HomeMy WebLinkAbout10 THE REGENCY CENTER - COMMUNITY DEVELOPMENTAgenda Item 10
Reviewed:
AGENDA REPORT City Manager
Finance Director NIA
MEETING DATE: OCTOBER 20, 2015
TO: JEFFREY C. PARKER, CITY MANAGER
FROM: ELIZABETH A. BINSACK, COMMUNITY DEVELOPMENT DIRECTOR
SUBJECT: THE VILLAGE AT TUSTIN LEGACY: SPECIFIC PLAN AMENDMENT 2015-02,
DEVELOPMENT AGREEMENT 2015-001, SUBDIVISION 2015-03/TENTATIVE
PARCEL MAP 2015-127, CONCEPT PLAN 2015-003, DESIGN REVIEW 2015-014,
CONDITIONAL USE PERMIT 2015-11 THROUGH CONDITIONAL USE PERMIT 2015-
17, AND CONDITIONAL USE PERMIT 2015-23 FOR THE DEVELOPMENT OF A
NEIGHBORHOOD COMMERCIAL CENTER WITH MULTIPLE USES INCLUDING
GROCERY, DAYCARE, RESTAURANTS, RETAIL, MEDICAL OFFICE AND ACUTE
CARE/REHABILITATION FACILITY WITHIN PLANNING AREA 7 OF
NEIGHBORHOOD B, MCAS TUSTIN SPECIFIC PLAN
SUMMARY:
The project is a request to construct a 248,292 square -foot commercial center with multiple uses,
including retail, drive-thrus, grocery, pharmacy, restaurants, medical office and acute
care/rehabilitation and skilled nursing uses. The site is located within Planning Area 7
(Neighborhood B) of the MCAS Tustin Specific Plan and generally bounded by Edinger Avenue
to the north, Tustin Ranch Road to the east, Valencia Avenue to the south, and Kensington Park
Drive to the west. The proposed project requires approval of Specific Plan Amendment, Concept
Plan, Development Agreement, Tentative Tract Map, Design Review, and Conditional Use Permits.
On August 25, 2015, the Planning Commission adopted Resolution Nos. 4285 through 4293
recommending that the City Council approve the proposed project. On September 15, 2015, the
City Council continued the item to October 20, 2015, to allow respective Attorneys to finalize the
real estate transaction documents and the Disposition and Development Agreement.
A Disposition and Development Agreement (DDA) associated for this project will be considered as
a separate agenda item.
APPLICANT: 1C Tustin Legacy, LLC. PROPERTY OWNER: City of Tustin
(Regency Centers) 300 Centennial Way
15360 Barranca Parkway Tustin, CA 92780
Irvine, CA 92618
FISCAL IMPACT:
The applicant has paid the required application fees for the proposed project. The fiscal impact
resulting from sale of land, marketing fees, Tustin Legacy Backbone Infrastructure obligation,
community facilities districts, profit participation, property tax and transaction fees related to the
project will be addressed within the City Council's consideration of the project's DDA.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 2
CORRELATION TO THE STRATEGIC PLAN:
The proposed project furthers the objectives of the following Strategic Plan goals:
• Goal A: Economic and Neighborhood Development — The proposed project would
enable business, development, and job opportunities and would enhance the vibrancy
and quality of life in Tustin Legacy and other areas of the community.
• Goal B: Public Safety and Protection of Assets — The proposed project would ensure
Tustin is an attractive, safe and well maintained community in which people feel pride.
The proposed project also furthers the Mayor's following goals:
• Implementation of Tustin Legacy New Vision Concept — The proposed project would be
consistent with the implementation of the Tustin Legacy New Vision Concept.
RECOMMENDATION:
That the City Council adopt:
1. Resolution No. 15-57, finding the project is within the scope of the certified Final
Environmental Impact Statement/Environmental Impact Report (FEIS/EIR) for the MCAS
Tustin Reuse and Specific Plan, the Supplemental and Addendums, and that pursuant to
Government Code Section 65457, no further environmental review is required.
2. Introduce and have first reading by title only of Ordinance No. 1460 for Specific Plan
Amendment 2015-02, an amendment to the MCAS Tustin Specific Plan to allow acute
care/rehabilitation and skill nursing uses as conditionally permitted within Planning Area
7 and increase the allowable building height to fifty-five (55) feet for medical centers and
sixty (60) feet for acute care/rehabilitation facilities.
3. Introduce and have first reading by title only of Ordinance No. 1461 for Development
Agreement (DA) 2015-001 to facilitate the development and conveyance of an
approximate 22.7-acre site within the boundaries of MCAS Tustin Specific Plan. The DA
was intended to further the purpose and intent of the General Plan and Specific Plan,
and FEIS/FEIR and will ensure the orderly implementation of infrastructure and
development. The DA includes a schedule of performance and obligations that ensure
adequate local infrastructure programs are in place to support the proposed
development.
4. Resolution No. 15-58, approving Concept Plan (CP) 2015-003 to develop a 248,292
square-foot neighborhood commercial center with multiple uses and ensure necessary
linkages are provided between the development project, the integrity of the specific plan
and purpose and intent of the neighborhood is maintained, and applicable City
requirements are identified and satisfied; Subdivision 2015-03/Tentative Parcel Map
(TPM) 2015-127 to subdivide an approximately 22.7-acre site into thirteen (13)
numbered lots and four (4) lettered lots for the development of a 248,292 square-foot
neighborhood commercial center with multiple uses; Design Review (DR) 2015-014 for
the design and site layout of a 248,292 square-foot neighborhood commercial center
with multiple uses.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 3
5. Resolution No. 15-59, approving Conditional Use Permit (CUP) 2015-11 for the
establishment of an acute care/rehabilitation facility and skilled nursing facility on
Building M (Parcel 10, 15120 Kensington Park Drive).
6. Resolution No. 15-60, approving CUP 2015-12 for the establishment of a drive-thru
pharmacy use on Building D (Parcel 1, 15180 Kensington Park Drive).
