HomeMy WebLinkAbout02 First Street Specific Plan WorkshopITEM #2
TUSTIN
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DATE: MARCH 22, 2011 `,oa,
RUII nIN(i OUR FUTURE
HONORING OUR PAST
TO: PLANNING COMMISSION
FROM: COMMUNITY DEVELOPMENT DEPARTMENT
SUBJECT: CONTINUED WORKSHOP: FIRST STREET SPECIFIC PLAN
SUMMARY:
On January 25, 2011, the Tustin Planning Commission conducted the first of two
workshops on the First Street Specific Plan. Staff intends to complete the workshop
presentation and request Planning Commission input that will be utilized to begin
framing a possible amendment to the First Street Specific Plan.
BACKGROUND:
Planning Commission Report
Continued Workshop; First Street Specific Plan
March 22, 2011
Page 2
On December 2, 1985, The First Street Specific Plan was adopted by the Tustin City
Council. A copy of the First Street Specific Plan may be viewed at:
http://www.tustinca.arg/departments/commdev/index.html#planningZoning. Originally
envisioned to be a 15-year document, the Plan was intended to address City Council
concerns about an "erosion of commercial potential" and protect adjacent residential
neighborhoods, establish consistent quality of development design standards but without a
uniform architectural theme or style, and provide for development of office and retail uses
in site-specific locations.
Members of the Planning Commission and staff have for some time recognized the
need to update the First Street Specific Plan, but an update has not been pursued due
to budget constraints. Although a comprehensive revision of the Specific Plan is not
within the current budget, there are interim measures and updates that can and should
be pursued using in-house resources.
On January 25, 2011, staff presented a report to the Planning Commission that
identified the history, issues, opportunities and constraints associated with the First
Street Specific Plan (Attachment 1). At that time, the Planning Commission
unanimously concurred that staff should pursue a modification of the First Street
Specific Plan using available staff resources as time permits. However, due to the
breadth of issues being considered, the workshop was continued to grant additional
time to the Commission prior to requesting input on a number of questions identified at
the end of the January 25, 2011 staff report. This workshop is intended to generate
Planning Commission input, and comments on those questions or other matters of
concern to the Commission.
Staff envisions pursuing the completion of this task through the normal public Specific Plan
Amendment hearing process, including any required environmental documentation, with
the full and active participation of the affected property owners and business owners, as
well as other members of the public.
Dana L. Ogdon Elizabeth A. Binsack
Assistant Director Director of Community Development
First Street SP Workshop2.doc
Attachment 1 -January 25, 2011 Staff Report to the Planning Commission.
Attachment 1
Inter-Com
DATE: JANUARY 25, 2011
TO: PLANNING COMMISSION
FROM: COMMUNITY DEVELOPMENT DEPARTMENT
SUBJECT: WORKSHOP: FIRST STREET SPECIFIC PLAN
TUSTIN
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PURPOSE:
Members of the Planning Commission and staff have for some time expressed their
concerns with the First Street Specific Plan, but an update has not been pursued due to
budget constraints. Although a comprehensive revision of the Specific Plan is not within
the current budget, there are interim measures and updates that can and should be
pursued using in-house resources. This workshop is intended to generate Planning
Commission questions, input, and comments on the matter (options are discussed at
the end of the report).
BACKGROUND -Origin of the First Street Specific Plan:
On May 20, 1985, the Tustin City Council considered an appeal filed by the Tustin
Commons Condominiums Homeowners Association (426 West First Street) of a Planning
Commission approval fora 5,600 square foot mixed office and retail development project
at 450 West First Street. Members of the community, the appellant, including the project
proponent expressed concerns with the zoning stipulation at that time requiring new
development to provide retail uses at the ground floor level. Based upon the minutes
prepared at that time, there appears to have been mixed opinions as to the City Council's
preference as to the type and intensity of development that was intended to occur along
First Street, i.e., exclusive retail, exclusive office or a mixture of retail and office uses.
