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17 WORK PRGM - ULI AGENDA REPORT 04-17-07
~, Agenda Item 17 AGENDA REPORT Reviewed: City Manager Finance Director MEETING DATE: APRIL 17, 2007 T0: WILLIAM A. HUSTON, CITY MANAGER FROM: CHRISTINE A. SHINGLETON, ASSISTANT CITY MANAGER SUBJECT: WORK PROGRAM TO INSTITUTE ADVISORY TOWN CENTER BEGIN IMPLEMENTATION OF URBAN LAND PANEL RECOMMENDATIONS FOR TUSTIN SUMMARY: Authorization is requested for Staff to proceed with an initial work program to begin implementing certain major ULI Panel recommendations for the Tustin Town Center. RECOMMENDATION: It is recommended that the City Council: 1. Authorize staff to proceed with the initial work program to implement certain major ULI Panel. recommendations for the Tustin Town Center, and authorize the City Manager or his representative to execute any necessary consultant services agreements within the projected cost estimates provided herein, for preparation of a Refined Market Analysis and Neighborhood/Concept Plans for the priority phases, subject to City Attorney review and approval of any agreements. 2. Appropriate $35,000 for preparation of the Refined Market Analysis from un- appropriated fund balances in the South Central, South Central Housing Set-Aside, and Town Center Redevelopment projects to the following accounts: $14,000 in account 52-600-6010, $14,000 in account 53-600-6010, and $7,000 in account 58-600-6010, 3. As work progresses on the preparation of the Neighborhood/Concept Plans, instruct staff to return with a more refined work program for .General Plan, major zoning or overlay zoning modifications necessary to implement the Neighborhood/Concept Plans, including new development standards and any necessary environmental impact analysis and documentation. Page 2 FISCAL IMPACT: It is estimated that the initial costs to prepare a Refined Market Analysis and Neighborhood/Concept Plans will be approximately $155,000. Since work on the NeighborhoodlConcept Plans will not likely proceed until Fiscal Year 2007-08 after work on the Refined Market Analysis is underway, only the estimated cost of $35,000 for the market analysis will need to be appropriated at this time with the remainder of the costs to be included in the Fiscal Year 2007-08 budget. BACKGROUND: At the invitation of the City of Tustin, an Urban Land Institute (ULI) Advisory Panel was convened in June of 2006 to evaluate infill development opportunities for the expansion of residential housing and for commercial revitalization activities within the central potions of Tustin, identified as the "Tustin Town Center". More specifically, the panel was asked to address redevelopment strategies and conditions that would provide market-driven solutions for improving three neighborhoods within Tustin's Town Center: Center City, the Southern Gateway, and the West Village. The final report recently released by ULI, and distributed to members of the City Council, summarized the panel's key recommendations and observations. The panel's recommendations were also framed with the understanding that the City desires to avoid the use of eminent domain, to minimize commercial and residential dislocations, and to use creative techniques including, but not limited to, overlay districts to initiate alternative densities and uses. As a follow-up to the ULI Advisory Panel recommendations, akey team of management representatives including the City Manager, Assistant City Manager, Director of Community Development, Director of Public Works, Director of Parks and Recreation Department, Police Chief, and Communication Manager have met several times to discuss and review the ULI recommendations in an approach to beginning the process necessary to implement major recommendations contained in the report. This has included outlining a subsequent initial work program with. tasks, schedules and an anticipated initial budget. Attached for the City Council's review and feedback is the recommended outline of the proposed work program including the recommended priority, schedule, departments assigned to each task and estimated budgets. The ULI panel evaluated the City's three recommended study areas and recommended combining and adding to the original study areas to create a much larger study area. However, recognizing the effort and cost involved in working with property owners and residents in developing neighborhood concept plans for portions of the larger study area, City staff concluded that the larger area still needed to be broken down into priority areas that would be initially addressed. The first priority phases identified in the work program are shown in Attachment 2. As outlined in Attachment 1, the work program for the priority phases would involve the following major tasks: Page 3 1. Preparation of a Refined Market Analysis for the priority phases; 2. Preparation of Neighborhood/ Concept Plans; 3. Undertake Aggressive Property Maintenance Efforts, Neighborhood Improvement Task Force activities and continued community governance activities, and; 4. Implementation of general plan, major zoning or overlay zoning modifications or recommendations. While the market potential of the study areas were broadly described in the ULI Report, City staff were frankly disappointed and felt that the panel did not answer important questions such as what will drive the type of land uses and densities permitted within the study area. As a result, we believe it is critical that a more detailed market analysis be conducted for the initial priority areas to assess market conditions, existing and future supply and demand for certain uses, and to conduct a feasibility test to determine the appropriate mixes of uses and the best places for them in the study area. After completion of the Request for Proposal for the Refined Market Analysis and selection of the preferred consultant, work on the market analysis should be completed within a 90-120 day time frame. It is expected that after a similar process for selection of a planning and design firm for the NeighborhoodlConcept Plan preparation, and after completion of the market analysis (which is a key input to the plan preparation process), completion of the Neighborhood/Concept Plans will take approximately 120-160 days. This process will also include public works and traffic analysis testing to determine the capacity of infrastructure to accommodate any recommended redevelopment concepts. During preparation of the Neighborhood/Concept Plans, a more defined work program will be developed for General Plan and major zoning modifications to implement the plans including new development standards, any necessary environmental impact analysis and documentation, and identification of additional financial resources necessary for implementation. It is currently estimated that the cost for the market analysis will be approximately $35,000, approximately $100,000 for the Neighborhood/Concept Plans and an additional $20,000 for any public works infrastructure review and traffic analysis. r Christine A. Shingleto Assistant City Manag ATTACHMENT1 L ~', 0 L a~ ~m L 0 ~~ J ~~ ~ ~ ~ ~~ ~ v ~N n O ^~ O r-I c}d.~ W r0 R~ ~, 0 0 b ~ - - ~ ~ pN +~ ~ ~O ' ~ ~ ~ ~ r O ~. cn ~N 0 ~ ~N ._ ~~~Qc~~N ~ * + _ U~> s N~ ~ ~ Gov aa~~ ~ •=~.°n coo c~ ° a~ ~ a ~ ~ ~ ~o°~ ~ c~ ~a a~ a~ E~ a i. 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N ~~ 0 0 3 0 a~ 0 ~ N ~ ~ N N ~ > ~ r ~ 0 ~- ~ N~ ~ ~ m C 0 m d ~ N O V [ N r N ~ • Q~ N ~ U Q~ .'~'j ~ ~~ Q~ . ~ U ~ U Q~ ~ U U ~ ' ~- ~ ~ o~ , ~ ~ ~ 00 ~ N t0 r r Q N • N ~ N M c~ ~b 0 ~. 0 w 0 a~ a 0 ATTACHMENT 2 ~~ ~~ "~ ~'~r' } ~~ ~ ~ ~~r. ~ ~ ~. fl~ `~ ~ ~ ~ ~+ Q f~i '~ ~ ~ W ~ ~~,. ,~ ,, ~+ ~+ to ,. ~~o ~ ~ a, ~r, ~,' ~ z~ tr ~ ~ TI U L ~ d. # ~ ~~ ~~ ~~// ~ L as .- ~_ ~ ,~~'~a, a~,,~;, µ Via, r k~ ~ ~ ~ O O a~ ~r .~ ~~ ~` k ~ ~ "~ ~~~~ /~ ~0 ~ ~p, 4i ~ ^ ~ti q 3""' °~..: ~ 'r ~' 1 ~ ..... Y .. .. .. ~. ;~"y`y ~.: ~~ f .. t:. .,... ~,..,, j :: ..:. ~.. .. .. .. ...... .. .. ,.' . t:' .. .. ...,. :....ems.. .. ,. -. ... .~. .'. .. ... "K .. ., .. .. .i ~ ".. •\. lfl~Mit~15 .................. ... ... ... .. :..'~ K ' .. .::':..::. ~ y. ~ ~ i.' x. t .. ~; r ~~ ...... .. x { ~~ ~ e. ~~ .. .; 1 ., .. .,. , r ~ w ~ x .. ,~ 'x r ~~ ..:.........................x::..% ;.. .x:.:.... .. •~.rw.~ .. ..... ..... aii ~, ~ ~ ,y ~ ~ ~ ~ : ~.~ ~ ~, ~ ~ ~ W ~ ~ :: ~~~ .~ .~ UI ~ ~ ~ ~ ~ ~ ~ f '~ ~. Y ~ i • E ~++,~` uw ,~ ~~u~7.~r v u~ Y r .•v v r> ,k Yn~!+»~ v% a ua+gr, vr~r yr sG,u,:~, . r ~~ ~ ~iYi rl/1 ~ ~i yt" ~2 , '~eA,~j'(~r~% ~ S"~ Yt'3+11 A{'L i Rh $~ ~''r ti ' M ~ ~ ~~~~ ~ ~ ~ .~ tL ~~ ~ t~ } 3A_ ..M 1h ,,. ~ ,.FC f 1M. Ak rNY 1H 1~ q~ f ,, . ~~~f~{fdd3iW..