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Home My WebLink About03 Transmittal of Draft: First Street Specific PlanAGENDA REPORT MEETING DATIE: JULY 24, 2012 TO: P1;IVNI HNG CONI IISSION FROM: COi04UNITY DEVELOPMEiNl T IILDCizj'ARTMENT SUBJECT: TRANNISMITTAL OF DRAFT: FIRST STREET SPECI SIC PLA' �N Ff-�FC7G!/�[h1END ATKDJN: ITEM 3 That the (Planning Commission receive the Community Development 'Department's draft update of the First Street Specific Plan and tentatively set the item for public hearing on September 11, 2012. Staff is providing a draft of the first Street Specific Plan °to the (Planning Commission to begin the process of rvvimjljing the proposed changes in anticipation of a formal presentation and consideration at a public hearing in September. VAlhen the hearing is set, alI discretionary actions necessary to implement the update, including any required General Plan Amendment, Zone Change, and environmental documents will be presented. BACKGROUND AND DISCUSSION: The First Street Specific Plan (Specific plan 1 0) 1dajas completed in less than four months and adopted by the Tustin City Council on December 2, 1985. The Specific Pian affects properties on both sides of First Street from Newport Avenue to State Route 55 (Costa Mesa) FTsa�fuay. The current First Street Specific Plan may be �4sNAjed at: http: / /www.tustinca.org/ departments / commdev /index.html #planningZoning The First Street Specific Plan �,�ms envisioned to be a 15 -year document, and 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 vvithout 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of the planning Commission and staff have for some time expressed a concern that the First Street Specific Plan is outdated, but an update has not been pursued due to budget constraints. On January 25 and March 22, 2011, the Planning Commission held �juorXshops on the First Street Specific Plan. At that time, staff presented reports indicating that although a comprehensive revision of the Specific Flan is not tivvithin the current City budget, there are interim measures and updates ghat can and should be pursued using in -house resources. As a result, the Planning Commission directed staff to pursue a modification of the first Street Specific Plan using available staff resources, as time permits. Planning Commission Report July 24, 2012 Preliminary Draft: First Street Specific Plan Page 2 BAs note previously, the Planning Commission held 131jorkshops on the First Street Specific plan on January 25 and March 22, 2011. On September 15, 2011, Community Development Department staff held a 'Community Workshop affected property owners and other interested parties. A significant amount of background information was provided to the Planning Commission and the public at these 1vorkshops aivhich is summarized in Attachment 1. The purpose of all three vjuorkshops ]was to identify and discuss First Street Specific plan document strengths and 1 sakmssses vii'th the intent of considering that input during the process of upd&Jndg the document. Some of the Strengths and 1,Ajeaknssses identified included: FSSP Strengths • First Street is an attractilJe gateway to the Sits that has identifiable east and 1j1jest entry points at the Costa Mieasa (Freeway overcrossing and at l�iev\jport Avs'nus. • The Specific Flan emphasizes "pedestrian - friendly" design and uses intended] to preser,m the e dstindg human sole and character; • Setback and height restrictions appear compatible �jadth nearby residential uses to the north and south. Mixed commercial uses xjuith retail on the first floor and office on the second] floor is encouraged. • The Specific Plan corridor has a pleasant streetscape, which includes 1Jliide medians, mature trees, and close proximity to an attrac'Jvs 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. FSSP YVeaknesses o The First Street Specific Plan area affects an important commercial corridor. a he document is outdated and deserves an update to reneivu and reinvigorate the focus and objectives of the Plan. The First Street Specific plan development regulations appear similar to standard Tustin commercial zoning (e.g., G1, S2), but are more confusing than those regulations. • Primary and Secondary land uses identified for Subareas 1, 2 and 3 discourage economic development and need] to be reevaluated and updated]. • The streetscape is dominated by small, shallow parcels. 1-ot consolidation incentives do not appear to be working. • There is a lack of interconnectedness Ibetiajeen adjoining parcels or uses on opposite sides of the street. • First Street does not have direct freev ,Ajay access and tra-fTic has route to the freeway (Irvine Blvd.) — the FSSP functions (and function) more as a neighborhood commercial corridor than a corridor. °found® a more direct 1,11Al probably aNijays regional commercial Planning Commission I'Roport July 24, 2012 Preliminary Draft: First Street Specific Dian Page 3 • IN9e�jj residential uses and existing residential uses appear to be prohibited in the FSSP, yet large residential communities and historic single family homes exist � „Ajithin the Specific Plan's area. it is the intent of the City's nonconforming proVisuons that nonconforming uses and structures viill eventually be replaced'Juith conforming uses and structures. Holiusver, the adjacency of residential uses to the north and south of Subareas 1 and 2 (westerly and of First Street) could be conducive to retaining e.isting residential uses along First Street. • 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. The uses have operated in the area since before the Specific Plan's 1935 adoption in apparent harmony �,'\Jith the community. • A major hotel is encouraged at the 1ftjestsrly end of the FSSP. Hm isysr, the site is probably not conducive for such a use at that location access. • The boundaries of the First Street Specific Plan map were purposefully made inconsistent wish She underlying property lines. In several instances the FSSP boundary lone divides parcels between two different ?oning districts. Although originally intended as an incentive to encourage expansion and intensification of the Specific Plan area into adjoining neighborhoods, the current illogical boundaries can create zoning regulation confusion to mjjiners, reapers, and lenders. • The original purpose of encouraging "Primary” over "Secondary" uses no longer appears -to have importance. The FSSP's goal in encouraging the establishment of Primary uses has not worked. in fact, the focused approach toward discouraging non - primary uses and investment could negatively impact the economic health of the area. A clearer set of goals and implementing regulations should be established to clarify whether Secondary uses should continue to be discouraged. • A restaurant use is currently not alloi,;�jed �,,kjithout a conditional use permit but should be a permitted use. PROPOSED SPA 2012 -001 Specific Plan Amendment (SPA) 2012 -001 is proposed as a general update of the First Street Specific plan. This section outlines the proposed revisions that are included in SPA 2012 -001. AcfdnQ_'7� S�,pzcfflc ,°faLn Treatment of Certain Nonconforming residential Uses - As noted previously, the First Street Specific Plan �jljas adopted in 1985 to preserve First Street as one of the City's prime locations for retail and office development and to eliminate a perceived "erosion of commercial potential." Although the First Street Specific Plan identifies "residential" as a yellovi- shaded land use within Subarea 2 (FSSP Exhibit S) and Subarea 3 (FSSP Exhibit a), the First Street Specific plan does not identify, residential uses as a permitted or cond itionally permitted use, nor does it ;provide development regulations (setbacks, parking standards, etc.) for existing residential uses. As a result, all legally constructed residential uses within the First Street Specific Plan are considered nonconforming. It is the intent of the City's regulations that legal nonconforming residential uses will be eventually replaced with conforming commercial uses sometime in the future. Specifically, several large apartment and condominium projects mdst within the Specific �� m area. In addition, several historic single family structures SNist Ailiithin the viesserly Planning Commission Report Jdy 24, 2012 Preliminary Draft: First Street Specific Plan Gage 4 poton of Frst Strews (fiva of NvAjNch have been convey ed to commardal usa), �jvhuch ars, shc�,,kjn bdoojv: ,photo Caption: From too Best to bottom right e 1) 450 W. First Street; 2) 400 W First Street, 3)420 W First Street; 4) 520 W First Street; 5) 590 W. First Street; 5) 750 W First Street, 7) 133 Yorba Street; 3) 125 Yorba Street; 9) 519 W First Street; 10) 515 W First Street; 11) 125 Mountain View; 12) 125 N. A Street; 13) 501 W First Street; 14) 320 W First Street. P12rning Commission Respert July 24, 2012 Pra.Jminary Draft: First Street Specific Dian Page- 5 Singlas Fame &,Lictvras: Holdovers from an earlier time, thirteen single family residential structures (and one small commercial building) are located within Subarea I at the 1jussterly end of the First Street Specific Plan. -Tvelve of these structures are listed as historic resources within the City's Cultural Resources Survey (2003). One additional residence (320 W. First Street), construoted in 123E), may be eligible for listing as historic but is not currently Iisted in the Cultural JResouroes Survey. The quality and condition of these structures varies from maintained to substandard. Some are visibly deteriorating. Over tire, a frovj of these single family residences have been converted to a commercial office use, as is currently encouraged in the Firs`} Street Specific Flan. Many o.�s the single family homes located along First Street are on small loss little space `i'or on -site pari ing that makes it economically unattractive to convert 'them to commercial use. In addition, the �vvastsrly and of First Street (Subarea 1) has a strong small tmjAin, residential architectural design element that differentiates it from the more urban commercial context existing closer to NeNaiport ;venue (Subareas 2 and 3). Subarea I is bounded by low density single family residential uses to the south (Old Town) and to the north. The 13 single family residential structures, and many offlcs and commercial buildings in the area appear to share more of a commonality lwith Old Tovin Tustin than with the rest of the First Street or the r�lm,,kjport Avenue commercial corridor. `here are many fine examples throughout Tustin where single family homes have been converted to commercial offics and other uses (e.g. Tong Yorba Street anal First Street). The current Specific Flan prohibition of residential uses ensures that historic First Street homes used for residential purposes are nonconforming. Any la�v^riully established structure which is legal nonconforming in use, design, or arrangement, may not be enlarged, extended, reconstructed, or structurally altered, unless such enlargement, extension, reconstruction or alteration is to make the property in compliance with the regulations set °forth in the Code. In addition, a legal nonconforming structure must be mode to conform if maintenance, repairs or replacements exceed fifty (50) percent of the structure's assessed valuation, as shm,,vn on the last equalized assessment roll of the City of Tustin. DjAiners of the 13 historic nonconforming residences may not add an additional bedroom or bathroom since the expansion of such a structure essentially extends the economic life of the nonconformity rather than making the property conforming. Only improvements that make the property more conforming (i.e. commercial) can be supported. Although it may take a very Iong time, persistent application of the nonconforming code will eventually result in the replacement of alI nonconforming uses along First Street. Staff believes that the historic residential structures on First Street contribute to the context of nearby Old Town and add character to the westerly portion of the First Street streetscape. However, staff believes that the nonconforming provisions of the current Specific Flan discourage reinvestment, upkeep and expansion of these existing historic houses along First Street. Lastly, the existing historic residential uses are compatible with the existing built environment at the NjAjesterly and of First Street and reinvestment, upkeep and expansion of these uses should be encouraged for as long as these residences exist, to benefit the community and the First street streetscape. Therefore, Specific Plan Amendmsnt 2012 -001 includes Planning Commission Report July 24, 2012 Pralirninarrj Draft: First Street Specific Dian Pag- 6 provisions that �Ajould enable ohs continuance and possible expansion of existing residential uses, but v ouid also continue to encourage adaptive reuse and conversion to commercial use. number of verj large apartment and condominium residential developments occurred along First Street in the F 1270's and 1280's that ' contributed to the Sits . Council's 1985 determination to adopt a First Street Specific Plan to prevent further "erosion of the commercial potential." However, it is probably incorrect to assume that such large residential projects VllH someday be converted to a commercial use consistent �iAjith the First Street Specific Plan. The probability of this occurring is increasingly minimized �jvhen one considers that large condominium projects have multiple ov ner interests. Since residential uses are prohibited, there are no residential development regulations 'for residential uses in the Specific Plan area although 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 gable 1). in addition, the First Street Specific Plan :boundaries did not capture the entire perimeter of se)7eral large residential davelopments, leaving portions of the project zoned residential and other portions zoned First Street Specific plan (commercial). Owners, buyers, and real estate professionals often contact the City to confirm that an existing condominium home is a permitted or conditionally permitted use in the Zoning District prior to the sale or refinance. The odd separation of identical units between zoning districts creates significant zoning regulation confusion and hardship to °those o�juners located liAjithin the First Street Specific Flan, Large residential uses are a fixture along First Street. Rather than plan for their eventual elimination, large residential uses shWd be made conforming through their proposed exclusion from the First Street Specific Plan and given the zoning that was adopted when the residential project was originally approved (e.g. R-3, PD, etc.). Tt3 Smaller apartment complexes and an existing Recreational Vehicle Park (SuViiff RV (Park pictured at right) viould continue to be identified for commercial planning Commission Report My 24, 2012 Preliminary ®rest: First Street Specific plan Page 7 use within the First Street Specific plan and would therefore continue to be identified as nonconforming, 1jkiith the intent that they �duould be someday replaced ljvith conforming commercial use. 2. E;Nmjna�o the Fire 31Taz1 .n ATzao e SPA 2012 -001 proposes to eliminate tha First Street Specific plan "expansion areas" (see figure below]). Again, the intent of the 1985 First Street Specific Plan ,vas to prevent an erosion of commercial potential." At that time, First Street was one of the City's primary commercial corridors. As a result, the First Street Specific Plan encouraged a strong urban retail focus and a component that included planning for the expansion of the existing commercial area into adjoining areas, intended to increase the total retail square footage allovied along First Street. Hoa,,vevsr, the Specific Plan's expansion areas extend into sonsitive residential areas, including portions of the historic Cultural 'Resources area in Old Town Tustin, which would appear potentially controversial and problematic. I , C 6 O P ' J � , O.. .., � r par • � �' 9 � O m O O O � O ®• O® 0 0 O Q O 0 ® O _r For the most part, the properties located viithin the designated expansion areas are zoned Single Family ;residential. The First Street Specific flan has no zoning authority over properties shown within the expansion areas of the Specific Flan. Consequently, any developer �,Aiho Nivas to propose expanding a commercial use into an expansion area �ivould need to obtain !pity approval of a Zone !Change application, along a,A4th any required environmental document under CEQA, following ghat can only be assumed would be strong opposition from the affected single family residential neighborhoods. Since adoption of the Fir SA Street Specific elan, regional commercial retail centers have been developed elsewhere in the City, including at the Market Place in Gast Tustin and at The District at Tustin Legacy. Duo to changes in the retail market, the availability of alternative Tustin retail centers, and the lack of freeway access to dirst Street, it appears unNkely that there is sufficient market or community interest in continuing the plan's cuIrrent intent to encourage large, urban commercial development along the westerly portion of First Street, -Also, identifying specific properties within an expansion area serves no real purpose, since a developer is not constrained in any manner from submitting an application to expand into any area along First Streot. Ranning Commission Report July 24, 2012 Preli minary Drab: First Street Specific plan ;Page a 3. x.77 ✓� cls� s � �© G7 S �©s�u� �7n77 ss� ✓ ©' J 7f e� � 17 2 y0 C ii a cO ©pQTs J cl 7 1��7�i 7 ✓ �7 27s 5� �7 gin ✓ 5 S 7Z✓ 6) V DO MSns f „Pru r us " v strongly encouraged through an incentive program idonNiJ'iad in the First Street Specific Galan. Essentially, the plan Nmited certain parcels for commercial (retail) use and other parcels for office use. The pattern of parcels, 1,Ajors sometimes separated by streets but also affected adjoining parcels in a hop - scotch pattern (see figure above). In recent months, First Street property m,�ners have approached staff and questioned v ,\>hy property at sub- parcel 1 can be used for retail purposes but the property at sub parcel 2 cannot (see below). 1 1. COMMERCIAL 2 5 2. HOTEL* 3 OFFICE 1. OFFICE v'I3TEL 9 COMME 3,_MIIV% 2. MIXED USE* 7 2 HOTEL' ��C;OMMERCIAL 1.O0MId D3 n% cF.rz= 2.OPPICE* 2.OPPICj* I OFFJOE m� Is Sol I S 1. OFFICE— �(�— �.CO MER�o L 12 9.COMMP. FFI E* a15PICE 1. COMMERCIAL 1.OPPIC: 1.COMMIMCIAL 1e �G G 7s 5 �?, OFFICE First Street Speq 1fl r, Flan LEGEND Prepared For The City Of Tustin ❑ RETAIL COMMERCIAL OFFICE SPP\ 2012 -001 proposes to standardize the 7-oning boundaries throughout the neighborhood so that any ;property along a segment of First Street can be used for the commercial purposes identified and authorized in the Specific plan. The re- designation of the sub -area zoning is discussed below. although the distribution varies, identical commercial and office uses are currently authorized along the entire length of First Street. let, as discussed above, development that has occurred along the westerly end of First Street (Subarea 1) is significantly less intensive in character, design and use from that which occurs within the central and easterly end of First Street (Subareas 2 and 3). As noted previously, historic residences, commercial and office uses currently located within Subarea 1 appear to have more in common �,,Mth Old Down while the commercial and office uses in Subareas 2 and 3 appear to be more urban. RErining Ccrnrniss4on Reaperi Judy 24, 2012 preflminary Draft: Forst street SpeC0ft PDan p2ge 9 Office Buildings Office Bufldfngs - Sub 2 and 3 Although currently permitted under the existing Specific Plan, staff believes that it is highly unlikely that large, urban cormmercid uses (Sports Chalet, Home Depot, etc.) would locate within the less intense westerly end of Burst street. Further, any proposal to introduce a large, urban commercial use within the westerly end of First Street would likely be vievjsd as incompatible with the existing built environment at that location. SPA 2012.001 proposes to replace he hop- scotch pattern of "preferred" uses with single -z-oned districts (Subarea I — "°Nlsighborhood Commercial ;" Subarea 2 "Corn msTcial" ), in a manner similar to other commercial zoning districts in the City (see below). The proposed modification would make commercial Liss boundaries and regulations much more functional. To protect and preserve the less intensive Subarea1, SPA 2012 -001's reclassification to Neighborhood Commercial eliminates more intensive, urban uses that were previously permitted in the area in order to preserve the character of the existing built environment and protect the nearby low density residential neighborhoods. SPA 2012 -001 also proposes to continue Subareas 2 and 3's current urban commercial uses and intensity of use along that portion of First Street. Planning Commission Report July 24, 2012 Preliminary Drab: first Street Specific plan Page 10 ,cta Uoca Subarea I — "I'9aighbarhmcd Commarciar -- -- - - - - -- i V Subareas 2 and 3 — "Commarciai" ,4. n - ayaivate Auto - Oriented Uzoz - In the 1950s, First Street served as a significant east -west vehicle route to and through Tustin. Hotels, the Revere House restaurant, fast food restaurants, auto repair, and service stations located along First Street to cater 'to a motoring consumer. Following the introduction of the 55 Frems>ay in the 19603, motorists began using 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. Most of these uses are located within Subarea 2. Several of these uses have operated) on First Street without incident before the 1985 adoption of the First Street Specific Plan. Tire sales and service, car washes and service stations are currently conciilonally permltted by °the first Street Specific Plan. However, auto repair is not a listed use. Lower intensity auto- repair uses (excluding body shops) may not be incompatible with residential or other commercial uses as long as they continue to follow the Tustin City Code regulations pertaining to noise, etc. In spite of the Specific Sian prohibition of auto repair, auto repair uses have been resilient and appear to gill a market niche in Tustin for neighborhood auto services. It should also be noted that the City rarely receives code enforcement complaints about the operation of First Street auto- oriented businesses. Planning Commission Repori Afly 24, 2012 Preliminary Drs: First Street Specific plan Page 11 Consequently, the proposed Specific Flan Amendment includes auto repair as a conditionally permitted use within the "Commercial" area (Subareas 2 and 3). NI other auto- oriented uses continue to be permitted or conditionally permitted. 