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HomeMy WebLinkAbout04 Workshop - First Street Specific PlanA ,A REPORT FEM S't u` ✓IEETI�NIG DATE: SEPTEMBER 25, 2012 SUBJECT: VVORKSHOP - A- MCNDM ENT OF FIRST STREET SU ECYG C PLAN (FSS'P) Ua"E-C'0H ��III E1, 1 0 A710, M: Conduct a 1jajorkshop on the proposed amendment of the First Street Specific Plan (FSSIP). The item is ten 'ta`tively scheduled) For Formal hearing by the Planning Commission at the regular meeting of !October 23, 2012, �,,vhen all discretionary actions necessary to implement the update, including any rcguired General Plan Amendment, Zone Change, and necessary environrncntal documents ~will be considered. FLIACK -- T-MlMD AiMFQ 0110C,UU 5 5110N: The First Street Specific Plan (Specific plan 10) �f ,leas completed in less than four months and adopted by the Tustin City Council on December 2, 1985. The Specific San affects properties on both sides of First Street from Avenue to State !Route 55 (Costa Mesa) Frce1jlray. The current First Street Specific plan may be vicxed at: http: / /www.tustinca. org /departments /commdev /index. html #planningZoning The First Street Specific Plan ? ,Ajas envisioned to boa 15 -year document, and NjAjas intended to address City !Council Concerns about an "erosion of commercial potential" and protect adjacent residentiel neighborhoods, establish consistent quality of development design standards but Without a uniform architectural theme or style, and provide for development of office and retail uses in site - specific locations. Property ovvncrs, read estate professionals, members of the Planning Commission and staff have expressed a Concern that the First Street Specific Galan is outdated, but an update has not been pursued due to budget constraints. On January 25 and March 22, 2011, the Planning Commission held workshops on the First Street Specific (Plan. At that time, the staff presentation, indicated that although a comprehensive revision of the Specific Plan is not AAjithin the current City budget, there are measures and updates that 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 sta`l'l resources. On July 24, 2012, the preliminary draft First Street Specific Plan �, ,Ajas distributed to the Planning Commission as information in anticipation of a Formal ), workshop and presentation. Planning Commission Report S -aptember 25, 2012 Y' 'Vorkshcp e Amendment of First Street Specs is Plan p ,a ge 2 The Ranning Commission held workshops on the First Street Specific Flan on January 25 and March 22, 2011. On September 15, 2911, Community Development Department staff held a Community Y''Vorkshop Ajvith atffected property owners and other interested parties. A significant amount of background information �,>as provided to the Planning Commission and the public at these N31jorkshops which is summarized in Attachment 1. The purpose of all three "J'JoTkshops ,vas to identify and discuss First Street Specific F'Ian document strengths and 1xoaknesses �jujth the intent of considering that input during the process of updating the document. Some of the First Street Specific Plan's strengths and weaknesses included: FSSP Strengths First Street is an attractive gatevk�ay to the City that has identifiable east and vvest entry points at the Costa Mesa Free�iljay overcrossing and at 'NIewport Avenue. The Specific Plan emphasizes "pedestrian- friendly" design and uses intended to preserve the existing human scalp and character; • Setback and height restrictions appear compatible vjith nearby residential uses to the north and south. • Mixed commercial uses �,Ajith retail on the first floor and office on the second floor is encouraged. • The Specific Flan corridor has a pleasant streetscape, ljuhich includes �,,\jude medians, mature trees, and close proximity to an attractive City Pare. Street furniture, flags, planters, and bus shelters as recommended in the design guidelines can improve the e,isting streetscape a more cohesive appearance and further encourage pedestrian activities. o There appears to be little traffic congestion along First Street. FSSP V'Ve2knesses The First Street Specific Flan area affects an important commercial corridor. The document is outdated and deserves an update to rene? f 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., C1, C2), 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, shalloljAj parcels. Lot consolidation incentives do not appear to be NjAjorking. There is a lack of interconnectedness bebvAjeen acjl oining parcels or uses on opposite sides of the street. o First Street sloes not have direct freeway access and traffic has "found" a more direct route to the freeway (lTvine [blvd.) - the FSSP functions (and 1qljill probably ah1jays function) more as a neighborhood commercial corridor than a regional commercial corridor. Neliv residential uses and existing residential uses appear to be prohibited in the FSSP, yet large residential communities and historic single family homes exist �,'vithin the Specific plan's area. It is the intent of the City's nonconforming provisions that nonconforming uses and structures �ojill eventually be replaced with conforming uses and Planning Commission Report Septsmber 25, 2012 VNerkshop - Amendment of First Ssree'<t Specific Plan Page 3 structures. Hmik�ever, the adjacency of residential uses to the north and south of Subareas I and 2 (westerly and of First Street) could be conducive to retaining existing residential uses along First Street. o Auto related uses are lusted under all primary and secondary commercial uses. But, these uses are to be discouraged as a polio of the Oeneral Plan and may be only appropriate in certain areas of the Specific Galan, The uses have operated in the area since beforo the Specific Fian's 1985 adoption in apparent harmony 1JVith the community. A major hotel is encouraged at the 1jvesterly end of the FSSR HoNvuever, the site is probably not condo dYS- for such a use at that location 1iuithout freeway access. The boundaries of the First Street Specific Plan map were purposefully made inconsistent with the underlying property linos. In several instances the FSSP boundary line divides parcels bebikieen two different zoning districts. Although originally intended as an incentives to encourage expansion and intensification of the Specific plan area into adjoining neighborhoods, the current illogical boundaries can create zoning regulation confusion to mAiners, Realtors, and lenders. The original purpose of encouraging "Primary" over "Secondary" uses no longer appears to halal importance. The G SST's goal in encouraging the establishment of Primary uses has not 1,jorked. In fact, the focused approach toward discouraging non - primary uses and inljestment could negatively impact the economic health of the area. A cleaner set of goals and implementing regulations should be established to clarify ��hether Secondary uses should continues to be discouraged. A restaurant use is currently requires a conditional use ;permit but should be a permitted use. FROFUDOI� SPA 2012-001 The First Street Specific Plan amendment can be divided into tvm is1>sIs of complexity. the current effort is intended to address the first, most immediate needs associated 1jkiith updating the Specific plan. Staff ?xill address the longer term needs associated 1j1jith the update at the and of this report. Specific Plan Amendment (SG,'-\) 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. Address Specific Plan Treatment of Cerhin Nonconforming Re- sidential Uses - As noted previously, the First Street Specific Plan vvas adopted in 1985 to preserve 'First Street as one of the City's prime locations for retail and office development and to eliminate a percei -ved "erosion of commercial potential." Although the First Street Specific Flan identifies "residential" as a yellmx- shaded land use within Subarea 2 (FSSP Exhibit 6) and Subarea 3 (FSSP ` xhibii7 ), the First Street Specific Flan does not identify residential uses as a permitted or condiitionaliy permitted use, nor does it provide development regulations (setbacks, parking standards, -.to.) for existing residential uses. As a result, all legally constructed residential uses the First Street Specific Plan are considered nonconforming. It is the intent of the City's regulations that legal nonconforming residential uses 1jAjill be eventually replaced 1,��ith conforming commercial uses sometime in t'he future. Specifically, sslIsral large apartment and condominium projects exist �Ajithin the Specific Plan area. In addition, several historic single family structures exist �,,thin the 1We8terly Planning Commission Report Soptornbor 25, 2092 Workshop - Amendment of Forst Street Specific Plan pago 4 ;portion of First Shoal: (five, of � ,,,which have been convened to Commercial uses), Avvhich are s o�,Ajni bal mili: Photo Caption: From top left to bottom right — 1) 450 W First Street; 2) 400 W. First Street, 3)420 W. First Street; 4) 520 W. First Street; 5) 690 W First Street; 6) 750 W First Street, 7) 133 `/orba Street; 6) 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 VY.. First Street. o Single Famfiy Stmictures: loldovers from an earlier limn, ° 'Ihir�aen singls, family residential structures (and one small commercial building) are loca�s 11yiilhin Subarea P9anning Commission Report September 25, 2012 )Norkshop e Amendment of F=irst Street Specific Pian Page 5 7 at the � 'kjesterly end of the First Street Specific Galan. Tvvelve of these structures are listed as historic resources vijthin the City's Cultural Resources Survey (2003. One additional residence (320 YAJ. Gorse street ), constructed in 1938, may be eligible for listing as historic but is not currently listed in the 'Cultural Resources Survey. The quality and condition or these structures varies 'From maintained to substandard. Some are visibly deteriorating. Over 'time, a fe1ju of these single family residences have been converted to commercial office uses, as is currently encouraged in the First street Specific plan. Many of the single family homes located along First Street are on small lots � 'kjith little space for on -site p@TIdng that makes it economically unattractive to convert them to commercial uses. In addition, the �lkjosterly and of First street (Subarea 1) has a strong small tmiam, residential architectural design element that differentiates this reach from the more urban commercial context existing closer to I\,9e� sport Avenue (Subareas 2 and 3). Subarea I is bounded by lmj& density single family residential uses to the south (Old Tosin) and to the north. The 13 single family residential structures, and many office and commercial buildings in the area appear to shave more of a commonality �,Mth Old Town Tustin than with the rest of the First Stroot or the >\9e'stiport Avenue commercial corridor. There are many fine examples throughout Tustin 1Y?ihere single family homes have been converted to commercial office and other uses (e.g. along Yor''ba Street and First Strsot). The current Specific Flan prohibition of residential uses erasures that historic 'First Street homes used for residential purposes are nonconforming. Any la1,,vrfully established structure �i�ihich 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 made the property in compliance the regulations seat forth in the Code. In addition, a legal nonconforming structure must be made to conform if maintenance, repairs or replacements exceed fifty (50) percent of the structure's assessed valuation, as sho in on the last equalized assessment roll of the City of Tustin, 0— ,timers 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 lire of the nonconformity rather than malving the property conforming. Staff (believes that the historic residential structures on First Street contribute to the context of nearby Old ToNj,\jn and add character to the westerly portion of the First &''Feet streetscaps. The existing historic residential uses are compatible �xith the existing built environment at the westerly and or 