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HomeMy WebLinkAboutAGENDA REPORT 1999 0818 CC REG ITEM 10LCITY OF MOORPARK AGENDA REPORT 1I + - r. rrEM Cit Us.:�100 K, %Rk, CALTF ;FUNIA Ciiv Council Niecting_ uf' —oeia I TO: Honorable Mayor and City Council FROM: Wayne Loftus, Acting Director of Community Developmen�4e Prepared by: John Libiez, Principal Planner /Advance DATE: August 9, 1999 (CC meeting of 8/18/99) SUBJECT: CONSIDER REPORT ON OPTIONS FOR PROCESSING A COMPREHENSIVE GENERAL PLAN AND ZONING CODE WORK PROGRAM BACKGROUND: On July 21, 1999, City Council requested that staff prepare information for Council consideration related to the limiting of development applications. This report provides information to the City Council concerning the planning process, general plan amendment requests and entitlement processing and an update to the status of pending applications. Additionally, a discussion of alternatives for dealing with current development activities and a proposal concerning special project study areas that if implemented could address development pressure and impacts within the City has been provided. DISCUSSION: The following discussion has been divided into four distinct areas in order to 1) provide City Council a snapshot of the status of General Plan Amendments and the staff work load; 2) outline the new General Plan screening process and its effects on workload; 3) provide information relating to the concept of establishing Special Study Areas within the City, the results of which would serve as a guideline for future development; and, 4) alternatives to deal with current development. 000305 City Council Agenda Report Development Limitations August 18, 1999 Page 2 1) What is currently occurring ?: No new General Plan Prescreening Applications have been received within the designated time frame for application submittal for the 1999 Cycle No. 2, which ended May 30, 1999. The next available opportunity to submit requests will be Cycle No.l for the year 2000 which has an application submittal final due date of November 30, 1999. The lack of new submittals at this time will allow staff to apportion time to existing projects and any backlogged General Plan or Municipal Code Amendments as well as special issues of concern with regard to any pending General Plan amendments. In March there were fifteen active General Plan Amendment (GPA) applications, of which 6 were complete, 6 were under review, and 3 were pending action. Additionally 6 projects were identified which would need CPAs. As of this report date, there are 9 approved applications, 1 in public hearing consideration (SP -2), 5 under Staff and Planning Commission consideration, 2 pending public consideration (SP -1 and SP -8 modifications), 2 pre - applications under Affordable Housing /Community Development Committee (AF /CDC) consideration (exempted from new screening process by City Council consensus), and 1 with no application filed but previously listed for future consideration (Moorpark Unified School District property). Attachment A reflects the current status for General Plan Amendments. In addition to those listed in Attachment A, the City may desire to consider appropriate designations for the City property received from SDI, the property west of the Archstone project site, and the parcel adjacent to the east side of the Cabrillo residential project on Poindexter Avenue. Provisions of State Law limit the number of times that a mandatory element of the General Plan may be amended to four, per calendar year. More than one property or proposal can be considered within each of the four amendment periods provided that all are scheduled, advertised and heard at the same time as one General Plan Amendment by both the Planning Commission and City Council. The General Plan element most frequently amended, is the Land Use Element. The other mandatory elements include: Housing, Circulation, Open Space, Conservation, Safety and Noise. State law permits local agencies to combine elements that have similar purposes, which has been done by the City through adoption of the M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0003 0 9 City Council Agenda Report Development Limitations August 18, 1999 Page 3 OSCAR, which combines the mandatory elements of Open Space and Conservation with the permitted (optional) Recreation