5. Update Parking, Z)Qyolz;pment and Use � s noted previously, the First Street Specific Plan �xas intended as a 15 year document that is nearly 25 years old and in need of updating. SPA 2012 -001 proposes a comprehensive update of the Plan's outdated parking regulations by referencing and utilizing the City's recently adopted Parking Ordinance revisions, and incorporating modernized commercial land uses and development regulations. In addition, all of the plan's outdated graphics have been modernized and revised to reflect the changes proposed above and to ensure clarity of purpose and interpretation. 5. QWzz 7,,Ts� Street Specific Phan lbocumchongs to include or exclude 570 o properties – lvAihen adopted in 1985, the First Street Specific plan .boundaries did not follow all property lines but cut through certain parcels. It is surmised that this approach was intended to encourage the expansion of t— commercial uses and lot consolidation that would result in rezoning to include the enlarged area. SPA 2012 -001 eliminates the division of properties (even structures) Between two zoning districts. All Specific Flan zoning boundaries are proposed to be revised to follow property lines. Again, large residential developments are proposed to be excluded from the First Street Specific Flan and rezoned consistent with their - originally adopted residential zoning. Plan goals and vision statements have been appropriately revised to reflect the proposed changes. In the Figure above, a First Street condominium project was dissected by the adoption of the First Street Specific Plan. The portion of the residential project located �,Mthln the FSSP (identified with red borders is nonconforming and must be eventually replaced with a commercial use by law. SPA 2012 -001 proposes that the residential zoning for this use be restored so that it is returned to a conforming use. 7. -ENtminate references to the Community Redevelopment Agency - The eastern portion of the area from "P" Street and Prospect Avenue to 'Newport Avenue was Punning Commission Report JUly 24, 2012 Preiiminanj Draft: Fhiri Street Specific Stan Page 12 located in the TmAin Center Redevelcpment Project �=1Tea (see map basimaj). Through the Legislature's adoption of Assembly Bill No. 26 (AB XI 28), all California redevelopment agencies have been dissolved. With the recent dissolution of the Agency, revisions have been included in the proposed Specific Plan Amendment to formally eliminate any reference to the Redevelopment Agsncy or Redevelopment Project ,Area. PAW ILL 0 Yellow area shown above identifies portion of former Town Center R, 6development Project Area 8. Eliminate the First Street Specific ,, �a , I t1No -tier system of supporting prima uses Grad discouraging secondary usez - As noted previously, the First Street Specific Plan regulates land use along First Street using a hAJ0- 'tieTed system for identifying the permitted and conditionally permitted land uses lv� hich may be established N�]ithin the First Street commercial corridor. The preferred land use is prioritized as the primary use. The First Street Specific Plan incentivized primary uses by making them the easiest to get approved. Property owners that ,proposed development projects implementing a desired primary �,Ajere provided an expedited plan processing, relaxation of certain 7-oning regulations to encourage mixed use (commercial) development. Secondary uses are acceptable, but the property owner must proceed through a more difficult, slower project ravimu process. For example, the Specific Plan requires the referral of all design approvals for secondary uses to the Planning Commission. Specific Plan Table I ('below) identifies the specific types of uses that at the time of original adoption (1985 ) the 'City !bellsved was desirable viithin each land use designation (the primary use) uses that are considered acceptable vjithin the land use designation (the secondary use). planning Commission Repors July 2 -, 2012 Preliminary Draft Furst Street Specific Plan Page 13 The original purpose of encouraging NPrimary" over "Secondary" uses may no longer have such importance. I's is not clear that the FSSP's goal in supporting the establishment of Primary uses has actually �,vorksd. No other commercial district in the City utilizes this kind of bjAjo -liar system. The types of uses that are essentially being discouraged in the current First Street Specific plan are uses that vuould he 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 aloe First Street than any other retail use. Staff believes that the two -tier system confuses and discourages economic development along First Street, reflects negatively upon the City, and creates confusion between property owners and tenants. Specific Plan Amendment 2012 -001 eliminates the current two -tier system and would establish a single list of permitted and conditionally permitted uses that is identical to the system currently uUftad in the Tustin Zoning Code for other commercial districts. Fjo2t Street Specific Plan Design Guidelines o The 1985 First Street Specific Plan included 'Design Guidelines which are significantly outdated. Staff has ;prepared a replacement document that updates many elements of the Design Guidelines, and recommends the introduction of public art, use of mater conservation, etc (Attachment 3). AL s drafted, staff' believes the proposed document to be much more understandable TABLE 1 Subarea 1 Primary secondary Planning Unit 1 .0cmmercial Hotel* Planning Unit 2 =9100 Hotel* Planning Unit 3 Commercial Hotel* Planning Unit 4 utail Come,I Office* Planning Unit 5 Office Mixed Use ** Planning unit 6 gio mercial Office* Planning Unit 7 Infice Planning Unit 8 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 awmawroial Restaurant * ** Planning Unit 6 commercial Restaurant * ** Planning Unit 7 Commercial Restaurant Planning Unit 8 Comlleraiai Planning Unit 9 Commercial Planning Unit 10 Commercial Planning 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 The original purpose of encouraging NPrimary" over "Secondary" uses may no longer have such importance. I's is not clear that the FSSP's goal in supporting the establishment of Primary uses has actually �,vorksd. No other commercial district in the City utilizes this kind of bjAjo -liar system. The types of uses that are essentially being discouraged in the current First Street Specific plan are uses that vuould he 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 aloe First Street than any other retail use. Staff believes that the two -tier system confuses and discourages economic development along First Street, reflects negatively upon the City, and creates confusion between property owners and tenants. Specific Plan Amendment 2012 -001 eliminates the current two -tier system and would establish a single list of permitted and conditionally permitted uses that is identical to the system currently uUftad in the Tustin Zoning Code for other commercial districts. Fjo2t Street Specific Plan Design Guidelines o The 1985 First Street Specific Plan included 'Design Guidelines which are significantly outdated. Staff has ;prepared a replacement document that updates many elements of the Design Guidelines, and recommends the introduction of public art, use of mater conservation, etc (Attachment 3). AL s drafted, staff' believes the proposed document to be much more understandable Planning Commission Report July 2,5, 2012 Preliminary Draft: First Street Specific Plan Page 14 and useful to the public, professionals and appointed or elected officials. Staff' i,,Ajould recommend that a future 1juork wffort should be perfoTmad to involve the pubk in possible �,vorkshops :that livould consider streetscape and place -rnak ng enhancements to the original governing policies that might result in potential design upgrades in the Jsirst Street hardscape, ;public parks ng, signage, streetlight and street furniture design, landscaping, etc. that �,AJould update, enhance and strengthen the uniqueness of Mrst Street's sense of place. Dana L. Ogdon,l Assistant Director Scott Reekstin' \Jl Senior planner Joe Pearson, Manning Intern C -� Elizabeth A. Binsack `- Director of Community Development Amy Stonich, A\ Op Senior Planner Attachment 1: Brief Background Previously Provided on the First Street Specific Plan Attachment 2: Preliminary Draft First Street Specific Plan (Red -line and Corrected Copy) Attachment 3: Preliminary Draft First Street Specific Plan Design Cuidelires S: \Cdd \perepore \first street specific plan workshop.doc ATTACHMENT BRIEF BACKGROUND PREVIOUSLY PROVIDED ON THE FIRST STREET SPECIFIC PLAN BljRYEF BACK :R C UMP DMCU5507Ii OF 9NTOC U=Z��'�A` ON Fl-,Rs'Vl00 U SLY I?RC)'Vl -LM---_ DL ZDNi 11 I\ -�VFIIC FLAN iFirst Street ` ustin's agrarian past has significantly influenced the pattern of commercial development that has occurred in the community. early dews opment in Tustin Avuas initially focused Ajkiithin Old 'own as the community's commercial center. As Tustin expanded oubx@Td from Old Town, transportation and commercial corridors were created along the mayor arterials of First Street and Newport Avenue. Over the years, a centralized location, large parcel size and easy freeway accessibiRy have Avorked together to facilitate Neviport Avenue becoming the dominant, uniform commercial corridor in the older portion of Tustin. Banks, restaurants, office complexes, and large retail centers dominate the Newport Avenue strestscaps. Conversely, the lack of freeway accessibility, changes in the �jvay motorists travel, irregular or small parcel size, and a fragmented pattern of land use have contributed to a diverse First Street built environment. Planning !COMMissiCn INOTkshop July 24, 2 012 First Street Specific Plan Page T ha Rr,,sl S �roo� S c v �Rj(tt Gp9 ✓) A specific plan is a special set of development standards that apply to a particular geographical area. Specific plans are often used by local golIernments to �L��rite planning policies and development codes that are intended to address a particular planning issue or problem ld>ithin an urban area. Specific Plans are usually developed in coordination with a Generai Plan Amendment, Redevelopment Project Area (State lavi has recently eliminated Gaedevelepme —m as a economic development tool available to cities), or other tools to persuade property OVIners into addressing the issue together v,✓ith 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 Tustin 'City Council adopted the First Street Specific Plan (Specific Man 10) viith a goal to encourage the development of an appropriate mix of commercial and office uses that viould address their concern about an "erosion of commercial potential" �jAjhile also protecting surrounding residential neighborhoods. UnT recently, a portion of the First Street Specific Plan dvas within the ToNjAin Center Redevelopment Project Area (now defunct). The plan did not make mivaeping changes but 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. Some of the Key points emphasized in the Plan are as follows: Preserve vihat is good, improve is not, and allmig9 grovflh �juhere market forces are e iident, through private market decisions • Encourage retail commercial and office uses. • Prohibit additional residential uses. • eliminate and prohibit future automobile service - related 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. o Encourage lot consolidation and expansion of projects beyond the planning area boundarly. 0 lncentivize and encourage quality and diversity in architectural appearance Planning Commission VVoTlzshep July 2 /4, 2012 First Street Spedfic pion Page 3 The First Street Specific Plan is the adopted zoning for the properties v\ANn its boundaries. The regulations in the First Street Specific FIlan provide davalopment standards related to building locations, height requirements, minimum site area, minirnum lot coverage, landscaping, and parking requirements. if the 9rst Street Specific Plan is silent on any issue, the Tustin Zoning Code prevails. if there is elver a conflict �;\jith a particular Zoning Code provision, the First Street Specific Plan prevails. RM ir. Ot .T- IN "7y The Specific Plan area is divided into three subareas (shown above) 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 I is "zoned" to support mostly office and neighborhood commercial uses. Subarea 2 is currently a transition area with an emphasis on retail commercial devaiopment. Subarea 3 is predominantly an urban retail commercial area 1Mth a strong o'tfice enclave. Each Subarea is subdivided into Planning units (see above and Subarea 2 "Exhibit 6," on the folloM�ing page). Each Planning Unit identifies the "desirable" types of uses allowed as "primary" and uses that are considered "acceptable" as "secondary" as exemplified below: Prim, ary ands Secondary Vises Aficyved in, Subarea 2 Excerpt fr= Tabis I (F-SSP Page 111 -3) Planning rn Restaurant Commercial Planning Unit 4 Hotel Office Planning Unit 5 Commercial Restaurant G ianning Commission VAJorkshop Ju, y 24, 2012 r first Street Specific plan Page 4 14REQTAURANT 2. COMMERCIAL 2 .' I- COMMERCIAL 1. COMMERCIAL Fi I u COMMERCIAL . RESTAURANT'S Ta JAL 1NT I- COMMERCIAL Z. RESTAURANT* N 7O 1. COMMERCIAL LEGEND F, Z-: i fst trecf Specific Plan ❑ RESIDEN -i 3,V, Prepared For The City Of Tustin ] COMMERCIAL, Subarea 2 HOTEL EXHH31T 6 Development of primary uses and lot consolidation is strongly encouraged through an incentive program identified in the First Street Specific Plan. Property owners that propose development projects implementing a desired primary use are provided sxpediited plan processing, relaxation of certain 7-oning regulations and other incentives. Owners proposing a secondary use are not ort'ered such enticements, and proceed using longer processing times. foot consolidation is encouraged to support larger development sites through a variety of incentives including a reduction of required parking, hsight limit relaxation, legal assistance in parcel assemblage, lot coverage rolaxation, fee�aiver9reduotion, etc. The Specific Plan also identifies areas immediately outside of true Plan boundary that are eligible for future inclusion to the (plan. The purpose of these "expansion areas" is to encourage dot consolidation to support iarger commercial development in the area. Many of the parcels located aivith the expansion areas contain existing single family residential developments and commercial properties, including some properties listed as historic within the City's Cultural Resources Survey. Because the areas are currently outside the First Street Specific Plan boundary, the expansion area is identified for planning purposes only; there is. Planning Commission Workshop Ady 24, 2012 Frst S2rast Specific Pian PagI 5 _ 1 FIRST STB First Street Plan use EXPANSION OPPORTUNITIES '71 Prepared Fer The City of ustiry s :HMAT 13 When adopted, the f=irst Street Specific Plan created several non - conforming properties (existing uses ghat are not listed as a permitted or conditionally permitted Liss). I9on- conforming properties are those where a lzcjjv ?u1 Liss of land exists that 1jAjould not be permitted by the Specific Plan (i.e. single family homes, etc.. Currently, oAsting single family residential uses, and the RV Park are identified as nonconforming. In addition, the Specific Plan's land Lase regulations (Section lM, beginning on page M-7) do not list existing residential multi-family :uses (apartments or condominiums) as either a permitted or conditionally permitted use. Non - conforming apses cannot be enlarged, expanded or moved. Tustin General Plan The Tustin General Plan provides a comprehensive declaration of goals, policies, and programs for the development of the city that includes diagrams, maps, and text setting forth objectives, principles, standards, and other features, and which has been adopted by the Tustin City 1 i µ �w d FIRST WREST alb � t A First Street Plan use EXPANSION OPPORTUNITIES '71 Prepared Fer The City of ustiry s :HMAT 13 When adopted, the f=irst Street Specific Plan created several non - conforming properties (existing uses ghat are not listed as a permitted or conditionally permitted Liss). I9on- conforming properties are those where a lzcjjv ?u1 Liss of land exists that 1jAjould not be permitted by the Specific Plan (i.e. single family homes, etc.. Currently, oAsting single family residential uses, and the RV Park are identified as nonconforming. In addition, the Specific Plan's land Lase regulations (Section lM, beginning on page M-7) do not list existing residential multi-family :uses (apartments or condominiums) as either a permitted or conditionally permitted use. Non - conforming apses cannot be enlarged, expanded or moved. Tustin General Plan The Tustin General Plan provides a comprehensive declaration of goals, policies, and programs for the development of the city that includes diagrams, maps, and text setting forth objectives, principles, standards, and other features, and which has been adopted by the Tustin City Planning Cornrnlssion Workshop July 2 -, 2012 First Sirest Spacifjc plan Page 6 Council. The City's General plan designates the 9rst Street Spocific Galan area as PC C0mmerci2l19-usiness ( C E , shm�m belor?. Under the G CCB land use designation, a mb� of commercial and office uses such as hotellmotels, commercial centers, research and development, and professional ou'uices are permitted. For some time, the Austin General Plan has encouraged the impismsntation of methods that -Would support economic dsvelopment viKhin the First Street corridor, including: PcR° y ID.7o Encourage the consollda&ion of individual parcels consolidated site planning and parking and access along RTst Street and in Old `j oajkjn through utill,ation of development incsntives such as reduced parking, height bonus, lot coverage relaxation, allowance for secondary uses, 'Tat ',juaivsrs, andfor financial assistance in land ac uisiVon andfor in,rastructurs improvements. IF ©limy Igo Rsvis�ju the First Street Specific plan including modifications to ;Plan �jvhich v ould consider issues associated �YA'th eliminating and prohibiting future automobile service-related uses and restrictions on she expansion of existing automobile service related uses. It should be noted that the PCCB General Galan land use designation may also permit other uses, such as residenJa7 uses, that are determined to be supporlmis of the land use drasignation. HoN)vever, at present, residential uses are not a permitted or conditionally permitted land use livithin the First Street Specific Flan. u t�5 Built Environment A summary ravisvi of the distribution of land uses curmntly existing �j,\A hin the First &M-St Specific flan repeals: VV sterly portion e Residential, small commercial retail /service and small Office uses dominate the westerly Subarea I (thirteen historic single famiiy horse structures exist). Central portion - Automobile repair, car �j /ijash, retail and multi - family uses occupy °the middle subarea 2. Easterly portion - Large retail centers (Kohl's), offices and multi - famiiy uses occupy the easterly subarea 3. The current uses within each Subarea have been identified on the aerial photographs shown belmki. L., rr c : r � W4. } �< � _ �g. rw_* �\ !