The appeal was denied and the project was approved by the Tustin City Council (although
the project was never constructed). At the end of the meeting, the City Council directed
staff to immediately prepare an urgency ordinance establishing a moratorium prohibiting
additional development along First Street until a Specific Plan could be prepared and
adopted. The moratorium was adopted on June 3, 1985 and was in force until repealed
prior to first reading of the ordinance adopting the First Street Specific Plan on December
2, 1985. The First Street Specific Plan may be viewed at:
http://www.tustinca.orq/departments/commdev/index.html#planningZoning
The First Street Specific Plan was completed less than four months after the City hired a
planning consultant for its preparation and was intended to address City Council concerns
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 2
about an "erosion of commercial potential." The plan was also intended to protect
adjacent residential neighborhoods, establish consistent quality of development design
standards but without a uniform architectural theme or style, and to provide for
development of office and retail uses in site-specific locations.
A. THE BUILT ENVIRONMENT
Tustin's agrarian past significantly influenced the pattern of commercial development
in the community. Early development in Tustin was focused within Old Town as the
community's commercial center. As Tustin developed, transportation and
commercial corridors evolved along First Street and Newport Avenue replacing small
residential and commercial buildings with new commercial development. Over the
years, parcel size and freeway accessibility facilitated Newport Avenue to be
developed into a fairly uniform commercial corridor, with banks, restaurants, office
complexes, and large retail centers dominating the streetscape.
The less-traveled First Street corridor evolved into a more fragmented pattern of
land use that continues to include historic residential and commercial properties.
Some subdivisions of properties along First Street created an irregularly shaped
streetscape, with most parcels being relatively small in size as compared to Newport
Avenue.
Land use changes are infrequent along First Street and the existing mixture of uses
share aloes-scale, low-intensity commercial character that is in need of revitalization.
Residential uses (including single family, multi-family, and mobile homes), auto-
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 3
oriented service uses, office, and small retail uses currently line First Street. First
Street properties located nearest to Newport Avenue tend to be larger and uniform in
use and purpose. Properties abutting the First Street corridor also developed during
this time and also have a wide variety of zoning classifications and uses as depicted
within the City's Zoning Map below.
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 4
The First Street Specific Plan planning area encompasses approximately a mile
along First Street from the Newport (SR 55) Freeway to Newport Avenue as
depicted above. While the planning area is relatively small (approximately 65
acres), it is significant in that it constitutes an entry to the City from the west and
provides access to Old Town Tustin and the City of Tustin Civic Center.
The corridor varies in depth on either side of the street from as little as 80 feet on
what remains of several old single family residential lots to a quarter of a mile along
the Newport Avenue where the Larwin Square and Tustin Courtyard commercial
centers have each accumulated sites of several acres.
B. HISTORY OF DEVELOPMENT ALONG THE FIRST STREET SPECIFIC PLAN
CORRIDOR
Over the years the First Street corridor has evolved into a mixed use area of
considerably varied development. Quality and condition vary from exemplary
projects to substandard and visibly deteriorating.
The following aerial photographs are tagged to identify current land uses within the
First Street Specific Plan.
One small commercial building and twelve residential homes (some used as offices)
located within the First Street Specific Plan are currently listed as historic resources
within the City's Cultural Resources Survey (2003). The residential uses and trailer
park are identified in the First Street Specific Plan as non-conforming uses.
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 5
First Street Specific Plan Area -From Newport (55~ Fwy. To Peppertree Park
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 6
First Street Specific Plan Area -From Peppertree Park To Centennial Way
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 8
A summary review of the distribution of land uses within the First Street Specific Plan
reveals:
• Westerly portion -Residential, small commercial retail/service and small office
uses dominate the westerly third portion of the area (several historic properties
exist).
• Central portion -Automobile repair, car wash, retail and multi-family uses occupy
the middle third portion of the area.
• Easterly portion -Large retail centers, banks and offices occupy the easterly third
portion of the area.
C. PURPOSE OF THE FIRST STREET SPECIFIC PLAN
A specific plan is a special set of development standards that apply to a particular
geographical area. Specific plans are often used by local governments to write
planning policies and development codes that are intended to address a particular
planning issue within an urban area. Specific Plans are usually developed in
coordination with General Plan Amendment, Redevelopment Project Area, or other
tools to persuade property owners into addressing the issue together with the City.