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 ;'lan Amendment 2012 -001 includes provisions that �jvould enable the continuance and possible expansion or existing residential uses, but �j,'kjould also continue to encourage adaptive reuse and conversion to commercial use. 0 Mufti- family resic9entiai: A number of vory large apartment and condominium residential developments occurred along First Street in the 1970s and 1980S that contributed to the City Council's 1935 determination to adopt a First Street Specific Plan to prevent further "erosion of the commercial potential." GIo jiver, it is probably incorrect to assume that such large residential projects vJll someday be converted to Planning Commission Report' Soptembor 25, 2012 Y'Vorkshop - P\rnendmont of First' Street Specific Plan page 6 commerciai uses consistent �juith the First Street SpecHic Plan. The probability of this occurring is increasingly minimized �vhen one considers that largo condominium projects have multiple ovkiner interests. - - -- � Since residential uses are 2WM rohibited, there are no residential dsvelopment regulations for residential IrMILUILLIM uses in the Specific Plan area (although some existing residential areas are depicted on the Specific Man's land use maps and are also identified as a Primary use �� "or Subarea 3 in SpecHic Galan gable 1). In addition, the First Street Specific Plan boundaries did not capture the entire perimeter of several lame residential developments, loa✓ing portions off the project zoned residential and other portions zoned First Street Specific Plan (commercial. Djivners, buyers, and real estate processionals 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 refinances. The odd separation of identical units between zoning districts creases significant zoning regulation confusion and hardship to those ovvners locatod'vvithin the First Street Specific 'Plan. Large residential uses are a fixture along First Strout. Rather than plan for their eventual elimination, lame residential uses should be made conforming through their proposed exclusion from the First Street Speciffic Plan and given the 7-oning that vias adopted �, /when the residential project was originally approved (e.g. R-3, PD, otc.). t 1�7 iY A _EMM) 1 _ A . - L 7 2. Eliminate the L'FarrW S� aet E",-fpansion Ares 5 — SPA 2012 -001 proposes to eliminate the First Street Specific Plan "expansion areas" (see figure above). Again, the intent of the 1285 (First Street SpocVic 'Plan vvas to prevent an erosion of commercial potential." At that time, First Street vas one of the City's primary commercial corridors. As a result, the First Street SpecVic Flan encouraged a strong urban retail focus and a component Rannr ng Comm sslon Report September 25, 2012 4Norkshop _ PAmenrlment of Forst Street Specific Plan Page 7 that included .planning for the expansion of the existing commercial area into adjoining areas, intended to increase the total retail square footage alloxjued along First Street. V miliever, the Specific Plan's expansion areas extend into sensiJvs residential areas, including portions of the historic Cultural Resources area in Old ` milin Tustin. For the most ,part, the properties located vithin the designated expansion areas are zoned Single (Family Residential. The First Street Specific Plan has no zoning authority over properties shown vAithin the expansion areas of the Specific Plan. Consequently, any developer who �jajas to propose expanding a commercial use in'so an expansion area VVOdd reed to obtain City approval of a Zone Change application, along with any required environmental document under CEQA, folloliving ajyhat can only be assumed viould be strong opposition from the affected single family residential neighborhoods. Since adoption of the First Street Specific elan, regional commercial retail centers have been developed elseijuhere in the City, including at the Market Glace in East Tustin and at The District at Tustin Legacy. Due to changes in the retail market, the availability of alternative Tustin retail centers, and the lack of freevjay access to First Street, it appears unlikely that there is sufficient market or community interest in continuing the Plan's current intent to encourage large, urban commercial development along the wAjesterly portion of First Street. Also, identifying specific properties vAlhin an expansion area seMes no real purpose, since a developer is not constrained in any manner from submitting an application 'to expand into any area along First Street. 1 1. COMMERCIAL 2 2. HOTEL'(" 1. OFFICE 3 1 ®F70BC To 1 1-0!1MEROIAL 4 3 MIX ,-4D U07* 6' 71 ? 1L* 1.COMN DIAL 1. COMMERCIAL 1 r = 2. OFFICE* - -__ 1. OFFICE ; q/ v 91 1.41IFFM 1. OFFICIF- -,UPSTrREE f PARK _I 1.COMMERCIAR% 1. OFFICE 13 2.OFFICEA 1.CZ.?a 12DZ.1AL 3a OMMERCIAL 12 1. COMMERCIAL 1. OFFICE 2. OFFICE First Street specific Plan LEGEND Prepared For The City 0f Tustin RETAIL COMMERCIAL OFFICE 3. Eliminate the hopscotch zoning pattern of primary uses so that all properties may as developed and utilized in the same fashion — Development of "Primary uses" was strongly encouraged through an incentive program identified in the First Street Specific Plan. essentially, the plan limited the use of some parcels for commercial (retail) use and other parcels for office use. The hopscotch pattern of parcels (above), �,jere sometimes separated by streets but sometimes affected adjoining parcels. First Street Ranning Cornmission Report September 25, 2012 Y'Vorkshop - Amendment of first Street Specific Plan Page 8 property miuners have approached sMff and questioned �xhy property at sub - parcel I can be used for retail purposes bU the property at sub- parcel 2 cannot. SPP\ 2012-001 proposes to standardize the zoning boundaries throughout the neighborhood so that any property along a segment of F` rst Street can be used for the commercial purposes identified and authorized in the Specific Flan. The re- designation of the sub -area zoning is discussed below. Although the d °stribution varies, identical commercial and office uses are currently authorized along the entire length of First Street. Yet, as discussed above, development that has occurred aloe the �)vesterly end of First Street (Subarea 1) is sipniflcantly less intensive in character, design and use from that which occurs Within the central and easterly and of First Street (Subareas 2 and 3). As noted previously, historic residences, commercial and office uses currently located within Subarea I appear to have more in common tijvith Old gown 1jkjhile the commercial and office uses in Subareas 2 and 3 appear to be more urban. s , ©ffiee 3uiidings — Subarea I ©fee Buildings , Sub 2 and 3 Although currently permitted under the existing, Specific l✓'la,n, stalfi believes that it is highly unlikely that large, urban commercial uses (Sports Chalet, dome Depot, etc.) would locate within the less intense westerly end of First Street. Further, any proposal to introduce a large, urban commercial use �ojithin the westerly and of First Street would likely be viewed as incompatible Njajith the misting built environment at that location. SV A 2012 -001 proposes to replace the hop - scotch pattern of "preferred" uses with single -zoned districts (Subarea I e "Neighborhood Commercial;" Subarea 2 "Commercial "), in a manner similar to other commercial zoning districts in the City (see below). The proposed modification would make commercial use boundaries and Planning Commission Report September 25, 2012 @'9orkshop - Amendment of First Street Specific Plan Page 9 re _qulations much more functional. To protect and preserfo- the less intensive Subareal, SPA 2072 -001's reclassification to Neighborhood Commercial aIiminatss more intensive, urban uses that vivre previously permitted in the area in order to preserve the character of t'hs existing built environment and protect the nearby love 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. )sta Mesa WY (55) 1 v b c M v O Z Q v Subarea a — "ivaighborhood Commercial" tv a First Street 3 u m q C nn � R Subareas 2 and 3 — "Commercial„ Peppenree Park v -4. Re-evaluate Auto - Oriented Uses - In the 1950s, First Street served as a significant east -west vehicle route to and through Tustin. Hotels, she Revere House restaurant, fast food restaurants, auto repair, and service stations located along First Street to cater to a motoring consumer. FollovjMng the introduction of the 55 Freeway in the 1250s, motorists began using NmjAiport Avenue, Fourth Street and Red Hill Avenue for easier fremlvay 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. `dire sales and service, car washes and service stations are currently conditionally Permitted by the First Street Specific Plan. Hovvever, auto repair is not a listed use. Loy per intensity auto - repair uses (axduding body shops) may not be incompatible �Mth residential or other commercial uses as long as they continue to follo�,i the Tustin City Code regulations pertaining to noise, etc. in spite of the Specific Plan prohibition of auto Planning Commission Report September 25, 2012 Workshop - A a- ndm ent of First Street Specific plan Page 1 0 I repair, auto repair uses have been resilient and appear to fill a rn,@TkSt niche in a ustin 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. Consequently, the proposed Specific Plan Amendment includes auto repair as a conditionally permitted use Av\jithin the "Commercial" area (Subareas 2 and 3). ,NI other auto- oriented uses juill continue to be permitted or conditionally permitted. . �CJE�0 R--R7,WnD -, E?nc� Uzo R0 -gifl V ons e As noted previously, the 'First Street Specific plan , ;gas intended as a 15 dear document that is nearly 26 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 1h.- changes proposed above and to ensure clarity of purpose and interpretation. Rsv§Z0 T'- 77 S&(snet G'lI ,, roperties e when adopted in 1085, the First Street 'Follow all property lines but cut through certain parcels tisras intended to encourage the e; pansion oF commercial uses and lot consolidation that viould result in rezoning to include the enlarged area. SPA 2012 -001 eliminates the division of properties (even structures) between two zoning districts. Ali Specific 'Plan 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 Plan and rezoned consistent with their originally adopted residential zoning. Plan goals and vision statements have been appropriately revised to re 'Flec°t the proposed changes. �o inc iude o7 o,7D ic7c) 0ntire Specific Plan boundaries did not It is surmised that this approach 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 within the FSSP (identified �injith red border) is nonconforming and must be eventually replaced with a commercial use by laly. SPA 2012 -001 proposes that the residential zoning 'For this use be restored so that it is raturned to a conforming use. Plann ng Commission Report Seplembsr 25, 2012 Workshop - Amendment of First Sheet Specific Ran Page I I 7. FflT,,jkm -Vo D00 k) no Coc mm�un ty, , z c7ovsl or ,7u7 A(�onvy - Tha - astern portion of the area from "B" Street and Prospect Avenue to NI-s iporl Avenue Nilias located in the mxn Center Reda-volopment project Area (see yelio�i�� are �,ajithin map bslmju). Through the Legislature's adoption of f \ssambly Bill X90. 