~'. `~';'t~iQ~fFh'tt~tilt~' • ~.:. .r ATTACHMENT 3 ULI ADVISORY PANEL REPORT URBAN LAND INSTITUTE ULI REPORT ADVISORY SERVICES PANEL REPORT TUSTIN CALIFORNIA APRIL 17, 2007 Tustin California Evaluation ot Infill Development Opportunities June 11-16, 2006 An Advisory Services Panel Report ULI-the Urban Land Institute 1025 Thomas .Jefferson Street, N.W. Suite 500 West Washington, D.C. 20007-5201 About ULI-the Urban Land Institute U LI-the Urban Land Institute is a non- profit research and education organiza- tion that promotes responsible leadership in the use of land in order to enhance the total environment. The Institute maintains a membership represent- ing a broad spectrum of interests and sponsors a wide variety of educational programs and forums to encourage an open exchange of ideas and shar- ing of experience. ULI initiates research that an- ticipates emerging land use trends and issues and proposes creative solutions based on that re- search; provides advisory services; and publishes a wide variety of materials to disseminate infor- mation on land use and development. Established in 1936, the Institute today has more than 34,000 members and associates from 90 coun- tries, representing the entire spectrum of the land use and development disciplines. Professionals rep- 2 resented include developers, builders, property owners, investm's, architects, public officials, planners, real estate brokers, appraisers, attor- neys, engineers, financiers, academics, students, and librarians. ULI relies heavily on the expe- rience of its members. It is through member in- volvement and information resources that ULI has been able to set standards of excellence in development practice. The Institute has long been recognized as one of America's most respected and widely quoted sources of objective informa- tion on urban planning, growth, and development. This Advisory Services panel report is intended to further the objectives of the Institute and to make authoritative information generally avail- able to those seeking knowledge in the field of urban land Use. Richard M. Rosan President @2006by ULl-the Urban Land Institute 1025 Thomas Jefferson Street, N.W. Suite 500 West Washington, D.C. 20007-5201 An rights reserved. ReproductioTl or use oftlle whole or any part oCthe contents without written permission of the copy- right holder is prohibited. Cover photo by Nichola::; Gabel An Advisory Services Panel Report AbDUl ULI Advisory Services The goal of ULI's Advisory Services Program is to bring the finest expertise in the real estate field to bem' on complex land use plan- ning and development projects, programs, and policies. Since 1947, this program has assem- bled well over 400 ULI-member teams to help sponsors find creative, practical solutions for issues such as downtown redevelopment, land management strategies, evaluation of develop- ment potential, growth management, community revitalization, brownfields redevelopment, mili- tary base reuse, provision of low-cost and afford- able housing, and asset management strategies, among other matters. A wide variety of pnblic, private, and nonprofit organizations have con- tracted for ULI's Advisory Services. Each panel team is composed of highly qualified professionals who volunteer their time to ULI. They m'e chosen for their knowledge of the panel topic and screened to ensure their objectivity. ULI's interdisciplinary panel teams provide a holistic look at development problems. A re- spected ULI member who has previous panel experience chairs each panel. The agenda for a five-day panel assignment is in- tensive. It includes an in-depth briefing day com- posed of a tow' of the site and meetings with spon- sor representatives; a day of hour-long interviews of typically 50 to 75 key community representa- tives; and two days offoDnulating recommenda- tions. Many long nights of discussion precede the panel's conclusions. On the final day on site, the panel makes an oral presentation of its findings and conclusions to the sponsor. A written repOl1 is prepared and published. Because the sponsoring entities m'e responsible for significant preparation before the panel's visit, including sending extensive briefing materials to each member and arranging for the panel to meet with key local community members and stake- holders in the project under consideration, partici- Tustin. California, June 11-16. 2006 pants in ULI's five-day panel assignments are able to make accurate assessments of a sponsor's issues and to provide recommendations in a com- pressed amount of time. A major strength of the program is ULI's unique ability to draw on the knowledge and expel1ise of its members, including land developers and own- ers, public officials, academicians, representatives of financial institutions, and others. In fulfillment of the mission of the Urban Land Institute, this Advisory Services panel report is intended to provide objective advice that will promote the re- sponsible use ofland to enhance the environment. ULI Program Stan Rachelle L. Levitt Executive Vice President, Policy and Practice Mary Beth Corrigan Vice President, Advisory Services and Policy Programs 'Ibm Eitlel' Director, Advisory Services Nicholas Gabel Senior Associate, Advisory Services Carmen McCormick Panel Coordinator, Advisory Services Yvonne St:mton Administrative Assistant Nancy H. Stewmt Director, Book Program Lise Lingo/Publications Professionals, LLC Manu.<;cript Editor Betsy VanBuskirk Art Director Martha Loomis Des.ktop Publishing Specialis.tJGraphics Kim Rusch Graphics Craig Chapman Director, Publishing Operationj; 3 Acknowledgments On behalf of the Urban Land Institute, the panel would like to thank the city of Tustin for inviting us to assist them in the plan- ning and redevelopment efforts of the Cen- ter City, West Village, and Southern Gateway neighborhoods. Special thanks are extended to Mayor Doug Davert, Mayor Pro Tern Tracy Wor- ley Hagen, and Council members Jerry Amante, Lou Bone, and Tony Kawashima for their vision and leadership in involving ULI in the planning process. Their dedication, wisdom, and leader- ship are examples of what makes 1ustin a vibrant community. Special thanks go to Christine Shingleton, assis- tant city manager; Elizabeth Binsack, community development director; Tim Serlet, public works director; Pattick Sanchez, parks and recreation director; and Scott Jordan, chief of police, as well 4 as other SUPPOlt staff in various city departments who were involved in the preparation for this panel. The countless houl's that they spent preparing for, informing, aud assisting the panel were tl1lly ap- preciated. Their hard work and dedication is an asset to the city of Tustin. In all, the panel had the opportunity to interview more than 50 community stakeholders, all of whom provided valuable and insightful informa- tion. The interviewees included government offi- cials, residents, business leaders, developers, property owners, and community activists. Their shared perspectives were essential to the panel process. This group of stakeholders is a major asset in advancing and maintaining the interests of this community. An Advisory Services Panel Repon Contents ULl Panel and Project Staff Foreword: The Panel's Assignment Market Potential Planning and Design Development and Implementation Strategies Conclusion About the Panel 6 7 9 19 26 38 40 Tustin, California, June 11-16, 2006 5 ULI Panel and Project Stan Paul D. Charles Executive Director Neighborhood Recovery Community Development Corporation Houston, Texas Victor Karen Director of Advisory Services RF Walsh Company, Inc. Boston, Massachusetts R. Tel'l'Y Schnadelbach Professor and Chairman University of Florida Depaltment of Landscape ArchitectUl'e Gainesville, Florida Richard Shields Partner Mesa Development Chicago, Illinois Christine Villa Special Projects Coordinator City of San Antonio Planning Department San Antonio, Texas Panel Chair Richard J. Dishnica President The Dishnica Company L LC Point Richmond, California Panel Members Ray Brown President Ray Brown Consulting Memphis, Tennessee ULI Project Director Nicholas Gabel Senior Associate, Advisory Services ULI On-Slle Coordinator Alan S. Levine Deputy Exective Director Seattle Housing Authotity Seattle, Washington Clair Wooley Editotial Assistant 6 An Advisory Services Panel Report Foreword: The Panel's Assignment At the invitation of the city of 'JUstin, a ULI Advisory Services panel was convened to evaluate infi]] development opportunities for the expansion of residential housing and for commercial revitalization activities. Background Throughout its history, 'JUstin has been defined by its role within the context of Orange County and the region. Initially a farming community, 'JUstin built its economy and identity on agricul- tm'e after the turn of the last century. Home to thousands of acres of aplicot, orange, and walnut groves, Tustin was a regional agricultural center providing fruits and vegetables to the state of California and beyond. With the advent of World War II, 'JUstin began its first major transfOlma- tion, from a small agri- cultural community to a rapidly growing subur- ban city. During the war, three military bases were located within or in close proximity to the city. These military in- stallations were the im- petus for hundreds of businesses and thousands of people moving to the city to work in the war and postwar industries. The robust growth began to replace the fruit groves as 'JUstin began to change into a suburban community. The Marine Corps Air Station 'JUstin and the rapidly suburbanizing Orange County were the major economic and growth engines for the city throughout the 1980s. With virtually all the fruit groves now gone, 'JUstin is almost completely built out and experiencing growth-related problems such as traffic and congestion, overcrowded schools, and loss of open space. Tustin, California. June 11-16, 2006 In the early 1990s, Marine Corps Air Station 'JUstin was placed on the Base Realignment and Closure Act list. With great foresight, the commu- nity realized the value of the 1,600 acres of virtu- ally undeveloped land within the city and within increasingly built-out central Orange County. The community immediately began to plan for the base's reuse and the subsequent community transforma- tion. In 1999, the air station closed and the city began the long and challenging process of using the former base (renamed the Tustin Legacy proj- ect) to create much-needed community assets such as housing, open space, commercial space, and en- tertainment opportunities. After the closure of the base, 'JUstin experienced the shOlt-term innpacts of military personnel and the affiliated workforce leaving the city. This left vacant rental housing in 'JUstin's older apart- ment neighborhoods. A rapidly growing Latino population in search of housing quickly occupied housing units made avail- able from this transition. Unfortunately, what were once stable apart- ment neighborhoods have become overpopulated and have also fallen into disrepair because of the lack of reinvestment in the aging housing stock. Tbday, 'JUstin is in the midst of a transformation from a sleepy suburban community to an increas- ingly urban city. The changing demographics in the older apartment neighborhoods and the op- portunities in the 'JUstin Legacy project will for- ever change the city's identity. 