Specific Plans are typically more flexible than standard zoning regulations to
facilitate and incentivize new development that meets the planning goals and
policies established for the area.
The First Street Specific Plan is the adopted zoning for the properties within its
boundaries. In adopting the First Street Specific Plan, the Tustin City Council was
stimulated by a concern to identify an appropriate mix of commercial and office uses
for the area and address City Council concerns about an "erosion of commercial
potential." The plan was also intended to protect adjacent residential
neighborhoods, establish consistent quality of development design standards but
without a uniform architectural theme ar style, and to provide for development of
office and retail uses in site-specific locations.
The purpose of the Specific Plan was to guide and encourage the use of properties
along First Street to the maximum mutual advantage of the affected property owners
and the City of Tustin. The main idea of the Specific Plan is to preserve what is
good, improve what is not, and allow growth where market forces are evident,
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 9
through private market decisions. Key points intended to be emphasized in the Plan
are as follows:
• The primary uses of the planning area are intended to be retail commercial
and office uses.
• Preserve and expand/intensify existing quality uses
• Attract a major motel/hotel to the westerly end of the planning area.
• Maintain and improve the appearance and image of the planning area.
• Discourage parking in front setbacks.
• Prohibit additional residential uses in the planning area.
• Encourage lot consolidation and expansion of projects beyond the planning
area boundary.
• The Plan depends upon the private market to stimulate development and
improvements in the area.
• A number of incentives are available to assist in achieving quality
development.
• Diversity of appearance is desirable.
• The Plan was intended as a compromise between doing nothing and
completely changing the area.
• The Plan was intended to provide guidance for First Street development to
the year 2000.
General Plan
Under this land use designation, a mix of commercial and office uses such as
hotel/motels, commercial centers, research and development, and professional
offices are permitted. For some time, the Tustin General Plan has encouraged the
The City's General Plan designates the area as PC Commercial/Business (below).
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 10
implementation of methods that would support economic development within the
First Street corridor, including:
Policy 10.7: Encourage the consolidation of individual parcels/consolidated site
planning and parking and access along First Street and in Old Town through
utilization of development incentives such as reduced parking, height bonus, lot
coverage relaxation, allowance for secondary uses, fee waivers, and/or financial
assistance in land acquisition and/or infrastructure improvements.
Policy 10.9: Review the First Street Specific Plan including modifications to Plan
which would consider issues associated with eliminating and prohibiting future
automobile service-related uses and restrictions on the expansion of existing
automobile service related uses.
However, the General Plan land use map boundaries do not completely match the
Specific Plan boundaries.
Redevelopment Project Area
The eastern portion of the area from "B" Street and Prospect Avenue to Newport
Avenue is located in the Town Center Redevelopment Project Area (below). To the
south of the First Street Specific Plan area is the Cultural Resources Overlay District
and Old Town Tustin.
D. DEVELOPMENT REGULATIONS:
The First Street Specific Plan constitutes the primary zoning regulations for the
affected area. The regulations in the First Street Specific Plan provide development
standards related to building locations, height requirements, minimum site area,
minimum lot coverage, landscaping, and parking requirements. If the First Street
Specific Plan is silent on any issue, the Tustin Zoning Code prevails. If there is ever
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 11
a conflict with a particular Zoning Code provision, the First Street Specific Plan
prevails.
The Specific Plan area is divided into three subareas (shown below) that are divided
into Zoning land use designations. The subareas were created to recognize and
build upon a particular land use character or emphasis based upon the positive
features already present in the area. Subarea 1 is "zoned" to support mostly office
and commercial uses. Subarea 2 is a transition area with an emphasis on retail
commercial development. Subarea 3 is predominantly a retail commercial area with
a strong office enclave.
Table 1 (provided below) identifies the specific types of uses that the City believed
then was desirable within each land use designation (the primary use) uses that are
considered acceptable within the land use designation (the secondary use).