7. Resolution No. 15-61, approving CUP 2015-13 for the establishment of a restaurant
drive-thru use on Building E (Parcel 3, 15190 Kensington Park Drive).
8. Resolution No. 15-62, approving CUP 2015-14 for the establishment of a bank drive-thru
use on Building H (Parcel 6, 15060 Kensington Park Drive).
9. Resolution No. 15-63, approving CUP 2015-15 for the establishment of a restaurant
drive-thru use on Building I — Alternative Option (Parcel 7, 15040 Kensington Park
Drive).
10. Resolution No. 15-64, approving CUP 2015-16 for the establishment of a master sign
plan for the subject development.
11. Resolution No. 15-65, approving CUP 2015-17 for the establishment of a
preschool/childcare use on Building A (Parcel 9, 15140 Kensington Park Drive).
12. Resolution No. 15-66, approving CUP 2015-23 for the establishment of joint use parking
for Parcels 10, 11, 12 and 13 (15000, 15020, 15100 and 15120 Kensington Park Drive).
APPROVAL AUTHORITY:
• Specific Plan Amendment
Section 4.2.8 of the MCAS Tustin Specific Plan requires an amendment to the Specific Plan
be initiated and processed in the same manner set forth in the Tustin City Code (TCC). TCC
Section 9295 specifies any amendment to the Zoning may be initiated and adopted as other
ordinances are amended or adopted.
• Development Agreement
The MCAS Tustin Specific Plan Section 4.2.9 requires a DA in conjunction with or prior to
approval of any entitlements associated with private development. Pursuant to TCC Section
9607, the Planning Commission shall consider the DA and make a recommendation thereon
to the City Council. The Planning Commission shall forward its recommendation to the City
Council within thirty (30) days of the time specified for the public hearing.
Pursuant to TCC Section 9613, after the City Council completes the public hearing and
considers the recommendation of the Planning Commission, the City Council may accept,
modify or disapprove the Development Agreement. Pursuant to TCC Section 9614, the DA
shall be approved by the adoption of an ordinance.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 4
• Concept Plan:
Section 4.2.2 of the MCAS Tustin Specific Plan requires a CP to be prepared and submitted
for Zoning Administrator approval concurrent with a new development proposal. Since the
proposal includes other entitlement applications that require City Council approval and to
expedite consideration, CP 2015-003 is forwarded to the Planning Commission and City
Council for concurrent consideration.
• Subdivision/Tentative Parcel Map:
TCC Section 9321b authorizes the Planning Commission to review and take action on
Tentative Maps; however, since the proposal includes other entitlement applications that
require City Council approval, TPM 2015-127 is forwarded to City Council for concurrent
consideration.
• Design Review:
Section 4.2.4 of the MCAS Tustin Specific Plan requires each development to submit and
obtain approval of a Site Plan and DR pursuant to the TCC following or concurrent with the
approval of a CP. TCC Section 9272 authorizes the Community Development Director to
consider DR application; however, since the proposal includes other entitlement applications
that require City Council approval, DR 2015-014 is forwarded to City Council for concurrent
consideration.
• Conditional Use Permits:
The proposed specific plan amendment would require approval of a CUP for the proposed
acute care/rehabilitation facility. Pursuant to MCAS Tustin Specific Plan Section 3.4.4A
requires approval of CUPs for drive-thru restaurants and child care centers. Pursuant to
MCAS Tustin Specific Plan Section 3.4.4C, the Community Development Director
determined that pharmacy drive-thru and bank drive-thru uses are conditionally permitted
uses similar to drive-thru restaurant uses. TCC Section 9291 authorizes the Planning
Commission to consider CUP applications; however, since the proposal includes other
entitlement applications that require City Council approval, CUPs 2015-11 through 2015-17
and 2015-23 are forwarded to the City Council for concurrent consideration.
BACKGROUND AND DISCUSSION:
Project Description
The project is to develop The Village at Tustin Legacy, which includes 248,292 square feet of
non-residential uses comprised of two (2) major components as follows (See Figure 1):
1) Retail Center: A 98,292 square-foot retail center with grocery store, pharmacy, childcare,
food service, and general retails uses along Valencia Avenue and Kensington Drive.
2) Medical Plaza: A 150,000 square-foot medical plaza with a medical center, an acute
care hospital/rehabilitation facility and medical office/retail buildings fronting along
Kensington Park Drive and Edinger Avenue.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 5
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Hgure 1: Site Plan
The proposed project is zoned MICAS Tustin Specific Plan District (SP1) and is located on a
22.7 -acre parcel within Planning Area 7, Neighborhood B, of the MICAS Tustin Specific Plan
with a Land Use Plan designation of Village Services, and General Plan Land Use designation
of MICAS Tustin Specific Plan. The site is bounded by Edinger Avenue, Kensington Park Drive,
Valencia Avenue and Tustin Ranch Road.
Figure 2: Tustin Legacy Planning Areas
The proposed commercial center is geared towards providing neighborhood commercial
services to the surrounding community including Tustin Fields I, Tustin Fields II, Columbus
Square, Columbus Grove, Greenwood, Tustin Meadows, Peppertree and nearby nonresidential
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 6
uses. Figure 3 shows an aerial composite of the proposed commercial center in context with
the existing surrounding area.
Figure 3: Aerial Composite
The applicant proposes to construct the center in three (3) phases. The first phase consists of
precise grading and construction of the common areas such as parking lot, landscape areas
and portal entries. The second phase will be the construction of all the buildings, with the
exception of the acute care/rehabilitation and skilled nursing facility (Building M). The third
phase will be the construction of the acute care/rehabilitation and skilled nursing facility.,
KENSINGTON PARK DRIVE
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TUSTIN RANCH ROAD
Figure 4: Building Key Map
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 7
Specific Flaw Amendment
The applicant is requesting three (3) amendments to the MCAS Tustin Specific Plan related to
an unlisted use and building heights. The current MCAS Tustin Specific Plan does not list acute
care/rehabilitation and skilled nursing uses as a permitted or conditionally permitted use within
Planning Area 7 (MCAS Tustin Specific Plan Section 3.4.4). The proposed acute
care/rehabilitation and skilled nursing uses are specialized medical services for patients needing
regular monitoring and rehabilitation therapy. Patients managing and/or recovering from
conditions such as, but not limited to, surgery, stroke, neurological disorders, and joint
replacement may require the type of acute care services and overnight stay proposed in the
project. The proposed specific plan amendment would add acute care/rehabilitation uses as a
conditionally permitted use within Section 3.4.4A.3.