26 (AS XI 28), all California redevelopment agencies have been dissokied. ti \Alh the recent dissolution of the Agency, revisions have been included in the proposed Specific Plan Amendment to formally eliminate any reference to the Redevelopment Agency or Redevelopment Project ,area. PO MC K s '1d�" _��II IIIO T PM s is P WMEET & ST. Z 60:11 E-1 E-] i 8. -E- M r Jnaft nd a t, zzz ,i rsst Specific J 7-2 dr�' S o sw�-OST ZYo'i Q M of 1prf�g,;3;7y uze -end 76 rvo w jncq sc on 7m-j vzoa - As noted previously, the First Street Specific plan regulates land use along First Street using a bxo- tiered system for identifying the permitted and conditionally permitted land uses that may be established �vajithin the First Street commercial corridor. The preferred land use is prioritized as the primary use. The First Street Specific Plan incentivi?ed primary uses by making them the easiest to gat approved. Property owners that proposed development projects implamenting a desired primary Nivere provided an expedited plan processing, relaxation of certain zoning regulations to encourage mixed use (commercial) development. Secondary uses are acceptable, but the property owner must proceed through a more difficult, slcver project revie1,�/ process. For example, the Specific Plan requires the referral of ail design TABLE 1 Subarea 1 Primary Secondary Planning Unit I Commercial Hotel* Planning Unit 2 Office Hotel* Planning Unit 3 Commercial Hotel* Planning Unit 4 Retail Comm'1 Office* Planning Unit 5 Office Mixed Use ** Planning Unit 6 Commercial Office* Planning Unit 7 Office Planning Unit 8 Office Planning Unit 4 Office Planning Unit 18 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 Secandary Planning Unit 1 Commercial * ** Planning Unit 2 Commercial Planning Unit 3 Restaurant Commercial Planning Unit 4 Hotel Office Planning Unit 5 Commercial Restaurant* ** Planning Unit 6 Commercial Restaurant * ** Planning Unit 7 Commercial Restaurant Planning Unit 3 Commercial 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 ni Ut 3 Commercial Planning Unit 9 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 (a). ^d Sae mixed use incentive, page III -20. —Those properties shall receive design review by Planning Cnr,.missicn regardless of Primary Use or Secondary Use. Tho area shall exhibit a strong pedestrian emphasis. 12 -2 -473 II1 -3 Planning Cemmoss�en Rsperi September 25, 2012 V9erkshop e -lrner dment of First Street Specific plan Page 12 approvals for secondary uses to the ;Manning Commission. Specific Plan Viable I (abovs) identifies the specific types of uses that at the time of criginal adoption (1 g35) the City befiieved 11vas desirable within each land use designation (the primary use) uses that are considered acceptable within the land LISS designation (,the secondary use). The original purpose of encouraging "Primary" Over "Secondary" uses may no longer have such importance. It is not clear that the IFSSp's goal in supporting the establishment of Primary uses has actually 1,Ajorked. No other commercial district in the City utilizes this kind of two -tier system. The types of uses that are essentially being discouraged in the current First Street Specific plan are uses that would be permitted or conditionally permitted in any other commercial district in she City. For example, the First Street Specific Plan requires a proposal for a florist or bookstore Misted as secondary retail uses to go through a longer ,process to locate along First Street than any ether retail use. Staff believes that the hiAic -tier system confuses and discourages economic davalopmen't along First Street, reflects nogatiN]ely upon the City, and creates confusion betliveon property ol/,\jners and tenants. Specific Plan Amendment 2012 -331 eliminates the current bsjo -Jer system and �,,xjould establish a single list of permitted and conditionally permitted Uses that is identical to the system currently utilized in the Tustin Zoning Code for other commercial districts. Vpcle,tQ PFji7N t SInaW SIoo R an Vssi ,n OC &c1slin -s c The 1935 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 viater conservation, etc QAttachmsnt 3). As drafted, staff believes the proposed document to be much more understandable and useful. 10. Longer Term Modificationo: Follcl,Ajing completion of the ;proposed amendment of the First Street Specific Plan, st2 ` anticipates moving forward ��ith addressing longer term needs associated �jAjiith the First Street Specific Flan, including but not limited to: 1 revising the streetscapo design (including traffic, landscape, hardscapo (street furniture, �,,Mshing �j�islls, etc.); 2) rm icing time permitted /conditionally permitted list of uses to include mixedcuss (residentiallcommercial ); 3) enhancing the Old yo rn Commercial District where it intersects ljaiith First Sareet; 4) enhancing the list of potential incentives that might encourage development in Old ii miAin; 5) exploring street parking options that may be available to First Street ranging from restriping /reconfiguring the Tight-of-way to add more street parking or possibly -eliminating street parking in curtain locations. Staff ?,vould recommend that the longer term work effort should invoNs the public in possible workshops that would consider streetscape and place - making enhancements to the original governing policies that might result in potential design upgrades in the First Street hardscape, public parking, signags, streetlight and street furniture design, landscaping, etc. that would update, enhance and strengthen the uniqueness of First Street's sense of place. Planning Commission Report Ceptsmber 25, 2032 Workshop - Amendment cT First street Specitio Pian Page 13 General flan Amendment 2012 -01 �jAias prepared in support of the proposed amendment of the First Street Specific Ilan. It invohies minor amendments to the to ,xt and map updates 'to the Tustin General plan that are consistent ?,/Mth amendments to the First Street Specific Plan (Specific lFlan jAmendment (SPA) 2012 -01). Fore ,ample, the General Plan must be consistent �jAjith any proposed amendment of a property's zoning designation (e.g. from commercial 'to residential). Proposed General (Plan Amendment 2012 -001 viould also incorporate minor t9XZ amendments requested by the Orange County Airport Band Uss Commission, re�`lect the City's current sphere of influence as approved by the Orange County Focal Agency Formation Commission and introduce a digital General Plan Land Use leap lyaihich presents existing general plan designations in an updated format. The City may amend the General plan up to four (4) times a calendar year. To date, the City has amended the General (Plan one previous time. The item is tentatively scheduled for a public hearing at the Planning Commission meeting of October 23, 2012. _ NYIP 0j91?j1E'P \1 AL � j' \\1, LYSJ_9 - DRAFT NEGATIVE n2CLA[P-,z�T1)N The California CnVironmental Quality Act requires are analysis of a project's potential impacts prior to formal consideration by the appointed decision maker. Consistent �,xith CEQA, a Nogative Declaration has been prepared in support of the proposed amendment of the First Street Specific plan and associated amendment of the General Plan. The proposed GPA 2072 -01 and SPA 2012 -01 are considered a "project" subject to the °terms of the California Environmental Quality Act ( "C' QA "). An Initial Study and findings for a proposed Negative Declaration have been prepared regarding this project for consideration and recommendation by the Planning Commission. In compliance Nj,�jith the State CFQA Guideflnes, the Initial Study and Draft NNegative Declaration was made 2NJailable for a 20-day public resvic A) and comment period from September 27, 2012, °through October 23, 2012. A �\,Iotice of Intent to adopt a 'Negative Declaration will be prepared for subsequent City Council consideration since the City Council is the final approval authority for the project. Dana L. Cgdon, AICPJ Elizabeth A. Binsack C Assistant Director Director of Community Development Scott Reekstin, Amy Sto rc�ui , AlCP Senior Planner Senior Planner Joe Pearson 11, Planning Intern Attachment 1: Brien [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 !Guidelines SACcI perepore\turst street specific plan october workshop.doc ATTA AMENT BRIEF BACKGROUND PREViUUSL FRUOV 0 -0 0I9 O E FIJ 7 STREET SPECHIFO PLAN Attac `1i Ont I /l O 0 C3AC -IKG ZO!L9I,\,10 01OCU EMI ZDF INFOC RIM71EMN FiREVI0JSLY 1FDF\O'V 0E0 ON I ustin's agrarian past has significantly influenced the pattern of commercial developms-nt ,That has occurred in the, community. E2rly davalo,p end in i u s .1un vas initially focused Nj,�iiNn Old Tovsxjn as the community's commercial center. As Tustin empanded ou'b,,iard frorn Old it mAin, transportation and commercial corridors were created along the major arterials of First &treet and lj\\lewport Avenue. Over the years, a centralized location, large ;parcel size and easy frealilmy accessibility have Ajajorked together to faciNIate NlmjAjponI Avenue becoming the dominant, uniform commercial corridor ire true older Dorion of Tustin. Banks, restaurants. office complexes, and large retail centers dorninM.- the iNmAiport ,/�\venue streetscaps. Conversely, the lack of frsmAjay accessibility, changes in ft ,, ,\gay motorists gavel, irregular or small parcel si7-e, and a fragmented pattern of land use have contributed to a diverse First Street built environment. Planning Commission VIVorkshop Afly 24, 2012 Rrst Serest Spedf9c Phan Pags 2 Tres Rr S ?r5 s 5 vjff F A specific plan is a special sot of devslopmont standards that apply fo a particular geographical area. Specific plans are often used by local governments fo Aajrife planning policies and davelopmenf codes that are intended to address a particular planning issue or problem v ithin an urban area. Specific Glans are usually dayse oped in coordination a General plan Amendmamt, Redevelopment Grojacf Area (State law has recently eliminatod Rsdevelopmenf as a economic devo- lopmenf tool available to cities), or other fools fo persuade property owners info addressing the issue fogefhsr 1,uifh the City. Specific Plans are f pically more flexible than standard 7-oning regulations to facilitate and incentivize nevi development that meets the planning goals and policies established °for 'the area. The Tustin City Council adopted the First Street Specific Plan (Specific Plan 10) vji'th a goal fo encourage the dsvelopmsn't of an appmpr§Ms min of commercial and office uses that "'aloUld address their concern about an "erosion of commercial potential" while also protecting surrounding residenflal neighborhoods. Until recently, a portion of the First Street Specific Plan 1,ljas �, 'kjithin the ToNain !confer Redevelopment Project Area (nmgi defunct). The Plan did not make miAjeeping changes but was intended as a compromise between doing nothing and complatel 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 areas follmiAis: • ProseTva ���jhat is good, improVe ?Juhat is not, and allow growth 1,,\jhere market forces are evident, Through priva'ts mark e't decisions • Encourage retail commercial and office uses. • Prohibit additional residential uses. • Eliminate and prohibit -future automobile service- related wises. • Attract a major motellhotel to the �iussferly and of ft planning area. • Maintain and improve she appearance and image of the planning area. • Discourage parking in front satbacks. • 'Encourage lot consolidation and expansion of projects beyond the planning area boundary. • lncan'dvize and encourage quality and diversify in architectural appearance. Planning Commission V''Vorkshop Juiy 24, 2012 first Street Specific plan Page 3 The Hrstt S°fTeea Specific Flan is 'lha adop'fed9 /zoning for the properties within its boundaries. The regulations in &he FiTsf SJOStt Specific plan provide development standards related Io building locations, hae gN rsgLftamanfs, mn nimum site area, minimum lot coverage, landscaping, and parks ndg rsqu remsn°ts. lf'fihe First SfTaet Specific Galan is silen°f on any issue, the Tustin Zoning Soda prevails. if there is ever a conflict with a par-Jcular Zoning Code provision, the First Street Specific Fian prevails. The Specific elan area is divided into three subareas (sbovin above) that are divided into zoning land use desidgnations. The subareas j--re created to recognize and build upon a particular land use character or emphasis based upon the positive features already Present in I'Lhe area. Subarea `a is " /onsd" ,fo support mostly office and neighborhood commercial uses. Subarea 2 is currently a transition area Ajvitb an emphasis on retail commercial development. Subarea 3 is predominantly an urban retail commercial area a strong o`MCS enciave.