Element. Of the mandatory seven elements, only the Noise Element has been comprehensively reviewed and updated since the 1992 update of the Land Use and Circulation Elements. The Mitigation Monitoring Program approved for the 1992 General Plan Update recommended that the Noise Element, Housing Element and the Open Space, Conservation and Recreation Element (OSCAR) be periodically updated. The Noise Element was updated in 1998. The OSCAR is currently being updated, with adoption likely to occur by the end of 1999. The Housing Element under provisions of State Law is required to be updated to achieve compliance with State Guidelines and adopted by local agencies not later than June 30, 2000. Staff is currently reviewing work program submittals from qualified consultants that would update the Housing and Safety elements by June of 2000 and a recommendation to retain consultant services will be forwarded to City Council in September. In summary the status of the General Plan Elements are: Land Use - Updated 1992 - update needed. Circulation - Updated 1992 - update needed. Housing- Update required by 6/30/2000; RFP /RFQ reviews in process. Noise - Update complete as of 3/98. OSCAR - Update to be adopted by 12/99. Safety - Update required - RFP /RFQ reviews in process. Staff's work load is currently high and is likely to remain constant during the coming calendar year. Attachment B reflects the status of major project applications. It should be noted that this table does not reflect minor permit activity such as Zone Clearances, Administrative Permits or Sign Permits. The map in Attachment C provides locational information on major project activities. 2) General Plan Pre - screening process- effect on workload: Implementation of the General Plan Amendment Pre - Screening process adopted in March 1999, will allow both staff and the City Council to be more aware of the overall anticipated impact to the community. This process establishes a time frame for General Plan pre- applications to two time periods M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc O O O u i o City Council Agenda Report Development Limitations August 18, 1999 Page 4 per year, ending on November 30 and May 30 preceding the review by the Affordable Housing Community Development Committee (AH /CDC). November applications are referred to the AH /CDC for consideration in January and forwarded to City Council with recommendation for consideration between March and May. May applications are referred to the AH /CDC for consideration in July and forwarded to City Council with recommendation for consideration between September and November. City Council consideration of the pre- screening application results in rejection or acceptance of the proposal for processing. Approved pre- screening applications permit the filing of formal General Plan Amendments which are scheduled for consideration through the City's standard processing procedure including public hearing before the Planning Commission and City Council and including environmental impact analysis. The adoption and implementation of the new General Plan pre- screening process provides benefits to the City. Staff work load regarding major projects that involve General Plan Amendments combined with Zone Changes, CUPS, etc. can be more effectively reviewed, evaluated and scheduled. Since the pre- screening process is intentionally selective, more direct time by staff and decision makers is devoted to proposals that best fulfill the goals and policies of the City's adopted General Plan elements. This process will add a large measure of certainty to the planning process for the City and potential applicants. The pre- screening process will not reduce staff workload, but it will provide a greater level of efficiency to allow staff to accomplish the workload and will provide more information to decision makers at the pre - application level. However, it can be observed that the land use /entitlement application process, in general, is driven by market forces and fiscal incentives and that there will always be peaks and valleys depending on the extent of those forces or incentives. 