The current MCAS Tustin Specific Plan allows a maximum building height of forty-five (45) feet
for buildings within Planning Area 7. The applicant is proposing to construct a 60,000 square
foot, 3 -story medical center building that is fifty-four (54) feet high and a 75,000 square foot, 3 -
story acute care/rehabilitation facility that is sixty (60) feet high. The applicant has indicated that
the increase in buildings' height is necessary to accommodate specialized ducting, mechanical
equipment, air handling equipment and additional floor height to support the proposed medical
uses. Therefore, a specific plan amendment is requested to increase the maximum building
height for medical center buildings to fifty-five (55) feet and acute care/rehabilitation facilities to
sixty (60) feet high.
The proposed Ordinance No. 1460 — Specific Plan Amendment (Attachment H) is consistent
with the City Council approved policy for MCAS Tustin, and would not increase the overall
development potential, intensity, or non-residential capacity currently allowed by the MCAS
Tustin Specific Plan.
Development Agreement
The MCAS Tustin Specific Plan Section 4.2.9 requires that all individuals proposing private
development within the Specific Plan area first obtain a DA. The purpose of the DA is to
strengthen the public planning process, encourage private participation in comprehensive
planning and reduce the economic risk of development.
The proposed Ordinance No. 1461 — DA (Attachment 1) will also ensure orderly implementation
of infrastructure in accordance with the Tustin General Plan, MCAS Tustin Specific Plan and
Final Program FIR/EIS and Addendum. One section to note in the proposed DA is Exhibit "C"
regarding public benefit improvements. This DA outlines the City's responsibilities and the
applicant's obligations. Since the date of the Planning Commission hearing, modifications and
additions to the DA have been incorporated into the draft document. The'se changes include
requiring that the applicant obtain a building permit for the Medical Center (Building K) prior to
obtaining building permits for the other three (3) buildings in the Medical Plaza (Buildings J, L
and M) and requiring that the applicant hydroseed and maintain the parcels and graded pads
until the commencement of vertical improvements.
The proposed DA has been reviewed by the applicant, the applicant's counsel, City staff and the
City Attorney and all parties are in support of the document.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 8
Concept Plan
Section 4.2.2 of the MCAS Tustin Specific Plan
Zoning Administrator approval concurrent wit
establish the planning and design principle
landscaping, and architectural design on the s
ensure that:
requires a CP to be prepared and submitted for
i a new development proposal. The CP will
guiding the implementation of site layout,
:e. The purpose of the CP is to document and
1. The necessary linkages are provided between the development project and the Planning
Area/Neighborhood in which it is located.
2. The integrity of the Specific Plan and purpose and intent of each Neighborhood is
maintained.
3. Applicable considerations of City requirements, other than those spelled out in the
Specific Plan, are identified and satisfied.
CP 2015-003 provides for conceptual development, site layout and design framework for the
proposed project. The CP includes: A conceptual site plan, a grading and utility plan; a phasing
plan; and a landscape plan. As proposed, CP 2015-003 has been prepared and submitted
concurrently with the proposal to develop the neighborhood commercial center and necessary
vehicular and pedestrian linkages. The integrity of the Specific Plan, along with applicable City
requirements, have also been demonstrated through submitted plans (Figures 5 and 6).
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Figure 5e Pedestrian Access and Circulation
The proposed design incorporates pedestrian access throughout the development and provides
connectivity to surrounding existing sidewalks. Interior pedestrian access is accomplished with
paths through the parking lot and along buildings, cross walks, and landscape areas, In
addition, bike rack locations are shown on the plans and serves to encourage residents in the
surrounding neighborhood to utilize alternative transportation methods.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 9
The proposed perimeter pedestrian circulation is designed to optimize the streetscape of the
neighborhood commercial center. The MCAS Tustin Specific Plan identifies that landscape
setback areas should have a parkway located between the street and sidewalk. The proposed
public sidewalks are adjacent to the street and the planting areas within the remaining
landscape setback adjoins the perimeter landscaping area of the commercial center, which
increases the planting design opportunities and brings focus to the commercial center. This
design strategy is consistent with the intent of the MCAS Tustin Specific Plan in that the
community structure is maintained through quality landscaping, visual interest and emphasizing
the availability of village services through a neighborhood commercial center.
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Figure 6: Conceptual Landscape
A comprehensive landscape plan is proposed and addresses Specific Plan requirements such
as portal entry treatments, viewscapes, landscape setbacks, patio areas and courtyard areas.
The proposed landscaping is comprised of ornamental drought tolerant plants, entry accent
trees, specimen trees located at focal points, and plant color palette based on leaf color instead
of flower color. Figures i and 8 show the conceptual landscape plant and material palette and
the proposed portal entry features and plaza treatments.
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City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 10
Pigire 7: Concepts -al Landscape Plant and MateHal Palette
The hardscape elements include enhanced paving, dry creek features, and fieldstone walls and
are proposed at visually prominent locations such as portal intersections, plazas and project
entries. This design strategy is consistent with the MCAS Tustin Specific Plan.
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Figure 8: Portal Intersections and Plaza
The applicant has provided 3-D renderings of the proposed portal and plaza treatments (See
Attachment C).
Design Review
Section 4.2.4 of the MCAS Tustin Specific Plan requires applicants for each development to
submit and obtain approval of a Site Plan and DR pursuant to the TCC following or concurrent
with the approval of a CP. DR 2015-014 provides for the site layout and architectural design of
the proposed neighborhood commercial center.