-E�ach Subarea is subdivided into Planning Units (see above and Subarea 2 "ExhUt 6," on 'fbe follo�jMng page). Each Planning Unit identifies abe "desirable" types of uses allovied as "primary" and uses ha`f are considered] "acceptabila" as "secondary" as exemplified below, : Prilmary and Secondary Uses Allowed in Subares a 2 Excerpt from Table 1 (FSSP Page 111 -3) Planning Unit 3 Restaurant Commercial Planning Unit 4 Hotel Office Planning Unit 5 Commercial Restaurant Punning Commission VAJorilmhop JWy 24, 2012 (First Street Specific Plan Peg- -4 3 1% RAbTAUF:,14T 91. COMMERCIAL 2 1-COMMERCIAL I. COMMERCIAL 8 1. COMMERCIAL -1111111R]. �a E+ i1MgtTAi1RAN� 1. COMMERCIAL 14 7 1. COMMERCIAL a. COMMdIkklA6 �. OOMMEROIAL -3. RESTAURANT* REBIPAUm-0 LEGEND I' rSt Street Specific Plan ❑ COM RESIDENTIAL Prepared For The City Of Tustin l coMnn�A�a> ❑ HOTEL Development of primary uses and lot consolidation is strongly encouraged through an incentive program identified in the First Street Specific Plan. Froperty oviners that propose davalopmant projects implementing a desired primary use are provided expedited plan processing, relaxation of certain zoning regulations and other incentJvas. Owners proposing a secondary use are not offered such enticements, and proceed using longer processing times. Lot consolidation is encouraged to support larger davalopment sites through a variety of incentives including a reduction of required parking, height limit relaxation, legal assistance in parcel assemblage, lot coverage relaxation, fee �,Aiahjarf red uction, etc. The Specific ',Plan also identifies areas immediately outside of the Plan boundary that are eligible for future inclusion to the Man. The pUrpose of these "expansion areas" is to encourage lot consolidation to support larger commercial development in the area. Many of the parcels located �,Ajith the expansion areas contain existing single gamily residential developments and commercial ;properties, incluftg some properties listed as historic vji`thin the City's CUItaral Resources Survey. Because the areas are currently outside the First Street Specific Flan bounderj, the expansion area is identified for planning purposes only; there is. planning Commission Workshop July 24, 2012 First Street Specific Plan Page 5 ANT STMOT P , Mrst fteet oeci c Plan ..E £XPANWON OPPORTUNMES FJ AREAS Or EXPANSION Prepared F'OP''lle Chy Of Tustin OPPORTUMMY s.; IMAT 1✓A]hsan adopted, the 'First Street Specific Plan created several non conforming properties (1-MAsting Uses that are not listed as a perms tied or condKionally permitted Liss). iNon - conforming properties are those 1j 'kjihere a l&ivI ul uss of lard mdats that �,Ajould not be permitted by the Specific Plan (i.e. sin& family homes, etc.). Currsntly, SASUng single family residential uses, and the RV Park are identified as nonconforming. In addition, the Specific Plan's land use regulations (Section IIID, beginnr ng on page Ill -7) do not list a -AsUng residential multi Femily uses (apartments or condominiums ) as either a permitted or conditionally pe.rmittsd !use. Non - conforming uses cannot be enlarged, expanded or moved. Tustin Ganara1 Fkn 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 se °thing forth objectives, principles, standards, and other features, and which has been adopted by the Tustin City punning Commission VA orVkshop Jdy 24, 2012 First Stroot Spscifio Dian peage 6 Council. The City's General Ran dsslgna�es t'he First Street Specific Plan area as PC Comm, amialf8uslness ('PCCJ), shmxn bslm,'�j. Under the PCCB land use dssigna"tJon, a MiN Of COMMSTCial and of7ics uses such as hateUmotels, commercial centers, research and dsNislopmsnt, and ,professional o ices are permitted. For some time, the it ustin General Plan has encouraged the implementation of methods that viculd support economic dsysslopment vjithin t!be First Street corridor, including: ?oil' ;y 1007. Encourage the consolidation of individual parcelsfconsoliclatsd site planning and parking and access along First( Street and In Old Tmun through utilization of development incentives such as reduced parking, height bonus, lot coverage relaxation, allov ance for secondary uses, e-ra Hers, andfor financial assistance In land acquisition andlor inftastruoture improvements. Rolo_y 1DJ'Do Revisvi the First Street Specific ,Plan including modiu`ications to Galan 1j�ihich �j 'kiould consider issues associated vjitb eliminating and prohibiting "Fu ure automobile service- related uses and restrictions on 'the expansion of existing automobile service related uses. It should be noted that the PCC3 General plan land arse designation may also permit other asses, such as ,residn"n' iai asses, that are determined to be supportive of the land use designation. Ho lever, ate present, residential uses are not a permitted or conditionally permitted land use �,M'Ihin the First street Specific !Plan. rho Z ufl, � ET, Tv,i,ron 7� A summary TS"Jie�JV of the distribution of land uses currently existing v ithin tha First street Specific Plan reveals: INs&'(erly portion — Residential, small commercial Totaillssrvics and small office uses dominate the we— sterly Subarea I (thirteen historic single family home strLmWres exist). Central portion e /I\u'tomobib repair, car wash, retail and multi - family uses occupy the middle subarea 2. Easterly portion c !urge retail F--- centers (Kohl's), offices and multi - family uses occupy the easterly subarea 3. The current uses WitNn each Subarea have been identified on the aeTial photographs sho m below. U:' (i C? l� r —i Ai ■ U I i s i s �s lu _0 -PI f-- PJ V co C) C) CD C 0a y G nr 0 d Y3G9 m a e y co /Nc aoo m g 9 / § / » m / \ � gyc% many ©m « m m- C-0 Qtg ±oo § � / ƒ 3 0 § / / � Planning Cornrnissien Workshop July 24, 2012 Firsi Street Specific Plan Page 10 The easterly end of First Street has strong L7,-ban 007=9rcial qualities have more in common vittn 1Nmj'\jport Avenue than Old i oven Tustin. Strip centers panNng located bo'Djveen the buildings and the streets (although the First Strestt Specific Plan encourages builddngs at the street and pard�inO at the rear). Some individual lots are ovesT a quarter mile deep at large retail centers such as Larxin Square and Tustdn Courtyard commercial center locations. The older, westerly and of Fdrst Street corridor has a much more fragmanted pattern of land use on lots that vary in depth on either side of the street from as little as 80 feet that includes: historic single family homes, newer residential apartments and condominiums, office buildings, and smaller commercial properties. AL710- orjeni'ad uses — Through the 1260's, First Street served as a significant east- ?jvest vehicle route into and out of a usJn. NIOWS, 't'he REVSre HOUSe, fast food restaurants, auto repair, and service stations dvere located along First Street catering to a motoring consumer. From the '1270's to the present, motorists traveled along NSl Jvport or lriins Avenues to freeways that provided access to regional shopping, including Tustin 'Ranch, the District at Tustin Legacy, etc. how— soma, low✓ in ensily cornr emial stall a ci o�ujce arias - First Street has a md�ture of nV,IN and old retail and office uses that share a common lo�ni- scale, low - intensity commercial character, some of ��uNch is in need of revitalization. Many retail and office buildings located at the �vvesterly end of First Street have incorporated residential design elements such as pitched /sloped roofs, window treatments, porches, and landscaping. Large, rss1de,ntlal uses — Large condominium and apartment complexes, and a Recreational Vehicle Park exist amidst the commercial retail and office uses allowed within the First Street Specific Galan. Condominium Association opposition to a First Street commercial development project in 198- initiated City Council concern 'Tor a perceived "erosion of commercial potential" on F=irst Street that resulted in the preparation and adoption of the 1955 First Street Specific Galan. The Specific Plan does not allolj,\j residential uses to be developed along F=irst Street. As noted previously, axisting residential uses are considered nonconforming. ATTACHMENT 2 PRELIMINARY DDUIF7 FF RST STRIEIE7 FIECF�C PLAN (RED -UNTUO AND CORREDTIE D Dro PY) DRAFT S IPRS i� 57RIMET SS,SSISIC FL AM, RIED- L[IINMSDC C E v ti v v � Z c� �Q c� V 0 0 V ,C C C L Qj C C 0 L QJ f Q) 0 -, N 9j'\,i bRODUC7XO -) A. HISTORICAL PERSPECTIVE First Street -Circa 1 946 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 onalong 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 developeddevolved 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. 2 First Street — 2009 A-. B. PLANNING A The First Street Specific flan regulates a l, nninef AFea P- eon passes commercial corridor that extends approximately a mile aiong First Street from central Tustin at Ne-�Aiport Avenue to the ;\9ewport Freeway S( R -551, as depicted on Exhibit 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 -way80 feet in what Fem-,iRS Of OMe Old siRgle f lmily residential lets to almost a quarter of a mile along Newport Avenue where the Larwin Square and Courtyard commercial centers jre iocated on sites of Have eac rlated sites e several acres, WhiL- Althouh the i =irst Street Pplanning Aarea is relatively smali (approximately 8 acres), it is significant in that it continues to serve asc��T , as an t�jer-entry to the City from the west and provides access to the Old Town Tustin El Camine r?n aI historic district sand, via !Centennial Way, the Civic Center, The First Street Pplanning Aarea is f erdivided into three sub -areas and related as shown on Exhibits 2--. 32- and 4 -. This geeg phis system is the basis feF deiiReatinn deyelopmeRt Feg latieRs in Chapter- III of this p!aR C, BACKGROUND Over the years the First Street corridor has evolved into a mixed se -area of considerably varied development. The gQuaiity and condition of the existing built environment varies from exemplaFy high quality projects to _those that have not been well maintained , with many examples throughout the spectrums between these extremes. The predominant uses existing within the First Street Specific -P-L RPlanning Area are commercial retail, service, and office. Stimulated by a concern about the appropriate 3 mix of these predominant uses as private redevelopment projects were proposed, the Ozy Council established a moratorium on issuance of nevly building permits on June 3, 1 985 ar? ? extended r��to aMo-vv time to establish overall guidance for further development. Theis First Street Specific Plan the "Plan j its the vehicle selected 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 dear 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 workshops, public meetings and Manning Commission /City Council work sessions and public hearings led to formulation of the final original 1985 Specific Pplan and its 2012 Amendment. D.C—. PURPOSE Plan in 1985, the Tr Ir Eivali-ty of /��1,eyel tit desirlrr rP- �rt�-1 r�r b( 4t [�,ithe It 1 mifn-rm - �rrhi+artl Fal theme nr stvie. l.1uLI1TC {I - {-",TN rQTT,'Q}�7T7'�1 -I �q ��JTq�I 1 JCCtI IO[ 11 cl f and to Preyidde fbF the deyeI� ^ Rt ef v Ice -n'nd Fetail- uses - nr;�iic° `�i^2EI�FE The goal of the 1985 First Street Specific flan was to identify an appropriate mix of commercial and office uses for the area. Tustin City Council was concerned about an 11 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 -pla -- is to continue to o-- guidle and stimuiate the use of properties along First Street to the maximum mutual a&, /antage of a# -' propertJ owners and the City of Tustin. This ,> c-is accomplished by a comprehensive set of regulations, incentives and WbaR Ddesign Gguidelines, along �ivflth other related actions to encourage optimum development. , 4 Theis Pv,an constitutes the legally established zoning for properties within the P-- tanning Aarea. M� oreover, it establishes certain important development policies witNn the First Street corridor Rd eR selected l Rd paFces -�Ey t t h aceRo the cerrer. lure lid. The Specific Plan is the major device for implementing the City of Tustin General Plan within the Pplanning rear. E. AUTHORITY 4 The California Government Cole authOrizes cities to adopt specific plans by resolution as policy or by ordinance as regulation. -. arings are requ red by both the Planning Corm ission and Cty Council, Specific Han mast be adopted by the— Council -to be e��ect The adoption of this Specific Flan by the City of Tustin is a5uthcrized by the Ce-ali- Torni�a Government Code, Title 7, Division i, Chapter 3, Article 8, Sectio ns 5545, th -Tough 55457, The First Street Specific Plan is a regUIc -atery plan which w+ll– ser,;�e as the zoning erciin�ance uor the properties within its boundary, Proposed development plans or acgreements, tentative tract or parcel maps and any other development approvals must be consistent �AAth the Specific Plan, Projects consistent with this Specific Plan arever+Rl -be aauto , zticaNy deemed consistent wiih the General Plan. The regulaftions contained herein Shall apply to the boundaries depicted on Exhibit Imo. 5 W +LA o 6 g,,,o u M u. "? c 4 .. Q) L- ...