� � \ I � � � ± e � ¥y» ±oo § » ƒ ƒ 3 0 § % R / / 9±22 m G c y m2®s J�» \oo \ \ § ƒ / / 9233 m a < y c m a // \ Q@» CD § � ƒ ƒ 9 0 § / / s / Manning Cornrnission AjA9orkshop July 2 ,4, 2012 First Street Specific Plan Page 10 The sasterly snd of First Street has strong urbnr3 COr M3,70 a7 gualitiss that have more in common viith Newport Avenue than Old T mj,jn Tustin. Strip csnters parking located bet��ssn the buildings and the streets (although the First Stres°�t Specific flan enco�uragss buildings at the street and parking at the Tsar). Some individual less are over a quarter mile deep a,t large retail cen'tsrs such as Lar ijin Square and Tustin Courtyard commercial center locations. The older, v ssterly end of First Street corridor has a much more fffagmentsd pattern of land use on lots that vary in dsp°lh on sKher side of the street from as little as 89 fast that includes: historic single family homes, newer residential apartments and condominiums, office buildings, and smaller commercial propsrties. Auto- orjsn�ad ease —Through the I969's, First Street served as a significant east -viest vehicle route into and out of Tustin. N]Mels, the Revere 'F-louse, fast food restaurants, auto repair, and seriice stations VISTs located along First Strsst catering to a motoring consumer. From the 1979's to the present, motorists 'travelsd along Nevoiport or lr\,,;ins Avenues Ito fTGG- IjYays that provided access to regional shopping, including Tustin Ranch, the district at Tustin Legacy, etc. how- scals, ,low- intensify commercial r.tafU office oases - First Strsst has a mixture of nsAj and old retail and office uses that share a common love — scale, lo1sj- intensity, commercial chaTacter, some of �,xhich is in need of revitaflzat:ion. Nlany retail and office buildings located at the N.,r\jestsrly and of First Street have incorporated residential design elements such as pitched9slopp-d roofs, 1j,�iindmx trsatments, porches, and landscaping. Large, residential uses — barge condominium and apartment complsxes, and a Recreational Vehicle Park exist amidst the commercial retail and office uses allowed within the First Street Specific Plan. Condominium Association opposition 'to a First Street commercial development project in 1984 initiated City Council concern for a perceived "erosion of commercial potential' on First Street that resulted in the preparation and adoption of the 1985 First Street Specific Plan. The Specific Plan does not allow residential uses to be developed along First Street. As noted previously, existing residential uses are considered nonconforming. ATT AC -IMENT 2 FRIELMUMARRY DRAFT FIRST STREET SPECOFIC PLAN (RED =L VNED AND CORRECTED COPY) D RAF7 FIRST STREET SPECIFIC PLAN RED -LINED 0 C14 N n 0 C- U 0 ti 0 U of Q) E 4-J > Qj U, E C Vl E 0 .0 (U u n A ❑ CQ Cl C14 INTRODUCTION A. HISTORICAL PERSPECTIVE First Street - Circa 1946 Tustin's agrarian past has- -- significantly influenced the pattern of commercial development in the community. The earliest development in Tustin was focused within Old Town, the community's original commercial center. As Tustin developed transportation and commercial. corridors evolved along First Street with small residential and commercial buildings. The subdivision of properties along First Street created an irregularly shaped streetscape with most parcels being relatively small in size Over the years, small parcel sizes limited the size and intensity of development that could occur eRalong First Street. As freeway travel expanded and became easier, First Street patrons were willing to travel farther to find goods and services. Afid-- RNewer and larger retail and service providers were established in Tustin Ranch and along nearby Newport Avenue creating strong competition for First Street commercial businesses. Although First Street and the Newport (SR -55) Freeway intersect freeway on- and off -ramps were not provided on First Street, but occurred a block north at Irvine Boulevard. Vehicle traffic found the most direct route to the freeway, resulting in some drivers bypassing First Street. The_ less - traveled First Street corridor developed%d from its early status as the primary gateway to the City into a more fragmented pattern of land uses that continues to include a varied mix of historic residential and commercial properties Land use changes have been infrequent along First Street and the existing mixture of uses share a low - scale, low- intensity commercial character that is in need of revitalization. Residential uses (including single family, multi - family, and mobile homes), auto- oriented service uses, office, and small retail buildings currently line First Street. Only the First Street properties located nearest to Newport Avenue are generally larger and more uniform in use and purpose. First Street - 2009 B. PLANNING AREA The First Street Specific Plan recii_alates a commercial corridor that extends approximately a mile along First Street from central Tustin at P\Aev�port Avenue to the Newport Freeway (SR-55), as depicted on Exhibit 144-2. This corridor varies in depth on either side of the street from as little as 0 feet where it abuts the First Street right -of -way, to almost a quarter of a mile along Newport Avenue where the Larwsn Square and Courtyard commercial centers are iocated on sites of have each accumulated sites e several acres. lXlh +le- Althouh the First Street Pplanning Aarea is reiatively small (approximately 4-v,-6-5 acres), it is significant in that it continues to serve asC„R t as an maJeF entry to the City from the west and provides access to the Old Town Tustin El r amiRe Real historic district and, via Centennial Way, to the Civic Center. The First Street Pplanning Aarea is f, ,.� divided into three sub -areas and Fel ted planning units as shown on Exhibits 2�-, 32- and 4-3. This geogFaphic „stem is the h,�;� fOF EleliRE?7itiRg development Fee tlatieRS in ChpteF I11 ef this r !aR C. BACKGROUND Over the years the First Street corridor has evolved into al mixed use —area of considerably varied development. The gQuality and condition of the existing built environment varies from high quality projects to those that have not been well maintained substandaFd and visiWy deteFieFatiRg, with many examples throughout the spectrum between these extremes. The predominant uses existing within the First Street Seecif�la„Planning Area are commercial retail, service, and office. Stimulated by a concern about the appropriate 191 mix of these predominant uses as private redevelopment projects were proposed, -the Cit-y Council established a moratorium on the issuance of new building permits on June 80 1 98 d extended it in IWy to allow time to establish overall guidance for further development. Theis First Street Specific r jan (the "Planj lis the vehicle seleeted approved by the Tustin City Council to provide that guidance. When adopted in 1985. the First Street Specific Plan was envisioned to be a 15 -year plan. More than 25 years later, in 2011, the Tustin Planning Commission and City staff initiated an effort to update the Plan. As described in more detail in Appendi x F, an intensive series of consultant/staff Nivorkshops, public meetings and Planning Commission /City Council work sessions and public hearings led to formulation of the A=tal original 1985 Specific Pplan and its 2012 Amendment. D.C—. PURPOSE Plan in 198=5, the Tv ICtin ii i ie. RC-il was stimulated abeut an "erecien of remmori-i-.1 etaRti-+1." The f3Ia Quality ef a;4ras; nment rerirn ctan but withe t n urifrrm -re it -er+raI thama nr 7civety� rrn i�e zt and . _te nrevi-Ee`� deieroom ent of office -and retail uses in rrte �Pecrifrirc i The goal of the 1985 First Street Specific Plan was to identify an appropriate mix of commercial and office uses for the area. Tustin City Council was concerned about an "erosion of commercial potential" along this gateway street The Plan was also intended to protect adjacent residential neighborhoods and establish consistent development standards. The purpose of the 2012 Plan ter is to continue t( guide and stimuiate the use of properties along First Street to the maximum mutual advantage of a€fec ,.� property owners and the City of Tustin. This witl- -is accomplished by a compreihensove set of regulations, incentives and uFbaR Q esign Gguidelines, along with other related actions to encourage optimum development. Theis Pplan constitutes the legally established zoning for properties within the Pplanning Aarea. Moreover, it establishes certain important development policies within the First Street corridor -- Rd en Selected Ic'-rRd paFeels adjacent to the eerrirler The Specific Plan is the major device for implementing the City of Tustin General Plan within the Pplanning rea. AUTHOR IY The California Government Code authorizes cities to adopt speciuic plans by resolution as policy or by ordinance as regulation. Hearings are required by Moth the Planning Commission and City Councii, after which the Specific Plan must Abe adopted by the Q Council to become -ip effective. The adoption of this Specific Plan by the City, of Tustin is authorized by the California Government Code, Title 7, Division 1, Chapter 3, Article 8, Sections 65450 through 65457. The First Street Specific Plan is a regulatory plan which vvFf -serve as the zoning ordinance for the properties�ithin its bo��ndarl, proposed development plans or agreements, tentative tract or parcel maps and any other development approvals must be consistent v\jith the Speci -fic Flan, Projects consistent with this Specific Plan are i#- automatically deemed consistent %Mth the General Plan. The regulations contained herein shall apply to the boundaries depicted on Exhibit 144. 5 W zN 3 ` N V 2 c m r u c� ...... Q �U W Q� �U 4-j LL N 0 IL L/�uNDL, USE -3LAiM A, 9NMODLA f IECiN The and se lan contains the essential components of the Specific Pplan and the policy (direction which serve as the foundation for development regulations and guidelines which e will ct� ��_.',"_ used in revje�ft/ing and approving development projects within the First .Street Specific i'ian. There is a tendency to emphasize problems in planning documents because perceived problems are frequently the stiMUILIs for undertaking a plan. While there certainly are some real -_,�^ challen, cesin the ('planning _Aarea, it is equally evident that these are unique attributes and considerable opportunities NA41-lich combine to offer the potential for a balance between presentation, rehabilitation, and , - nev\j development _ The main idea of the Specific Flan is to preserve what is good, improve what is not and allmAi growth Y�fhere market farces are evident through private marker decisions. The basis for this �'lplan lies in i) the Tustin General Flan fsee Appendix G for a summary of General Flan consistency) 7, and 2) the anaiysis undertaken r� -I'll . ®; -to prepare or amens: the Specific Plan _- jernbodied in the accompanying appendices);�n 4e Speeific Plan Request for- PFepesal (AppeRdix C te this . The follovvr ng key points should be kept in mind in reading and using this Specific Plan: I. 4 -.—The primary uses of the area acre and shoUd remain commercial retail, service, and office. Differences in uses and regulations within the area are pFimarily due to eppeFtunities (see Appendix based on the intensity and characteristics of each subarea. 2. 2. The City will depend primarily on private market decisions to stimulate develop ment and improvements in the area, 3. (Diversity of appearance within certain broad quality guidelines is desirable, as called out in the UFban- Ddesign uidelines , Appendix A). 4. The Pplan is a conscious compromise between one extreme of doing nothing and the other of trying to completely change the area. The balance thus achieved will hopefully provide a stable and durable basis for decision making in the area, 3, In order For the area to work best, a creative partnership be-rween the City, property owners and tenants -will =be -is required. The Specific Plan is intended to be the uoundation for that partnership and Neill support it more effectively than more traditional punning approaches. 6. Ci-tj Council adoption of the policies, use regulations, site development standards and design guidelines constitutes the CiZy °s co mitment to property mAmers and the development community that it will carry out its appropriate share of the effort to maintain the fanning rea as an asset to property ov�lners, tenants and the City as a whole, o SUMMARY OF SF' EEC3 F1 C s ,LAN FC UY D, ITs0J IOUN9 The following points express the most essential ideas contained in them Nan and constitute- z . -the overall policy direction fbr_the_Plan 4 I. Decisions about continuation, ems ; redevelopment or new development of .uses on property within the specific Phan shall rest with the individual property owner. 2. `decisions about development standards to be maintained or established shall rest vvith the City, and shall be as prescribed in this _ _ Ian as it may be amended -from time to time. 4.3. The basic intent is for continuation of primarily commercial retail, Service and office uses, including some commercial mixed use projects at various scales. 5. Qptie. . .. by Specific Plan seek such appreval and the develepmeRt standards pr-escFibed caR be satisfied. The Plan Area may be expanded by Soecific Plan Amendment and 7ore . - 6.4= This Pplan, as amended provides guidance -for development as it could occur within approximately ,75 15-year time span, or by approximately the year 20 2 C. COALS, 0, 9E J1T3AiND K -DUr -DES The - TcHmAiing statements represent the pollcy direction for the plann- Planinca a as a whole, as Vrell as the distinct sections of the subject area that exhibit particular use constraints or potentials. 1. Pattern of ISSUE: What is the most productive pattern our uses? GOAL: he best use of proper t iithin tae Specific Plan area is development approaching maximum development potential ti ;,hile providing a compatible and monitored growth program. OBJECTIVES: POLICIES: 1. l Preservation of existing quality uses. 1.2 Expansion /intensification of existing qualitly uses. i3 Maximum possible responsiveness to market opportunities for the laRRiRg are- each sub -area (see Exhibits 4-, 2r-an4 3 -end 4). L4 ° prie i�f-Uuses appropriate to each sub- arena. Maintain and perpetuate a mix of commerciaL retail, service, and office uses in sub -area 1 . The Kest use of propery -vvithin the Specific Plan area which balances maximum development potential with compatible Uses and monitored gro,,ArLh. 2. Stimulate retail and service commercial uses In sub -area 2. 3. Preserve the dominant retail and service commercial uses in sub- area 3, retaining already established offices- a�� +mss. 4. Promote development, expansion or redevelopment that: a. is a first pFier its permitted use; b. Meets prescribed development regulations; c. Is responsive to established design guidelines. 2. Crondition of Existing Development ISSUE: How can the overall condition of development be improved? GOAL: A consistent quality of development throughout the area, OBJECTIVES: Z, maintenance ofualij that eists, 2.2 Improvement of development that is deteriorated or inefficiently designed, R.-in-Force exjsting private property health and safe regulations by committing City enforcement efforts to this area, 2. Allow maximum site development through relatively liberal site development standards in return for well - conceived site plans, 3. Offer development incentives to property owners for projects that are highly responsive to plan objectives. 4. Establish and administer qFba-R—C< esign uidelines to assist developers in understanding and implementing the Ian's intent, 3. Viisuallmprovement ISSUE: Ho�Ai can the area's appearance and image be improved? GOAL: A gualfty physical appearance of both exjsting and future development. OBJECTIVES: 3.1 Elimination of ?risible outside storage, 3.2 Compatible building elevations and materials. 3.3 High quaiity C=entoP-�,T, afy; Ac7nclscf7pe treatments throughout the corridor. 3.4 Achievement of an overall positive identity —forth.—area. POLICIES: 1. Require responsiveness to urb R design -- Design g+An�� ^�� Guidelines in plans for new development, expansion or redevelopment. 4 2. Discourage parking in front &° G of buildings. Buildings should be located as close to the street as possible. 3. When fret rear parking is not ,,possible, screen parking areas with landscaping materroais or treatrnent in excess ou mini=M standards. 5- :Maintain the existing streetscape improvements addiRg enly items thatthat do net present -s !aFge capital expense ie 6:4e i""iMli lAV net Il CI ICIrG�. Ae Compatibility of Land Uses ISSUE: How can land uses within the specific Plan be inept compatible with each other and with agacent uses? GOAL: Compatible land uses which do not inter -Tere or create health safety er- aaeral- p.-.�s conce 'For are adjacent use. 4. i Reduction of existing conflicts betvveen uses. 4.2 Prevention, of future incompatibility as new development occurs. -3 Use of design standards in the Design Guidelines to improve compatibility where changes in use are impractical, 1. Approve site ,plans 'Tor authorized uses which demonstrate design compatibility with adjacent uses and structures, particularly where such adjacent uses are single famlly residential in character. 3-.2. Encourage lot consolidation or integrated site planning considering cieveiopment incentives. 4-3. Apply appropriate urbaR - Ddesign Ggu- defines to mitigate conflicts between uses where a change in use is not practical, Uses /Use Intensification JSSUE: What new uses are appropriate and fe- asible in the area and where should they be allowed? 5 GOAL: Effective integration of new uses. OBJECTIVES: I !OLJOES: 44.1 Maximum possible capture of market opportunities by property owners. 5-.24.2 The most effective possible use of each parcel of land, 4.' Location of new uses in contribute most to overall improvement of the area, 5.44.4 _Efficient use of existing public 'facilities to support market - generated gro>qjth and development, Encourage primarily new retail commercial, service commercial, and office uses in designated sub - areas, 3- .2_Establish and administer a system of incentives for lot consolidation or integrated planning of smaller parcels through consideration of reductions in parking requirements fee waivers for permit processing, etc. Allow shared parking and access to allow ma dmum parcel usage. CAS, �Fl a=el si /ze//s on ISSUE: What is the best way to deal with the variety of land ,parcels, particularly the numerous small ones? GOAL: Efficient parcel sizes and confguradons. OBJECTIVES: 5 4_1 _Consolidation of lots wherever possible in conjunction with anticipated qua- lity design as set forth in this plan. 6-.24.2 Coordinated site planning and development of adjacent lots where consolidation is not possible. m , Provide lot consolidation incentives in the plan regulations, Z. Apply incen- tives also for an integrated site plan on acjacent individually owned parcels. -2-.3. Recordation of reciprocal access agreements for new development located adjacent to sites with future potential for shared ingress /egress. planRiRg cn c 5. Site Development Standards ISSUE: What site development standards are appropriate? GOAL: A combination of standards and incentives which Ajvi l stimulate qualitvj development. POLICIES: Site development regulations which lead to efficient use of avrallable space, =f--25- 4n--- Design development C Uidelines which assist in defining and describing the level of quality intended. 5.3Site development incentives which stimulate lot consolidation or Cooperative site design and lead to more profitable and efficient parcel use. 7:45., Safe, effective and adequate access and ,parking for each business enterprise. 