There are two (2) major components in the proposed development, the south half is 98,292
square feet of retail use and the north half is 150,000 square feet of medical office, acute care
and retail uses. The primary project entry is located along Kensington Park Drive, at the
Georgia Street intersection, continuing towards the rear of the project, and serves to delineate
the general retail area from the medical office area.
The site plan is designed to have buildings located along the project perimeter, with the majority
of the parking lot located internally. The resulting streetscape is an engaging view of the project
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 11
that communicates the availability and accessibility of various retail and services for the
community.
Retail Center
The retail center is located on the south half of the project site, between Kensington Park Drive,
Valencia Avenue and Tustin Ranch Road, south of the main entry at Georgia Street. This side
of the development contains approximately 98,292 square feet among nine (9) buildings
(Buildings A through I). The proposed businesses in this area include: A grocery store,
preschool and childcare; drug store pharmacy; restaurants; retail bank; and general retail.
Buildings C, F, G and I are intended to have multiple inline commercial tenants.
The "Contemporary Barn" or "Contemporary Rustic" architecture style proposed for this area
borrows inspiration from the industrial aesthetics of the nearby blimp hangars to the agricultural
farmlands that surrounded the site in the early 1900s. The proposed material palette further
exhibits this influence with the use of metal roofing and sidings, rich colored board and batten
vertical sidings, rusticated stone veneer, barn door features, louvers and lattices. The images
below provide a series of renderings of the larger elevations and view perspectives. Complete
plans are included as Attachment C.
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City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 12
Plaza at Valencia/Kensington I
The proposed grocery store (See Figure 9) incorporates multiple roof planes, architectural
eaves, stone veneer, board and batten siding, and metal roofs. The proposed colors are deep
brown with contrasting accent colors on the windows, roof and fascia.
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Figure 9: Grocery Store (Building B)
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October 20, 2015
The Village at Tustin Legacy.
Page 13
Other buildings in the retail center area have the contemporary barn design, utilizing varying
combinations and application of the proposed materials and colors (See Figures 10, 11 and 12).
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SOUTH
Figure 10: Preschool / Childcare (Building A)
Figure 11: ®rive-tlhru Retaill (Building E)
Several buildings are designed with a drive-thru or an option for a drive-thru. For example,
Building I (Figure 12) is currently proposed to be an inline tenant building with the potential of
four (4) tenant spaces. The applicant has indicated that Building I may be changed to be a
restaurant drive-thru building, identified as Building I Option, and has submitted a proposed site
plan (Figure 13) and CUP request for a drive-thru use. Further discussion related to the drive-
thru can be found in the CUP section of this report.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 14
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Figure 13: B uMing p Option Site Plan ~�
The proposed drug store (Building D, Figure 14) is located in the corner of the prominent
intersection of Valencia Avenue and Tustin Ranch Road. The proposed building is intended to
house a CVS Pharmacy store with drive-thru. The building will include a loading bay and drive
thru window on the rear elevation, which is visible from Tustin Ranch Road. Figure 14 for
Building D shows the original and revised elevations to address the prominent street frontages.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 15
ELEVATIONS
Mprfir'al Plaza
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Figure 14: Pharmacy w/ ®rive-tIhru (B uHding ®) — Revised Mevetuons
The north side of the development is comprised of the 150,000 square feet medical plaza with
four (4) buildings, including a three-story medical center (Building K), a three-story acute
care/rehabilitation facility (Building lid) and two (2) single -story medical office/retail buildings
(Buildings J and L).
These buildings incorporate a similar color and material palette as the retail center to the south
but uses a more contemporary architectural style, utilizing sleek building lines and contrasts of
light and heavy elements (f=igures 15, 16 and 17). Multiple roof elements, varying parapet wall
heights, varying wall planes, expanses of glass windows and metal or stone siding create
variations and visual interest in the building fapade.
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Figure 15: Medical Offfice/Reteill (Building J)
The proposed acute care/rehabilitation facility (Building M) is intended to serve medical patients
who no longer need general hospital services but still require monitoring and/or regular
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 16
rehabilitation therapy. The proposed facility includes eighty (80) beds with areas for treatment,
administration, and general patient support.
Figure 16: Acute Care/Rehabilitation Facility (Building M)
Figure 16 cont.: Acute Care/Rehabilitation Facility (Building M)
The proposed Medical Center (Building K) is a three-story building with 60,000 square feet of
medical office space, which is planned to be occupied by Hoag Health Center (Figure 17) The
purpose of the Medical Center is to provide comprehensive and integrated medical services to
the surrounding community. The proposed facility will include uses such as doctors' offices and
associated medical services such as urgent care, pediatrics, family medicine, internal medicine,
specialty medicine, laboratory, outpatient procedures, and physical and occupational therapy.
The MCAS Tustin Specific Plan currently states that the maximum building height for Planning
Area 7 is forty-five (45) feet. The applicant has requested an increase in allowable building
height for Building K to be fifty-four (54) feet and sixty (60) feet for Building M. The additional
building height is required to accommodate the increased floor height needed for the specialized
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 17
ducting and mechanical equipment to support the medical uses. The additional building height
is appropriate for the project site since the site abuts Edinger Avenue (a major thoroughfare),
the buildings are set back from street frontages, and is adjacent to elevated Tustin Ranch Road.
In response to staff and Planning Commission concerns and comments on the building design
for the Medical Center, the applicant has submitted an updated design for the Medical Center.
The updated design, shown in Figure 17, addresses staff's concerns and provides a building
design with elements such as multiple stepbacks, additional use of metal and stone materials,
and an expanded and warmer color pallet.
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Parking and Floor Area Ratio
The proposed commercial center includes a total of 1,091 parking spaces. Although the drive
approaches and drive aisles will appear to be seamless to the user, the parking areas for the
retail center will be considered separate from the medical plaza parking. For the underlying
parking count, legal parcelization and actual patron use, persons frequenting the retail center
are not expected to park at the medical plaza area, and vice versa.