- :u Q W Q Q) CU 'u dJ 4-J N L .L- LL p N 1.1 IL LAND USE FLAN A. INTRODUC-i0DN The Liand Uuse lan contains the essential components of the Specific Pplan and the policy direction which serve as the foundation for development regulations and guidelines which are will aEt ��,al�y be -us'ed in revie -y�j ng and approving development projects within the First Street Specific Play;. There is a tendency to emphasize ,problems in planning documents because perceived problems are - requently the stimulus for undertaking a plan. While there certainly are some real --) I m challenges in -the Pplanning r'ea, it is equally evident that 'these are unique attributes and 'considerabJe opportunities wNch 'combine to offer the potential for a balance between preservation, rep abilitation, and j ne1�j� development - Rd retie yelopment. The main idea of the Specific Flan is to preserve VIhat is good, improve what is not and allow grows -where market forces are evident through private market decisions. The basis for this T11plan lies in 1) the Tustin General Flan see Appendix G for a summary of General flan consistency)anc) the analysis undertaken art -e-Co prepare or amend the Specific Plan effert (embodied in the accompanying appendices),- end ) the Specific Plan Request feF Prepesa! (Appendix C te this . The following Ivey points should be kept in mind in reading and using this Specific J -lan; 1. -i- -The primary uses of the area are and should remain cornmercial retail, service, and office. Dif ferences in uses and regulations within the area are pr- imarily due to ..an_. Red vVith identified maicket, based on the intensity and characteristics of each subarea. 2. 2 -The City will depend primarily on . private market decisions to stimulate development and improvements in the area I Diversivy of appearance within certain broad quafty ,guidelines is desirable, as called out in the (AFban Ddesign uid'elin'es i�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 N\rill hopefully provide a stable and durable basis for decision making in the area, 1 5. In order for the area to work best, a creative partnership between the City, property mA,jners and tenants w4l-- -be-is required. The Specific Plan is intended to be the foundation ,for that partnership and AA/ill support it more effectively than more traditional ,Manning approaches. 6. G-Ly Council adoption of the popsies, use regu ations, site development standards and design guidelines constiwtes the pity's commitment to property mA_lners and the development community that it �siill carry out Its appropriate share mf the effort tm aintain the lanning r. &a as an asset to property ow ers, tenants and the City C75 a whole. 3U!AN1j r'1G'RY F 5FEEO IC MILAN I�OLI C Y DG AREC-TAQN The following points express the most essential ideas contained in theme Pplan and constitute:- They sha old be thought „f as the overall policy direction -for-the Planwhieh �, the rest f the plan's iRgre tier. . 1. Decisions about continuation, ' redevelopment or new development of eases on property within the Specific flan shall rest %Mth 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 lan as it may be amended fro ti me to time. ZTWZM 43._ The basic intent is for continuation of primarily commercial retail, service, and office uses, including some _ommercial mixed use projects at var,Ious scales. 5. OptieRal cemrnei:cia! and office distinicts may be expanded by Specific- Plan The Plan Area may be expanded by Specific Plan Amendment and Zone Change b-A This --- -Ian, as amended, provides gJdance for development as it coLfld occur within approximately a 15 year time span, or by approximately the year 20 2 . GAU_ NLSo L3BJE:C19VESAND, 'K)UrOES The foilmj0ng statements repreSent tie policy direction for the pig- I'lannina ar-ea as a whole, as "lle-H as the distinct sections of the subject area that exhibit particular use constraints or potentials, o !° aZJZTn, o'USZ17 ISSUE: What is the most productive pattern of uses? !COAL: The best use of property within the Specific Plan area is development approaching MaXjML]m development potential �ftfhile providing a compatible and monitored growth program. POLICIES: . i Preservation of eAs"ting qualitj uses. 1.3 Maximum possible responsiveness to market opportunities for the planni^^ aFc ��-� -each sub -area (Isee Exhibits 2. 3, and 4). 1.4 A pFierity Gf -Ut4ses appropriate to each scab -area. Maintain and perpetuate a mix of commercial retail, service. and ®dice eases in Sub -area 1 . The best use of property within the Specific Plan area which balances maximum development potential with compatible uses and monitored groy�Ah. 2. Stimulate retail and service comp erciai uses in sub -area 2. 3. Preserve the dorninant retail and se, _ commercial uses in sub- area 3, retaining already established offices aP64i, U-s-es. 4. Promote development, expansion or redevelopment goat: a. Is afirst ^y -- permitted use; b. Meets prescribed development recguiationso c. Is responsive to established design guidelines. ;2e (CodidiVon o Existing Development K ISSUE: fHooix can the overall condi-tion of development be irnproved7 COAL: A consistent quality of development throughout zhe area. OBJECTIVES: POLICIES. 2.1 Maintenance Of gL17I §ly that 2.2 Improvement of development that is deteriorated or inefficiently designed. Reinforce e is�ing privatize property health and safe-L� regulaiions by cemmivdng City enforcement efforts to this area. 2. Alloti j/ maximum site development through relatively liberal site development standards in return for well - conceived sore ,plans. 3. Offer development incentives to property owners for projects that are highly responsive to plan objectives. 4. Establish and administer *ba U esign uidelines to assist developers in understanding and implementing the lan °s intent. 9. VIsuai Vrriprovzur�"'--Iit ISSUE: How can the area °s appearance and image be improved? GOAL: A quali -t\ly physical appearance of both existing and future development. OBJECTIVES: 3.1 Elimination of visible outside storage. 3.2 Compatible building elevations and materials. 3.3 High quality C-^��, landscape treatments throughout the corridor. 3.4 Achievement our an overall positive identity for the area, POLICIES: I . Require responsiveness to u,; ban des+qR -Design quideliqe-s Guidelines _ in plans for new development, expansion or redevelopment. 4 2. Discourage parking in front-setbacks of buildings. Buildings should be located as close to the street as possible. 3. When freR rear parking is not passible, screen pan'dng areas vvji h landscaping materials or treatment in excess of minimum standards. 5.1-Maintain the existing streetscape improvements, adding eRl►y items 4. Compatibility ou Lzj7d U -ses ISSUE: l mAi can land uses w, thin the specific Plan be kept compatible w th each other and with adjacent uses? GOAL: Compatible land uses which do not interfere or create health safety Concerns for an adjacent use. OBJECTIVES: FOLI!CIES. 4.1 Reduction of existing conficts between 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. 2-: 1. Approve site plans for authorized uses which demonstrate design compatibPy with adjacent eases and structures, particularly where such adjacent uses are single family residential in character. 3-.2. Encourage lot consolidation or integrated site planning considering development incentives. 4-.3. Apply appropriate - r-baa Ddesign t- 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? 5 GO /A L: :E-ffective integration of nevk// oases. O JEC J DIES: FOUCIES: X4.1 uNla ximum possible capture of maarket opportunities by property owners. 5,24.2 The most effective possible use of each p,-fircYl of land. 5,344,7 Location of new uses in areas which contribute most to overall improvement of the area. &.44.4 Efficient use of existing public facilities to support market - generated growth and development. Encourage primarily, new retail com erdal, service commercial and offiice oases in designated sub- areas. &2`Establish and administer a system of incentives for lot consoiidation or integrated planning of smaller parcels through consideration of reductions in parking requirements fee waivers for permit processing, etc: 4-3. Allow .sharer] parking and access to aflmAf Maximum Parcel usage. ISSUE. What is the best way to deal with the vaariety of land !parcels, particularly the numerous small ones? GOAD.: EfficienZ parcel sizes and configurations. OBJLC T IVLS: X4 .11 Consolidation of lots wherever possible in conjunction with anticipated qualitty design as set forth in this plane 6,24.2 Coordinated site ,planning and development of adjacent lots where consolidation is not possible. X POLICIES; 1. Provide lot consolidation incentives in the plan regulations. Z. Apply incenVves 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. 3. ERcewage expansien of pFejects to include land beyend the NIaR.RnRa, aFea beuRdaFy iR selected aFeas. 55TT -Development Standards ISSUE: What site development standards are appropriate? GOAL. A combination of standards and incentives which w ll sVmuJa —te quality development. FOUCIES; 7,45. Site development regulations which lead to efficient use of available space. -'fit Gguidelines 1jvhjcfh assist in deg? ing and describing the level of qualitj intended. 7-.45i3Site development incenlives �Aihich stdmulate 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. 1. Frovide incentdves for lot consolidation/ integrated site planning in the Specific Milan Regulations 7 Include responsiveness to Deesign uidelines as a major consideration in Site plan review and approval. Mr cen' -yz3 Rw F!hfn Administration ISSUE: What i y assistance can lie pTOVided to encourage expedient implementation this Flan GOAL: To encourage Tapid rehabilitation of ReRCeRfGF" poorly maintained structures and uses. OBJECTIVE: POLICY: &.46. Rehabjlitation of uacades f indud.in signage) of existing structures to comply ti pith esign uidel.ines our this Ian. 8,26.2 Improve vehicular Inter -site circulation. &36_3Maxi izatlon our pedestrian movement and access, 4 - To make available to property owners, where possible, -funding from the Rr- edeyelepmeRt 6'3/7G Rcy eF eth . ate Sources for rehabilitation of existing buildings and for new development: De LUM'D USE CONCLE-FIF The main idea underlyIng the First Street Specific Plan land use concept is to build upon the positive features already present. They include the followingTh°re nre .,^-,r,;,: 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 Ur-ban --- Design Guidelines with public and private incentives and funding will achieve the desired improvements along First Street 6. There is little traffic congestion and ample parking along First Street 6:7. There appeaFs te be a StFeRg iRteFest OR the paFt of Pproperty owners are encouraged to male positive changes, to- while maintaininci a "human scale" environment along First Street. The ,clan concept ,-s KepreseRted „n SeFies -ef Exhis it consists of the foilowing components: i . Subareas (See Exhibits, 1, 2 and "I The corridor is made up of three subareas, each characterized by a particular ]and use emphasis. Subarea 1, closest to the 9eport SR -55 Free�9a, is a miecl .use office commercia9 area 'Exhibit 2 . Subarea 2, either side of the Fl Camino ReaVFrospect Avenue intersections, is a transition area pryith an emphasis on retail commercial and service deveioprnent Exhibit 3 . Subarea 3, anchored by two rei1ati ✓ely large shopping centers I I . - e �facina Newport Avenue, is predominantly a retail and service commercial area, but with a strong office enclave jtxi ► i . x 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. EfTorts are made through the +Ir-baR esign Gguidelines 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 bU lding masses.