2, 1. _,Provide incentives for lot consolidation/ integrated site planning in the Specific Flan Regulations 7 Include responsiveness to esi'gn uidelines as a Major consideration in site plan revjew and approval, lrmszMh7zS °a?of Flora A -mini 'n-cT ion ISSUEE: WJ�71 ity assistance can be provided to encourage -expedient imple , "entaZion this Ilan? GOAL: To 'encourage rapid reh,75 "dilation of Re poorly maintained structures and uses. OBJECTUE: POLICY: Rehabilitation of facades QincIuding signage) of existing str'UctUares "to complY w' ith esign ui'delines of this Ian, 8-.26 Improve veNc'ula!r inter -site circulation, 8-36. Maximization of pedestrian movement and access. 4 -To wake available to property owners, where possible, funding frem the for rehabilitation of existing buildings and for new development -. 7 g � 'C 'j7 =G The main idea underlying the First Street Specific Plan land use concept is to build upon the positiVe features already present, 0-ley include the foliowing,hei:e are man t: R9t eKpeEted to chaRge in the f bl f a - 1. 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 2. The Specific flan emphasizes "pedestrian - friendly" design and uses to preserve the existing human scale and character. 3. Setback and height restrictions appear compatible with nearby residential uses to the north and south. 4. Mixed use with retail on the first floor and offices on the second floor is encouraged 5. Street improvements are well maintained The Specific Ulan 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 A vision and plan for future .E-3 improvements through the Ufban-- Design Guidelines with public and private incentives and funding will achieve the desired improvements alone First Street G. There is little traffic congestion and ample parking along First Street &7. TheFe appears te be a stFeng iweFest OR the paFt ef I'propeny owners are encouraged to make positive changes, but balaRced by aR equally StFGRg desire te- while maintainin a "human scale" environment along First Street. The plan concept ;e ro r,rocr�r,ted eFieS Of C hihitc concept , r �,� consists of the foVVowing components: L Subareas (See - Exhibits, ', 2 and 34 The corridor is rude up of three subareas, each characterized by a particular land use emphasis. Subarea 1, closest to the Newport-(S R -55 Freeway, is a mixed use office-commercial area ( Exhibit 21. Subarea 2, either side of the EI Camino ReaV/IProspect Avenue intersections, is a transition area wv th an emphasis on retail co mmercial and service development Exhibit 3 Subarea 3, anchored by tivo relatively large shoppVng centers facing J\Jewport Avenue, is ,predominantly a retail and service com erciaV area, but with a strong office enclave (Exhibit 41. 0 5-.2. Preservation of Human Scale and Character Site development standards, with only a couple of exceptions, limit development to one or two stories directly along the corridor. Efforts are made through the UrbaR esign GguideNnes to achieve a low profile - pedestrian-friendly" emAronment by making it possible to move freely vvithin each subarea -from business to business. Moreover, the visual image being sought is one of human scale, not dominated by large or high close -in building masses: with streetscape and the design of the public realm, adding to a sense of place for First Street 10 do summary, the concept seeks a ba ance bet,jv,..n market responsive expansion on the one hand and pTeSe n,,/,-.eitjon of the bas,,, e ;�istjng sale and character ors 'the older, 11 ti E E 0 v 0 0 z 0 .n Chi z Hi U 4.-. U QL -J n ��W QW VI m Q� .Q N 9 N H L1� X w w CL v Q) a CL laaj3S 8 CL laal s 8 halls V Pails d Q) L anlla nna!A uielunoW LL aaa.4s ayped PPS egao k pails aiajAW mjaaa��S OF ai3ifiW L Ln Li z n 0 u. ti E E 0 v 0 0 z 0 .n Chi z Hi U 4.-. U QL -J n ��W QW VI m Q� .Q N 9 N H L1� X w AM leruualuaD I alaa!D IIeH y. 4-J (I"f any z:)adsojd v4-J L ;any padso id LL leaN ourwe313 WAS D WAS D Li Z V7 ti u `v E E 0 u r u 4-. nU W Q' N 4 J M Q) ti r� v v N �= D LL. N m CO R Li Z+- u i Q) E E O u 0 M OL U 4. U Q) CL m Q) � � N LL N Co z W7 Rs GULA, i iONS These regulations constitute the primarj zoning provisions for the First Street Specific Plano These regulations are in addition to regular Zon n c Code ,provisions I Article 9 Land Use, Chapter % - Zoning Land Use) of -the Muni6pal- -Tustin City Code, Where there is a conflict, the regulations herein will prevail. Where direction is not provided in this Specific Plan, the Mut Zoning Code shall prevail. The overall intent of these regulations is to guide development on all development parcels in the Sspecific jPplar area so as to insure that each individual development project contributes to meeting the goals and objectives of the First Street area, JIMore specifically, the regulations are intended to: o I rovide opportunities for economically productive business enterprises, o Establish uses and site development standards Nj�Lihich contribute to the preservation and enhancement of acl acent single family residential environments and which promote an economically sound land use pattern Tor First Street, o Provide for the scale and nature of uses- uses which can ;males - facilitate. the most efficient use of the eX isting development pattern as well as parcel sizes and shapes, o Achieve gradual improvement of older commercial, office and residential building threugh,use chang b allowing commercial° retail, service and office uses that are compatible and consistent with surro-rl�iing areas, encouraging; redevelopment, nromotina consolidation of parcels, enabling rehabilitation, emphasizing—landscaping and design improvements and promotincler any combination of these devices desired by the proper mjAiner;jsj and supportable by the City, o Contribute to the improvement of both visual and functional attributes of First Street to help stimulate business activity, • Protect the traffic handling capacity of First Street �Nhile accommodating new development and rehabilitation. and FehabilitatiFedeveiepment. • Establish a sense of place, as well as continuity and consistency of development standards, within the Specific Ilan Area, 1 2 Hotel* H9te1 * Hotel* 8ff4c-e* Mixed LJse** Office* OffiCe Office VY c-e* SeceR0K * ** � u . r- r- * co mixed USe iRGeRtive, M 2-9 er- SeCE)Rdary Use c' ' shall ' 11 °ih"h't §t r^= 9- pcd c s* ' cprh - r ' � QB. GE \J F- R -/A L F j" -I Vl33OC N3 The follo AAng regulations apply -to all subareas gad planning tiAIJthin the First Street Specific Plan area, All construction and development within the Specific Plan area sell comply with applicable provisions of the Tustin City Code, 4nifc*m California _BuilcNng Code and the various related mechanical, electrical, plumbing codes, grading and excavation code and the Subdlvision copies, as currently adopted by the City Council. Where here is a conflict the reguiadons of the Specific Plan will prevail Where direction is not ,pro ided in this Specific Plan the Zoning Cade shall prevail. W'wever_ In any case of a conflict between the specific provisions of any such code and this Specific Plan, the provision which most serves to protect safety shall apply and the Community Development Director shall resolve the conflict by wTitten determination in a manner consistent vAth the goals and policies of this Specific Plan. 2. The setback requirements are as specified by each use categorydistr4- of this Specific Plan. All setbacks shall be determined as the perpendicular d9 stance from the existing street right -off ti��ay line, or property line, to the foundation ,point of the closest Structure. This shall not preclude pedestrian arcades or awnings from encroaching into the from: yard setback area, 3. If an issue, condition or situation arises or occurs that is not sufficiently covered or provided for or is not clearly understandable, those regulations of the City Zoning Code that are applicable for the most similar issue, condition or situation shall be used by the Community Development Director as guidelines to resolve the unclear issue, condition or situation. This provision shall not be used to permit uses or procedures not specifically authorized by this Specific !Plan or the City Zoning Code. 4. This Sspecific Plan may be amended by the same procedure as it was originally adopted. Each amendment shall include all sections or portions of the Specific Plan that are affected by the change. An amendment may be initiated by the City Council or the Planning Commission. the general public or City staff. Any such amendment requested by the general public shall be subject to the fee schedulead opted by the City CouncH. 5. Any persons, firm or corporation, whether a principal, agent, employee or otherti Mse, violating any provisions of these regulations shall be guilty of a misdemeanor, and upon conviction thereof, shall be subject to penalties and provisions of City Code. G. Whenever a use has not been listed as fig - a - er- s °cendapr use in a permitted or conditionally permitted within the Specific Plan, it shall be the duty of the Community Development Director and /or the Manning Commission to determine if said use is 1 consistent with the overall intent of the n plan,,,, .g uRit- Specific Plan and 2) the said use is consistent with the other listed permitted or conditionally permitted uses in the Specific Plant-bat 5 1 8-7. In order to maintain and enhance vehicular and pedestrian circulation along First Street, any development occupying a parcel whjch is located on a=a corner with side street frontage wifl- .should have vej'-�icu, alr access restricted to the side street only. The Community Development Director �ijill review tfais on a case -by case basis. Wherever a sine is not on a corner, a reciprocal easement agreement �Ajll be e n c o u ra g e dnecessar —y% 9—A a Non- conforming Structures and Uses of Land icon Exhibit-81 Where, at the time of passageof this Specific Plan, law /ful use of land exists which would not be permitted by the regulations imposed by this Specific Ilan, such use may be continued so long as it remains otherloflse lawful, provided; a. No such non - conforming use shall be enlarged or increased, nor extended to occupy a=a greater area of land than was occupied at the effective date of adoption or amendment of this Specific Plan. b. No such non - conforming use shall be moved in �,fvhole or in ,part to any portion of the lot or parcel other than that occupied by such use at the effective elate of adoption or amendment of this Specific Plan. c. if any such non - conforming use of land ceases for any reason for a period of more than i80 days, any subsequent use of such land shall conform to the regulations specified by this Specific flan for -the cdistrict in which- such land is located; d. No additional structure not conforming to the requirements of this Specific Plan shall be erected in connection �AAzh such non - conforming use of land. 10. Non - conforming Structures Where a lawful structure exists at the effective claw of adoption or amendment of this Specific Plan that could not be built under the terms of these regulations by reason of restrictions on area, height, yards, its location on the lot, or other requirements concerning the structure, such structure may be continued so long as it remains otherwise lawful, subject to the following provisions; a:a. No such non - conforming structure may be enlarged or altered in a wavy which increases its non- conformitvl, but any structure or portion thereof may be altered -to decrease or not affect its non - conformity, b. Should such, non - conforming structure or non - conforming ,portion of structure be destroyed by any means to an extent of more than 50 percent of its assessed 5 value at time of destruction, it shah not be reconStrUcted except in conformi-ly �jvith the provisions of this Sped-fie Pion; e. Should such structure be moved for any reason for any distance ��hatever, it shall thereafter conform to the regUlatiens uor the district in whie'i it is iecated after it is Moved. D. LAND USE REGULATIONS 1. Permitted Uses a, subarea 1 - Neighborhood commercial In Subarea 1 (Neighborhood Commercial) the following uses occupying no more than 10,000 square feet shall be permitted by right where the symbol "P" appears ,and may be permitted subject to a conditional use permit where the symbol "C" appears in the column to the right 1) Retail Uses: (a) Antique shops p (bj Apparel stores p (c) Art galleries P (dj Bakeries, retail only, P (e) Bicycle shops (including repair) p (f) Books gifts and stationery P (g) Confectioneries p (h) Convenience markets C (i) Drug store p (j Florists p (k) Furniture store p (l) General retail stores P (m) Hardware store p (n) Hobby stores p (o) Jewelry stores p (p) Music stores p (g) Neighborhood commercial centers P (r) Nurseries and garden supply P (sj Office supplies and equipment P (t) Religious supplies p (u) Print shops p (v) Shoe stores p (w) Sporting goods stores p 21 service Uses: al Assisted living, rest homes, extended care facilities, convalescent hospitals C (b) Banquet facilities C (c) Barber, beauty salons p (d) Dance and martial arts studios p (e) Fitness training, indoor one on one C (f) Hotels and motels (boutique) C (g) Indoor commercial recreational uses C 7 (h) Insurance agencies P (i) Laundry and dry cleaners Goff site only) C (j) Locksmith p (k) Massage establishments p (I) Meeting rooms C (m)_ Real estate agencies p (n) Restaurants with alcoholic beverage sales C (o) Restaurants with drive thru service C (p) Restaurants without alcohol P (q) Schools, pre - school and nursery C (r) Seamstress or tailor shops p (s) Shoe or luggage repair shops p (t)_ Travel agencies p (u) Tutoring facilities p 3) Office uses: (a) Accountants p (b) Advertising agencies . p (c) Answering service p (d) Architect p (e) Attorney p (f) Chiropractor p (g) Collection agency p Contractors and building consultants p (i) Dentist p (j) Doctor p (k) Drafting p (1) Economic consultant P (m) Engineer p (n) Escrow P (0) Interior decorator or artist studio p (p) Land and property management p (q) Land planner P (r) Oculist p (sl Optometrist p (t) Others licensed by the State of California to practice the healing arts including clinics for- out-patients only p (u) Personnel Agency P (v) Photographer p (w)_ Surveyor p (x) Social work p (y) Professional consultant P (z) Stock broker p (aa) Title insurance p (bb) Travel agency p 4) Community and Institutional Uses (al _ Churches, convents monasteries and other religious institutions C (b1 Fraternal organizations and Lodges C S) Existing Single Family Residential Use /Structures Any existing single family residential structure listed within the City's official historic survey is encouraged to be preserved and used as a residence, or preserved and used as a commercial use as authorized by this Section and consistent with the City's Cultural Mesource District Residential De. iJ n Guia'elines and the Secretary of interior`s Standards for Rehabilitation. a Anv existing historic single family residential structure used for such purposes is a permitted use. b_ The conversion of an existing historic single family residential structure to a commercial use shall comply with the use limitations identified for the Subarea in which it is located. c No commercial use of an existing historic single family residential structure shall be changed to another commercial use (e g office to retail) without the prior approval of the Community Development Department. d Anv historic single family residential structure lawfully converted to a commercial use is considered more conforming and must be maintained as a commercial use. 6) Any other similar and /or compatible retail service office or communiWZinstitutional use the Community Development Director and /or Planning Commission deems consistent with the context of Subarea 1 listed above as permitted /conditionally permitted 71 Development Standards (a) Maximum Structural Height - 2 story 28 feet (b) Minimum Building Site Area - No minimum (c) Minimum Yard Setbacks: Front:. 10 feet Side: 0 feet* Rear: 20 feet x *Exception: 10 feet required when a side yard abuts a residentially zoned property (d) Lot coverage: No maximum limited only b,y setback areas (e) Landscaping: All areas not utilized for parking building and walkways, but not less than a minimum of ten percent of the building site area shall be, landscaped in conformance with the Design Guidelines of this Specific Plan area b. Subareas 2 and 3 - Commercial In Subareas .2 and 3 (Commercial) the following uses shall be permitted by Light where the symbol "P" appears and may be permitted subiect to a conditional use permit where the symbol "C" appears in the column to the rt ht. 1. Retail Uses: (a) All permitted or conditionally permitted retail uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Appliance stores p (c) Automobile parts and supplies C (d) Department stores p (e) Drug stores pharmacies p (f) Furniture stores p (g) Hardware stores p (h) Liquor stores C Ii1 Pet stores and supply p li) Sporting goods p (k) Supermarkets groce!�y stores p 111 Tire sales and service C 2. Service Uses: (a) All permitted or conditionally permitted service uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Banks and financial institutions p (c) Car washes C (d) Cocktail lounges and bars when not an integral part of a restaurant C (e) Service stations C (f) Theaters C 3. Office Uses: 10 (a) All permitted or conditionally permitted office uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Banks and financial institutions p (c) insurance P (d) Personnel agency P (e) i'ublic utility office (but not including corporate yards. c (f) Title insurance P 4. Community and institutional Uses: (a) All permitted or conditionally permitted Community and Institutional uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Animal hospitals and clinics C (c) Commercial recreation facilities including tennis racquetball bowling ice skating athletic clubs and similar uses c (d) Post office branch p 5. Any other similar and/or compatible retail service or office use the Community Development Director and /or Planning Commission deems consistent with the other uses listed above as permitted /conditionally permitted. G. Development Standards - Subarea 2 (a) Maximum Structural Height_2 story 28 feet (b) Minimum Building Site Area - No minimum (c) Minimum Yard Setbacks: Front: 10 feet Side: 0 feet* Rear: 20 feet *Exception. 10 feet required when a side yard abuts a residentially zoned property (d) Lot coverage: No maximum- limited only by setback areas (e) Landscaping: All areas not utilized for parking building and walkways, but not less than a minimum of ten percent of the 11 building site area shall be landscaped in conformance with the Design Guidelines of this Specific Plan area 7. Development Standards - Subarea 3 (a) Maximum Structural Height - 3 story, 35 feet (bi Minimum Building Site Area - 10,000 sq. ft (c) Minimum Yard Setbacks: Front: 10 feet Side: 0 feet* Rear: 30 feet *Exception: 10 feet required when a side vard abuts a residentially zoned property (d! Lot coverage: No maximum limited only by setback areas ffi Landscaping= All areas not utilized for parking building and walkways, but not less than a minimum of ten percent of the building site area shall be landscaped in conformance with the Design Guidelines of this Specific Plan area Ot 12 13 14 15 to the o, plazas, open --Fking, hardscaped areas shall net CORstitute let ceveFage, Maximum allevved -55 perrceRt 2 Office as Drim-ary Use- 1. 16 17 " 4 R . � r CrE)rtit, ;' stE)Fy-44LZ -sster-y 24 Side. 10 feet 'ReaF.- 30 fGCC o, M r MUM E. PARKING REQUIREMENTS All parking requirements shall be subject to the provisions of the Tustin City Code 21. 22 23 F. LOT CONSOLIDATION PROGRAM Lot consolidation, For he purposes of this Specific Plan, shall refer to the legal combination of lots or the development of multiple lots under separate ownership as one cohesively designed development, - -isting at the time „ ,deptier4 _a j JNa`rifi`- 131 -rr1 is nht oli!-rihln fr,T =� i- lot cells tilidatieR ben uses. . As a means to encourage lot consolidation along First Street rather than re u ring r by specifying larger than presently existing lot sizes, the City K —fmning Commission may grant certain bonuses for consolidations exceeding a certain level. These bonuses may include relaxed height limitations, beiRg ,,:e deyelep+ e^t st ,,,.1 ar,�S, parking reductions, relaxed setbacks or other such modifications as may be determined to be appropriate. it , tTo quall�,�y Feguest for a lot consolidation bonus, the tota9 area of the lots being combined or cohesively designed must surpass the minimum required !lot size by at least 50 percent. If a minimum lot size is not stipulated, the lots being combined cohesively designed are area: automatically eligible for bones provisions. For example, two adjacent owners want to cohesively develop their properties as one development. Property owner °s property is 7,500 square feet and property 0 °s lot is 9,000 Square feet. The minimum lot size requirement under which they are developing is 10,000 square feet. Combined, their development parcel , safer exceeds 15,000 square feet (50 percent over minimum our i 5,000), therefore they may seek lot consolidation bonuses. 