Development of primary uses and lot consolidation was strongly encouraged through
an incentive program identified in the First Street Specific Plan. Property owners
that proposed development projects implementing a desired primary were provided
an expedited plan processing, relaxation of certain zoning regulations to encourage
mixed use development. Lot consolidation would also be eligible for a variety of
incentives including a reduction of required parking, height limit relaxation, legal
assistance in parcel assemblage, lot coverage relaxation, fee waiver/reduction, etc.
The development and use of additional incentives is encouraged to implement the
First Street Specific Plan.
The Specific Plan also identified areas immediately outside of the Plan boundary
that were eligible for future inclusion to the Plan (although the primary intent of the
envisioned expansion was to provide for additional parking opportunities). Many of
these areas contain residential developments and commercial properties, including
some properties listed within the City's Cultural Resources Survey.
When adopted, the First Street Specific Plan created several non-conforming
properties. Non-conforming properties are those where a lawful use of land exists
that would not be permitted by the Specific Plan (i.e. single family homes, etc.).
Non-conforming uses cannot be enlarged, expanded or moved. Exhibits depicting
the expansion areas and non-conforming properties within the First Street Specific
Plan are shown on the following pages.
DISCUSSION:
Adopted in 19$5, the First Street Specific Plan identifies itself as a 15-year document.
Minor amendments to the Specific Plan have been approved only twice during the past
25 years (noted in blue handwriting on Subarea 1 of Exhibit 5 above). Members of the
Planning Commission and staff have for some time recognized the need to update the
First Street Specific Plan, but an update has not been pursued due to budget
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 12
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 13
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 14
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 15
TABLE 1
Subarea 1 Primary Secondary
Planning Unit 1 Commercial Hotel*
Planning Unit 2 Office Hotel*
Planning Unit 3 Commercial Hotel*
Planning Unit 4 Retail Comm'1 Office*
Planning Unit 5 Office Mixed Use**
Planning Unit 6 Commercial Office*
Planning Unit 7 Office
Planning Unit S Office
Planning Unit 9 Office
Planning Unit 10 Commercial
Planning Unit 11 Commercial Office
Planning Unit 12 Office
Planning Unit 13 Commercial Office
Planning Unit 14 Commercial Office*
Planning Unit 15 Office
Subarea 2 Primary Secondary
Planning Unit 1 Commercial ***
Planning Unit 2 Commercial
Planning Unit 3 Restaurant Commercial
Planning Unit 4 Hotel Office
Planning Unit 5 Commercial Restaurant***
Planning Unit 6 Commercial Restaurant***
Planning Unit 7 Commercial Restaurant
Planning Unit 8 Commercial
Planning Unit 9 Commercial
Planning Unit 10 Commercial
Flanning Unit 11 Commercial
Subarea 3 Primary Secondary
Planning Unit 1 Residential Office
Planning Unit 2 Office
Planning Unit 3 Commercial
Planning Unit 4 Commercial
* Implies lot size expansion beyond specific plan limits
and a related specific plan amendment. Such expansion
may impact the priority of uses (e.g., in Planning Unit
1) an expanded area may make a Hotel or Motel the primary
use for the site (s).
** See mixed use incentive, page III-20.
***These properties shall receive design review by Planning
Commission regardless of Primary Use or Secondary Use.
The area shall exhibit a strong pedestrian emphasis.
12-2-85 III-3
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 16
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 17
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Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 18
constraints. However, staff believes that an update to the Plan can and should be
pursued using in-house resources.
Staff believes that the document contains both stronger and weaker elements as
identified below:
Stronger Elements of the FSSP
• First Street is an attractive gateway to the City that has identifiable east and west
entry points at the Newport Freeway overcrossing and at Newport Avenue.
• The Specific Plan emphasizes "pedestrian-friendly" design and uses to preserve the
existing human scale and character;
• Setback and height restrictions appear compatible with nearby residential uses to
the north and south.
• Mixed use (commercial only) with retail on the first floor and office on the second
floor is encouraged.