3) Areas of Potential Special Study Efforts: Areas exist that may be appropriate to consider for special study with results to be included within the adopted capital improvement plan and the General Plan. The benefit of special study areas is that the City engages in proactive planning and predetermines the types and mix of compatible land uses within particular neighborhoods, and geographic areas. This provides additional definition to M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0003.11 City Council Agenda Report Development Limitations August 18, 1999 Page 5 the process rather than having staff and decision makers responding to uncoordinated, piecemeal approaches to development requests and community development issues. Some potential Special Study areas that City Council may wish to consider are identified briefly below. Attachment D provides a map to indicate suggested boundaries for each Special Study Area. a) Walnut Canyon Corridor. This study area would include all properties which access Walnut Canyon Road from Charles Street to the north City limits. Concerns to study include: drainage, circulation, utilities extensions, density/ intensity of development, Hillside Management, habitat issues, and safety improvements to SR -23. This Special Study Area would involve all non - Specific Plan developable properties in this corridor, with the exception of Westpointe Properties, Toll Brothers properties, and Sun Cal. b) East Los Angeles Avenue Corridor. This study area would extend from Spring Road east to the Princeton Avenue freeway interchange on both sides of the roadway and southeasterly to the Arroyo Simi including City property obtained from SDI and all properties southerly of the railroad track, but excluding any Specific Plan properties. Issues in this corridor include regional strip park /trails, land uses and mixes of uses, circulation, neighborhood blight, drainage, and impacts to sensitive habitat areas. c) East Corridor Study Area. This area would include all properties northerly and southerly of the SR -118 from Princeton Avenue to the east City boundary (Simi Valley interface) . Concerns in this area relate to potential development of the Unocal property, circulation alternatives, land use mix, densities and intensities, environmental constraints, and potential impacts from light sources on the Moorpark College observatory. d) Center -City South Project Area. This is an area southerly of Los Angeles Avenue (Highway 118), north of Arroyo Simi, east of Moorpark Avenue and Westerly of Spring Road. This area offers opportunities for retail /office uses along Los Angeles Avenue, M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0 0 0 u_:.'42. City Council Agenda Report Development Limitations August 18, 1999 Page 6 redevelopment of some properties with high density residential /affordable housing projects, and implementation of circulation alternatives. Concerns in this area relate to traffic, affordable housing, land use changes that impact revenue to the City, and drainage. e) Area of Interest /Sphere of Influence Study. A study of the City's future ultimate growth area would seem appropriate given recent approval of the Initiative Measure NN S" and concerns for greenbelt management /intrusion. Efforts such as the recent response to Ventura County regarding Open Space and Agriculture- exclusive greenbelt zoning would be studied to define properties suitable for such designation and to determine those properties upon which clustered estate or ranchette development consistent with applicable policies within the City's Area of Interest might be permitted. The study could look at regional recreation and circulation development as a means to improve the local economy and reduce impacts to major arterial roadways. Environmental issues including habitat, open space conservation, grading and drainage. 4) Alternatives to deal with current development activity: The following alternatives have been identified for City Council consideration and discussion: a) Amending a General Plan element or Zoning Code provision on a project by project basis. The current approach to amending the General Plan or Zoning Code is to respond to individual requests. This approach does not allow a comprehensive analysis of the cumulative impacts that may result on multiple project applications. This approach supports a philosophy of first in, first considered, rather than supporting selective consideration of requests which enhance community goals and policies including adding to the City's economic base. Some developments