2 It should be specifically noted Caere thaat this is as completely cliscretiona�ry action of the Planning Commission, The Planning Commission is under no obligation to grant cleveiopment bonuses. In aciclition to desermining the degree of the bonLIS provision, they will ralso determine hONY /V well the development has addressed the 'Ddesign uidelines of this peciuic ian. Any bonuses may be granted by the Planning Commission on a case -by -case basis vv th past factions not c-a -Tfecting 'TUtUTe direction. Each development stand on its own merit. The follov/ving bonus provisions are av,75lable but sell not be limited to: Faarking reductions Height relaxation Legal assistanee in paFee! assemblage Lot coverage re^1,-:5)xation Ability to develop seceRdapy uses under- p iite develepMeRt standards Reduction or waiver of processing fees 25 IGa jAIXEF) `LAS E TN c EN AVES Development and construction of bUilclings incorporating retail commercial or service commercial uses on the street level �Aiith an equal or greater amount of square footage relative -to the office space on the Lipper uloor_si shall be exempt -from all site development standards except for height and parking. The development must shall be responsive to the esign guidelines 26 � - CONSOU .LMDA7ED FARKiNG /ACC -E-53 B rc)jF\JU Any development ,proposal whJch incorporft -es either consoiida-�-. i parking or a redprocal access agreement vv t h an cc acent _!siRsuse may be eligible for the Consoflda�ted F irking /Access 33onus. The bones shall be an overa�ii reduedon of required parking sp,-f�ees by up to 20 percent 27 J. PL/\N AENNIJ ISTRATI0IVI I. General All regular administrative provisions of the Tustin ;- ""rte' honing Code .shah pply to all properties within the first Street Specific Playa boundaries, including but not limited to Design Review, Zoning Permits, Conditional_ Use Permits, Vaw4e-6�Appeals, Amendments, public notice and hearing proNiisions. The provisions herein add to or supplement the above- referenced provisions. 2. Administrative RevieNi�o In order to further encourage the development_ and rehabilitation of permitted uses within the First Street Specific Plan area - ccAermittedr .,ithin err n►��,w,r,,, the reVie' 9 of plans which have developed-for a ermitted� - p „v P _use shall not be required to processed such -pl ns through the planning Commission unless they are conditionaly permitted uses, The Community Development Department shall review and comment on all matters of the application, and a final determination on the plan shall be rendered by the Community Development ,Department. The Planning Commission may at their discretion suggest design modifications consistent with the desigp -Desi n guidelinesGuidelines. Any project having development playas approved by building permit issuance or land use permit ,prior to the adeptien- amendment of this Specific Plan shall remain approved without RY Primary Use pFej r peso l iF4 the S ecific Plan area &hall amendment. y y v��Prc�lro�7v3ccrrmcrr fllr\AI Fled to the WaRning Cern sR iRfoF atiOR itar» 3. Site Plan -eview a. Method and Purpose The First Street Specific Plan shall be implemented through the use of Site Plan eview, A Site Plan shall be required for all rehabilitation, redevelopment, expansion of existing use or structures and new development within the Specific Plan area requiring a building permit. A -site plan will not be FequiFed use inteRsi4 -Mien This requirement is instituted for the follmAling reasons: 1. To ensure consistency with the intent of the Specific Plan. 2. To encourage innovative community design and development. 3. To assure substantial long -range compliance vVith the Redevelopment Plan and General Plan. 4. To promote the highest conte porany standards of site design. 28 5. To adapt to specific or special development conditions -that occur from time to time while continuing to implement the Specific Plan, To facilitate complete documentation of land use entitlements authorized and conditions pertinent thereto, b. `\pplicability Approval of a Site Alan shall be required ,prig to or concurrent tivith a Conditional Ut4se Ppermit, Tentative Tract o or Parcel ap for all proposed projects within the Specific Plan area. Where no Tentative Tract or Marcel Nlmap is required, approval of a Site flan shall rest 'vMth the Planning Commission except in the case of permittedp eases. The Ssite Plan process shall be similar in its requirements and procedures to the ��.or -�a1 se ermit process in the City of Tustin. The enly - primary- difference betf\jeen the ttsio is the slmpler administrative review procedure for development projects which are consist of utiliziRg PFiF- permitted uses thesis Fespe EtiVe f7i- nRiRg 1 Wit 29 Appendix A Design Guidelines (Separate Document] Appendix B 1 985 Market Analysis (Separate Document 30 APPENDIX C C ro��RE n.'Tr 1985 AND 20312 C®NDI T30V S SU \Y` /V] R JR erdeF #�rhe study tear Tto formulate what some of the pet opportunities and constraints of the Specific Plan Area were in 1985, ` certain basic mapping tasks were performed. These tasks Ultimately - �ai„�* assisted the study team to reach conclusions about what wasis there anti how it relateds to the goals of the study. The thFee -two cwFFent1985 conditions exhibits discussed here include. • eq(istiqg- -1985_land Use • 1985 zoning 1. 94stiqg -1985 Land Use The :x4 ng -1985 land use exhibit confirmed much of what -the .study team had generally been told about the area, Land uses are -were generally �v�e19 mixed with retail commercial and office development the most predominant. Also, the area generally became less commercial in nature as one traveled in a westerly, direction from �,,I& ;port Avenue to the iNewport Freeway 155 Freeway). A small family of auto - related] uses on the north .sidle of First Street near El Caf mino Real was also found. Residentlal properties were the predominant non - conforming use along the corridor. See Exhibit 59. Existing (20124-) Land Use The existing land use exhibit demonstrates that there is a mixture of commercial retail, service, office, and residential uses along the First Street corridor. As shown in Exhibit G, there is only one vacant lot within the Specific flan area 2. 1985 Zoning The Zoning Prior to the 1985 First Street Specific Planzon- ineg- exhibit coupled with the existing- -1985 First Street Existing &and uUses exhibit posed] striking observations from the study team. The one distinctive conclusion made was the proliferation of commercial zoning at the western end] of First Street and the general lack of primary commercial uses located there. The other fairly obvious notation about the zoning configuration was the lack of depth presented by the commercial zoning with medium and low densivy residential zoning immediately to the rear of First Street properties. - much like a strip cemmeri i l Fe + i p The -- - -- -_.._ . -_.. -� ...��........ �. ,�..N �.,......"�.�., �., -« -See Exhibit_- 2012 Zoning In 2012, a Specific Plan Amendment was approved that corrected minor zoning inconsistencies created by the 1985 adoption of the Specific Plan and its boundaries including restoring the zoning for large residential land uses to that previously established in 1985. Also the less intensive built environment existing at the westerly end of First Street was preserved by revising the zoning designation to Neighborhood Commercial while preserving the more urban commercial built environment existing at the easterly end of the street In addition auto repair, single family residences and other previously prohibited uses were reintroduced as permitted or conditionally permitted uses in the Specific Plan 11 rn to u, -m" m kko 0 un Lon m r-t tart r rQ 0 rD r w x 0 / 50 w C� h CL c rD IS, $-Its .. r� mill l� OC" t eet rya El Camino Real rospect Ave Way Xl� Ln rD o cn m c C rn ou � rl � � a rD o 3 rD IS, $-Its .. r� mill l� OC" t eet rya El Camino Real rospect Ave Way Xl� Ln rD o cn m c C rn ou m -n rD 0 Nj VI CL r-t Ul M r-t MI rM+ M rD r-+ r+ M x 0 M :3 r) Nunn ■ —Oh Now= r) CIL Cu C 4 0 0.' :T E n rD n !�j M :3 r+ LA rD 11 rl+ Centennial Way "B" Street r "C" Street Ef Camino I I I I I I I M Prospect Ave E. • -0 Opp' rD 0 M 3 CL Ul M 0 0.' :T E n rD n !�j M :3 r+ LA rD 11 rl+ Centennial Way "B" Street r "C" Street Ef Camino I I I I I I I M Prospect Ave E. • -0 Opp' ■■ WIN •. - „ �. ■ 11111 — =� .. , �/.��■ 11111 .... Iiit f■ �� :: � ®f ■� ■.111 � ■i 1111i�� 111111 ■tii; �: ►r■ ■■ ■ milli! ■1 ■,�, • � ftf�tffffiil 1■ ..� .11111 = i rrrllflrrrf� �� Irlirlllllri � �Iflfllllllll � ■rr 111 ■1 f!!■ � �11111::1r� =■ � rillrrrrllrri 4 -� ■ -- ■ nnew 11111.. ■1� �®•• ■r =Mvm �■ Iilfllllif [ 1111: O ii■ r �■ �liiil III Jill ■. I�Ifll ■ IIIlflll�i�= 1�■� �11tt1ttt tlllit ■1111111- APPENDIX MRST STREET SPECIFIC 'ALAN OPPORTUNITIESP�---r�AT AI=S ANEL) r_M1\5T'?1Y7\JH Ts SuiviiVARY A major ingredient com o� nent--in the preparation of a Specific Flan in an already deveioped area is the careful examination and analysis of existing physical conditions The next important step is the identification of physical opportunitiespetentiai-s and constraints against v� ;hich the market opportunities can be measured. These factors, combined 1sjith public input and policy /technical direction from the City, are the ingredients used in shaping the content of the plan. This - x sting conditions summary and reap Nj�i/ere used in 1985 in mart to identify the issues, goals, objectives and policies in Chapter ll of the Specific Plan. The ,potential measures Nivere 'evaluated sfor potential use in the regulatory gui'd'eline portions of the lan. The First Street corridor is an area of distinct contrasts. On one hand, certain c'omme'rcial properties have well designed, intensively used developments, particularly the 'ones located at the eastern terminus of First Street at u`\Je_ sioport Boulevard, while a fe�Aj blocks vsiest of El Camino Real the buildings exhibit an older, less consistent image, NA There ; =, r�.�, 'es, vac -- aRt tom- -af underutHiz'ed developments are more prevalent. Analyzing First Street at the Specific flan level, it becomes apparent that the street should --:ontinue to be planned as a cohesive whole with concentrations of "families of uses" dominating certain sections of the street. In many revitalization situations similar in nature to First Street, the initial .reaction might be -to correct problems Ni�;Jth long range, costly and controversial remedies. These remedies typically tale the form of inflexible mandatory regulatory formats for ne�rj devel'opm'ent. Such approaches do little to stimulate private commercial development. The G'bj of Tustin interested in providing catalysts for change by providing regulatory „opportuniiy„ through the judicious use of revised site development standards and the stimulus of incentive or bonus provisions. It fs-was The -PI Ce��the consultant team's goal in 1985 to prepare a ;pro - business, pro - economic strategy plan designed to solve immediate physical ,problems as well as offer long -range programs for ongoing project -wide improvements. Certain ^t3-- opportunities and constraints have been identified thus far and are summarized below. See Exhib,, 8 for a visual depiction of the opportunities and constraints identified in 1985. City staff-, PlaRRiRg Cemmissien, City CeURGil and mer-chaRts will alse be enceur-aged Opportunitiesp, -vials iii o There are several large coihesively designed shopping centers in the area. 0 Relatively few, buildings are in poor condl tion. There are recent instances of qL]alitj� redevelopment/ development within the area. P eppertree Park, aAlthough not within the specific plan boundany, contributes a special landscape atmosphere wNch relates to the corridor. • Most revitalization opportunities will occur in small, identifiable pockets west e, PFespect Avenue. The entrly to Fl Camino Real offers a special historical streetsca,pe element nearly in the middle of the project area, offering a central node of development for First Street. Prospect Street, the major north -south traffic carrier through, the project area is located in the center of the area° reinforcing tie activity node provided by El Came no Re_a1. o First Street has identifiable east and west entry points at the 'Newport Freeway and Newport ,Boulevard. o The present streetscape system on First Street contains good elements ti��hich can be incorporated into the proposed plan. The medians with turf and well- established olive trees compliment the existing Ficus nitida. The curbside amenities Qstreet furniture) fulfill functional needs but mavde not add aesthetically to the streetscape �sce�ne�.�1 t # the stt1CVtlL1'11�r,�9rtv�TF r -rSti ee t *cite im pFeyve th the visual r uali{ , e + Y �'C , �`Y The project area has a series of equally spaced nodes or intersections that, when developed and enhanced, would help draw shoppers along its entire length. o There appears to be little traffic congestion in the study area in relation to other commercial areas in southern California, ?,6th the most serious pea hour congestion occurring on -the east /west peripheries. Constraints o Circulation. av o There is a lack of convenient inter -site circulation, in that vehicles mast generally enter First Street to access the adjacent site. o Mixed Land Uses: O While a , i, -e-Wre of land uses can add e xcitement to an area, in the case of t irst Street there no cohesive Tamil of Uses which encourage spontaneous shopping or strolling, etc. In 'fact, many adjacent Land uses are incompatible with one another. ® Scattered Retail Uses: o The existing !re-tail uses ?which comprise the First Street Specific Ran area are too dispersed. The area exhibits the physical characteristics of strip commercial development but �Aiithout enough truly auto- related retail uses to capitalize on its linear shape. o Poorly maintained buildings, - ,-j, Rt lots- * Some properties �11Jthin the Specific Plan area are in need of maintenance�i-t these wr- ladiei � The west end a in paFtic lar exhibits the gFe-�test . t� on First Street, -- exhibits �. __.__�_ incidence ^� „ �� ,n�i s, there are non - conforming uses, vacancies and older, poorly maintained buildings. o Lack of freeway Entry jNewport_ SR 551 Freeway; One of First Street's major DrGWems constr,� nt� is its lack of direct Freeway access, both vehicular and visual. Moreover, entry at Newport Avenue doesn't offer a eaFly e citiRg or diffeF -e visual statement either. o Small, shallow development parcels; • Co mmercial development on single, shallov�/ lots does little to promote a-- viable large commercial center on First Street Isuch as Larwin_Scluare or The Courtyard, The most successful commercial and office developments have assembled and consolidated io-ts along and behind First Street. • Inconsistent Development Standards; • The inconsistent mixture of architectural styles, parking conf igurationso setback and landscape requirements, tiAjhiile offering a variety of individual site conditions lacks any cohesiveness which could -tie aN of these varietal standards together. This gives First Street no sense of cohesiveness or commercial identity. Potential Measures The follo�,AAng analysis outlines i^ a shoppiRg list fbFinat , FnyFi d of programs which might be able to take advantage of the area's opportunities peto�m ' to improve some pFeblem - challenging conditions. It is by no means inclusive or a final recommendation. This list is simply a compilation of some ideas that have been successfully applied in situations similar to First Street. See Exhibit 4-2-. v Consolidate small lots f either 'through private land assembly or coordinated site planning), developing more efficient use of land, creating a more efficient building site, and providing a non -stnip commercial atmosphere. !Depth needs to be establlshed where possible. Establish development incentives for providing off street parldng ?AIith improved inter- propertj ClrCulation opportunities. These development incentives could be the relaxation of certain development standards for more efficient parking design or streetscape amenities. Form a Business Improvement District to guide project-wide improvements, This could be similar in nature t03 merchant's associatlon in a mall or shopping center. It could be self policed; it Could solve problems of who cares for shared parking lots; it could even sponsor promotional events. Frovide alternatives to front setback parking lots. o establish neNm, comprehensive site development standards unique to the area. Me I "W=- w w w w. w w i� Develop an improved streetseape programs compatibleEet,t vvith the established Fl Camino Deal improvements. o Establish consistent, yet flex ble, sign controls. o Create pedestrian points of interest to enhance a linear pedestrian route along f=irst Street. • Grant development bonuses to businesses vwNch utilize storefront canopies and plazas to enhance the pedestrian movement from property to property. • Develop means for rmeYe aggres&ivefy drawing vehicles from nearby NewpsF Freeway exits at 'Aaieet Irvine Boulevard and 'Newport Avenue to First Street. VI 0000 3 LA n ti n 3 rD n 2 0 0 r z z La �D 3 °° � 0 O o rD ffrot C rD n y C rD n y aj 0 0 M m M c rot r+ AMEN rn 1�a.3 C�i�e��Cj 11Yedli }�. - M N r) a=i ■ r a'"oya3 <o3 `A rove T �1i�j ■ A/ r r+ � ( � 0000 3 LA n ti n 3 rD n cn O (D 3 r z z La �D 3 0 � O o rD al g C rD n y C rD n y aj 0 t: rD m m 0 _ 0 Ln t� cu n C I+ ti * r 7 M O rD rD rD rD rD 0e I"M J ti rD ti 3 0 � 0 0 4 6 ^ roe, m m .I� tea/ o H LM MK C ^y n a cn rt � n O rn 1�a.3 C�i�e��Cj 11Yedli }�. - � N N.nro'103 a'"oya3 <o3 `A rove _T+ • r '3 0 ro a y UUU ■ Yorba Street . �■ A v ; A Alt' y ff.a 2 -10 cy ' 2 rr a a hi o ?3C Q SY D y a O tr3 a C, O O a.sato p r m ro a tip 0 3ro7N''*�ron t O 4 r,!, tt Al2 3 4�.oa'= - ro K O m .+ n ., .. C .. O y -MS v 3RD ro .. ro O A CL s 2 ° V yro Q ■aiir - ElCaminoReal ■ mR ? N 5 S J H OR 1 t 3 0 61 a ro _ o Ei S St'5� >�t�f is K. tD a 5 a tia@ i is i■ iiiA #i lif oro° ;Q,a 3 ec %u ° n�R3 1 r" O a 3 3 ro rtv H a m o ° n w w m QT n r�' .ri G N CD M M M y a m X33 N P N y p O m' 0 J� s-f NOW vii APPENDIX F FIRST STREET SPECIFIC PLAN PLANNING PROCESS This appendix documents the process by -which the First Street Specific Plan �v�as prepare —d end corasidere —d. Date Event July 2, 1 985 Request for Proposal distributed by City to potential consultants, Contained a carefully worded scope of �Aiork and statement of objectives. August 23, � 9 5 The Planning Center authorized to !begin work. August 280 1 985 Detailed scoping meeting between City Staaff sand consula�nt tears. September 30, 1,985 Progress review meeting with City Staff and consultant team. Focus on issues potentials sand constraints. October 24, 1 985 First public to Ajn hall meeting held to explain planning effort, share market and physical conditions information and gain insight from the public before beginning plan formulation. October 25, 1 985 Consultant term began plan preparation. November 120 19 ,95 F lanning Commission 1krorkshop to present Findings, summarize public input sand obtain commission comments. City Council members invited to hear briefing. November 25, 1985 Presentation of draft plan to joint City CounciV Fanning Commission workshop. Opportunity to expose them and interested public to details of the plan, provide council and commission members the opportunit-y to question consultants, and discuss possible resolution of issues embodied in the plan, ,December 9, 1985 Formal public hearing on plan by the Planning Commission. Direct testimony received from public, with responses by both consultants and staff. December 16, 1985 Formal public hearing on the plan by the City Council. Consideraation of Planning Commission recommendation, public testimony and both consultant and staff reports and X ill responses to questions. Flan adopted. January 25, 2011 Planning Commission workshop to consider an update to the First Street Specific Ulan. March 22, 2011 Continued Planning Commission workshop September 14, 2011 Public workshop on the First Street Specific flan The process, highlighted by these key dates and events, was accompanied throughout the project life by a eery close and constructive sza: fT /consultant communication that resulted in clarif\ ng a great number of technical questions as needed l so that policy issues could be focused upon by the public, the Manning Commission and -the City !Council. The quality of this -vworking relationship ti gas the major ingredient in completing the plan 6n an unusually short period of time. APPENDIX G GENERAL PLAN CONSISTENCY Section 65860 of the California Government Code requires that zoning be consistent with a jurisdiction's General Plan. The dominant element of the City of Tustin General Plan relevant to the First Street Specific Plan Area is the Land Use Element. The eRtiFe pjaRRing area is desigRated feF autemebile gales and service= The City's General Plan Land Use Element designates the area as PC CommerciaVBusiness. Under this land use designation a mix of commercial and office uses such as hoteVmotels, commercial centers research and development and professional offices are permitted. The First ,Street Specific Plan is consistent with the following General Plan goals and policies: GOAL 1: Provide for a well balanced land use pattern that accommodates existing and future needs for housing commercial and industrial land, open space and community facilities and services, while maintaining a healthy, diversified economy adequate to provide future City services. Policy 1.8: Provide incentives to encourage lot consolidation and parcel assemblage to provide expanded opportunities for coordinated development and redevelopment. GOAL 5: Revitalize older commercial, industrial and residential uses and properties. Policy 5.2: Provide development incentives to facilitate the consolidation of individual parcels along the City's commercial corridors. GOAL 7: Promote expansion of the City's economic base and diversification of economic activity. Policy 10.6: Encourage the integration of retail or service commercial uses on the street level of office projects through flexibility in site development standards. 