• The Specific Plan corridor has a pleasant streetscape, which includes wide medians,
mature trees, and close proximity to an attractive City Park. Street furniture, flags,
planters, and bus shelters as recommended in the design guidelines can improve
the existing streetscape with a more cohesive appearance and further encourage
pedestrian activities.
• There appears to be little traffic congestion along First Street.
Weaker Elements of the FSSP
• The First Street Specific Plan may be similar to standard Tustin commercial zoning
(e.g., C1, C2), but is more confusing than those regulations.
• Primary and Secondary land uses identified for Subareas 1, 2 and 3 need to be
reevaluated and updated.
• The streetscape is dominated by small, shallow parcels.
• Lot consolidation incentives are not working.
• There is a lack of interconnectedness between parcels, preventing strolling.
Patrons/customers must use vehicles to enter and exit First Street in order to shop
along First Street.
• First Street does not have direct freeway access and it functions as a neighborhood
commercial rather than regional commercial draw.
• Residential uses are prohibited and there are no development regulations far
residential uses in the Specific Plan area, yet some existing residential areas are
depicted on the Specific Plan's land use maps and are also identified as a Primary
use for Subarea 3 in Specific Plan Table 1. In addition, the First Street Specific Plan
overlays a portion of Specific Plan 5, and Planned Community developments
creating zoning regulation confusion. Since there are residential uses north and
south of portions of First Street, some existing residential uses and future mixed
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 19
residential/commercial uses along portions of First Street might be considered
compatible.
• The General Plan may not be completely compatible with the Specific Plan.
• Auto related uses are listed under all primary and secondary commercial uses. But,
these uses are to be discouraged as a policy of the General Plan and may be only
appropriate in certain areas of the Specific Plan. These uses might be compatible in
some areas of the FSSP.
• A major hotel is encouraged at the westerly end of the FSSP. However, there might
not be a large enough site or sufficient market demand to support the establishment
of a major hotel to that location. In addition, a major hotel might not be compatible
with the neighborhood.
• The boundaries of the First Street Specific Plan map are purposefully not consistent
with the underlying parcel lines. In several instances the FSSP boundary line
divides parcels with two different zoning districts. Although intended as an incentive
to expand and intensify the Specific Plan area, the illogical boundaries can create
zoning regulation confusion to owners, realtors, and lenders.
• The original purpose of encouraging "Primary" over "Secondary" uses may no longer
have such importance. And, it is not clear that the FSSP's goal in supporting the
establishment of Primary uses has worked. A clearer set of goals and implementing
regulations should be established to clarify whether Secondary uses should continue
to be discouraged.
• Restaurant uses are conditionally permitted within both Commercial Primary and
Secondary land uses but should be a permitted use.
The following issues have been identified by staff for specific Planning Commission
consideration and discussion.
Re-evaluate the intensity and distribution of commercial/office uses along First
Street. Although the distribution varies, identical commercial and office uses are
currently authorized along the entire length of First Street. Due to lot size,
historical development, access to regional transportation, etc., First Street does
not have a sense of place. Commercial and Office uses currently located within
Subarea 1 appear to have more in common with Old Town while the commercial
and office uses in Subarea 3 appear to be more like those located on Newport
Avenue. This makes sense if one considers that the marketability of businesses
along First Street might be tied to their proximity to Newport Avenue and regional
transportation. Businesses located further from Newport Avenue are also further
removed from the Newport/First Street market.
Should the uses identified for Subarea 1 be revisited to consider modifying land
use intensities within that area to reflect something more like a neighborhood
commercial (C-1 or C-2) zoning? If so, where should these new use restrictions
begin and end?
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 20
2. Re-evaluate regulation of Mixed Uses. The Specific Plan emphasizes that the
primary uses of the area are and should remain mixed use commercial
(retail/office). The term "Mixed Use" has evolved over the years to include
residential/commercial. Prospect Village in Old Town Tustin is an excellent
example of a modern mixed use project. A residential-based mixed use could
potentially be compatible with residential uses located to the north and south of
the Specific Plan boundary and with existing residential uses along First Street.