'JUstin is faced with the challenge of incorporating new growth at 'JUstin Legacy while welcoming a new popula- tion into the community and strengthening the older neighborhoods. Tustin's past 1$ roo led In ils agricultllralllistory. 7 Locallon mop. t d,~_~_~._-~ ~ I' .1 10 All 0 c I) I' I.' 1'_ N E V A D a .sacrament~", \~ .". San FranclSc ~'t! .san Jose "- '" Fresno, ,.. \':AllfORNIA ....'\, ,...... .Bakersfield ~I'l i \~ "ot::.<>.~.LO AI1Preles !p Long Beadt-- '~I~~ i: ." r 'I' San Oieg .....~.."..,:...,_..T""' "II E X I CO '.,. The StudY Areas The most significant population aud housing changes have occurred in the past 15 years with the influx of Latino households and a concentration of work- force households in the single-family, manufac- tm'ed housing, and rental propelties in the west and southwest sections of the city. This population growth and concentration of low-income families has primarily been focused on the older apartment neighborhoods, The panel has been instructed to address redevelopment strategies and conditions that would provide market-driven solutions to im- proving three neighborhoods: Center City, South- ern Gateway, and West Village, Center City The Center City study area is located between Sixth Street and San Juan Avenue on the north, Browning Avenue on the east, and El Camino Real and 1-5 on the south and west. This 210-acre area has a mix of low-density single-family homes, strip retail, garden office, public institutional, and light-industrial uses, Most of the development in this area was built out during the 1960s and 1970s. Southern Gateway The Southern Gateway study area is located east of SR-55, south of 1-5, west of Red Hill Avenue, 8 and north of the current southern terminus of Newport Avenue. This area primarily contains multifamily residential housing units that were constructed in the 1960s and 1970s. A commercial strip is located along Ne\\1J01t Avenue, as is the new Arbor Walk condominium project. West Village The West Village study area is located east of the Tustin-Santa Ana border and west of SR-55 between McFadden Avenue on the south and Main Street on the north. This area contains a mixture of large- and small-scale multifamily resi- dential housing units and three manufactured bome communities. The development in this area is of 1960s and 1970s vintage. The,'e are very few com- mercial uses in this area and very few vacant parcels of land. The Assignment With the Tustin Legacy project finally underway, the city began to refocus its planning efforts on its older central and southwestern neighborhoods. Members of the city council and city staff began conversations about possible solutions to combat the overcrowding, lack of open space, and detelio- rating conditions in the study areas. The panel was asked to provide input on regulatory policy enhancements that will empower and energize the private sector to find market-driven solutions to the housing crisis in the study areas. These en- hancements include incorporating new thinking about mixed land uses and increased densities, and streamlining the planning and development process to make Tustin more competitive in the marketplace. The panel has studied the issues and framed its recommendations with the understanding that the city desires to avoid the use of eminent domain; to minimize commercial and residential dislocations; and to use creative techniques, including but not limited to overlay distlicts, to initiate altemative densities and uses. The panel was also asked to provide solutions to traffic and crime problems where evident in the study areas. An Advisory Services Panel Report The UU Process Before alTiving in 'lUstin, the panel received a briefing book that included history and back- ground information on the city; demographic and market information for the county, the city, ,md the three study areas; descriptions of upcoming and proposed projects in the city; and an overview of the planning and development review process. When the panel members arrived in 'Illstin, they were briefed by representatives from the city manager's office, community development depart- ment, redevelopment agency, public works de- partment, parks and recreation department, and police depaltment. Panelists toured the three study areas to see the existing conditions and development potential. They then met with community leaders and stake- holders who explained the work that they are doing in the community, described theu' successes and challenges, and shared their hopes for a better Thstin. After spending the next two days examin- ing the issues, discussing ,md debating solutions, Tustin, California, June 11-16, 2006 .- -~ ~ . . -- ,0 ..C'. /,Y. /C' OC' ".. ? and framing recommendations, the panel resented its findings and recommendations to the ThstUl City Council and the general public. This report summal'izes the panel's key recommendations and observations. ReQion31 map. 9 Market Potential Tustin began its transformation from an agri- cultUl'al community with the opening of the Marine Corps Air Station during World War II. Centrally located in the heart of Orange County, Tustin is a great community to live and work in. It enjoys excellent access to interstates and regional highways, which position the city close to more than 75,000 jobs within a ten-minute drive. Interstate 5 bisects the community east- west, connecting the city to Los Angeles and San Diego. State route 55 connects it to the communi- ties of Santa Ana, Irvine, Costa Mesa, and the coastal community of Newport Beach, and to mountain communities to the east. The population of Tustin has grown with the oper- ation of the base, from 32,000 in the early 1970s to more than 70,800 in 2006. This population growth occun'ed in specific phases in response to annexa- tions and, more recently, the redevelopment of the Tustin Legacy project. The Combined ULI Study Area This population growth and the concentration of low-income families in the western neighborhoods create both opportunities for and challenges to de- velopment interest in large areas. They also cre- ate oppOltunities to provide affordable housing in the city and a chance to transition renters into homeownership. The challenges are the quality of the housing stock, the housing policy, code en- forcement and property management, and severe overcrowding. The panel was instmcted to address redevelop- ment strategies and conditions that would pro- vide market-driven solutions for improving three neighborhoods: Center City, Southern Gateway, and West Village. Although the market and social environments of these neighborhoods are affected by the changing demographics and housing shOlt- ages in the city, the consequences and impacts of 10 realizing the market potential of these areas affect a larger area and greater economic issues in Tustin. The panel evaluated these areas and concluded that it was more appropriate to combine the city's proposed study areas into one study area that bet- ter defines the area of influence and OPPOltunity for the panel's analysis and recommendations. The new study area is generally located south of First Street, east of the Tustin-Santa Ana border and SR-55, north of Edinger Avenue, and west of Red Hill and Browning Avenues. Key Community Issues: High Demand lor Housing and Retail Tustin is rising on the tide of strong economic and population growth in Orange County and the suc- cessful redevelopment of Tustin Legacy, the for- meI' Mm'ine Corps All' Station. Its central location in. the county, strong adjacency and transportation access to major employment centers, and historic and varied neighborhoods all m'e attracting inter- est. To address the potential impacts and opportu- nities created by this strong market demand, the city asked the panel to consider and recommend how these market forces and opportunities can be better used to improve the quality of life and char- acter of the city. The opportunities for and market potential of new development have a strong foundation in the economic and geographic advantages of Tustin. Several new developments have been completed, are under consideration, or have elicited signifi- cant interest: . The 63-unit Arbor Walk residential townhouse development completed on N ewpOlt Avenue south of Walnut Avenue; . A 93-unit residential townhouse development along El Camino under constmction west of Redhill Avenue; An Advisory Services Panel Report -~"JL ~ . Assembly of small rental residential complexes, individually owned, into larger managed rental complexes; . New retail at N ewport Avenue and I -5; and . A 259-unit senior luxury apartment complex proposed on Red Hill Avenue north of EI Camino. These projects demonstrate the market capacity and consumer interest in new development; how- ever, these small and disconnected efforts are merely reactions to the market, not a response to a broader community vision in Tnstin. The estab- lishment of neighborhood plans that define the community's vision would serve as the basis for creating zoning overlay districts to address design Tustin, California, June 11-16, 2006 standards, densities, and incentives for the rede- velopment of properties-which would in turn in- crease market interest and improve the quality of the community. With today's strong housing demand and growth and the range of housing diversity and housing prices in Tnstin, there is great interest in Tnstin as a place to invest and develop. The current market conditions will support several kinds of development. Wide Range of Housing Types and Income Levels The need for workforce housing, for both rental and for-sale units, is great. Absorption rates for housing sold at market rates run six to seven units WM>tVjlla!l~ CenterC~y +-+++i ~llllroad The study area, 11 -~", .