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 x 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 Ulan including modifications to the flan 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. The Pplan responds directly to the fc�., t-.t go ter these goals and policie7 ,by providing for appropriate commercial retail -,'ce and office uses. It responds indirectly to the SeCeRd -e -by reinforcing successful development and stimulating both economic growth and aesthetic improvement on the periphery of the t.,., R e-enter First Street. PM The Pplan effects a change not so much in the nature of uses along First Street but the balance, arrangement, development standards and design characteristics of office, commercial and specialized uses so that they will be more responsive to market opportunities and ens Dance the First Street corridor. The First Street Specific darn is therefore consistent with the City of Tustin General Plan. Xn APPENDIX € 7' ?17T STREET SPECL �lntnina�; L The proposed commercial Ind office development is consistent in intensit y, and character with the Cizy s adopted General Plan, 2, Reasonable alternatives to the plan and their implications have been considered. 3. The scope and depth of plan analysis are commensurate 'with the level of detail contained in the plan and the speci -ficity/ our land use entitlement its adoption , uthorizes, 4. The various components of the plan as well as the plan in its entirely are sensitive to the environ entel and public policy impacts of the proposed development. 5. Appropriate mitigation measures are incorporated in the ;plan to insure that concerns identified at this level of pl7nning are resolved as part of the more det,iled site plan revieNj\f �Alhich must be completed before private development may proceed, 6. Administration of the plan is thoroughly integrated into the City's development processing system, 7. All subjects required in f specific plan by the Cllifornia Government Code and applicable Cjt�y ordinances are appropriately and adequately covered, 8, Adequate time and opportunities have been (forded interested organiz,-,�)tions fnd members of the public to comment on or propose changes to the plan if they so desired, 9. the level of development direction estfblished by the plan is sufficient to eliminate the need for a continued development moratorium in the First Street corridor, xfi DRAFT FIRST STREET SPECIFIC PLAN CORRECTIE© COFY K �J J i CV Council John Nielsen, Mayor Al Murray, Mayor Pro Tern Jerry Amante, Councilmember Deborah Gavello, Councilmember Rebecca "Beckie" Gomez, Councilmember P1.7nnin4 -Commission Charles "Chuck" Puckett, Chairperson Steve Kozak, Chairperson Pro Tem Jeff Thompson, Commissioner Fred Moore, Commissioner Ken Eckman, Commissioner Cv Elizabeth A. Binsack, Director of Community Development Dana L. Ogdon, Assistant Director of Community Development, AICP Scott Reekstin, Senior Planner Amy Stonich, Senior Planner, AICP Joe Pearson 11, Planning Intern Original document adopted by Planning Commission Resolution No. 2228 on December 9, 1985 Original document adopted by City Council Resolution No. 85-126 and Council Ordinance No. 961 on December 16, 1985 Amended version adopted by Planning Commission Resolution No. on 2012 Amended version adopted by City Council Resolution No. — on 2012 I. INTRODUCTION A. HISTORICAL PERSPECTIVE First Street —Circa 1946 Tustin's agrarian past significantly influenced the pattern of commercial development in the community. The earliest development in Tustin was focused within Old Town, the community's original commercial center. As Tustin developed, transportation and commercial corridors evolved along First Street with small residential and commercial buildings. The subdivision of properties along First Street created an irregularly shaped streetscape, with most parcels being relatively small in size. Over the years, small parcel sizes limited the size and intensity of development that could occur along First Street. As freeway travel expanded and became easier, First Street patrons were willing to travel farther to find goods and services. Newer and larger retail and service providers were established in Tustin Ranch and along nearby Newport Avenue, creating strong competition for First Street commercial businesses. Although First Street and the Newport (SR-55) Freeway intersect, freeway on- and off -ramps were not provided on First Street, but occurred a block north at Irvine Boulevard. Vehicle traffic found the most direct route to the freeway, resulting in some drivers bypassing First Street. The less-traveled First Street corridor developed from its early status as the primary gateway to the City into a more fragmented pattern of land uses that continues to include a varied mix of historic residential and commercial properties. Land use changes have been infrequent along First Street, and the existing mixture of uses share a low- scale, low-intensity commercial character that is in need of revitalization. Residential uses (including single family, multi-family, and mobile homes), auto-oriented service uses, office, and small retail buildings currently line First Street. Only the First Street properties located nearest to Newport Avenue are generally larger and more uniform in use and purpose. 1 First Street - 2009 The First Street Specific Plan regulates a commercial corridor that extends approximately a mile along First Street from central Tustin at Newport Avenue to the Newport Freeway (SR-55), as depicted on Exhibit 1. This corridor varies in depth on either side of the street from as little as 0 feet where it abuts the First Street right-of-way, to almost a quarter of a mile along Newport Avenue where the Larwin Square and Courtyard commercial centers are located on sites of several acres. Although the First Street Planning Area is relatively small (approximately 84 acres), it is significant in that it continues to serve as an entry to the City from the west and provides access to the Old Town Tustin historic district and, via Centennial Way, to the Civic Center. The First Street Planning Area is divided into three sub-areas as shown on Exhibits 2, 3 and 4. [on 5 -.1TWO XCI r UOIC ilk No Over the years the First Street corridor has evolved into an area of considerably varied development. The quality and condition of the existing built environment varies from high quality projects to those that have not been well maintained with many examples throughout the spectrum between these extremes. The predominant uses existing within the First Street Planning Area are commercial retail, service, and office. Stimulated by a concern about the appropriate mix of these predominant uses as private development projects were proposed, the City Council established a moratorium on the issuance of new building permits on June 3, 1985 to allow time to establish overall guidance for further development. The First Street Specific Plan (the "Plan") is the vehicle approved by the Tustin City Council to provide that guidance. On, When adopted in 1985, the First Street Specific Plan was envisioned to be a 15-year plan. More than 25 years later, in 2011, the Tustin Planning Commission and City staff initiated an effort to update the Plan. As described in more detail in Appendix E, an intensive series of consultant/staff workshops, public meetings and Planning Commission/City Council work sessions and public hearings led to formulation of the original 1985 Specific Plan and its 2012 Amendment. D. PURPOSE The goal of the 1985 First Street Specific Plan was to identify an appropriate mix of commercial and office uses for the area Tustin City Council was concerned about an "erosion of commercial potential" along this gateway street. The Plan was also intended to protect adjacent residential neighborhoods and establish consistent development standards. The purpose of the 2012 Plan is to continue to guide and stimulate the use of properties along First Street to the maximum mutual advantage of property owners and the City of Tustin. This is accomplished by a comprehensive set of regulations, incentives and Design Guidelines, along with other related actions to encourage optimum development. The Plan constitutes the legally established zoning for properties within the Planning Area. Moreover, it establishes certain important development policies within the First Street corridor. The Specific Plan is the major device for implementing the City of Tustin General Plan within the Planning Area. 1: a 0 V.W MMOI N "I The California Government Code authorizes cities to adopt specific plans by resolution as policy or by ordinance as regulation. Hearings are required by both the Planning Commission and City Council, after which the Specific Plan must be adopted by the City Council to become effective. The adoption of this Specific Plan by the City of Tustin is authorized by the California Government Code, Title 7, Division 1, Chapter 3, Article 8, Sections 65450 through 65457. The First Street Specific Plan is a regulatory plan which serves as the zoning ordinance for the properties within its boundary. Proposed development plans or agreements, tentative tract or parcel maps and any other development approvals must be consistent with the Specific Plan. Projects consistent with this Specific Plan are automatically deemed consistent with the General Plan. 3 The regulations contained herein shall apply to the boundaries depicted on Exhibit 1. 11. LAND USE PLAN A. INTRODUCTION The Land Use Plan contains the essential components of the Specific Plan and the policy direction which serve as the foundation for development regulations and guidelines which are used in reviewing and approving development projects within the First Street Specific Plan. There is a tendency to emphasize problems in planning documents because perceived problems are frequently the stimulus for undertaking a plan. While there certainly are some real challenges in the Planning Area, it is equally evident that these are unique attributes and considerable opportunities which combine to offer the potential for a balance between preservation, rehabilitation, and new development. 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, through private market decisions. The basis for this Plan lies in 1) the Tustin General Plan (see Appendix G for a summary of General Plan consistency)and 2) the analysis undertaken to prepare or amend the Specific Plan (embodied in the accompanying appendices). The following key points should be kept in mind in reading and using this Specific Plan: 1. The primary uses of the area are and should remain commercial retail, service, and office. Differences in uses and regulations within the area are based on the intensity and characteristics of each subarea. 2. The City will depend primarily on private market decisions to stimulate development and improvements in the area. 3. Diversity of appearance within certain broad quality guidelines is desirable, as called out in the Design Guidelines (Appendix A). 4. The Plan is a conscious compromise between one extreme of doing nothing and the other of trying to completely change the area. The balance thus achieved will hopefully provide a stable and durable basis for decision making in the area. 5. In order for the area to work best, a creative partnership between the City, property owners and tenants is required. The Specific Plan is intended to be the foundation for that partnership and will support it more effectively than more traditional planning approaches. G. City Council adoption of the policies, use regulations, site development standards and design guidelines constitutes the City's commitment to property owners and the development community that it will carry out its appropriate share of the effort to 0 c m U cti L= s.. V Q CU Q ti 4� 'u V) Q N L- LL. 0 N L>S maintain the Planning Area as an asset to property owners, tenants and the City as a whole. B. SUMMARY OF SPECIFIC PLAN POLICY DIRECTION The following points express the most essential ideas contained in the Plan and constitute the overall policy direction for the Plan. Decisions about continuation, redevelopment or new development of uses on property within the Specific Plan shall rest with the individual property owner. 2. Decisions about development standards to be maintained or established shall rest with the City and shall be as prescribed in this Plan, as it may be amended from time to time. 3. The basic intent is for continuation of primarily commercial retail, service, and office uses, including some commercial mixed use projects at various scales. The Plan Area may be expanded by Specific Plan Amendment and Zone Change. 4. This Plan, as amended, provides guidance for development as it could occur within approximately a 15-year time span, or by approximately the year 2027. C. GOALS, OBJECTIVES AND POLICIES The following statements represent the policy direction for the Planning Area as a whole, as well as the distinct sections of the subject area that exhibit particular use constraints or potentials. 1. Pattern of Uses ISSUE: What is the most productive pattern of uses? GOAL: The best use of property within the Specific Plan area is development approaching maximum development potential while providing a compatible and monitored growth program. OBJECTIVES: 1.1 Preservation of existing quality uses. 1.2 Expansion/intensification of existing quality uses 1.3 Maximum possible responsiveness to market opportunities for each sub-area (see Exhibits 2, 3, and 4). 1.4 Uses appropriate to each sub-area. 5 POLICIES: Maintain and perpetuate a mix of commercial retail, service, and office uses in sub-area 1. The best use of property within the Specific Plan area balances maximum development potential with compatible uses and monitored growth. 2. Stimulate retail and service commercial uses in sub-area 2. 3. Preserve the dominant retail and service commercial uses in sub- area 3, retaining already established offices. 4. Promote development, expansion or redevelopment that: a. Is a permitted use; b. Meets prescribed development regulations; c. Is responsive to established design guidelines. 2. Condition of Existing Development ISSUE: How can the overall condition of development be improved? GOAL: A consistent quality of development throughout the area. OBJECTIVES: POLICIES: 2.1 Maintenance of quality that exists. 2.2 Improvement of development that is deteriorated or inefficiently designed. Reinforce existing private property health and safety regulations by committing City enforcement efforts to this area. 2. Allow maximum site development through relatively liberal site development standards in return for well-conceived site plans. 3. Offer development incentives to property owners for projects that are highly responsive to plan objectives. 4. Establish and administer Design Guidelines to assist developers in understanding and implementing the Plan's intent. I 3. Visual Improvement ISSUE: How can the area's appearance and image be improved? GOAL: A quality physical appearance of both existing and future development. OBJECTIVES: POLICIES: 3.1 Elimination of visible outside storage. 3.2 Compatible building elevations and materials. 3.3 High quality landscape treatments throughout the corridor. 3.4 Achievement of an overall positive identity for the area. I Require responsiveness to Design Guidelines in plans for new development, expansion or redevelopment. 2. Discourage parking in front of buildings. Buildings should be located as close to the street as possible. 3. When rear parking is not possible, screen parking areas with landscaping materials or treatment in excess of minimum standards. 4. Maintain the existing streetscape improvements. 4. Compatibility of Land Uses ISSUE: How can land uses within the specific Plan be kept compatible with each other and with adjacent uses? GOAL: Compatible land uses which do not interfere or create health and safety concerns for an adjacent use. 14101► POLICIES: 4.1 Reduction of existing conflicts between uses. 4.2 Prevention of future incompatibility as new development occurs. 4.3 Use of design standards in the Design Guidelines to improve compatibility where changes in use are impractical. 1 Approve site plans for authorized uses which demonstrate design compatibility with adjacent uses and structures, particularly where such adjacent uses are single family residential in character. 7 2. Encourage lot consolidation or integrated site planning by considering development incentives. 3. Apply appropriate Design Guidelines to mitigate conflicts between uses where a change in use is not practical. 5. New Uses/Use Intensification ISSUE: What new uses are appropriate and feasible in the area and where should they be allowed? GOAL: Effective integration of new uses. OBJECTIVES: POLICIES: 4.1 Maximum possible capture of market opportunities by property owners. 4.2 The most effective possible use of each parcel of land. 4.3 Location of new uses in areas which contribute most to overall improvement of the area. 4.4 Efficient use of existing public facilities to support market-generated growth and development. 1 Encourage primarily new retail commercial, service commercial, and office uses in designated sub-areas. 2. Establish and administer a system of incentives for lot consolidation or integrated planning of smaller parcels through consideration of reductions in parking requirements, fee waivers for permit processing, etc. 3. Allow shared parking and access to allow maximum parcel usage. 6. Parcel Size/Configuration ISSUE: What is the best way to deal with the variety of land parcels, particularly the numerous small ones? GOAL: Efficient parcel sizes and configurations. P OBJECTIVES: POLICIES: 4.1 Consolidation of lots wherever possible in conjunction with anticipated quality design as set forth in this plan. 4.2 Coordinated site planning and development of adjacent lots where consolidation is not possible. 1. Provide lot consolidation incentives in the plan regulations. 2. Apply incentives also for an integrated site plan on adjacent individually owned parcels. 3. Recordation of reciprocal access agreements for new development located adjacent to sites with future potential for shared ingress/egress. 5. Site Development Standards ISSUE: What site development standards are appropriate? GOAL. A combination of standards and incentives which will stimulate quality development. POLICIES: 5.1 Site development regulations which lead to efficient use of available space. 5.2 Design Guidelines which assist in defining and describing the level of quality intended. 5.3 Site development incentives which stimulate lot consolidation or cooperative site design and lead to more profitable and efficient parcel use. 5.4 Safe, effective and adequate access and parking for each business enterprise. 