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October 20, 2015
The Village at Tustin Legacy.
Page 18
The 98,292 square -foot retail center requires 437 parking spaces based on the ratio of one (1)
parking space for each 225 square feet of gross floor area. Each parcel has been designed to
be self -parked and provides the minimum required number of parking spaces for the building
located on the parcel. As conditioned, the applicant will record reciprocal access and parking
easements and include provisions within a Covenants, Conditions & Restrictions (CC&Rs)
document that ensure the parking lot is common space available to the retail center as a whole.
The parking for the proposed medical plaza is based on parking ratio requirements for medical
uses since the plaza would function as a medical complex rather than a commercial/retail
complex. The medical plaza requires 610 parking spaces based on the parking ratio of six (6)
spaces for every 1,000 square feet for medical office uses and two (2) spaces for every bed for
the acute care facility/hospital use. There are 619 parking spaces provided in the medical
plaza. With the exception of the Medical Center building (Building K, Parcel 12), each property
contains at least the minimum number of required parking spaces.
The applicant has applied for a Joint Use Parking CUP to allow joint use parking among the
medical plaza buildings and is discussed further in this staff report. Table 2 provides square
footage, use, floor -area ratio and parking information for the proposed commercial center
according to parcel.
TaNe 2e Project S$atosfucs
Parcel
Parcel Area
Building/ Use
Building Floor
Max
Proposed
Parking
Parking
5
(sf)
G /Retail, I n line
Area (sf)
F.A.R.
F.A.R.
Required
Proposed
1
69,696
D / Reta i I, Major
14,576
0.35
0.21
64.8
_ 74
2
30,056
C/ Retail, In line
4,500
0.35
0.15
20.0
25
3
28,750
E / Retail, Pad
3.300
0.35
0.11
14.7
1s
4
35,719
F /Retail, I n line
6,000
0.35
0.17
26.7
28
5
45,302
G /Retail, I n line
8,763
0.35
0.19
_
38.9
45
6
36,572
H / Bank, Pad
3,324
_
0.35
0.09
14.8
16
7
30,928
1 /Retail, Pad
6,000
0.35
0.19
_
26.7
28
8
175,111
B / Retail, Anchor
43,829
0.35
0.25
194.8
204
9
Sub. TTL_
10
48.787
152,896
A/ School, dayca re
M / Acute Care, 80 beds
8,000
98,292
75,000
0.25
0.50
_
0.16
0.49
_
35.6
160.0
_
37
472 _
201
11
39,640
L / Med. Off ce-Reta i 1
6,450
0.35
0.16
38.7
_
49
12
13
175,982
51,836
K / Med. Center
J / Med. Off i ce-Reta i 1
60,000
8,550
_ 0.50
0.35
0.34
0.16
_
_ 360.0
51.3
312
57
Sub. TTL
420,354
150,000
610.0
619
Total
921,275
248,292
1,046.9
1,091
Tentative Parcel Map
TPM 2015-127 is a subdivision of an approximately 22.7 acre site into thirteen (13) numbered
lots and four (4) lettered lots for the development of the neighborhood commercial center
(Attachment C). The proposed parcel map would create one (1) lot for each proposed building
on the property. Also included in the map are proposed easements for sewer, water, and
roadway. Reciprocal access easements will be recorded across the parcels in the project's
CC&Rs. The proposed lettered lots would remain as City -owned properties and ownership of
the numbered lots would be transferred to the. applicant.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 19
Conditional Use Permits
The applicant has applied for several CUPs including acute care/rehabilitation, pharmacy drive-
thru, retail commercial drive-thru, childcare use, a master sign plan and joint use parking.
CUP 2015-11 —Acute care/Rehabilitation (Building M):
The CUP request is to allow the development of a 75,000 square -foot acute
care/rehabilitation/convalescent care facility, subject to approval of the proposed Specific
Plan Amendment. The facility will include eighty (80) beds and provide medical services
that fill a continuum of care need.
The facility will provide multiple levels of care such as acute rehabilitation, skilled nursing
and assisted living. Patients requiring acute care/rehabilitation or skilled nursing services
may be dealing with chemical dependency, stroke recovery, dementia, palliative care needs,
physical injuries or surgery recovery but do not need to be admitted to a general hospital
facility. The facility is not intended to provide health services typically found in a general
hospital setting such as emergency room services, surgery/operation rooms, trauma center,
labor and delivery and intensive care units.
Patients typically stay at these types of facilities for approximately twenty (20) days or less.
Patients would be provided 24-hour care, but most of the activities would occur between
7:00 a.m. and 8:00 p.m. The facility can also provide convalescent care, assisted living care
and memory care.
The facility would be regulated by the California Department of Health Services and require
a license to operate and provide healthcare services based on regulatory and operational
requirements. In addition, building permits for this facility would be obtained through the
California Office of Statewide Healthcare and Planning.
The applicant has indicated that new health care concept includes placement of health
related offices and amenities within commercial centers. This concept allows for a symbiotic
relationship among uses providing mutual benefits to the medical plaza and retail
establishments. Findings to support this CUP are included in Resolution No. 15-59
(Attachment K).