may not receive the consideration they deserve and project sponsors abandon a project that could enhance the quality of life and improve the economy of the City. M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0 0 0 3 .11 3 City Council Agenda Report Development Limitations August 18, 1999 Page 7 b) Limit development permits during review of Special Study Areas. This approach would allow the normal entitlement and permit process to continue city -wide, except within a declared Special Study Area. The restriction within a Special Study Area would apply during the time necessary to perform the study and analysis leading to preferred land use options for the areas under study. The limitation on application reviews /actions could be complete or it could be limited in such a manner that would allow certain uses such as affordable housing, or non - profit community service uses to proceed while temporarily suspending all others until the area study were complete and adopted by the City Council. C) Suspend all development activity pending comprehensive plan revisions. This alternative would have the effect to halt receipt and /or consideration of development applications until such time as a master revision to the General Plan and /or Development Code were completed. Effectively this implements a limitation on all development with the consequences that fiscal growth and balance of the community may be negatively impacted. Progress toward achievement of community goals and implementation strategies may be inhibited. There are some pertinent considerations related to this option that decision makers and the community should be aware of if an ordinance to limit development is considered: A. The State Evidence Code Section 669.5 places the burden of proof on any city that adopts an ordinance to: 1) limit the number of building permits for residential construction, 2) limit development of buildable lots which may be suitable for residential purposes, or 3) which changes the standards of residential development on vacant lots that renders the governing bodies zoning in violation of Government Code Section 65913.1 (see later comment) M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc City Council Agenda Report Development Limitations August 18, 1999 Page 8 B. Burden of proof referenced by the Evidence Code means the ordinance must be necessary to protect the public health, safety and welfare of the population of the city, county, or city and county. C. Voter approved ordinances adopted by Referendum or Initiative prior to date of E.C. Section 669.5 which establish fair share population growth limits based upon statewide average population growth or consistent with the statewide population growth rate as a whole are not subject to Section 669.5. D. Referenda or Initiatives that do not inhibit provision of low and moderate income housing are acceptable. E. Government Code Section 65913.1 requires cities to designate properties for the development of residential uses and in relation to growth projections of the General Plan meet housing needs identified in the General Plan. F. Government Code Section 66452.6 (Subdivision Map Act) establishes the time limits for approved tentative maps to record. Imposition of any development limitation has the effect of automatically suspending the time clock on the map for the period of the limitation. Development limitations are limited to five years by this section. Upon the close of the limitation period the subdivision map time clock restarts with the expiration being equal to whatever amount of time remained when the limitations were imposed. G. Any ordinance, Initiative, or Referendum should be supported by substantial evidence and findings both in the record and the ordinance that the limitation is necessary to protect the health, safety and general welfare of the population affected. Development limitations need to be clearly defined and time restricted and need to be sensitive to the legislative mandate of the M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 000-3-1- 5 City Council Agenda Report Development Limitations August 18, 1999 Page 9 State for the provision of affordable housing and may not reduce or deter those opportunities. (d) Comprehensive Revision to General Plan Since the General Plan Update in 1992 incremental amendments have been