1. Provide incentives for lot consolidation/ integrated site planning in the Specific Plan Regulations. a 2. Include responsiveness to Design Guidelines as a major consideration in site plan review and approval. 6. Incentives for Plan Administration ISSUE: What City assistance can be provided to encourage expedient implementation of this Plan? GOAL. To encourage rapid rehabilitation of poorly maintained structures and uses. POLICY: 6.1 Rehabilitation of facades (including signage) of existing structures to comply with Design Guidelines of this Plan. 6.2 Improve vehicular inter-site circulation. 6.3 Maximization of pedestrian movement and access. To make available to property owners, where possible, funding sources for rehabilitation of existing buildings and for new development. The main idea underlying the First Street Specific Plan land use concept is to build upon the positive features already present. They include the following: 1. 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. 2. The Specific Plan emphasizes "pedestrian-friendly" design and uses to preserve the existing human scale and character. 3. Setback and height restrictions appear compatible with nearby residential uses to the north and south. 4. Mixed use with retail on the first floor and offices on the second floor is encouraged. 5. Street improvements are well maintained. 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. A vision and plan for future improvements through the Design Guidelines with public and private incentives and funding will achieve the desired improvements along First Street. "Ril 6. There is little traffic congestion and ample parking along First Street. 7. Property owners are encouraged to make positive changes, while maintaining a "human scale" environment along First Street. The plan concept consists of the following components: 1. Subareas The corridor is made up of three subareas, each characterized by a particular land use emphasis. Subarea 1, closest to the Newport (SR-55) Freeway, is a mixed use office-commercial area (Exhibit 2). Subarea 2, either side of the El Camino Real/Prospect Avenue intersections, is a transition area with an emphasis on retail commercial and service development (Exhibit 3). Subarea 3, anchored by two relatively large shopping centers facing Newport Avenue, is predominantly a retail and service commercial area, but with a strong office enclave (Exhibit 4). 2. Preservation of Human Scale and Character Site development standards, with only a couple of exceptions, limit development to one or two stories directly along the corridor. Efforts are made through the Design Guidelines to achieve a low-profile "pedestrian-friendly" environment by making it possible to move freely within each subarea from business to business. Moreover, the visual image being sought is one of human scale, not dominated by large or high close-in building masses, with streetscape and the design of the public realm, adding to a sense of place for First Street. In summary, the concept seeks a balance between market responsive expansion on the one hand and preservation of the basic existing scale and character on the other. Ill. DEVELOPMENT REGULATIONS A. INTRODUCTION AND INTENT These regulations constitute the primary zoning provisions for the First Street Specific Plan. These regulations are in addition to regular Zoning Code provisions (Article 9 Land Use, Chapter 2 - Zoning) of the Tustin City Code. Where there is a conflict, the regulations herein will prevail. Where direction is not provided in this Specific Plan, the Zoning Code shall prevail. 11 1 1 U. Mu or o I 1 4. CL LL I Li Z w ti u L QU Ec C 0 U i r u 4. V Q" M 4-J 4-J N CO LL. N z R The overall intent of these regulations is to guide development on all development parcels in the Specific Plan area to insure that each individual development project contributes to meeting the goals and objectives of the First Street area. More specifically, the regulations are intended to: • Provide opportunities for economically productive business enterprises. • Establish uses and site development standards which contribute to the preservation and enhancement of adjacent single family residential environments and which promote an economically sound land use pattern for First Street. • Provide for the scale and nature of uses which can facilitate the most efficient use of the existing development pattern as well as parcel sizes and shapes. • Achieve gradual improvement of older commercial, office and residential buildings by allowing commercial retail, service, and office uses that are compatible and consistent with surrounding areas, encouraging redevelopment, promoting consolidation of parcels, enabling rehabilitation, emphasizing landscaping and design improvements and promoting any combination of these devices desired by the property owner(s) and supportable by the City. • Contribute to the improvement of both visual and functional attributes of First Street to help stimulate business activity. • Protect the traffic handling capacity of First Street while accommodating new development and rehabilitation. • Establish a sense of place, as well as continuity and consistency of development standards, within the Specific Plan Area. B. GENERAL PROVISIONS The following regulations apply to all subareas within the First Street Specific Plan Area. All construction and development within the Specific Plan area shall comply with applicable provisions of the Tustin City Code, California Building Code and the various related mechanical, electrical, plumbing codes, grading and excavation code and the Subdivision codes, as currently adopted by the City Council. Where there is a conflict, the regulations of the Specific Plan will prevail. Where direction is not provided in this Specific Plan, the Zoning Code shall prevail. However, In any case of a conflict between the specific provisions of any such code and this Specific Plan, the provision which most serves to protect safety shall apply and the Community Development Director shall resolve the conflict by written determination in a manner consistent with the goals and policies of this Specific Plan. 12 2. The setback requirements are as specified by each use category of this Specific Plan. All setbacks shall be determined as the perpendicular distance from the existing street right-of-way line, or property line, to the foundation point of the closest structure. This shall not preclude pedestrian arcades or awnings from encroaching into the front yard setback area. 3. If an issue, condition or situation arises or occurs that is not sufficiently covered or provided for or is not clearly understandable, those regulations of the City Zoning Code that are applicable for the most similar issue, condition or situation shall be used by the Community Development Director as guidelines to resolve the unclear issue, condition or situation. This provision shall not be used to permit uses or procedures not specifically authorized by this Specific Plan or the City Zoning Code. 4. This Specific Plan may be amended by the same procedure as it was originally adopted. Each amendment shall include all sections or portions of the Specific Plan that are affected by the change. An amendment may be initiated by the City Council or the Planning Commission, the general public, or City staff. Any such amendment requested by the general public shall be subject to the fee schedule adopted by the City Council. S. Any persons, firm or corporation, whether a principal, agent, employee or otherwise, violating any provisions of these regulations shall be guilty of a misdemeanor, and upon conviction thereof, shall be subject to penalties and provisions of City Code. 6. Whenever a use has not been listed as a permitted or conditionally permitted, it shall be the duty of the Community Development Director and/or the Planning Commission to determine if said use is 1) consistent with the overall intent of the Specific Plan and 2) the said use is consistent with the other listed permitted or conditionally permitted uses in the Specific Plan. 7. In order to maintain and enhance vehicular and pedestrian circulation along First Street, any development occupying a parcel which is located on a corner with side street frontage should have vehicular access restricted to the side street only. The Community Development Director will review this on a case-by case basis. Wherever a site is not on a corner, a reciprocal easement agreement will be encouraged. 8. Non-conforming Structures and Uses of Land Where, at the time of passage of this Specific Plan, lawful use of land exists which would not be permitted by the regulations imposed by this Specific Plan, such use may be continued so long as it remains otherwise lawful, provided: a. No such non-conforming use shall be enlarged or increased, nor extended to occupy a greater area of land than was occupied at the effective date of adoption or amendment of this Specific Plan. 13 b. No such non-conforming use shall be moved in whole or in part to any portion of the lot or parcel other than that occupied by such use at the effective date of adoption or amendment of this Specific Plan. c. If any such non-conforming use of land ceases for any reason for a period of more than 180 days, any subsequent use of such land shall conform to the regulations specified by this Specific Plan for the district in which such land is located; d. No additional structure not conforming to the requirements of this Specific Plan shall be erected in connection with such non-conforming use of land. 10. Non-conforming Structures Where a lawful structure exists at the effective date of adoption or amendment of this Specific Plan that could not be built under the terms of these regulations by reason of restrictions on area, height, yards, its location on the lot, or other requirements concerning the structure, such structure may be continued so long as it remains otherwise lawful, subject to the following provisions: a. No such non-conforming structure may be enlarged or altered in a way which increases its non-conformity, but any structure or portion thereof may be altered to decrease or not affect its non-conformity. b. Should such non-conforming structure or non-conforming portion of structure be destroyed by any means to an extent of more than 50 percent of its assessed value at time of destruction, it shall not be reconstructed except in conformity with the provisions of this Specific Plan; c. Should such structure be moved for any reason for any distance whatever, it shall thereafter conform to the regulations for the district in which it is located after it is moved. D. LAND USE REGULATIONS 1. Permitted Uses a. Subarea 1 - Neighborhood Commercial In Subarea 1 (Neighborhood Commercial), the following uses, occupying no more than 10,000 square feet, shall be permitted by right where the symbol "P" appears and may be permitted subject to a conditional use permit where the symbol "C" appears in the column to the right. 14 1) Retail Uses: (a) Antique shops P (b) Apparel stores P (c) Art galleries P (d) Bakeries, retail only P (e) Bicycle shops (including repair) P (f) Books, gifts and stationery P (g) Confectioneries P (h) Convenience markets C (i) Drug store P ( j) Florists P (k) Furniture store P (1) General retail stores P (m) Hardware store P (n) Hobby stores P (o) Jewelry stores P (p) Music stores P (q) Neighborhood commercial centers P (r) Nurseries and garden supply P (s) Office Supplies and equipment P (t) Religious supplies P (u) Print shops P (v) Shoe stores P (w) Sporting goods stores P 2) Service Uses: (a) Assisted living, rest homes, extended care facilities, convalescent hospitals (b) Banquet facilities (c) Barber, beauty salons (d) Dance and martial arts studios (e) Fitness training, indoor one on one (f) Hotels and motels (boutique) (g) Indoor commercial recreational uses (h) Insurance agencies (i) Laundry and dry cleaners (off site only) 0) Locksmith (k) Massage establishments (1) Meeting rooms (m) Real estate agencies (n) Restaurants with alcoholic beverage sales (o) Restaurants with drive thru service (p) Restaurants without alcohol (q) Schools, pre-school and nursery (r) Seamstress or tailor shops C C P P C C C P C P P C P C C P C P 15 (s) Shoe or luggage repair shops P (t) Travel agencies P (u) Tutoring facilities P 3) Office Uses: (a) Accountants P (b) Advertising agencies P (c) Answering service P (d) Architect P (e) Attorney P (f) Chiropractor P (g) Collection agency P (h) Contractors and building consultants P (i) Dentist P 0) Doctor P (k) Drafting P (1) Economic consultant P (m) Engineer P (n) Escrow P (o) Interior decorator or artist studio P (p) Land and property management P (q) Land planner P (r) Oculist P (s) Optometrist P (t) Others licensed by the State of California to practice the healing arts, including clinics for out-patients only P (u) Personnel Agency P (v) Photographer P (w) Surveyor P (x) Social work P (y) Professional consultant P (z) Stock broker P (aa) Title insurance P (bb) Travel agency P 4) Community and Institutional Uses: (a) Churches, convents, monasteries and other religious institutions C (b) Fraternal organizations and Lodges C 5) Existing Single Family Residential Use/Structures Any existing single family residential structure listed within the City's official historic survey is encouraged to be preserved and used as a OR residence, or preserved and used as a commercial use as authorized by this Section and consistent with the City's Cultural Resource District Residential Design Guidelines and the Secretary of Interior's Standards for Rehabilitation. a Any existing historic single family residential structure used for such purposes is a permitted use. b The conversion of an existing historic single family residential structure to a commercial use shall comply with the use limitations identified for the Subarea in which it is located. c No commercial use of an existing historic single family residential structure shall be changed to another commercial use (e.g. office to retail) without the prior approval of the Community Development Department. d Any historic single family residential structure lawfully converted to a commercial use is considered more conforming and must be maintained as a commercial use. 6) Any other similar and/or compatible retail, service, office or community/institutional use the Community Development Director and/or Planning Commission deems consistent with the context of Subarea I listed above as permitted/conditionally permitted. 7) Development Standards (a) Maximum Structural Height - 2 story, 28 feet. (b) Minimum Building Site Area - No minimum (c) Minimum Yard Setbacks: Front: 10 feet Side: 0 feet* Rear: 20 feet *Exception: 10 feet required when a side yard abuts a residentially zoned property (d) Lot coverage: No maximum; limited only by setback areas. (e) Landscaping: All areas not utilized for parking, building and walkways, but not less than a minimum of ten percent of the building site area shall be landscaped in conformance with the Design Guidelines of this Specific Plan area. ON b. Subareas 2 and 3 - Commercial In Subareas 2 and 3 (Commercial), the following uses shall be permitted by right where the symbol "P" appears and may be permitted subject to a conditional use permit where the symbol "C" appears in the column to the right. 1. Retail Uses: (a) All permitted or conditionally permitted retail uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Appliance stores P (c) Automobile parts and supplies C (d) Department stores P (e) Drug stores, pharmacies P (f) Furniture stores P (g) Hardware stores P (h) Liquor stores C (i) Pet stores and supply P (j) Sporting goods P (k) Supermarkets, grocery stores P (1) Tire sales and service C 2. Service Uses: (a) All permitted or conditionally permitted service uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Banks and financial institutions P (c) Car washes C (d) Cocktail lounges and bars when not an Integral part of a restaurant C (e) Service stations C (f) Theaters C 3. Office Uses: (a) All permitted or conditionally permitted office uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Banks and financial institutions P (c) Insurance P (d) Personnel agency P (e) Public utility office (but not including corporate yards) C (f) Title insurance P 11M 4. Community and Institutional Uses: (a) All permitted or conditionally permitted Community and Institutional uses listed in Subarea 1 subject to the use restrictions specified therein and the development criteria specified hereafter (b) Animal hospitals and clinics C (c) Commercial recreation facilities including tennis, racquetball, bowling, ice skating, athletic clubs and similar uses C (d) Post office branch P 5. Any other similar and/or compatible retail, service, or office use the Community Development Director and/or Planning Commission deems consistent with the other uses listed above as permitted /conditionally permitted. G. Development Standards - Subarea 2 (a) Maximum Structural Height - 2 story, 28 feet. (b) Minimum Building Site Area - No minimum (c) Minimum Yard Setbacks: Front: 10 feet Side: 0 feet* Rear: 20 feet *Exception: 10 feet required when a side yard abuts a residentially zoned property (d) Lot coverage: No maximum; limited only by setback areas. (e) Landscaping: All areas not utilized for parking, building and walkways, but not less than a minimum of ten percent of the building site area shall be landscaped in conformance with the Design Guidelines of this Specific Plan area. 7. Development Standards - Subarea 3 (a) Maximum Structural Height - 3 story, 35 feet. (b) Minimum Building Site Area - 10,000 sq. ft. (c) Minimum Yard Setbacks: Of Front: 10 feet Side: 0 feet* Rear: 30 feet *Exception: 10 feet required when a side yard abuts a residentially zoned property (d) Lot coverage: No maximum; limited only by setback areas. (f) Landscaping: All areas not utilized for parking, building and walkways, but not less than a minimum of ten percent of the building site area shall be landscaped in conformance with the Design Guidelines of this Specific Plan area. E. PARKING REQUIREMENTS All parking requirements shall be subject to the provisions of the Tustin City Code. 6'[• r �Q, I Lot consolidation, for the purposes of this Specific Plan, shall refer to the legal combination of lots or the development of multiple lots under separate ownership as one cohesively designed development. As a means to encourage lot consolidation along First Street rather than requiring it by specifying larger than presently existing lot sizes, the City Planning Commission may grant certain bonuses for consolidations exceeding a certain level. These bonuses may include relaxed height limitations, , parking reductions, relaxed setbacks or other such modifications as may be determined to be appropriate. To qualify for a lot consolidation bonus, the total area of the lots being combined or cohesively designed must surpass the minimum required lot size by at least 50 percent. If a minimum lot size is not stipulated, the lots being combined or cohesively designed are automatically eligible for bonus provisions. For example, two adjacent owners want to cohesively develop their properties as one development. Property owner A's property is 7,500 square feet and property B's lot is 9,000 square feet. The minimum lot size requirement under which they are developing is 10,000 square feet. Combined, their development parcel(s) safely exceeds 15,000 square feet (50 percent over minimum of 15,000), therefore they may seek lot consolidation bonuses. It should be specifically noted here that this is a completely discretionary action of the Planning Commission. The Planning Commission is under no obligation to grant development bonuses. In addition to determining the degree of the bonus provision, they will also determine how well the development has addressed the Design Guidelines of this Specific Plan. Any bonuses may be granted by the Planning Commission on a case-by-case basis with past actions not affecting future direction. Each development stands on its own merit. 20 The following bonus provisions are available but shall not be limited to: Parking reductions Height relaxation Lot coverage relaxation Reduction or waiver of processing fees G. MIXED USE INCENTIVES Development and construction of buildings incorporating retail commercial or service commercial uses on the street level with an equal or greater amount of square footage relative to the office space on the upper floor(s) shall be exempt from all site development standards except for height and parking. The development shall be responsive to the Design Guidelines. H. CONSOLIDATED PARKING/ACCESS BONUS Any development proposal which incorporates either consolidated parking or a reciprocal access agreement with an adjacent use may be eligible for the Consolidated Parking/Access Bonus. The bonus shall be an overall reduction of required parking spaces by up to 20 percent (20%). 