\'" ! The Arbor Walk develop. ment on Newport Avenue sets a precedent 101 11Igller-oellsity In1l11 devel. opl1lent in Tustin. per month per unit type and affordable housing sells out at any initial offering. Market-Rate Housing Market prices for sales of single- and multifamily housing are cUlTently $375 to $490 per square foot, and unit construction costs are $145 to $180 per square foot. Neighborhood Retail Small-unit (less than 9,000 square feet) retail spaces rent for $2.50 to $3.50 per square foot, and shell construction costs $120 to $140 per square foot. Investment Properties Capital markets allow capitalization rates as low as 3 percent to 5 percent for both retail and rental housing. In these market conditions, the development po- tential could support acquisition costs of $2.5 mil- lion to $3.5 million per acre. With an increase in the density allowed on sites and with relief from parking ratio and affordable housing requirements, it could be possible for land prices to approach $4 million per acre. In several small and large rental housing and manufactured home sites, incomes and investment environments are snm that cur- rent cash flows and capital markets would price developments in excess of $4 million per acre. 12 The challenge to redeveloping sites with such high values is to provide density bonuses on the number of units permitted and other development conces- sions, such as relief from required parking ratios or relief from city impact fees. Marllet Opportunities Tustin sits at the center of Orange County, whose economic and demographic growth provides a strong market environment for attracting devel- oper interest in acquiring property and develop. ing commercial and residential projects in the city. Employment growth and low unemployment con- tinue to create demand for housing; more than 75,000 jobs are located within a ten-minute drive of Tustin. The city's central location offers an im- portant housing area for a wide range of workers. Congested commutes on the regional highways and rising gasoline prices make Tustin's central location even more valuable. Affordable Housing Tustin has a diverse housing stock in terms of loca- tion, quality, and range in both type and price point. There are neighborhoods such as Old Tuwn with its historic housing stock and larger single-family lots, older apartments and small-lot single-family homes in the study area, a vadety of relatively new housing types in Tustin Ranch, and new housing being developed as part of the Tustin Legacy proj- ect. Within the study area are older single-family homes that have sale prices lower than those of new homes elsewhere in Tustin, as well as avail- able apartments and manufactured homes. The housing scarcity in the county has placed pres- sure on these housing units in terms of market pricing and value; however, most are still some- what more affordable than units in other areas of Tustin, surrounding communities, and Orange County. Most of the housing stock in the study area was developed over the past 50 years and is reaching the end of its useful life. It was 0I1ginally devel- oped to meet the demands of postwar growth and to provide market-based housing for military per- sonnel at the Marine Corps Air Station Tustin. With the downsizing and closure ofthe mllitary facili- ties, this housing hecanle available for a large in- An Advisory Services Panel Repolt flux of immigrants and for workforce housing needs. Leaving aside the qualitative and social issues in the study area, the existence of this large, fluid rental housing stock in central Orange County provides Tustin with a broader market base of housing than many of its neighbors. If properly managed, this housing stock provides Tustin with greater market depth as it relates to new development and retail and rental housing in- vestment. In fact, the high demand for housing has created high rents and housing prices, attract- ing higher-grade investment and owners into the rental housing and manufactured housing commu- nities. This could attract new investment to as- semble and redevelop small-unit apartment huild- ings into larger assemblies of rental housing. Figure 2 Tustin and Orange County Marllet Strength, 2005 Tustin Orange COllnty Population 70,871 2,964,800 Median Family Income $60,092 $78,300 Per Capita Income $25,932 $40,380 Median Home Price $610,000 $617,000 Workforce 41,600 1,585,500 Unemployment 3.4% 3.8% Source: Colfege of Business and Economics, California State University, Fulferton, 2006. Midyear Economic Forecast "Spring Update. " Figure 1 Orange County Payroll Employment Change' 125 Key 120 - Construction Leisure and Hospitality Professional and Business High Tech 115 110 ........~-411 '.- .. .' . . . . . . .. . . ' 105 100 95 January 2004 July 2004 January 2005 ,_'!I"""" .' -'. .,- '" " " . . . , . . . . . .. .. .. . ................. ..... . ...................... July 2005 Jan uary 2006 . Selected Sectors, Index January 2004 = 100 Source: Gollege of Business and Economics, Catifornia State University, Fuflerton. 2006. Midyear Economic Forecast "Spring Update. " Tustin, California, June 11-16, 2006 13 The market potential for new housing in the study area includes the following: . 'lhnsformation of older manufactUl'ed home communities into new manufactured units 01' configurations; . Redevelopment of manufactured housing sites; . Assembly of smaller fourplex residential rental properties to create opportunities for phased rehabilitation and improved management; and . Acquisition of larger apartment communities for rehabilitation 01' replacement. Access to 1-5 and SA.55 The study area is bisected by or directly adjacent to 1-5 and SR-55. Northbound and southbound in- terchanges at Red Hill Avenue and a northbound interchange at Newport Avenue give the area high levels of visibility and access. Along 1-5, de- velopment parcels are small and generally under- developed and do not take advantage of the high volume of traffic passing the sites or the easy access to the sites. Along SR-55, a major inter- change provides access to N ewport Avenue from the McFadden Avenue ramps at Sycamore Av- enue and direct highway visibility along SR-55. Such sites along the regional and interstate high- ways have seen major development throughout the county and SUlTOunding communities and pro- vide good locations for higher-density retail and employment uses. Tustin Hospital and Modical Center Located on Newport Avenue just north of the SR- 55 ramps for Sycamore Avenue and McFadden Avenue is the Tustin Hospital and Medical Center. Growth in demand for medical services along SR- 55 and Newport Avenue could provide several op- portunities for development: . Medical office building(s), which would improve the area's access to medical services and create stronger ties to the Tustin Hospital; . A community pharmacy or drugstore; . A stronger relationship between the Head Start program and Tustin Family and Youth Center and the Tustin Hospital; and 14 . The Heritage Place senior housing facility east of NewpOl-t Avenue on Sycamore. Large Parcel and Assembly Opportunities The study area and the surrounding neighbor- hoods contain a number of large parcels that pre- sent opportunities for larger-footprint redevelop- ment or easier acquisition and assembly. Along the north side of 1-5 in the Center City neighbor- hood, a number of obsolete commercial develop- ments could be assembled for more intense devel- opment. The Southern Gateway and Central City neighborhoods also have large areas that could be redeveloped: . A number of larger, single-owner apartment parcels, which present an opportunity to im- prove access to neighborhoods, enhance their character, and strengthen the connections be- tween them, as well as to increase densities; . A number of small, underdeveloped, and obso- lete retail centers, which if assembled, could make possible higher-density, mixed-use devel- opments that not only improve commercial ser- vices, but also create stronger identities and connections to the neighborhoods; and . .Tustin High School, which is being relocated to Tustin Legacy. Tustin Legacy The Tustin Legacy project has brought local and national attention to Tustin and offers both direct and indirect opportunities to assist with attracting development to the study area. One of the most significant urban infill developments in the nation, Tustin Legacy is delivering major new open space, parks, community facilities, and private develop- ment, including nearly 8 million square feet of office, commercial, and retail space and 4,400 homes. The implementation of the comprehensive development plan and its early successes have developers, lend- ers, investors, tenants, and homebuyers looking at Tustin for other opportunities. Challenges to MarJlet Environment The study area is intensely developed, with very few vacant parcels-and even fewer parcels owned and controlled by the city. Successfully developing An Advisory Sel'iices Panel Report new housing, commercial, or public projects in the area requires a committed buyer and seller to overcome challenges related to site conditions, mapping, market desires, and city processes. The marketplace has the capacity to acquire and de- velop within the