granted. Incremental amendments or updates frequently result in internal inconsistencies. One approach to avoid the potential for internal inconsistency is to consider a comprehensive rewrite of the entire General Plan document. Through a comprehensive update, goal and policies can be evaluated and restated to reflect the current community vision and information presentation, document format, data exhibits, and graphics can be standardized such that the final document is internally consistent, comprehensive, reflects current development and land use trends and is more user friendly. The most recent amendments such as Noise and those proposed for completion before June 2000, (Housing, and Safety) should have their format converted to the document standard preferred for a comprehensive rewrite. A comprehensive update of the General Plan would require approximately 12 -18 months and result in a more current reflection of community needs and vision for the next 10 years. IMPLICATIONS• A. Selectively targeted development limitation measures may not be consistent with Due Process requirements. B. Development Limitation measures require factual /evidentiary justification to assert validity in the face of challenge. Some direct connection to technical studies or overriding policy issue related to or directly concerned with the health, safety, and welfare of the community is advisable. A rational nexus should be demonstrable between the purpose of the limitation /restriction and the lands affected and the time imposed for the limitation /restriction in order to limit opportunities for taking claims. C. Development limitations have the potential to severely impact community economic growth. Shut down of one M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0 0 ® 0 r G City Council Agenda Report Development Limitations August 18, 1999 Page 10 form of development may have repercussions on other uses or investment opportunities as limitations are often seen as roadblocks. This could affect such activities as willingness to finance rehabilitation efforts or invest in downtown revitalization or expansion. LIMITATION IMPOSITION: Limitations generally come about through voter Initiative or Referendum, or by adoption of a legislative act by state, county, or local government agencies /districts. Most commonly they are adopted by ordinance of the City Council or Board of Supervisors. Limitations tend to be adopted for technical reasons such as lack of adequate sewer capacity, limitations on the availability of water, lack of or inadequate flood control facilities, hazardous waste, or similar issues. While some limitations are adopted jurisdiction -wide, many are adopted for specific geographic areas or portions of communities for specified time limits to facilitate completion of facilities to ameliorate the conditions for which the limitation is imposed. Growth Management is often adopted as a means to control rapid development, synchronize provision of services with development demands, preserve physical features of a community, determine phasing for expansion of the community or establish control over planning areas within Spheres of Influence. The most effective long term method to adopt, implement and regulate growth is through the comprehensive General Plan. Government Code Section 65858 provides that "the legislative body, to protect the public safety, health, and welfare, may adopt as an urgency measure (415 vote required) an interim ordinance prohibiting any uses which may be in conflict with a contemplated general plan, specific plan or zoning proposal which the legislative body, planning commission or the planning department is considering or studying or intends to study within a reasonable time." Urgency ordinances are valid for a period of 45 days from the date of adoption. Subject to legal notice and public hearing an urgency ordinance may be M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0 0 0 3111 11/ City Council Agenda Report Development Limitations August 18, 1999 Page 11 extended for an additional 10 months and 15 days (total one year). One additional extension for one full year is also allowed subject to notice and public hearing. All extensions require a 4/5 vote. Sub - section c of Section 65858 states: "The legislative body shall not adopt or extend any interim ordinance pursuant to this section