Senior housing may also be an option along portions of First Street.
Should the City continue to encourage only commercial office and retail as
primary uses within the entire length of the corridor? Should a revised vision be
developed that includes residential mixed use development? What about a
senior housing component? Where should these uses be allowed or not
allowed?
3. Re-evaluate the Specific Plan's determination that historic residences are
nonconforming. As previously noted, there are historic resources located along
the First Street corridor. Some might argue that these homes add character to
the streetscape. There are many fine examples throughout Tustin where single
family homes have been converted to commercial office and other uses (e.g.
along Yorba Street and First Street). Many of the single family homes located
along First Street are on small lots with little space for on-site parking that could
be preventing them from being easily redeveloped into commercial properties.
Depending upon the direction provided pertaining to option 1 above, single family
homes may be compatible with the area.
Should these resources be protected or should existing single family homes
continue to be considered non-conforming and eliminated over time?
4. Re-evaluate Auto-Oriented Uses. In the 1950's, First Street served as a
significant east-west vehicle route. Hotels, the Revere House, fast food
restaurants, auto repair, and service stations located along First Street catered to
a motoring consumer. By the 1960's, motorists began travelling Newport
Avenue, Fourth Street and Red Hill Avenue for easier freeway access.
There are a number of auto-oriented businesses currently located along First
Street. Tire sales and service, car washes and service stations are conditionally
permitted by the First Street Specific Plan. Auto repair is not a listed use.
However, auto-repair uses of low intensity (excluding body shops) may not be
grossly incompatible with residential or other commercial uses, given the fact that
they appear to be primarily located in close proximity to other auto-oriented uses
in Subarea 2. In spite of the Specific Plan prohibition and variable market
pressures over the years, auto repair uses have been resilient and may fill a
market niche in Tustin for neighborhood auto services. In addition, the City rarely
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 21
receives code enforcement complaints about the operation of auto-oriented
businesses,
Should the Plan be revised to incorporate auto-oriented uses and instead utilize
regulations and programs that would focus on improving the physical appearance
and compatibility of these properties? Should auto-oriented uses continue to be
prohibited? If allowed, where should these uses be allowed or not allowed?
Re-evaluate the current goal of encouraging a major hotel within Subarea 1.
Policy 1 of the First Street Specific Plan encourages a mix of commercial and
office uses in sub-area 1 with a major motel/hotel option. A hotel or motel would
possibly bring tourists to the Cultural Resources District and Old Town Tustin.
However, as noted previously, the historic pattern of development existing along
First Street within sub-area 1 includes residences, small offices, and light
neighborhood retail/services. A major hotel might pose a conflict with nearby
residences and the Cultural Resources District. A boutique hotel or residence
inn might be a better fit in this area. In addition, a major hotel may not find the
area attractive given the lack of freeway access and the fact that other, better
locations are now developing (Pacific Center East and Tustin Legacy) that might
be better suited for locating a major hotel.
Does the City wish to maintain a major hotel/motel option in Subarea 1?
6. Re-evaluate the boundaries of the First Street Specific Plan and use expansion
zones (Exhibit 4) identified in the First Street Specific Plan. When developed in
1985, the boundary of the First Street Specific Plan did not follow established lot
lines but was drawn through properties and even existing buildings. Expansion
opportunities were identified on Exhibit 4 of the Plan as an incentive to property
owners to implement projects that were consistent with the goals of the First
Street Specific Plan.
First Street Specific Plan zoning boundaries drawn through properties or
buildings creates potential confusion and conflict for property owners, staff, and
the real estate and development communities. For example, the Specific Plan
boundary is shown the gray colored multifamily residential property on the south
side of the mobile home park. In addition, some portions of the proposed
expansion areas are not consistent with existing zoning. The currently planned
expansion in some areas may also be practically infeasible since it would require
the unlikely elimination of several existing single and multi-family homes,
involving the often difficult process of private acquisition of multiple properties.
Should the boundaries of the First Street Specific Plan be adjusted to be
consistent with existing lot lines, similar to other zoning in the City? Should the
expansion opportunity areas be re-evaluated consistent with any Specific Plan
boundary adjustment, existing zoning, and other practical constraints?