CUP 2015-12 — Pharmacy Drive-Thru (Building D):
The proposed CDP is to allow a pharmacy drive-thru use, associated with a 14,576 square -
foot pharmacy/drug store building. The drive-thru will be a single lane with signage abovE:
the drive-thru window canopy and located in the east corner of the building, near the
proposed loading dock and Tustin Ranch Road.,
As proposed and conditioned, the drive-thru window will be used only for prescription drop-
off and pickup and purchasing over-the-counter medicine and that general merchandise will
not be sold through the drive-thru. The drive-thru will utilize a voice enhanced microphone
system that will project sound in a limited radius to protect patient privacy and minimize
noise impacts. The noise resulting from the proposed drive-thru use is not expected to
generate negative impacts to the surrounding uses since the drive-thru is located away from
front entrances of other retail spaces and residential areas. In addition, large delivery trucks
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 20
shall be conditioned to drop off deliveries during
with drive-thru window operations (Resolution No
drive-thru window will be used for prescription
only.
non -peak hours in order to avoid conflicts
15-60 Condition 2.9). As conditioned, the
and over-the-counter medicine purchases
CUPs 2015-13, 2015-14 and 2015-15 — Retail
Commercial Drive-Thru (Buildings E, H, I -Alternate
use):
The proposed CUPs are to allow for three (3)
commercial/retail drive-thru uses. CUP 2015-13 is for
Building E (Figure 18), which is proposed to be a 24-
hour restaurant drive-thru use. The proposed
Building E is located along Valencia Avenue. The
drive-thru configuration includes stacking space for at
least seven (7) vehicles. The proposed use is not
expected to create noise impacts to the surrounding
uses since the building is a pad building and located
away from residential uses. As proposed, the drive-
thru for Building E will be a 24-hour operation.
CUP 2015-14 is for Building H (Figure 19), which is
proposed to be an ATM drive-thru in association
with a 3,324 square -foot retail bank building. The
proposed drive-thru ATM includes stacking space
for at least seven (7) vehicles in the single drive-
thru lane as required by TCC. The drive -up ATM is
located on the exterior building wall, under the
proposed canopy on the southwest side of the
building. As conditioned, the drive -up ATM area
will be adequately lit to provide visibility and
additional security elements for patrons.
CUP 2015-15 is for Building I (Figure 20), which is
proposed to be a restaurant drive-thru under the
alternative building design option. The current
proposal for Building I is to construct a 6,000
square -foot building with inline tenants. The
applicant has presented Ein alternative
configuration for Building I including a 4,500
square -foot building with a drive-thru component.
The proposed alternative design includes stacking
space for at least seven (7) vehicles, with the drive-
thru entrance and order microphone oriented
towards the interior parking lot area. This design
will minimize traffic and noise impacts to the
residential uses across Kensington Park Drive.
The applicant has requested a CUP approval for a
drive-thru use at this time in order to simplify and
Figure 18: Commercial Drive-Tlhru
BuMing E
Figure 19: Commercial Drive-Thru
BuHding H
Figure 20: Commercial Drive-Thra,u
Alternative Building l
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 21
expedite the entitlement process, should a drive-thru configuration and use be proposed in
the future. As conditioned, a new DR application and approval will be required if a drive-thru
is eventually proposed. Stand-alone DR applications may be submitted concurrently with
building plancheck and subject to review and approval by the Community Development
Director.
0 CUP 2015-16 — Master Sign Plan:
The proposed master sign plan (Attachment P, Exhibit B) is a comprehensive program to
address signage requirements for The Village at Tustin Legacy. The sign program includes
sign configurations and dimensions that differ from the City's Sign Code. Pursuant to MCAS
Tustin Specific Plan Section 3.12.1.E, an applicant may provide for a comprehensive sign
plan that differs from the City's Sign Code standards upon submittal and approval of a CUP.
00ANSSJONA i LETTERS TO .W -CH i.
nWAR, T,,D wALL
IVY 0. IIY.T CORTIN IUTOLY 966,
'nr 1It17r. Y-.;.- ,-..;t It..
Figure 21: Retail Plaza Corner Sign at Vaiencc a Ave./ Kensington Park ®r.
The proposed master sign plan takes into account the variety of architectural features
throughout the project and created signage standards that establish project identity themed
center -wide signage, enhance building fagades and allows for creative sign design. The
proposed master sign plan addresses center identification signage, supergraphic signs, a
pylon sign, portal entry signs, tenant signage and wayfinding signage.
Center identification signage is proposed in prominent locations such as street intersections,
project entries and along thoroughfares. The sign in Figure 21 is proposed for the southeast
corner of the Valencia Avenue and Kensington Park Drive intersection. The signage will be
comprised of dimensional letters, installed on the various wall surfaces and be externally lit.
The proposed signage creates a high end and sophisticated look by taking advantage of the
wall's 3-dimensional features, shadow effects and varying surface textures.
The master sign plan also proposes a pylon sign at the rear of the property, near Tustin
Ranch Road and the acute care/rehabilitation facility (Building M). The pylon sign is
proposed to be thirty-three (33) feet high, measured from grade and is located
approximately thirty-five (35) feet from Tustin Ranch Road. As proposed, the pylon sign will
be visible from Tustin Ranch Road (approximately 12 feet high from the Tustin Ranch Road
grade elevation) and identify the center and a medical anchor tenant (Figure 22).
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 22
Figure 22: P&n Sign
e
At a
hong
The master sign plan also proposes supergraphic signage (Figure 23) on Building I. The
proposed sign includes two (2) square panels that are fifteen (15) feet long each. The intent
of this space would be to feature seasonal/holiday graphics, community events, charitable
events or tenant signage. This type of signage provides opportunities for increased visibility,
periodic aesthetic changes and community benefit all within an established format. As
conditioned, the supergraphic shall be modified to be ten (10) feet wide by ten (10) feet high.
4
Figure 23: Sup orgrap hic Feature Panep
The master sign plan incorporates standards for tenant signage that encourage creative and
high-end designs and includes design guidelines. Tenant signs may utilize various material
such as sculpted wood, fabricated steel or metal mesh to creat; unique and expressive wall
signage. Signage lighting may also serve to enhance the sign through halo lighting,
gooseneck lighting or silhouette illumination. The master sign plan further promotes high
quality signage by including a page with sample signage and lighting designs.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 23
F -A -R M
WPMiUK. on
. lir!. Mg
D�nwnelcaiol Lettwr< _ teve �nepro -
E
-'Ch,, Lit
3 , �� i
1
_rate&Barrel
cistoot
Dur. n i . .�, ..:i. l' Pnn Clualnel tnte.m".r Ui P.- :i , I. t
Figure 24: Examples of sign design and lighting
The proposed master sign program is unique for the center and caters to various sign
elements. The proposed sign size, location, height, and type of graphic are appropriate for
the center and complement the proposed modern barn like architecture.