unless the ordinance contains legislative * ** findings that there is a current and immediate threat to the public health, safety, and welfare, and that the approval of additional subdivision, use permits, variances, building permits, or any other applicable entitlement for use which is required in order to comply with a zoning ordinance would result in that threat to public health, safety or welfare." Interim ordinances do not require Planning Commission reviews or recommendations to effect or extend them. STAFF RECODMENDATION: Direct staff as deemed appropriate. ATTACHMENTS: A. Status of General Plan Amendments B. Major Projects Listing C. Locator Map for A & B D. Map of Potential Special Study Areas M: \KSchmidt \M \City Council Agenda Reports \81899CCstfrprtGPZCZs.doc 0003--41L.8 GENERAL PLAN AMENDMENTS APPLICATION NO. REQUEST APPLICANT UNITS !i NUMBER AMENDMENTS IN PROCESS —T— REFLECT SPECIFIC PLAN (SP-: A. GPA 93.02 MILLIGAN TRUST 415 -620 1 HITCH RANCH) MORRISON REFLECT APPROVED SPECIFIC B. GPA 95.02 FOUNTAINWOOD 598 PLAN (SP -2) AGOURA GPA 96.01 VERY HIGH DENSITY PACIFIC C. 247 (APPROVED) RESIDENTIAL COMMUNITIES GPA 97.03 VERY HIGH DENSITY D ARCHSTONE 312 (APPROVED) RESIDENTIAL E. GPA -99 -01 REDESIGNATE SP -8 AREA CITY OF MOORPARK 2400 -3221 PACIFIC F. GPA -99 -02 HIGH DENSITY RESIDENTIAL 37 COMMUNITIES GPA -99 -04 _ -- TEXT CHANGE PER G. REPLACES 94 -01 TOLL /BOLLINGER 216 DEVELOPMENT AGREEMENT (TT -4928) H. GPA -98 -01 RURAL LOW DENSITY SUNCAL 154 I. GPA -99 -03 RURAL HIGH DENSITY WEST POINTE 250 GPA 97-2 J. AGRICULTURAL TO INDUSTRIAL AB PROPERTIES N/A (APPROVED) PRE - SCREENING - OLD PROCEDURE K. PRE -APP 98 -02 MEDIUM LOW DENSITY SANDERS 67 L. PRE -APP 98 -05 MEDIUM LOW DENSITY ANDERSON- SANDERS 98 PRE - SCREENING - NEW PROCEDURE TRILIAD (BUGLE _l M. PRE -APP 99 -02 CPD TO M -2 N/A BOY) OTHER POTENTIAL AMENDMENTS & MINOR CORRECTIONS N. GPA /ZC /TT /RPD REFLECT APPROVED DENSITY CABRILLO 59 GPA /TT /RPD — 0. VERY HIGH DENSITY FARWEST HOMES 80 (BURNETT) P. Sr- -9 AREA INCREASE DENSITY MUSD UNK MINOR ADJUSTMENTS TO CONSISTENCY INSURE MAP AND ACTURAL Q. CITY OF MOORPARK ACTIONS SITE DEVELOPMENTS ARE CONSISTENT Data prepared as of 8/10/99 Notes: UNK = unknown ATTACHMENT A 0®0u --_g Community Development Department Major Project Report August 10, 1999 ATTACHMENT_ lam' _ City of Moorpark, 799 Moorprk Avenue, Moorpark, CA 93021, 805.529.6864, Extension 228 000.3 i ... 0 iJ -7 UNITS OR SITE PERMIT STATUS USE ACRES APPLICANT/ DEVELOPER L SQUARE FEET RESIDENTIAL DEVELOPMENT SF /MF 2 GOLF RPD94.1 CUP94.1 TRACT APPROVED, COURSES TOLL BROTHERS 1 GPA94.1 TR4928 PD PERMIT IN 216 655 EQUESTRIAN (BOLLINGER DEVEL., INC.) ZC94.1 LDM94.1 PROCESS STAGING AREA TRACT APPROVED, 2 TR4975 RPD98.3 SFD /MFD 145 110 LENNAR HOMES PD PERMIT 3 TR4976 RPD98.4 IN PROCESS SFD 160 83 LENNAR HOMES TRACT APPROVED, 4 TR4977 RPD98.5 SFD 109 57 LENNAR HOMES PD PERMIT TRACT APPROVED, LENNAR HOMES 5 TR4980 RPD98.6 SFD 138 gp PD PERMIT (WESTERN PACIFIC) FAR WEST HOMES (PREVIOUS 6 RPD98.1 TR5133 IN PROCESS MFD 76 9 KAUFMAN & BROAD) 7 RPD98.2 TR5130 IN PROCESS MFD 154 70 SUNCAL COMPANIES (SP 10) 8 RPD98.7 TR5161 APPROVED SFD 59 7 CABRILLO ECONOMIC 9 RPD99.1 TR5181 IN PROCESS SFD 1.2 MANNY ASDURIAN, JR. RPD 99.4 VTT _8 ISKAN, LIBERTY DEVELOMENT 10 5204 GPA 99.2 IN PROCESS SFD 37 4.8 (NELSON CHUNG) ZC 99.1 RPD 99.2 TR SFD 250 350 11 4620 IN PROCESS WEST POINTE HOMES - - -- RPD 99. TR 5201 12 APPROVED SFD 10 2 PEACH HILL, LLC ZC 99.2 13 RPD 97 -1 I' APPROVED APTS 312 18 ARCHSTONE COMMUNITIES RPD 96 -1 14 APPROVED SFD 305 35 PACIFIC COMMUNITIES TR 5053 COMMERCIAL DEVELOPMENT 15 CPD98.1 IN PROCESS PINECREST SCHOOLi 27,774 3 THREE -D ENTERPRISES HEALTH CARE 16 CPD98.2 APPROVED 50,987 4 DAMON GROUP RAMSEYER FACILITY CPD 95 -2 17 PM 5036 APPROVED RETAIL /OFFICES 57,300 4 DEE WAYNE JONES ZC 96 -1 INDUSTRIAL DEVELOPMENT 18 TR5115 IN PROCESS 15 LOTS 300,000 33.9 CARLSBERG FINANCIAL CORP. 19 TR5147 IN PROCESS 17 LOTS ;35.53 A -B PROPERTIES 28,240 & 20 IPD99.1 &2 APPROVED 2 BUILDINGS 3.24 RICE DEVELOPMENT 31,720 IPD 99.3 CUP 21 APPROVED 1 BUILDING 71027 0.44 JEROLD S. FELSENTHAL 99.1 IPD 95-1 22 APPROVED 1 BUILDING 72,000 3.7 % POINDEXTER ASSOC. TR 4986 ATTACHMENT_ lam' _ City of Moorpark, 799 Moorprk Avenue, Moorpark, CA 93021, 805.529.6864, Extension 228 000.3 i ... 0 iJ - I 11z ` O7H 20,x. 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