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 22
7.
implementing the First Street Specific Plan. The First Street Specific Plan was to
"be accomplished by a comprehensive set of regulations, incentives and urban
design guidelines, along with other related actions to encourage optimum
development. To date, the few incentives identified have not stimulated the
actions desired (i.e. lot consolidation, mixed use development, etc.).
Should the incentive program be re-evaluated?
$. Consider methods to create a gateway to Old Town. First Street and EI Camino
Real is the northerly entrance to the commercial district in Old Town Tustin.
Relatively new signs have been installed within the right-of-way in several
locations in the City to guide persons to Old Town Tustin. Additional entry signs
or monumentation at the First Street/EI Camino Real gateway could additionally
strengthen Old Town Tustin identity.
9.
Should additional gateway or monumentation design elements be investigated
and considered for possible incorporation into additional guidelines/design
concepts for the First Street Specific Plan?
Specific Plan. The Specific Plan currently encourages a diversity of design within
certain broad quality guidelines as desirable. Some consolidation and uniformity
may benefit site design and internal circulation within consolidated lots and to
ensure that neighboring projects utilize consistent design elements for
compatibility and to encourage shared parking or access. In addition, creating
interconnected plazas to entice pedestrian traffic, specific standards such as
locations for plazas, courtyards, or parking area, etc. may accommodate better
planning. This however would require either lots consolidation or reciprocal
agreement between landowners. New guidelines to further define development
standards may benefit the area. New guidelines would also be important should
option #1 be implemented to modify the intensity and distribution of uses along
First Street.
Does the City still desire a diversity of appearance along First Street? Should
improved design guidelines be developed for the First Street Specific Plan?
10. Re-evaluate current prohibition of new residential uses along First Street. Single
family, multi-family and mobile homes exist within the First Street Specific Plan
footprint. Specific Plan Policy 1 of Goal 4 prohibits additional residential uses in
the planning area. The current prohibition of additional residential uses is
intended to ensure that First Street would eventually evolve into a commercially
oriented main street environment. However, in the 25 years since its adoption,
no residential use has been replaced with a commercial use. Senior housing
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 23
projects appear to be a new and relatively stable market trend that might be
compatible with appropriate design in some locations along First Street. Allowing
new residences to be built along First Street could provide an additional
customer base to commercial activities located along First Street and in Old
Town Tustin.
Should new residential uses continue to be prohibited? If not, should senior or
affordable housing projects be allowed along First Street?
11. Re-evaluate the concept of distinguishing between primary uses and secondary
uses. The Specific Plan regulates land use along First Street using atwo-tier
system for identifying permitted and conditionally permitted uses. The preferred
land use is prioritized as the primary use. It is easiest to get primary uses
approved. Secondary uses are acceptable, but the property owner must proceed
through a more difficult project review process. For example, the Specific Plan
requires the referral of all design approvals for secondary uses to the Planning
Commission. No other commercial district in the City has this kind of two-tier
system. And, the kinds of uses that are essentially being discouraged are uses
that would be permitted or conditionally permitted in any other commercial district
in the City. For example, the First Street Specific Plan requires a proposal for a
florist or bookstore (listed as secondary retail uses) to go through a longer
process to locate along First Street. Staff believes that the two-tier system
confuses and discourages First Street property owners and potential tenants.
Does the Specific Plan need to distinguish between primary and secondary
uses?
