Density Residential (0-30 du/ac) Mixed use: Industrial/Commercial cemetery - Commercial Office/Light Industrial Approved Mixed Use Projects Source: City of Rosemead, DMP Inc. Feet 0 2,000 4,000 ID cIrmic A T) General Plan i ; I I r I ~ Un~Ory - - P \J, Grand AV 4111 J ~ ~ ~~~ti tititt~ ~ ■ AI ~ ~ yl E "ern AV J N r .rma1'r St -a + ~ . rrn `fy} •d -Yr W H I T T I E R O Approved Mixed Use Projects O Park Monterey © Rosemead/Guess Mixed Use © Del Mar Mixed Use O 1987 General Plan Designation O Existing Zoning Designation O High Mixed Use Designation O Low Mixed Use Designation Scenario 2D-1 City of Rosemead September 9, 2009 Land Use Alternatives