1. General All regular administrative provisions of the Tustin Zoning Code shall apply to all properties within the First Street Specific Plan boundaries, including but not limited to Design Review, Zoning Permits, Conditional Use Permits, Appeals, Amendments, public notice and hearing provisions. The provisions herein add to or supplement the above-referenced provisions. 2. Administrative Review In order to further encourage the development and rehabilitation of permitted uses within the First Street Specific Plan area, permitted, the review of plans for a permitted use shall not be required to be processed through the Planning Commission unless they are conditionally permitted uses. The Community Development Department shall review and comment on all matters of the application, and a final determination on the plan shall be rendered by the Community Development Department. The Planning Commission may at their discretion suggest design modifications consistent with the Design Guidelines. Any project having development plans approved by building permit issuance or land use permit prior to the amendment of this Specific Plan shall remain approved without amendment. 21 3. Site Plan Review a. Method and Purpose The First Street Specific Plan shall be implemented through the use of Site Plan Review. A Site Plan shall be required for all rehabilitation, redevelopment, expansion of existing uses or structures and new development within the Specific Plan area requiring a building permit. This requirement is instituted for the following reasons: 1. To ensure consistency with the intent of the Specific Plan. 2. To encourage innovative community design and development. 3. To assure substantial long-range compliance with the Redevelopment Plan and General Plan. 4. To promote the highest contemporary standards of site design. 5. To adapt to specific or special development conditions that occur from time to time while continuing to implement the Specific Plan. G. To facilitate complete documentation of land use entitlements authorized and conditions pertinent thereto. b. Applicability Approval of a Site Plan shall be required prior to or concurrent with a Conditional Use Permit, Tentative Tract Map, or Parcel Map for all proposed projects within the Specific Plan area. Where no Tentative Tract or Parcel Map is required, approval of a Site Plan shall rest with the Planning Commission except in the case of permitted uses. The Site Plan process shall be similar in its requirements and procedures to the Conditional Use Permit process in the City of Tustin. The primary difference between the two is the simpler administrative review procedure for development projects which consist of permitted uses. 22 Appendix A DESIGN GUIDELINES (Separate Document) Appendix B 1985 MARKET ANALYSIS (Separate Document) APPENDIX C 1•85 AND 2012 CONDITIONS SUh-,hVrY To formulate what some of the opportunities and constraints of the Specific Plan Area were in 1985, certain basic mapping tasks were performed. These tasks ultimately assisted the study team to reach conclusions about what was there and how it related to the goals of the study. The two 1985 conditions exhibits discussed here include: • 1985 land use • 1985 zoning 1. 1985 Land Use The 1985 land use exhibit confirmed much of what the study team had generally been told about the area. Land uses were generally well mixed, with retail commercial and office development the most predominant. Also, the area generally became less commercial in nature as one traveled in a westerly direction from Newport Avenue to the Newport Freeway (55 Freeway). A small family of auto- related uses on the north side of First Street near El Camino Real was also found. Residential properties were the predominant non-conforming use along the corridor. See Exhibit 5. Existing (2012) Land Use The existing land use exhibit demonstrates that there is a mixture of commercial retail, service, office, and residential uses along the First Street corridor. As shown in Exhibit 6, there is only one vacant lot within the Specific Plan area. The Zoning Prior to the 1985 First Street Specific Plan exhibit coupled with the 1985 First Street Existing Land Use exhibit posed striking observations from the study team. The one distinctive conclusion made was the proliferation of commercial zoning at the western end of First Street and the general lack of primary commercial uses located there. The other fairly obvious notation about the zoning configuration was the lack of depth presented by the commercial zoning with medium and low density residential zoning immediately to the rear of First Street properties. See Exhibit 7. 2012 Zoning In 2012, a Specific Plan Amendment was approved that corrected minor zoning inconsistencies created by the 1985 adoption of the Specific Plan and its boundaries, including restoring the zoning for large residential land uses to that previously established in 1985. Also, the less intensive built environment existing at the westerly end of First Street was preserved by revising the zoning designation to iii Neighborhood Commercial while preserving the more urban commercial built environment existing at the easterly end of the street. In addition, auto repair, single family residences and other previously prohibited uses were reintroduced as permitted or conditionally permitted uses in the Specific flan. Iv ao Ul -."m 1140 OC) U1 L4 m r+ r-+ D r+ r rD (RD (RD r-+ I-IR m x '0 MR 0 r+ 30 r) U:j —RIh mommum m r) cl cu &4 C (RD �0 �0 on r) Ln, cu OL 3 rD 3 0 cu W. W peg Centennial Way �L.cy.•.�cn� y A- m Ni , 0 ..... rsj fl 3 a rD 3 M 0 CD r-+ r+ a) 0 0 rD 0 r-+ r+ M x NOMM 0 :3 r) Oman x mw�x r) CU :3 � OL CU C LA 0 moo 0 0 W< a r r) 0 r) W rD ff zz n ku; I Pasadena Avenue rD • -IIi AIIIIIII IIIIIIr._ Ln z ,�� 1111111 Myrtle Street Yorba Street IT Pacific Street A I -1H - W.-w- Mountain View Drive .......... �-Jmm ..... ...... .......... . .......... ............ ........... "A" Street CU 5* CD Centennial Way 'B" Street "C" Street El Camino Prospect Ave Lane 0 CL -,I= (—T-T ;00 on rD fl 3 a rD 3 C: 0 CD CU r), a) 0 0 W< a r r) 0 r) W rD ff zz n ku; I Pasadena Avenue rD • -IIi AIIIIIII IIIIIIr._ Ln z ,�� 1111111 Myrtle Street Yorba Street IT Pacific Street A I -1H - W.-w- Mountain View Drive .......... �-Jmm ..... ...... .......... . .......... ............ ........... "A" Street CU 5* CD Centennial Way 'B" Street "C" Street El Camino Prospect Ave Lane 0 CL -,I= (—T-T APPENDIX D FIRST STREET SPECIFIC PLAN OPPORTUNITIES AND CONSTRAINTS SUMMARY A major component in the preparation of a Specific Plan in an already developed area is the careful examination and analysis of existing physical conditions. The next important step is the identification of physical opportunities and constraints against which the market opportunities can be measured. These factors, combined with public input and policy/technical direction from the City, are the ingredients used in shaping the content of the plan. This existing conditions summary and map were used in 1985 in part to identify the issues, goals, objectives and policies in Chapter 11 of the Specific Plan. The potential measures were evaluated for potential use in the regulatory guideline portions of the Plan. The First Street corridor is an area of distinct contrasts. On one hand, certain commercial properties have well designed, intensively used developments, particularly the ones located at the eastern terminus of First Street at Newport Boulevard, while a few blocks west of El Camino Real the buildings exhibit an older, less consistent image, where underutilized developments are more prevalent. Analyzing First Street at the Specific Plan level, it becomes apparent that the street should continue to be planned as a cohesive whole with concentrations of "families of uses" dominating certain sections of the street. In many revitalization situations similar in nature to First Street, the initial reaction might be to correct problems with long range, costly and controversial remedies. These remedies typically take the form of inflexible mandatory regulatory formats for new development. Such approaches do little to stimulate private commercial development. The City of Tustin was and is interested in providing catalysts for change by providing regulatory "opportunity" through the judicious use of revised site development standards and the stimulus of incentive or bonus provisions. It was the consultant team's goal in 1985 to prepare a pro-business, pro-economic strategy plan designed to solve immediate physical problems as well as offer long-range programs for ongoing project-wide improvements. Certain opportunities and constraints have been identified thus far and are summarized below. See Exhibit 8 for a visual depiction of the opportunities and constraints identified in 1985. Opportunities • There are several large cohesively designed shopping centers in the area. • Relatively few buildings are in poor condition. • There are recent instances of quality redevelopment/development within the area. • Peppertree Park, although not within the specific plan boundary, contributes a special landscape atmosphere which relates to the corridor. • Most revitalization opportunities will occur in small, identifiable pockets. • The entry to El Camino Real offers a special historical streetscape element nearly in the middle of the project area, offering a central node of development for First Street. • Prospect Street, the major north-south traffic carrier through the project area is located in the center of the area, reinforcing the activity node provided by El Camino Real. • First Street has identifiable east and west entry points at the Newport Freeway and Newport Boulevard. • The present streetscape system on First Street contains good elements which can be incorporated into the proposed plan. The medians with turf and well-established olive trees complement the existing Ficus niticla. The curbside amenities (street furniture) fulfill functional needs but may not add aesthetically to the streetscape scene. • The project area has a series of equally spaced nodes or intersections that, when developed and enhanced, would help draw shoppers along its entire length. • There appears to be little traffic congestion in the study area in relation to other commercial areas in southern California, with the most serious peak hour congestion occurring on the east/west peripheries. Constraints • Circulation: There is a lack of convenient inter-site circulation, in that vehicles must generally enter First Street to access the adjacent site. • Mixed Land Uses: While a mixture of land uses can add excitement to an area, in the case of First Street there is no cohesive family of uses which encourage spontaneous Vi shopping or strolling, etc. In fact, many adjacent land uses are incompatible with one another. • Scattered Retail Uses: The existing retail uses which comprise the First Street Specific Plan area are too dispersed. The area exhibits the physical characteristics of strip commercial development but without enough truly auto-related retail uses to capitalize on its linear shape. • Poorly maintained buildings: Some properties within the Specific Plan area are in need of maintenance. Along First Street, there are non-conforming uses, vacancies and older, poorly maintained buildings. • Lack of Freeway Entry (Newport (SR-55) Freeway): One of First Street's major constraints is its lack of direct Freeway access, both vehicular and visual. Moreover, entry at Newport Avenue doesn't offer a visual statement either. • Small, shallow development parcels: Commercial development on single, shallow lots does little to promote viable larger commercial centers on First Street (such as Larwin Square or The Courtyard). The most successful commercial and office developments have assembled and consolidated lots along and behind First Street. • Inconsistent Development Standards: The inconsistent mixture of architectural styles, parking configurations, setback and landscape requirements, while offering a variety of individual site conditions lacks any cohesiveness which could tie all of these varietal standards together. This gives First Street no sense of cohesiveness or commercial identity. Potential Measures The following analysis outlines programs which might be able to take advantage of the area's opportunities to improve some challenging conditions. It is by no means inclusive or a final recommendation. This list is simply a compilation of some ideas that have been successfully applied in situations similar to First Street. • Consolidate small lots (either through private land assembly or coordinated site planning), developing more efficient use of land, creating a more efficient building site, and providing a non-strip commercial atmosphere. Depth needs to be established where possible. • Establish development incentives for providing off street parking with improved inter-property circulation opportunities. These development incentives could be the relaxation of certain development standards for more efficient parking design or streetscape amenities. Vii • Form a Business Improvement District to guide project-wide improvements. This could be similar in nature to a merchant's association in a mail or shopping center. It could be self policed; it could solve problems of who cares for shared parking lots; it could even sponsor promotional events. • Provide alternatives to front setback parking lots. • Establish new, comprehensive site development standards unique to the area. • Develop an improved streetscape program compatible with the established El Camino Real improvements. • Establish consistent, yet flexible, sign controls. • Create pedestrian points of interest to enhance a linear pedestrian route along First Street. • Grant development bonuses to businesses which utilize storefront canopies and plazas to enhance the pedestrian movement from property to property. • Develop means for drawing vehicles from nearby Freeway exits at Irvine Boulevard and Newport Avenue to First Street. Viii � -0" m 00 OD r Vl 0 r-+ "a r-+ "7 0 (D 0 c r+ mm� a rD LA rD > r) :3 CL r) r) 0 r+ @ SO GT 0000 n v, r- 0 0 z 3 ;OZ La in, 3 rD ei 3 3 C: C: :3 a L'i LM a (D rD rD 0 r) r) M rD rD Lo < rD -n a, M (D -0 rD 2 2 rD 0 ti z --4 (D aj 3 (D D pa Ag ro rn -T 3 0 0 @ CL c ni ro Centcnn Way N M -n 0 :3 14 r+ z t (D r+ APPENDIX E FIRST STREET SPECIFIC PLAN PLANNING PROCESS This appendix documents the process by which the First Street Specific Plan was prepared and considered. Date Event July 2, 1985 Request for Proposal distributed by City to potential consultants. Contained a carefully worded scope of work and statement of objectives. August 23, 1985 The Planning Center authorized to begin work. August 28, 1985 Detailed scoping meeting between City Staff and consultant team. September 30, 1985 Progress review meeting with City Staff and consultant team. Focus on issues potentials and constraints. October 24, 1985 First public town hall meeting held to explain planning effort, share market and physical conditions information and gain insight from the public before beginning plan formulation. October 25, 1985 Consultant team began plan preparation. November 12, 1985 Planning Commission workshop to present findings, summarize public input and obtain commission comments. City Council members invited to hear briefing. November 25, 1985 Presentation of draft plan to joint City Council/Planning Commission workshop. Opportunity to expose them and interested public to details of the plan, provide council and commission members the opportunity to question consultants, and discuss possible resolution of issues embodied in the plan. December 9, 1985 Formal public hearing on plan by the Planning Commission. Direct testimony received from public, with responses by both consultants and staff. December 16, 1985 Formal public hearing on the plan by the City Council. Consideration of Planning Commission recommendation, public testimony and both consultant and staff reports and responses to questions. Plan adopted. ix January 25, 2011 Planning Commission workshop to consider an update to the First Street Specific Plan. March 22, 2011 Continued Planning Commission workshop September 14, 2011 Public workshop on the First Street Specific Plan The process, highlighted by these key dates and events, was accompanied throughout the project life by a very close and constructive staff /consultant communication that resulted in clarifying a great number of technical questions as needed so that policy issues could be focused upon by the public, the Planning Commission and the City Council. The quality of this working relationship was the major ingredient in completing the plan in an unusually short period of time. 94: APPENDIX F GENERAL PLAN CONSISTENCY Section 65860 of the California Government Code requires that zoning be consistent with ajurisdiction's General Plan. The dominant element of the City of Tustin General Plan relevant to the First Street Specific Plan Area is the Land Use Element. The City's General Plan Land Use Element designates the area as PC Commercial /Business. 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. The First Street Specific Plan is consistent with the following General Plan goals and policies: GOAL 1: Provide for a well balanced land use pattern that accommodates existing and future needs for housing, commercial and industrial land, open space and community facilities and services, while maintaining a healthy, diversified economy adequate to provide future City services. Policy 1.8: Provide incentives to encourage lot consolidation and parcel assemblage to provide expanded opportunities for coordinated development and redevelopment. GOAL 5: Revitalize older commercial, industrial and residential uses and properties. Policy 52 Provide development incentives to facilitate the consolidation of individual parcels along the City's commercial corridors. GOAL 7: Promote expansion of the City's economic base and diversification of economic activity. Policy 10.6: Encourage the integration of retail or service commercial uses on the street level of office projects through flexibility in site development standards. 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 the 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. Xi The Plan responds directly to these goals and policies by providing for appropriate commercial retail, service, and office uses. It responds indirectly by reinforcing successful development and stimulating both economic growth and aesthetic improvement on First Street. The Plan effects a change not so much in the nature of uses along First Street but the balance, arrangement, development standards and design characteristics of office, commercial and specialized uses so that they will be more responsive to market opportunities and enhance the First Street corridor. The First Street Specific Plan is therefore consistent with the City of Tustin General Plan. xii APPENDIX G FIRST STREET SPECIFIC PLAN FINDINGS 1. The proposed commercial and office development is consistent in intensity and character with the City's adopted General Plan. 2. Reasonable alternatives to the plan and their implications have been considered. 3. The scope and depth of plan analysis are commensurate with the level of detail contained in the plan and the specificity of land use entitlement its adoption authorizes. 4. The various components of the plan as well as the plan in it's entirely are sensitive to the environmental and public policy impacts of the proposed development. 5. Appropriate mitigation measures are incorporated in the plan to insure that concerns identified at this level of planning are resolved as part of the more detailed site plan review which must be completed before private development may proceed. G. Administration of the plan is thoroughly integrated into the City's development processing system. 7. All subjects required in a specific plan by the California Government Code and applicable City ordinances are appropriately and adequately covered. 8. Adequate time and opportunities have been afforded interested organizations and members of the public to comment on or propose changes to the plan if they so desired. 9. 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