12. Re-evaluate the lot consolidation program. As previously noted, historical First
Street development evolved from an agrarian past, with lot sizes of varying sizes,
but some that are quite small. The First Street Specific Plan included a program
to incentivize the consolidation and accumulation of smaller lots to encourage
larger site development of the area. The Lot Consolidation program provides
relaxation of certain development standards such as height limitations, facilitating
the development of secondary uses in lieu of primary uses, relaxed setbacks,
etc. to encourage bigger development. To date, the City has not processed any
lot consolidation requests. Recently, an auto repair business along First Street
was available for sale, and the adjoining property owner was not enticed to
acquire the property to utilize the incentives provided in the First Street Specific
Plan. Some might argue that First Street has a neighborhood commercial sense
of place that is OK the way it is, that it is not so much the mix of uses, but the
lack of property maintenance, etc. that detracts from the corridor, and that trying
to change First Street into a regional commercial corridor (like Newport Avenue)
should not be encouraged. Staff questions whether the community would
currently support lot consolidation to build a Kohls or Target type regional retail
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 24
store at the westerly end of First Street? If the answer is yes, stronger incentives
are needed to attract more owners to consolidate lots.
Should lot consolidation continue to be pursued? If so, should staff evaluate
alternative or additional incentives that could support tot consolidation?
13. Consider Revision of the First Street Specific Plan's Site Development Standards
and Design Guidelines. The First Street Specific Plan's site development
standards and design guidelines have not been revised in 25 years.
Consequently, the Plan is not up to date or even consistent with standards or
guidelines adopted elsewhere in the City. For example, the Specific Plan was
not modified when the City Council adopted new provisions affecting other
commercial areas in the City including the implementation of new parking
standards, outdoor restaurant seating ordinances, staff design review procedures
and the Zoning Administrator procedure (adopted more than 15 years ago).
The Plan also limits height to achieve a low-profile "pedestrian friendly"
environment but First Street may never have the connectivity needed to be an
attraction to pedestrians. The lack of available vacant land, land costs, and
development cost, particularly in Orange County, influences developers to seek a
taller building height (3 to 4 stories). Practical methods can be implemented to
ensure that new buildings are designed with a pedestrian scale without
sacrificing the market's requirement for taller, more massive buildings. Massing
and bulk can be mitigated by zoning regulations requiring building step backs to
allow a higher intensity development to be compatible with the existing built
environment and massing along the commercial corridor and nearby residential
neighborhoods.
Should the site development standards and design guidelines be revised?
CONCLUSION/NEXT STEPS:
This workshop is intended to generate Planning Commission questions, input, and
comments on the matter. Following general discussion at the workshop, the Planning
Commission should consider and provide input to staff as to which of the following
options should be pursued:
Modification of the First Street Specific Plan should not be pursued at all. The
Plan satisfactorily provides appropriate policy and regulatory guidance for the
area.
Modification of the First Street Specific Plan should be pursued using available
staff resources as time permits.
Planning Commission Report
First Street Specific Plan Workshop
January 25, 2011
Page 25
3. Alternative options as may be identified by the Planning Commission at the
workshop.
Staff recommends Planning Commission support of Option 2 based upon the following:
• The First Street Specific Plan area affects an important commercial corridor that
deserves an update to renew and reinvigorate the focus and objectives of the
Plan.
• The First Street Specific Plan is a 15-year document, now 25-years old, that is in
need of updating.
The original intent and purpose of the First Street Specific Plan has nat been
accomplished, making it timely to reconsider the Plan to ensure that the
commercial area remains sound, aftractive, and profitable to property owners and
business owners.
• Many elements of the First Street Specific Plan appear to be outdated, and are in
need of modernization.
The development incentive program prescribed in the First Street Specific Plan
has not worked to consolidate/accumulate parcels into larger development sites.
• The boundaries of the First Street Specific Plan should be evaluated to ensure
General Plan consistency and to eliminate zoning confusion.
• The First Street Specific Plan's prohibition of residential uses should be
reevaluated to consider compatible senior housing, mixed use development and
other compatible residential uses.
• The First Street Specific Plan's goal to establish a major motel/hotel at the
westerly end of First Street may be misguided, given the low intensity/low scale
built environment of the adjacent neighborhoods and the fact that better locations
exist within the City for such a development.
With Planning Commission concurrence, staff envisions accomplishing this task through
the normal public Specific Plan Amendment hearing process, including any required
environmental documentation, with the full and active participation of the affected property
owners and business owners, as well as other members of the public.
Dana L. Ogdon
Assistant Director
Elizabeth A. Binsack
Director of Community Development
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