- ,with streetscape and the design of the public realm, adding to a sense of place for First Street 10 In SLI M7TY, the concept seeks a balance between market responsive expansion on she one r are] and preservaJon of the basic existing scale and ors she other. 1I ti v E a V 0 0 0 .Q cn Z I c m r u 4. A • 4- J Q) Q) V) 4-J V) Q� .Q /O � V N t- CO 11 v t a CL CL wails 8 °- pailS 8 Pails y hails H L r/y aNiCl ma!A uielu IoVy �^ �aa�ls al�►ae� pails egjoA pails aI .VAW hails aI3jxW ti Ln Li z LA 0 V ti v E a V 0 0 0 .Q cn Z I c m r u 4. A • 4- J Q) Q) V) 4-J V) Q� .Q /O � V N t- CO 11 ro u L v E E O v J M r U 4-- U Q.i N 4-.J M Q) to 4-j N C) �i■ N M 00 W J Z ?�tif u lL E E O u 0 �V i U T � r �U Q' m 4-J m 4) v Q) m ru � � , v Lei C LL I `V Tm y J 931. DEVE IOPMEN Y J IEGU TION S A hl 7L 190 � �7 INTENT These regulations constitute the primary zoning provisions 'for the first Street Specific Plan. These regulations are in addition to regular Zongc Code provisions (Article 9 �� L' ���sachapter 2 - Zoning ' a, d Use) Of the ipal Justin City Code. Where there is a conflict, -the regulations .herein will prevail. Where direction is not provided in this Specific Plan, the Municipal -Zoning Code shall prevail. The overall intent of these regulations is to guide development on all development ;parcels in the pecific !!plan area to insure -that each jndc vidual development project contributes to meeting the goals and objectives of the First Street area. More specifically, the regulations are intended to; 0 J rove de opportunities for economically produc-dve business enterprises. o Establish uses and site development standards which contribute to the preseTVation and enhancement of agacent single family residential environments and v\ihich promote an economically sound land use pattern for First Street. Provide - or the scale and nature of uses- uses which can make %facilitate_. the most efficient use of the existing development pattern as well as parcel sizes and .Tapes. o /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 promotinger any combination of these devices desired by the property owner�sl 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 while accommodating new development and rehabilitation. and FehabilitatiFedevelepmeRt, • Establish a sense of ,place, as Y9ell as continuity and consistency of development standards, NivjtNn -the Specific Plan Area. 1 #etel Hotel* #6tel * Office* Mixed Use** C)ff c-e** g#iEe Office Sf+Ee* * ** r. r. - m -.ay impact the prierity ef uses (e.g., iR PlaRRiRg. WRit 1) aR expanded aFea may make-a ** See mixed use iRceRtive, page W 2-0- K QB. C�EN"i: L � OVEH\1s The following regulations apply to all subareas it_ '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. fifer -+rte 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 mere is a conflict, the regulations of the .l peciric Man wNi prevail Where direction is not provided in this Specific Plan the Zoning Code shall preL�= i1. However_ In „ , case of a conflict between the specific provisions of any such code and this Specific flan, the provision which most senses to protect safety shall apply and the Community Development Director shall resolve the conflict by ti�iritten determination in a manner consistent with the goals and ,policies of this Specific Plan. 2. The setback requirements are as specified) by each Lise cateciorydistrk4 of this Specific Han, 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 a)Afnings from encroaching 6nto 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 Cite Zoning Code that are applicable for the most similar issue, condition or situation shall be used by the Community Development Director as guidlellnes to resolve the unclear issue, condition or situation. This provision shall not be used to permit eases or procedures not specifically authorized by this Specific Plan or she City Zoning Code. 4. This pecific Man may be amended by the same procedure as it vvias originally adopted. Each amendment shall include all sections or portions of the Specific )Flan that are affected by the change. An amendment may be initiated by the City Council or the Manning 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. 5. Any persons, firm or corporation, whether a principal, agent, employee or othenMse, violating any provisions of these regulations shall be guilty of a misdemeanor, and Upon cor'victioJ � thereou sf gall be subject to penalties and provisions of City Code. 6. Whenever a use has not been listed as a permitted or conditionally permitted within -the Speci G PlaR, it shall be the duty of the Community Development Director and /or the Planning Commission to determine i�-T said use is 1) consistent with the overall intent of the WSpecific Plan and] 2) the said use is consistent with the other listed permitted or conditionally permitted uses in the Specific Plan p!aRRiRg URIC 0 8-.7-.- in order to maintain and enhance vehicular and pedestrian circulation along Forst Street, any development occupying a parcel which is located on a corner '��ith side street frontage ?_+N should have ve- hicular access restricted to the side street only, the Comrnunity Development Director will rrevie� j this on a case -bey case basis. Where= a site is not on a corner, a reciprocal easement agreement 'will be encuui'a�2d; =�e��- :ter, =. 9-:8. Non- conforming Structures and Uses of Land (See Exhibit-81 Where, at the time of passageof this Specific Ilan, lav\ ;'Tul use of lane) exists which would not be permitted by the regUlationS imposed by this Specific Plan, such use may be continued so long as it remains othenAfise lawful, provided; a, No such, non - conforming use shall be enlarged or increased, nor extended to occupy a greater area of land than tiAias occupied at the effective date of adoption or amendment of this Specific Tian, b. J\Jo such non - conforming use shall be moved in whole or on 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 lanai ceases for any reason for a period of more than l 80 days, any subsequent use of such land shall conform to the regulations specified by this Specific flan for the district in which such land is located; d. Flo additional structure not conforming to the requirements of this Specific Ilan shall be erected in connection with such non - conforming use of land. 10. Non- conforming Structures Where a lawful structure exists at the effective elate of adoption or amendment of this Specific Plan that could not be built under the tens 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 othemiise la�jvfulo subject to the folloNving provisions. a, No such non-con-forming structure may be enlarged or altered in a wavy 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 R value at V e of destruction, it sihaH not be reconstructed except in conformity with the pro - visions of thJ s Spec sic Plan; c, :should such structure be mov2d -Tor any MBSO , for any dst nce whatever, iZ shall thereafter conform ,to the r --gul dons for the distrlc's in vvihich it is iocajed after it is ov-c . W D. LAND USE REGULATIONS 1, Permitted Uses a. Subarea 1 Neighborhood Commercial In Subarea I (Neighborhood Commercial) the following uses occupying no more than 10,00 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 I ) 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 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 (off site only) C (j) Locksmith p (k) Massage establishments p (l) 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 (Q 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 (() Doctor p (k) Drafting p (1) Economic consultant p (m) Engineer p (n) Escrow p (o) (p) Interior decorator or artist studio Land and property management p 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 41 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 residence, or preserved and used as a commercial use as authorized by this Section and consistent with the Cites Cultural Resource District Mesidential 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 comps 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. 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 2 *Exception: 10 feet required when a side yard abuts a residentially zoned property (d} Lot coverage: No maximum limited only by setback areas (el 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 flan area 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: (al 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 I subject to the use restrictions specified therein and the development criteria specified hereafter (b) Banks and financial institutions p (e) 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) Public utility office (but not including corporate yards) c If) Title insurance p 4. Community and institutional Uses: (a) All permitted or conditionally permitted Community and Institutional uses listed in Subarea i subject to the use restrictions specified therein and the development criteria specified hereafter Ib1 Animal hospitals and clinics c Lc 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 flan 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: Front: 10 feet Side: 0 feet* Rear: 30 feet *Exception: 10 feet required when a side vard abuts a residentially zoned property (dl 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 12 13 14 15 MWOM 16 17 r, a w. Side. Rea :meet W 20 I�Ilffi • 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 the purposes of this Specific Plan, sell refer to the legal combination of lots or the development of multiple lots under separate oownership as one cohesively designed development. a si; :gle P- Fczel F existir„ at th _ c --I- eligible fee the let i- - R- Selirf -+tier beR w es As a means to encourage lot consolidation along First Street rather than ro uir�ng of by specifying larger than presently existing lot sues, the City Planning Commission may grant certain bonuses for consolidations exceeding a certain leave , These bonuses may include relaxed height limitations, use site develepm ^t st-,r,rl- FE - s other parking reductions, relaxed setbacks or Such modifications as may be determined to he appropriate. lam, „, 0 qualify t„ F�quest for 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 lost size is not stlpuJated, the lots being combined cohesively designed are area - automatically eligible for bonus provisions. For example, two adjacent owners � ,Avant to cohesively develop their properties as one development. Property owner 's property is 7,500 square feet and property «`s lot is 9,000 SgUEf Te feet. The minimum lot size requirement under which they are developing is 10,000 square meet. Combined, their development parcelUs safely exceeds l 51000 square feet 150 percent over minimum of i 5,000 , therefore they may :seek lot consolidation bonuses. 