CUP 2015-17 — Preschool/Childcare (Building A):
The proposed preschool and childcare use involves an 8,000 square -foot building and a
minimum 10,968 square feet of outdoor play area. The proposed tenant is Great
(Foundations Montessori. The proposed use will provide the community with additional
childcare options and have an enrollment capacity of a total of 146 children, including 138
children aged two (2) years to six (6) years and eight (8) infants aged six (6) weeks to
twenty-four (24) months old. A total of seventeen (17) staff members will be employed at
the childcare center. The childcare facility is proposed to have one (1) room for infants, six
(6) rooms for preschool children, offices, reception area, kitchen, storage and restrooms.
♦ » tc r . •
-- t
Figure 25: Preschool/Childcare (Building A)
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 24
The proposed childcare center intends to utilize policies, procedures and the Procare
Software's Keyless Entry System to implement controlled access to the facility and ensure
safety. Peak drop-off and pickup hours will also be physically monitored by staff. Parking
spaces are provided adjacent to the building and allows for convenient drop-off and pickup
of children from the facility.
The proposed business hours for the childcare facility are 7:00 a.m. to 6:00 p.m., Monday
through Friday. The childcare location is not adjacent to residential uses, and therefore
noise impacts to residents are not anticipated. The acute care/rehabilitation facility is
located near the proposed daycare facility, however impacts to facility patients are not
anticipated since the childcare facility is separated by parking area and drive aisle will be
closed between 6:00 p.m. and 7:00 a.m.
As conditioned, the preschool and childcare use will maintain a maximum enrollment of 146
children and is subject to the City's Noise Ordinance and will be required to develop and
implement a drop-off and pickup policy.
• CUP 2015-23—Joint Use Parking (Parcels 10, 11, 12 and 13):
The applicant has requested a Joint Use Parking CUP for the Medical Plaza (Parcels 10, 11,
12 and 13). The Medical Plaza area requires 610 parking spaces for the four (4) buildings
comprising of 150,000 square feet of gross floor area. The proposed site plan provides 619
parking spaces, which exceeds the minimum number required for the medical plaza as a
whole. However, the Medical Center building (Building K, Parcel 12) requires 360 parking
spaces but provides 312 parking spaces within its parcel.
The applicant has submitted a parking study (Attachment G, Exhibit B) that analyzes shared
parking within the Medical Plaza, including peak demand for the variety of uses in the Plaza.
The study states that the peak weekday use would generate a demand of 598 parking
spaces and a weekend use demand of 584 parking spaces. Based on the analysis, the
Medical Plaza's proposed 619 parking spaces will accommodate the proposed medical
uses. As conditioned, a reciprocal access and parking easement will be required for Parcels
10, 11, 12 and 13. In addition, a provision addressing shared parking in the CC&R will be
required.
Noise
The applicant submitted a noise analysis (Attachment G, Exhibit C) that studied the levels from
existing conditions and levels resulting from the development and operation of the proposed
commercial center. The study accounted for exterior noise generated from vehicle traffic and
railroad operations. The study states that changes in noise levels greater than three (3)
decibels (dB) are often identified as significant and changes less than one (1) dB will not be
discernible to local residents. In the range of one (1) to three (3) dB, residents who are very
sensitive to noise may perceive a slight change. According to the study, there would be no
increases in traffic noise level greater than 3 dB due to the project, and therefore the project will
not result in significant traffic noise impacts since the increase in noise levels will not likely be
discernible to the general public.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 25
Table 8 of the noise analysis report shows the maximum noise exposure levels allowed for each
building and the "worst case noise exposure" levels. The City's Noise Ordinance (TCC Section
4614(b)(5)) states that exterior noise levels that are twenty (20) dB above the Noise Zone
standard are considered a violation of the Noise Ordinance. The report states that the noise
level at Buildings K and L, which are located along Edinger Avenue, exceed the twenty (20) dB
threshold and the buildings will require further studies with detailed engineering calculations to
determine the type of construction design and materials needed to adequately attenuate noise.
As conditioned, the applicant must submit updated studies for Buildings K and L and
demonstrate that the building design adequately reduces noise levels.
Other Agencies Input
In compliance with State Subdivision Map Act, the City sent out letters along with a copy of the
Tentative Tract Map, of affected agencies. In response, three (3) agencies provided comments
(Attachment D).
• RSCCD Comment: The Rancho Santiago Community College District (RSCCD)
inquiring if the construction operation or ongoing operation of the project will impact
traffic along Warner Avenue or Armstrong. RSCCD also asked that they be notified on
subsequent development steps, including further planning and environmental notices for
approval.
•
City Response: The project site is surrounded by Edinger Avenue to the north, Tustin
Ranch Road to the east, Valencia Avenue to the south and Kensington Park to the west.
Construction and operation traffic are anticipated to utilize these major streets.
Therefore, it is not anticipated for the construction and post construction (operation)
traffic to pose any traffic impact along Warner or Armstrong Avenue. RSCCD has been
added to the mailing list of future planning and environmental notices of this project.
• SCE Comment: Southern California Edison (SCE) advised that the proposed map will
not unreasonably interfere with the free and complete exercise of any easements and/or
facilities held by SCE. In the event that the development requires relocation of facilities
on the property, which facilities exist by right of easement or otherwise, the
owner/developer will be requested to bear the cost of such relocation and provide
Edison with suitable replacement rights.
City Response: Comment noted and a condition of approval related to SCE facilities
relocation if any has been included.
• City of Irvine Comment: The City of Irvine (COI) requested that the City confirm that
the proposed land uses are consistent with the City's approved specific plan and future
Specific Plan Amendment. In addition, COI asked for clarification if the improvements
along Valencia Avenue, Kensington Park Drive and Edinger Avenue will be completed in
the interim year when the 98,292 SF of commercial retail is expected to be completed to
ensure that intersection improvements in the COI's traffic model are updated to reflect
the expected conditions.