city. The questions it and the city have are these: . Where can affordable housing be replaced or removed? . Where can higher densities be located? . How will the city work with developers to facili- tate land assembly and changes in the require- ments for density, parking, open space, and af- fordable housing? Lack of Neighborhood Plans to Guide Redevelopment Nowhere in the study area are plans adequate to define future land use; community requirements; street, park, or school improvements; or business and housing policy requirements. The past incre- mental annexation by the city of unincorporated county portions in the study area, the current patcbwork of zoning parcels, and years of small- and large-lot development and redevelopment have resulted in inconsistent land uses, parcel sizes, access, and circulation. The largest contribution tbat the city can make to create market demand is to work with citizens and developers to define neighborhood plans and to create entitlements, through techniques such as overlay zoning, for those plans. These plans need to address not only private development sites but also public needs and requirements such as open space, streetscapes, parking, and design standards for residential and commercial areas. At the same time the community and the marketplace need to work with the city to clarify policy with regard to affordable housing, acceptable bousing (quality), and transition policies when affordable housing is affected by development plans. Fractured Land Ownership and Lot Configurations Another challenge to the development potential of the study area is the large number of individual parcels with different types of ownership (both Tustin, California, June 11-16, 2006 residential and commercial). The area has a wide range: . Patchwork land use and parcels; . Development sites that are isolated from the neighborhoods, limiting development potential, timing, and economics; . "Super hlocks" without signiJicant open space or circulation routes for the public; . Oddly shaped parcels; and . Incompatible uses adjacent to one another. The city needs to overcome the fmancial expecta- tion of current property owners and to improve the quality of development in the study area by creating incentives for owners and potential de- velopers to sell or to assemble parcels for larger development areas. This can be accomplished by developing neighborhood plans that create over- lay zoning, defining new land entitlements and higher-density bonuses for assembling parcels. The densities, building heights, parking, and open space requirements could be adjusted when lot sizes meet a certain level (either larger or smaller). Overlay zoning in neighborhood plans should be defined comprehensively for areas or zones, not parcel by pal'cel. Comprehensive zoning definition provides flexibility in design, encourages land as- sembly, and integrates open space and design va- riety within the overlay zone. Overlay zoning could also he used to establish new minimum or maximum lot sizes, which could be tied to density bonuses. In addition to the fractured land parcels, a number of very large "super block" parcels im- pose other challenges. Any redevelopment of these parcels must include new public roadways and open space. The city should consider limited use of its acquisition powers for public streets and public open space on such super blocks. Community Context and Quality A large portion of the properties in the study area include buildings and complexes that are reaching the end of their useful lives. Many are not main- tained and are managed inconsistently. Develop- ers who al'e interested in areas adjacent to such properties must have assurances that codes are 15 enforced and public safety needs are met. Many of these concerns about the community could be addressed by establishing performance standards for housing maintenance and repair and property management. The development of such standards also allows for proactive enforcement against derelict properties. Poor Connectivity The study area has many barriers to vehicular and pedestrian circulation. [-5 and SR-55 bisect major neighborhoods, stop tmffic flow, and intelTllpt vi- sual connections. Many streets are dead ends, and parcels have been developed internally instead of in relation to important streets and the neighbor- hood as a whole. Connections between neighbor- hoods and community amenities such as schools and parks are inadequate or nonexistent. The few community amenities are a limited number of very small parks and school playgrounds that are not programmed for use as joint community space. The city has no major funds to address the current dead-end condition of Newport Avenue, but trans- forming neighborhoods to make better connec- tions and creating new parks are both critical to attracting greater market interest and values. Very High land Values In the study area, the high occupancy rates and the high rents of apartment complexes have sig- nificantly increased the values of such properties. This is true for the manufactured home communi- ties, individual fourplexes, and the larger com- plexes that have on-site managers. The actual value of these propelties is far above the per- ceived value, despite the quality of the bousing stock and the geographic issues associated with crime and the lack of community services and parks, because they have very high cash flows. Large apartment complexes. Individual and institu- tional investors are producing very high cash Figure 3 Median Price of Existing Orange County Homes $800 K .., Median Price' $600 K $400 K $200 K January 2000 January 2001 January 2002 '150% Year-aver-Year Percent Change " If 40% 30% 20% 10% January 2003 January 2004 Jan uary 2005 January 2006 . Median price as of January 2006: $699,000. Source: College of Business and Economics, California State University, Fullerton, 2006. Midyear Economic Forecast "Spring Update. " 16 An Advisory Services Panel Repon flows. With strong demand in the capital markets for performing income properties, they are able to achieve very low capitalization rates for any sales or refinancing. (The capitalization rate ex- presses the rate of return that can be expected from a property based on its cash flow, expenses, and price.) Because of the volume of capital in the marketplace and the solid cash flow performance of Tustin's affordable apartments, capitalization rates are at all-time lows, in the range of 3 percent to 5 per- cent. This results in very high leverage values for the properties. When these high valuations are combined with demolition costs, potential reloca- tion expenses, and the cost of replacement afford- able housing units, the acquisition cost of such properties exceeds the fair value for land else- where in Tustin, Santa Ana, and Irvine. In addi- tion, the replacement of the housing stock with new stock for sale or rental would trigger inclu- sionary housing requirements, further increasing the cost of development beyond what the market would accept. SmaIl apartment units. A large number of small- unit apartments in the study area also have high valuations, as a result of both high rents and de- mand and the practice of multiple families or renters living in a single apartment. In some cases, individual rooms are rented for as much aH $1,000 per month. This creates a valuation for the property based on its income that is far above its appraised value as real estate. If a fourplex apart- ment has incomes of $2,000 per apartment or $8,000 per month for the fOlli' units, it is generat- ing $96,000 in annual income. It might bave a com- pal'able value of $325,000 per unit, but on an in- come basis it could be worth significantly more. These kinds of units can be attractive to larger or institutional investors, who could assemble the small units into larger complexes and, through better management and property improvements, create strong income properties. Tbis could be fa- cilitated through a community development COl-pO- ration or by providing such investors with other incentives (density or other development rights on other parcels) to assemble the properties and improve them. Tustin, California, June 11-16, 2006 Manufactured housing areas. The study area con- tains several manufactured housing communities, These communities are well maintained and gen- erally fully leased, witb few vacancies. With more than 30,000 manufactured homes in Orange County, these neighborhoods offer an affordable housing choice that, for som.e residents, have been enjoyed for more than 30 years. Manufactured housing pal'k operators own the land and lease a pad to an occupant, who owns the home on the leased pad. Pads can lease for approximately $600 to $1,000 per month, and the manufactured home can usually sell for $90,000 to $135,000. Stolen shopping carts are a major problem for local grocery stores and a haz- ard tor parkerl cars and children in the stUdy area. Owning such areas generates very strong cash flow for the landowner. Add tbat nationally such areas are seeing extremely low capitalization rates, in the 3 percent range. The result: as in the apartment communities, very high valuations for the property. California sets very specific controls on the use and closure of manufactured home com- munities, to protect lessees. However, the owners of these properties often use the current cash flow and hold the property until land values are great enough to justify its sale. Any decision to close or interest to acquire such properties would have to meet the state requb'ements to provide a mini- mum of 12 months notice to lessees and to pay mitigation expenses for relocating lessees. 