24 it should be speci icaiiy noted here that this is a complete9y, discretionary action of tihe Fi7nning Commission. The J fanning Commission is Under no obligation to grfnt deveiopment bonuses. in E�ddjtjOn to de-termining the degree of the bonus provision, they 'Will -11sO determine hMN lNeii the development has addressed the °sign JdeNnes of -this peciflc fan. Any bonuses may be pranied by the Planning Commission on a case -by -case basis with past actions not f- eating 'Future direction. Each development stand on its mAm merjZ. The follow, ing bonus provisions are va lable but sh f H not be limited to. F arl ing reducdons ieigjht relaxation Legal ssistaRee in parcel -assemblage Lot coverage rel XBtiOn Reduction or waiver of processing fees 25 Development and conslruclion of bu, tidings incorporating retail commercial or Service commercial L]SeS ors ll �E streyf leVel 1Mth are eclL]aI or greater amo.unz of square footage relative to the office space on the Lipper floor s shall be exempt from all site development standards e cep-t for and ,parks ng. The development must -shall be responsive to tdhe - Dc!esign _juidelines .= « &�. 26 Flo CONSO:UDDATE Any development proposal which incorporases either consoljda�ed parking or 7 reciprocal access geernent --7n 7C ,E7-Cent ti, A . «-use racy be Eiigibie for tj'�e Consolidafzed J'arking /Access Sonu & The bonus shall be an OVeMll redUCJOn Of regL]ired PaTiking spaces by 20 percent (20%). 27 1. General All regular administrative provisions of the Austin MURicipal _Zoni,ng Code shall apply to all properties within the First Street Specific Plan boundaries, including but not limited to Design Review, Zoning F ermr ts, Conditionai Use Permits, Var-ie4s- Appeals, ,Amendments, public notice and hearing provisions. The provisions herein add to or supplement the abovemre-Terenced provisions. 2. Administrative Review In order to further encourage the development and rehabilitation of permitted uses within the First Street Specific flan area Units, the revle�Ai of plans fo a permitted use shall not be required to processed such , -ply through the Planning Commission unless they are conditionally permitted uses. The CoMrnunitl9 eveloprnent Department shall review and comment or 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 �Ajith the ygam- Design gt-4d lip- Guidielines. Any project having development plans approved by building permit issuance or land use permit prior to the ate- amendment of this Specific Plan shall remain approved without Any PFim Use nr posed ire the Specific Pl-�.. area ch- 11 be ���"�dr�`�'r'a�!L, :. ray r- rnrreir-yys`— F'r�[- �- ��6pa�c fer.ni Fled to the 12!a Ring iemm irc i 1R iRFrtrm- +tiE)R itE?M 3. Site Plan Weview a. AAethod 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, redeveiopmernt, expansion of existing use or structures and new development within the Specific Plan area requiring a building permit. A site plan will Ret be r-equiFed use inteRSifi atier,. This requirement is instituted for the following reasons: 1. To ensure consistency with the intent of the Specific Flan. 2 To enCOL]rage innovative comm Lin ity design and development, 3. To assure substantial long -range compliance v0th the Redevelopment J lan and General Flan. A, To promote the highest contemporary standards of site design. 28 a 5. To adapt to specific or special development conditions that occur from time to time 'jjAjNle continu, ng to lmplement the Specific Plan. o facilitate co piete clocLImentation of land use entitlements aeUzhorizecl and conditions pertinent thereto. Appicability Approval of a Site Plan shall be requa red ,prior to or concurrent with a Conditional UGse P ermlt, Tentative Tract Map, or !� arcel M app -for all proposed projects within the specific Man area. Where no Tentative Tract or Farcel Mmap is required, approval of a Site Plan shall rest with the Planning Commission except in the case of permittedp4mary uses. The Ssite Plan ,process shall be similar in its recl:ulrements and procedures to the Conditional se ermit process in the Cit/ of Tusttin, The ' -- primary difference between the two is the simpler administrative review procedure 'For development projects which are consist of utiliziRg Primary permitted uses 29 Appendix A Design Guidelines (Separate Documentl Appendix B 1985 Market Analysis (Separate Document) 30 APPENDIX C CURRE ".'T -1985 AND 20312 NDMONS SUMMA, CRY lRord °ef9F the study tee -T --e formulate vjj'-�at some of the II^�Q is opportunities and constraints of the Specific Plan Area were in 1985, it Yms necessary to per-feFm certain basic mapping tasks were performed. These tasks ultimately d ead- assisted the study team to `ach conclusions about ,A9hat there and ho)v it ,relates to the goals of the study. The th-Fc -two C FFent 1985 conditions e xhibits discussed here include; • existi+ 4g-1985 land use • 1985 zoning 1. € sti4g- 1985.1 -and Use The -V -1985 land use exhibit confirmed much of 1 /vhat the study, team had generally been told abort the area, Land uses U --were generally Nj�iell mixed Nj�ioth retail commercial and office development the most predominant. Also, the area generally became less commercial in nature as one traveled in a 1westerjy direction from Nlew�port Avenue to the Newport Free�AAFV (55 Freeway . Al 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 �'4. Existing (20 12 -1-j 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 Pi-:�n�- exhibit coupled viith the existiR<f- 985 First Street Existing 1Land t4USes 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 ithere. Thje other fairi9y rr hwiouS notation abo: ;t the zoning n'g configuration was the laces of depth presented by the commercial zoning �srith medium and low density residential zoning immediately, to the rear of First Street i propertes. I area harea is ZORe i mi 1rh like drip EewYmeF i 1 ra _ See Exhibit,--4-0. 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 i 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 flan 11 m :q Ln 00 U-1 m r- t. WWM n r-+ L#1 Mr+ r 1 M D rD r-+ r+ m r+ (A M A ) �n CL cu c rD i ISO. 1 11111 'Y Al ;o r) ti M 0 r) L4 , cu CL 3 rD 3 M aj i ISO. 1 11111 'Y Al 2 ^ 03 V .�. ■ O col r-+ r" f rD r-+ x V .0 r+ sir r) OWN= ■ r r) CL cu c rD z� O O G rD cu rD Centennial Way :.� V/� s� 1Mr ■ ■11111 ■ 11111 �.. ■ too ' ■ IMM X111 i■ C " ■•�' ; : HIM 111111 Mill; ' ■� ■1- s � i wa '. �'rr /�■� ��`���r,s ■ I Ill ■1 r,.: _' �� X111111111111 � ■ �■ ..� 11111= ■ ■ �■ � 1 ■11!� 1111 �!!■ ■ �■ _� 1111::1 =■ ■, �■r����rf .11111! ■Ir MIMI MI ■ 11111[111! r 1111: MEIN „ � �■ �i11�I ■11 ■ IIIIIIIIli1= ='' 1�mi 111111111, 111111 ■Illliil� APPENDIX U FIRST STREET SPECIFIC PLAN OPPORTUNITIESPC-L� CIS AND CONSTRAINTS SUMMARY A major ingredieRt component in the preparation of a Specific Man in an already developed area is the careJTul exa mination and analysis of Z—Asting physical conditions (summaFized iR Appendix C). The 'n-.; l important step is the identification of physical opportunitiespetew4aks and constraints against � A' -aich the market opportunities can be measured. These factors, combined '\A/ith public input and policy /te'chni'cal direction from the City, ar'e the ingredients used in shaping the content of the plan. This -x sting conditions summary and map were eased in 1985 in part to identify the issues, goals, objectives and policies ,rn Chapter ll of the Specific Plan. The potential measures were 'evaluated for potential use in the regulatory guideline portions of the Mara, 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 Stre'e't at j'\Jev \;,,00rt Boulevard, while a few blocks west of El Camino Real the buildings exhibit an older, less consistent image, where 'Auild�ng Far- -_` vacaw - lots —anc; underutilized 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 revitallzation situations similar in nature to First S'tre'et, the initial reaction might be to correct problems with long range, costly and controversial remedies. These remedies typically tale the form of inflexible mandatory regulatory formats for new development. Such approaches do little to stimulate private commercial development. The pity of Tustin was and isis 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 is-was The ,nitg CeRteF=sthe 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 gk_ 44k ; -- opportunities and constraints have been identified thus fir and are summarized below. See Exhibit 8 for a visual depiction of the opportunities and constraints identified in 1985. OpportunitiesPetentials iii o There are seVeral large cohesjvely designed shopping centers in the area, o Relatjvely fey,Yv bu ldings are in poor condition, o There are recent instances of duality redevelopment/ leelopment�ithin the area, o Peppertree Park, aAlthough not ' Within the specific plan bOUni dart', contributes a special landscape atmosphere which relates to the corridor. Most revitalization opportunities will occur in small, identifiable pockets west 9 1]recenrt Avenue. o The entry, to D Camino F'Real offers a s,peCial historical streetsCape element nearly in the middle of the project area, offering a central node of development 'For f=irst Street, o (Prospect Street, the major north - south traffic carrier through the project area is located in the center of the area, reinforel g the activity node provided by El Camino Beale o First Street has identifiable east and west entry points at the l\Jeti/ port Freetixay and Newport Boulevard. o The present streetscape system on First Street contains good elements which 'Can be incorporated into the proposed plan. The medians with turf and vvell- establlshed olive trees compliment the e;�isting Ficus nitida. The curbside amenities �street furniture) fulfill functional needs but mayder not add aesthetically to the streetscape scene. The accent. n iinn r ;eRtly used era CI F"- miRe Real could easily be added to the sidewalks -9F. F'. It St. eet te impreve the- visual —quality ef the area. i Fesen adjusted. ExistiRg tFees are liftiRg the sidewalk and iR maRy cases the plaRting wells o The project area has a series of equally spaced nodes or intersections that, when developed and enhanced, would help dramf 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, with th, e most serious peals hoi=,ir congestion occurring on the east /west peripheries, o circulat.io.ne iv o There is a lack of convenient inter -site circulation, in that vehicles mush generally enter First Street to access t e of ci accent site. o Mji ed Land 'Uses. While a mi xt'ure of land uses can add 'e ;�cltcment to an area, in the case of First S'tre'et there no 'cohesiv'e farnil of uses ftfhl'c'h encourage spontaneous shopping or strolling, etc. In fact, many agacent land uses are incompatible with one another, o Scattered Retail Uses: The existing retail uses Which comprise the First Street Specific J)lan area are too dispersecL The area exhibits the physical 'characteristics of strip corm , eroJal development but without enough truly auto - related retail eases to capitalize on its linear shape, o PoorlY ma intained buildings, yaeandes vacant lets: • Some properties within the Specific Plan area are in need of maintenance, ex#ibi-t these rrs-,►a rl:ac. AlonaThe west and —af, First Street, 14I�r avh h tc the nra�Yoc* iReis►ence .,fvac nt lets, there are non - conforming uses, vacancies and older, poorly maintained buildings, o Lacy of iFreeway Entry �P\IeN &;port_ SR�55) Freeway); o One of First Stre'et's major �reblerns- constraints is its lacy of direct FreetiAfaey access, both vehicular and visual, Moreover, oreov'er, entry at Newport Avenue doesn't offer a exEiting_r.r diffeFeRt visual statement either, o Small, shallow development parcels; • Commercial development on single, shallow lots does little to promote a-viable lame ic commercial center on First Street ;such as Larwln S uare or The Cour� ard). The most successful commercial and office developments have assembled and consolidated lots alotng and behind First Street, o Inconsistent Development Standards; o The inconsistent MiXtUre of architectural styles, parking 'configurations, setback and landscape requirements, chile ofuering a variety of individual site conditions laces 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, iR a s#epp+ng list feFinat-, -a rnyriad -ef programs which might be able to tape advantage of the area's opportunities peteRtials i to improve some pr-eblem challenging conditions. It is by no means inclusive or a finaJ recommendation, This list is simply a compilation of some ideas that have been successfully applied in situations simJJar to First Street, V Consolidate small lots ;(either through private laud assembly or coordinated site planing), developing more efficient use of land, creating a more efficient building sit--, 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- propertj circulation opportunities. These development incentives could be the relaxation of certain development standards for more efficient parl�dng design or streetscape amenities. o Form a Business lmprovement District to guide project -wide improvements. J his could be similar in nature to an merchant °s association 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. • Provide alternatives to front setback parking lots. • Establish new, comprehensive site development standards unique to the area. �- Or develop an improved streetscape program compatibiec^<,,sisten xivith the established El Camino Real improvements. o Establish consistent, yet fle ible, sign controls. Create pedestrian points of interest to enhance a=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. w . _ ► - _ - - MeNg-- o Develop means for more —aggressively drawing vehicles from nearby Newpert Freeway exits at AaiR StFeet Irvine Boulevard and Newport Avenue to First Street. Vi P -.4 M X IV, ffim 'o =1 00 ■ -1 OD Lrl Ul 0 r-t vr C) 0 :05, o 1 -60 r-t 0 M o rn M C :3 M' V) somm 8 (D _.off y M 0 ,+a* ■ now WEI :3 r 0 1"Ma cu 3. 