City Response: The proposed land uses at the project site are consistent with the
MCAS Tustin Specific Plan and future Tustin Legacy Specific Plan Amendment. All
improvements along Valencia Avenue, Kensington Park Drive and Edinger Avenue will
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 26
be completed upon the completion of the commercial retail portion of the project site as
per the DDA for the project.
John Wayne Airport: John Wayne Airport (JWA) commented that the proposed
development will not unreasonably interfere with the free and complete exercise of the
JWA Avigation Easement and that the applicant must file and receive approval of an
application and notice of construction from airport and air traffic agencies.
City Response: Comment noted and a condition of approval related to filing an
application and notice of proposed construction with airport and air traffic agencies has
been included.
Public Input
At the August 25, 2015, Planning Commission meeting, two (2) city residents provided
comments during the public input period of the hearing. One resident opposed the project and
expressed concerns about parking, lighting, noise, traffic, that there is no value in retail space,
and preferred to use the property for a dog park and housing for seniors or those with a fixed
income. Another resident also opposed the project and expressed concerns about the
architectural style of the medical plaza, uses, landscaping and traffic. The residents' comments
are summarized in the Planning Commission Minutes (Attachment E).
Since the Planning Commission meeting, the City has received input from residents who are in
support of the project but expressed concern about 24-hour restaurant operations, late night
loitering, vandalism, noise from cars and menu board speakers, and urge the City Council to
require the drive-thru restaurant to close at midnight or earlier (Attachment F).
In response to these concerns, conditions have been added requiring restaurant businesses to
close at 12:00 a.m. (midnight) daily. This condition is consistent with operational hours of
restaurant uses that are in close proximity of residential neighborhoods.
Environmental Review
On January 16, 2001, the City of Tustin certified the Program FEIS/EIR for the reuse and disposal
of MCAS Tustin. On April 3, 2006, the City Council adopted Resolution No. 06-43 approving an
Addendum to the FEIS/EIR. On December 6, 2004, the City Council adopted Resolution No. 04-
76 approving a Supplement to the FEIS/EIR for the extension of Tustin Ranch Road between
Walnut Avenue and the future alignment of Valencia North Loop Road. On May 21, 2013, the City
Council adopted Resolution No. 13-32 approving a second Addendum to the Final EIS/EIR in
conjunction with the South Orange Community College District project. The Final EIS/EIR as
amended by the Supplement and the Addendums is referred to herein as the "FEIS/EIR." The
FEIS/EIR along with its Addendum and Supplement is a program EIR under the California
Environmental Quality Act (CEQA). The FEIS/EIR, Addendums and Supplement considered the
potential environmental impacts associated with development on the former MCAS Tustin.
The applicant submitted a focused traffic analysis and trip generation study that specifically
looked at the traffic patterns and volumes of the proposed development. The Public Works
Department reviewed the studies and determined that the proposed development is within the
thresholds identified in the FEIS/EIR.
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 27
An Environmental Checklist (Attachment G, Exhibit A) has been prepared and concluded that the
proposed actions do not result in any new significant environmental impacts or a substantial
increase in the severity of any previously identified significant impacts in the FEIS/EIR. Moreover,
no new information of substantial importance has surfaced since certification of the FEIS/EIR.
Planning Commission Action
On August 25, 2015, the Planning Commission considered the project and adopted Resolution
Nos. 4285 through 4293, as modified, recommending that the City Council approve the proposed
project. The Planning Commission, at the hearing, stated that the architecture of the proposed
medical center and acute care/rehabilitation buildings (Buildings K and M) should have enhanced
design elements and made complementary to the retail center; and additional landscaping along
Kensington Park Drive should be provided as a buffer between the nearby residential
neighborhoods. Revised elevations and Conditions 3.13 and 4.3 of Resolution No. 15-58 address
the Planning Commission's direction. These changes have been or are being addressed.
CONCLUSION
The proposed project is consistent with the MCAS Tustin Specific Plan and the General Plan
and would not have any significant impact to the overall development potential currently
allowed. Accordingly, staff recommends that the City Council approve the project.
_.Iaii. ./' ii. ./ 4
EdmelynrQHutter Elizabeth A. Binsack
Senior Planner Director of Community Development
Attachments:
A. Location Map
B. Applicant's Project Description
C. Submitted Plans
D. Other Agencies Comments
E. Planning Commission Minutes of August 25, 2015, and Resolution Nos. 4285 through 4293
F. Written Public Input
G. City Council Resolution No. 15-57 (Environmental)
• Exhibit A: Environmental Checklist
• • Exhibit B: Parking Study
• Exhibit C: Noise Study
H. Ordinance No. 1460 (Specific Plan Amendment 2015-02)
I. Ordinance No. 1461 (Development Agreement 2015-001)
J. City Council Resolution No. 15-58 (CP 2015-003, TPM 2015-127, and DR 2015-014)
K. City Council Resolution No. 15-59 (CUP 2015-11; Acute care/Rehabilitation)
L. City Council Resolution No. 15-60 (CUP 2015-12; Pharmacy Drive-Thru)
M. City Council Resolution No. 15-61 (CUP 2015-13; Restaurant Drive-Thru use)
N. City Council Resolution No. 15-62 (CUP 2015-14; Bank Drive-Thru)
City Council Report
October 20, 2015
The Village at Tustin Legacy.
Page 28
0. City Council Resolution No. 15-63 (CUP 2015-15; Restaurant Drive-Thru)
P. City Council Resolution No. 15-64 (CUP 2015-16; Master Sign Plan)
• Exhibit A: Conditions of Approval
• Exhibit B: Master Sign Plan Document
Q. City Council Resolution No. 15-65 (CUP 2015-17; Preschool/Childcare use)
R. City Council Resolution No. 15-66 (CUP 2015-23; Joint Use Parking)