17 Many of tile Illanulac- lured Ilomes in Ille West Village are old ami In need of replacemenL Community Housing Polley Many of the potential redevelopment sites cur- rently provide affordable housing to individuals and families. Any redevelopment efforts would af- fect the supply of affordahle housing. The need to assemble parcels and displace residents could limit mm'ket interest in certain development areas unless the city establishes clear housing and relo- cation policies. The panel recommends that the city establish a community housing policy to ad- dress affordable housing alternatives and reloca- tion and displacement practices and programs. One potential vehicle for establishing and imple- menting community housing policy is a community development corporation, to assist residents and developers with acquisition, relocation, and hous- ing replacement. 18 High Construction Costs The cost of construction has seen double-digit in- creases over the past two years and today is out- pacing increases in sales prices for residential housing. When layered on top of requirements to provide inclusionary housing in redevelopment projects, this burden of high construction costs significantly increases the gap between cost and affordable selling price, a gap that cannot be closed without city assistance. Increasing construction costs are changing afford- ability across the nation, making it difficult for mid- and high-Iise construction to meet market price requirements for condominiums. Given cur- rent market pricing of sale propelties in the study area, larger residential buildings do not look finan- cially feasible today and could not he used to meet affordable housing requirements without large as- sistance to residents to cover the gap. Regulatory Environment The regulatory environment in Tustin is another challenge to the market potential of the study area. The complex planning, zoning, and permit- ting process in both the state of California and the city of Tustin make it difficult to assemble land and introduce new land uses in the area. The panel provides specific regulatory recommendations in the section on development strategies and imple- mentation strategies. An Advisory Services Panel Repon Planning and Design The planning and design recommendations in this report are geared to facilitating market- dliven private sector redevelopment, with the public sector provicling a guiding role and pliming the pump. This allows the pl1vate sector to fully capitalize on the opportunities pre- sented by Thstin's strong position in the market- place and advance community goals and objectives effectively and efficiently. The city of Thstin initially requested that the panel consider issues and opportunities in three distinct study areas-West Village, Southern Gateway, and Center City. The panel expanded these three areas into a somewhat larger overall study area in order to include several adjoining areas that share common issues and opportunities, and to align study area boundaries with major streets. This resulted in the inclusion of several single-family neighborhoods. Within the overall study area, the panel's planning and design recommendations are organized in three categories: . General design principles and design guidelines for maintaining and enhancing the overall char- acter of the study area; . Ways to help stabilize and revitalize existing residential neighborhoods in the study area; and . Suggestions for developing an ovemll vision for the mixed-use and commercial portions of the stndy area that can help guide market-driven development beyond the piecemeal site-hy-site development that is occurring now. General Design Principles and Design Guidelines The concept plan on page 20 illnstrates the overall planning and design framework that the panel has developed for the study area. It defines distinct Tustin, California. June 11-16, 2006 subareas within the study area that present differ- ent challenges and opportunities from the stand- point of facilitating private sector market-driven redevelopment. There are foUl' subareas: . Center City, which contains predominantly com- mercialland uses, to the northeast of 1-5 be- tween Old Town and San Juan Street on the north and Browning Avenue on the east; . Southern Gateway, which contains built-out residential areas, bounded by SR-55 on the west, I -5 on the north, Red Hill Avenue on the east, and the current terminus of Newport Ave- nue north of Edinger Avenue on the south; . NewpOlt Avenue corridor, which runs through both Center City and Southern Gateway; and . West Village, which is composed almost entirely of built-out residential areas. The panel believes that the'most appropriate gen- eral design principle for built-out residential areas in the Southern Gateway and West Village is preservation and improvement. The panel recom- mends that preservation and improvement be ac- complished by encouraging incremental changes that involve both 1) targeted public sector acquisi- tion of certain parcels, to achieve overall public benefit objectives within these neighborhoods, and 2) private sector redevelopment activities that focus on maintenance, improvement, and an increase in the affordable housing stock. Portions of the Southern Gateway to the north- west and the southeast of Newport Avenue, cur- rently developed with single-family housing, are in very good condition and do not appeal' to re- quire any specific improvement. The panel there- fore does not recommend any incremental changes to the single-family housing in these areas. Within Center City and the Newport Avenue corridor, however, the panel believes that a general design principle emphasizing greater density and height 19 beyond what is cunently allowed-to five stories -is more appropriate. Examples of design guidelines have been devel- oped to illustrate the concept plan. Although these illustrations may appear specific, they are not in- tended to reflect definitive recommendations for specific sites so mnch as to snggest generally ap- plicable ways to approach issues and oppOltunities within a regulatory framework that facilitates market-driven development. In order to truly guide market-driven redevelop- ment and effectively respond to the varied charac- teristics of the subareas, these design guidelines need to be further elaborated. Recommendations for achieving this elaboration are summarized below and detailed in the section describing the definition of a community vision for 'lUstin. Urban Design as Public POlicV Tile panel's concepl plan. By applying proven urban design principles, cities such as 'lUstin can create a consistent, predictable set of public policies to guide development deci- sions, facilitate the development and approval K'Y _Parks _ Rt':$ldel1tlal _ Mixed Use ''''J MilJor \_ Inten;ectlol'15 20 process, and promote the public good. The panel recommends that the city engage a qualified urban design specialist to create guidelines on urban de- sign to be adopted by the City Council and made an integral part of the city's general plan, as has been done in San Diego and San Clemente, among many other cities. Guidelines should address the following: . A pedestrian-friendly environment that encoill'- ages the sense of independence and freedom of mobility for those who do not drive, such as se- nior citizens and youtb; . Properly configared streets that provide con- nectivity to adjacent areas for both automobiles and pedestrians; . Parking located behind buildings, to allow the buildings to be brought forward to help define the public realm and create continuity in the streetscape and the pedestrian experience, by reducing the number of curb cuts and moving turning traffic to street intersections; . New land uses clustered along major city thor- oughfare corridors at natural nodes, such as in- tersections between the thoroughfare and major interstate highways, with infill develop- ment along the thoroughfare that helps define the public realm and forms a continuous pedes- trian experience uninterrupted by frequent cw'b cuts; . Civic squares and parks that are large enough for public gatherings, festivals, group recre- ation, and community celebration, to strengthen civic bonds and increase citizens' knowledge of and respect for each other; . Parks and other green open spaces, and land- scaping along corridors that helps both define and connect spaces, districts, and the conidors themselves. One of 'lUstin's great strengths lies in the remarkable amount of green space it con- tains. Future development, both private and public, should continue this precedent by includ- ing substantial, well-maintained borders and trees. In particular, dense, well-maintained hedges bordering surface parking lots reduce the visual impact of such lots while enhancing the continuity of the pedestrian experience; An Advisory Services Panel Repon . Size, proportion, height, bulk, and architectural design of new constl1.lction that define the street space and public places of shared use between buildings and reinforce the edges of these spaces. New projects should respect, be compatible with, and link with existing structures, This issue transcends style but addresses fit and propri- ety, Proper architectw'al design helps orient people in space, time, location, and culture; and . Appropriate design of streets and buildings that reinforces safe environments while preserving access and openness as well as a sense of com- munity. Street grids that extend through over- sized blocks create more walkable, manageable environments, facilitating access for fire trucks, ambulances, and patrol cars, Buill-Out Residential Areas The West Village, which is primm'ily residential, and the residential areas on either side of N ew- port Avenue in the Southern Gateway are huilt out and densely populated, Occupancy is at densi- ties that make potential acquisition for redevelop- ment extremely expensive. During the interviews, the panel heard from a majority of stakeholders that Tustin's affordable housing stock is a very important community asset, one that should be maintained and improved, If maintenance of current affordable housing stock is a priority, the economics of development (as de- scribed in the section on market potential) suggest that market-driven private redevelopment of built-out residential m'eas in the West Village and Son them Gateway is unlikely to occur in the near or intermediate term. Yet because of the signifi- cant strength of the housing mm'ket in Orange County, the potential for large-scale private sector property acquisition for redevelopment of exist- ing affordable housing units with market-rate housing cannot be totally discounted, especially in the longer term, Accordingly, development strategies to implement the planning and design frmnework for built-out residential areas in the West Village and Southern Gateway focus on the following: Tustin, California, June 11-16, 2006 , ~ \' P,' ," ~"'-':m" ,;',. . ' ~ -'.