3 0000 n V, r- 0 z 0 0 rD 3 :3 :1 Lo 3 rD N rD --4 al ti 3 3 0 C: -a rD rD M 0 r) n M :3 a) tm Lo (D rD Vt rD -n ti C 0 f rD VI -a (D 0 r) M rD aj 3 rD :3 t'asadenaAy- Pacific Street Center ,: Way Iq a J ED a m 4 z 0 ro 7n Nm m N o :1 r+ Lon n r, a, 0 r, a, 0 1 - IS.. 1 21 0 01 flak r > vr C) 0 :05, o 1 -60 o 0 -30 o rn (D D) R a w@ to @ fu Z r� (D fln .0 0 m Z) _.off y 0 ,+a* ■ now WEI Camino Real ro =01 r) rr:r 3 o go a by U 3 CL Cu M FD �� 0 M Center ,: Way Iq a J ED a m 4 z 0 ro 7n Nm m N o :1 r+ Lon Yorba Street #a 0 air :3 a NEE R Vol m 94 a Yorba Street #a 0 air :3 a NEE R 92- '0 :3 ro rD a Vii APPENDIX F Rl�MS7 STREET SPECIFIC �U,\jN PLANNING PROCESS This appendix documents the process by which the First Street Specific Plan �Aaas prepared end eOnsid=d. rte Event July 2, 1985 request 'for F ropos3l distributed by City to potential consultants. Contained 5 carefully worded scope of work and staf tement of objectives. August 23, 1 985 The Planning Center authorized to begin �Aiork. August 28, 1985 !Detailed scoping meeting benAieen Oly Staff and consultant 'tears. September 30, J 985 Progress review meeting NMth City Sa�ff Ind consultant rtea�m. Focus on issues potentials and constraints, October 24t, � 985 First public town hall meeting held to explain planning of ort, share market and physical conditions information and gain insight from the public before beginning plan 'TOTMul Lion, October 25, � 985 Consultant rearm begin plan preparation, November ] 2, � 985 Planning Commission workshop to present findings, summarize pubflic input and obtain commjssion comments. Cif Council members invited to'he7r briefing, November 25, i X85 Presentation our draft plan to joint City CounciVPlanning Corr mission w� orkshop, Opportunity to expose them and interested ,public to details of the plan, provide council and commission members the opportunity to question consuliants, and discuss possible resolution of issues embodied in the plan. December 9, 1 x$5 n=ormal public hearing on plan by the Planning Commission. Direct testimony rece-Ned from p ublic, with responses by both consultants and staff. December it 6, � 985 Formal public bearing on the plan by the City Council, Consideration of Planning Commission recommendation, public testimon end both consultant and snfuu reports and Viii responses to questions. a iian adopted, 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, ho rJlighted by these key Glares and events, was accompanied throughout the project iiue by a venj close and constrL]Cd ae snafu /conSdzanz come unjcalion that resulted in darffying a great number of technical questions as needed so than policy issues could be focused upon by the ,public, the Planning Commission and the Ci -y Council, The quaiitt of this vv/ordng relaJonshi,o laaas the Major ingredient in completing the plan in an unusually short ,period of t me. LIK A FFENED9rz C C =� I ,F i"FZA L F L A j'\ CC \ 1393 7 ENCY Section 65860 our the Callfornia Government Code requires that zon6ng be consistent �s�itn a jurisdiction`s General I ian, The dominant element of the City of Tustin General F an relevant to the Rrst Street Specific Plan Area is the Land Use Element. T commercial . As dehned in the 6eRefal PlaR, , shoppiRg CeRteFs, tutemebire sarer -and sews Ee- The City's General flan Land Use Element designates the area as PC CommerciaVBusiness. Under this land use designation, a mix of commercial and office uses such as hotWmotels, commercial centers, research and development and professional offices are permitted. The First Street Specific Plan is consistent with the following General flan 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. Polity 10J: Encourage the consolidation of individual parcelgconsolidated 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 flan 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 /'plan responds directly to the first ge these goals and policies by providing for appropriate commercial reaii, ,-- rvice, and office uses, it responds indirectly tee secend by reinforcing successful development and stimulating both economic growth and aesthetic improvement on the periphery of the tewR centeF. First Street. The F lan 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 wIN be more responsive to market opportunities and enhance the First Street corridor, The First Street Specific Plan is there -fore consistent with the City of Tustin General Plan. xi APPENDIX H T STREET SPECK''° !�r�rnrnrr� i . Tie proposed commercial and office development is consistent in intensity and character wr th the Cites acloptecl 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 specific,i�, of land use entitlement its adoption authorizes. L The various components of the plan as well as the plan in its 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 v\jNch mast be completed before private development may proceed. 6. Administration of the plan is thoroughly integrated into the City's development processing system. 7. AM subjects required in a specific plan by the CalhTornia Government Code and applicable Cif 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. The level of development direction established by the plan is sufficient to eliminate the need for a continued development moratorium in the First Street corridor. xii DRAFT FIRST STRIFE T SPE M C FL A, M 'C FlZRl7=CT1ED C c FY E • V City Council John Nielsen, Mayor Al Murray, Mayor Pro Tern Jerry Amante, Councilmember Deborah Gavello, Councilmember Rebecca "Beckie" Gomez, Councilmember Planning Commission Charles "Chuck" Puckett, Chairperson Steve Kozak, Chairperson Pro Tern Jeff Thompson, Commissioner Fred Moore, Commissioner Ken Eckman, Commissioner CityStaff 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 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 i- I ff 04 WATO , Nk f M-71 MT., IV, � 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. C. BACKGROUND 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. X 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. 0 . •• 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. E. AUTHORITY 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. 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 M LU Z+ LA 3: C: m r) U 4mm ...... U C) CL L/I 4-J Q) Q) L. 4-J L/I 4-J Lon U. ti CU O 0q 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. 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. OBJECTIVES: 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. 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. 1.01 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. OBJECTIVES. 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. M 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. 10 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. IN u L- v E E 0 v 0 0 `0 .n P z li U 4. U Q) CL nW W L.. V) 4—J V U. U... m Q) L .Q N r� N N I-- Od Q v n, CL CL Q) pails 8 n- laaj ;s 8 Pails v laa14s H �J 4.+ aniaa ma►n uieaunoW L LL �aaa�s ��i�ed paj ;s egad k pails ai:phvv laaJ4s alliAvv ti _ Li zs n 0 r V u L- v E E 0 v 0 0 `0 .n P z li U 4. U Q) CL nW W L.. V) 4—J V U. U... m Q) L .Q N r� N N I-- Od Q AM le►uualuaD alaJID PH V .3 VI any 33adsaJd 4 U any �adsoJd leas oulweD 13 zaaJ ;s a PWIS D Li Z+- 6 u L Q) E E 0 u m i U_ 4. u Q) CL V) N ti N C) LL N m m 2 !R Li Z+- 3: ro v E E 0 v u U U Q) CL m 4-J ti Q� v Q) � 4-J r� � N LL N CO 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. 5. 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. 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) (j) 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 (j) 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 16 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. 17 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 I 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 W-01 4. Community and Institutional Uses: (a) All permitted or conditionally permitted Community and Institutional uses listed in Subarea I 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. 6. 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: 19 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. F. LOT CONSOLIDATION PROGRAM 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. 00 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) ii APPENDIX C 1985 AND 2012 CONDITI(1Wradt-r'W%-,rY 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. ►1ji►► . � � i 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 Plan. I MA NN 0 0 0 7 M - I =111 I - I 5" LA rD ru Centennial Vay 0 L/I + m 4 E5 i CC) 0 3 Ul VI 3 r-t D rD r+ LA Mr+ M r-+ m x 1 2 r+ 30 r) —�h mm� 0 r) CL cu CtA NN 0 0 0 7 M - I =111 I - I 5" LA rD ru Centennial Vay 0 L/I + m 4 rD 0 3 OL rD 3 D rD cu NN 0 0 0 7 M - I =111 I - I 5" LA rD ru Centennial Vay 0 L/I + m 4 m —n Nj Lool in XNIFM a r_ t'1 0 rrt 0 rD ('D r=+ 0-+ (./) M 0 , x NMUK CA 0 r+ A ) --h mw� I r) CU :3 CIL C (A rD r) rD 0 rD 3 CL rD 3 C: rD rD CU W NX 0 0 r) rD EI) rD :3 r+ N r+ N rD r+ Centennial Way Pasadena Avenue Myrtle Street Pacific Street "A" Street 'B" Street Street L.L-L.L El Camino Prospect Ave r) N" 0 Ln I a) U LA J Lane 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 11I 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. V 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 Q .-A Mso "I CC) .�..■ ■ � O ■ VI 'Q � r -t V ry 0 rD c 3 r- t mum 0 rDL ■ m y O t� ■ r) CL % ■ r r w , 0000 Or O 3 O � 3 O La =' N N rD ti n aj ' rn (D rD ay r) n g w a 60 cZ *, rp rD 0 _ to n rD T ti O -t C O r+ m M O n o 0 O a -I M cli 3 rD r+ Nn, z rC er+F CA r+ O ru ru nf° roses fD p o K M 41 <asodena Avenue .a �. o 0@1 �yo3 Myrtt, .. , f a -c. , m o 0 3 3 ao rt 3 rya a r 3 0 � rn a 3 -0 Yorba Street ■ 5 � . C O M 1 . ;. .-,a K y yy R jr ,y v 4 300 tti O CS > d j O .- .," N N 30 La 3 O O O 3 3 O M c ('T 11 N� aaroao to a, R I q 3 to € m A G° ;M Cc Cc 0@ a 9. c m 0 0 go ua 3 rn l4 - to rb 0 ^ fh ■� ■■r■azEl Camino Real ■s aR■ a �y sL 0 :3r � naa �" ' s:aZ 5' $ m H � j ua w �. Pi�,Yspcct Ave N =i 00`,Q� :33 Fi O '+. O 3 Q t'6 3� 3 ry {K j r^p m m @ � ro a 3 m Centennial Way > >_ .gym 0 r 3 ID !aV 3 3 ry m y O 0 m N H 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. I M 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. ER 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 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 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. X1 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. M. 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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