~...,' . . ~. 'J~.\-..'I . Incremental improvements that can be imple- mented to immediately improve the quality of life in these neighborhoods, with targeted public sector acquisition of individual sites for neigh- borhood parks and plazas to open up views and provide access into these neighborhoods; and . Methods to facilitate enhancement of the af- fordable housing stock, including expansion of homeownership opportunities, in the short and intermediate term, by both not-for-profit and for-profit private sector developers, To help guide longer-term market.driven develop- ment for these areas (as recommended later), the overall community vision should include a com- prehensive housing policy, laying out a financially feasible plan to ensure the community's workforce and affordable housing goals and objectives are at- tained even if large-scale private sector property acquisition occurs later. Commercial Streets and Areas Center City and the Newport Avenue corridor present the opportunity for more immediate mar- ket-driven redevelopment by the private sector, Tbe area has recently seen significant investment, including the Arbor Walk, a 63-unit condominium development on Newport Avenue in the Southern "",I " 1,.dh~~):,oJ"~" .. ~~I,..'J.j, I'.,..,. \11:"1"1., "'~'.l'''';1 ." ,~.:~I ,,' i' ,.'i' . I.: "~ .'I"IjJi,,'l:(ll,,'flJl~"'. ,....rLI~~I",..:!.,.':-" ,""1", ..~,:, '"'".'.1", - ""II,;~: 'It" .~:\..;" /, ,'W:-,!;;J.lr~\J.,..:71 " ,. ,..',i..:'-'.... \ Y,,\ The lack oJ parking is a m~ior issue in the study area. 21 Gateway that was built in 2005 and quickly sold out. Another 93-nnit condominium development is under construction on EI Camino Real in Center City, and a senior housing development on Red Hill Avenue in Center City is under review. Many stal,eholders mentioned that, when these projects were fn'st presented for consideration, they provoked questions about the appropriate- ness of their design in advancing Tustin's overall image. Discussion was hampered because Tustin had not developed and described a community vi- sion. It was therefore impossible to assess the design of these projects in terms of effects on the community. Development strategy recommendations for im- plementing the planning and design framework for Center City and tbe Newport Avenue corridor therefore focus on tbe following: . Developing and effectively applying design guidelines that establish a vision to help guide private sector market-<lriven development: . Linking the consideration of potential densifica- tion in these portions of the study area to the provision of public benefits in the built-out resi- dential areas by using a transfer of development rights (TDR) concept: and . Facilitating appropriate private sector redevel- opment of significant opportunity sites within these areas, such as Tustin High School, New- port Avenue at its new connection to Edinger Avenue, and the 1-5/Red Hill Avenue node tlu'ough design guidelines and techniques such as overlay zoning. Street corridors such as Red Hill and NewpOlt Avenues are particularly valuable places to con- struct mixed-use buildings lining the street fronts. In this instance, mixed use refers to individual buildings that contain retail 01' commercial uses on tbe ground floor, with housing 01' office space above. Such buildings are historic urban building types that form a more continuous street wall, helping define the public space of the street. Their gl'ound-floor uses contribute to the pedestrian ex- perience and add life and vitality to the areas in which they are located. The panel recommends that the city encourage the construction of this 22 building type in appropriate locations along major thoroughfares in the study area. Development Opportunities Strong market conditions present TUstin with sig- nificant development opportunities in the study area. Although the study area is largely built out and the economics of development make any proj- ect difficult, the panel believes that the city has a strong foundation on which to build. Old Town One concern raised by many stakeholders regard- ing redevelopment within the study area involves the potential impact of such redevelopment on Old Town. With its low scale, landscaping, and store- fronts, Old Town retains many of the physical de- sign characteristics that lend such appeal and charm to a small downtown. At the same time, Old Town is almost a museum of itself, bravely attempting to preserve the feeling of a bygone day with a mix of retail that is ill suited to bringing in the number of consumers needed to create real economic vital- ity. It is populated with marginal businesses such as antique shops and small specialty boutiques, many of which appeal' to be operated more as hob- bies than as businesses. As a result, it is unlikely that any market-driven redevelopment that would occur in the study area would negatively affect the activities that cur- rently OCCill' in Old Town by competing directly \vith them. Moreover, redeveloping sites that the panel has identified in Center City with higher- density residential uses could benefit Old Town indirectly by increasing its local base of potential customers. N evenheless, the panel believes that Old Town represents such a significantly underperforming community asset that a more direct approach is also required to fully realize its potential. Accord- ingly, in addition to the existing Tustin Old Town Association, the panel recommends that the city SUPPOlt the establishment of an Old Town Busi- ness Improvement District (BID), with the follow- ing main functions: . Help retain and assist existing bnsinesses in their attempts to succeed; An Advisorv Services Panel Report . Program events that promote Old Town as a destination; . Work with merchants on joint promotion, mar- keting, security, parking, and maintenance; . Recmit new businesses to locate on Main Street; and . Keep Old Town clean and safe. The panel also recommends strengthening the identity of Old Town as the symbolic healt and soul of Tustin by extending and supplementing the existing identity program with additional signage, banners, light fixtures, and streetscape elements. The historic residences to the west and north lend substantial character and architectural identity to Old Town. The panel encourages their continued restoration and upkeep by individual residents. Finally, to help maintain Old Town's chal'acter as future development activities occur, the panelrec- ommends that the city create and adopt design guidelines specific to the chal'acter and architec- ture of Old Town, applying to new construction, remodeling, and changes in the public realm, and specifying minimum standards for property main- tenance. Newport Avenue Corridor Newport Avenue is a major gateway into Tustin's center. With its interchanges with both 1-5 and SR-55, it is the major conunercial thoroughfare for the South Gateway and Central City. The panel believes that its commercial impOltance should be strengthened. The a1'ea in the vicinity of the SR-55 McFadden Avenue exit onto NewpOlt Avenue could accom- modate higher-<lensity, commercial and office de- velopment because of its high visibility. The exist- ing fourplex buildings along the south side of Sycamore at the southeast corner of Newport Avenue could be rezoned under a special perfor- mance zoning classification for medical service land uses. In conjunction with the adjoining Tustin Hospital and Medical Center, this site could be de- veloped into a four-story medical arts building with direct access and parking. Its gronnd floor could house a much-needed walk-in diagnostic care facility. Tustin. Calitom;a. June 11-16, 2006 ~-< .---:<,;:r-r. .. ~.."" ~ .-:- # .::/~ -' 1,...,.~"Y /" /J '.-/'... ,,!I"w( \."( or'. ..' - -"""y.---- \'J .- \>-, " - ?- -~"",- ." y-, -' ., , The fourplex block at the northwest cornel' of' Newport Avenue and SycaJllore has a major civic role to play. As a gateway site and much-needed open space for recreation prograJlls for the south- central neighborhoods, this site should be pur- chased as parkland. Plauned as both a children's playing field, to be used in conjunction with the Tustin Family and Youth Center located at the in- tersection's nOltheast corn~r, and an adult and se- nior citizen's gal-den, the proposed parkland would set a strong civic focus and image. The architec- ture and landscape architecture of all three parcels at this intersection should be designed as one composition. A 20-foot setback and landscape development should be required for all street perimeters. The commercial strip between Newport Avenue's two freeway entrances contains a wonderful as- sortment of' ethnic businesses. Its international character should be recognized and enhanced in future development. A streetscape improvement project for the public right-of-way could provide unified sidewalks, lighting, signage, and street trees. A planted, curbed median should be installed down the entire length of this commercial strip. Several of the panel's recommendations for Old Town also apply to NewpOlt Avenue, including the following: Old Towll Tustin is a channing commercial district that would henef;t from tile creation of a business improvement district. 23 Key _ Mixed.Use Houeiing o fountain The pallel's proposed Newport Avenue cOllcept. Proposed land use plan tor tile Tustin High School site Key _Park rI Slnglc.Family Homes _ r rlplex Stacked flats _ Packing 35 Acres 438 Housing Units 12.5 Dwellln8MAcre 24 An Advisory Services Panel Report . Establishing design guidelines to ensure the compatibility and contributions of new con- struction, remodeling, and changes in the public realm; and . Setting minimum standards for property main- tenance. It is also recommended that new height limita- tions and alternate building forms be considered along Newport Avenue, not only to add character and definition to the streetscape but also to in- crease both the number of potential business and job opportunities and the number of potential customers. Existing Tustin School Sites within the Center City Like many residents of 'lUstin, the panel sees the high school and elementary school in the Center City as the most significant development opportu- nity within the inner part of the city. The panel recognizes that, in order to generate the funds needed to construct the new high school at 'lUstin Legacy, both school sites must be developed for additional housing at densities exceeding twice that currently allowed. The panel believes that establishing a floor/area ratio (FAR) that will allow the city to enforce its current standards for open space while Iilniting building height to no more than five stories will achieve two lmpol'tant objectives: . Generate the necessary return on the sale of the property; and . Set aside a portion of the site for community open space, as required by the current regula- tions that govern redevelopment. In establishing this FAR, the city can ensure that a substantial portion of the school site will serve the public benefit without infringing on the needs ofthe school system and without severely affect- ing the small-town character of the city. Appropri- ate architectw'al design will both mitigate the ap- parent height and bulk of the buildings to lend proper scale and include sufficient articulation to achieve compatibility with the architectural char- acter of downtown Tustin. Tustin, California, June 11-16, 2006 Condomlnrum~/ Seniors' Housing Hlgh-D~nsjty CondominIums 5 Stories ~ Red Hill Avenue and 1-5 The Red Hill Avenue and 1-5 node in Center City is yet another compelling development opportu- nity. Its visibility and its direct highway access, coupled with its marginal land uses, make this node a natural for redevelopment, facilitated by appropriate height and density honuses as part of a zoning overlay. As in the cases of the school sites and the Newport A venue and SR-55 node, the panel recommends the consideration of an in- crease to a five-story height limit for development at the Red Hill Avenue and 1-5 node. The panel's pi oposed Hod Hill Avenue cuncept 25 Development and Implementation Strategies During the interviews, when panel members queried citizens about what makes 'lUstin a great place, most defined their city in terms of its central location, its position as a "divided community-both geographically and ethnically," or its fmIDer small-town atmosphere where one could find quiet refuge at the end of ei- ther a long day or a long life. The city proudly dis- plays its logo, but although it is reminiscent of the agriculture-based community that defined the OJiginal city, it seems an unfit reference to 'lUstin's cmTent position in Orange County. When asked about a location of contemporary civic space, most respondents were at a loss to roticulate any notion ofa proticulro' place, event, or vision. Neither did they understand what 'lUstin is or might venture to be. This lack of a common vision for 'lUstin must be addressed. Community Vision The apparent apathy or lack of understanding of civic engagement is aggravated by the perception of "staff-heavy" interaction and interception in the public process. This is accompanied by the accu- rate public perception of a fiscally responsible government, which contributes to the notion that the city operates in the black. To establish a vision for a city that has grown to its cmTent condition by responsible governing waITants some holistic thought. The many neighborhoods that compose 'lUstin are an undefined yet integral component of the city and require close examination. Until the city is clear on its sense of direction, any stated resolution to resist growth and development will impede its market position. As 'lUstin proceeds, its vision must be derived from community input and resultant policy, based on discussion regarding the following: . Public engagement; . City and neighborhood chro'acter; 26 . Neighborhood planning; and . Regulatory examination. Public Engagement Th establish a consistent community vision, the city must begin a process of public engagement for all segments of the community. This will not only open lines of communication, in terms of dia- logue about futme growth, but will also allow the city to respond in a timely manner to development opportunities, with the assm'ance that it has the support of its constituents. To implement a meaningful public process, the panel recommends that the city create a neigh- borhood association and community organization database, with contact information, by smveying the following: . Mandatory homeowners associations; . Voluntary neighborhood associations; and . Community or neighborhood-based organiza- tions, Geographic areas that lack representative bodies should also be identified. By maintaining a data- base of community representation, the city will be able to make contact efficiently and equitably with citizens with regard to community planning and rezoning efforts, infrastructure development, civic discussion on public policy, and communica- tion for public interest, community health, and civic events. Given the changing demographics of 'lUstin, it is imperative that cross-cultmal discussions begin. The city must recognize that, in its quest to pro- vide an opportunity for public involvement, out- reach must take place in many forms and the means of communication will often be culturally based. The panel recommends that information provided to specific segments of the community An Advisory Services Panel Repon be delivered at a minimum in both English and Spanish. The appropriate venues (churches, health and community centers, grocery stores and com- merce locations) for communication should be de- tennined, to make sure the city's message is (lis- seminated effectively. As public involvement from varied sectors of the community begins to transform from a "necessity of last resort" to a "preferred first line of defense," the opportunity for meaningful public discussion on the myriad of issues facing the city will become a transforming element in the perception of and trust in the municipal government. An examina- tion of two critical issues germane to the panel's assignment could be used to begin the civic en. gagement discussion process: Redevelopment of the high school site. The pro- posed relocation of Thstin High Scbool could pro- vide a place for much-needed and desired commu- nity services and open space. The transformation of the school site will require a significant amount of public discussiou and visioning to determine the best use for the property. Critical to the trans- formation is a clear and open civic engagement process; failing that, the project will face strong public opposition. Workforce housing policy. The commitment to ac- commodate workforce housing, generally accepted by most residents, should be established as a pol- icy. This policy can outline and define the pre. ferred manner and means by which affordable housing demands can be incorporated into the city structure without compromising quality oflife for any citizen. Any policy of this nature must en- gage all sectors of the municipal and stakeholder community. City and Neighborhood Character Thstin is a c-ity of diverse neighborhoods. Most often cited as a positive by residents, neighbor- hoods are the essence of community life. Neigh. borhoods comprise a number of c!-itical elements; their interdependence and interrelationships can contribute to their greatness. A neighborhood is more than a collection of buildings and housing parcels. People make up the fabric of a community and a diversity of peoples makes a community rich. Thstin's west and south sides contain such Tustin. California. June 11-16. 2006 richness in their diversity of ethnicity, age, and household composition. Parks. A city contributes to the sustainability of community life by providing recreation and social services. Parks and open space provide much- needed wholesome activities and contribute to a neighborhood's quality of life. Thstin has a great parks system that serves the city well. However, the parks in the study area are, in many cases, substandard and could easily be considered to be contributing to the diminished quality of life for both the youth and the adult populations. Parks and schools are the community facilities through which social and recreation services are provided by the city. They are provided in response to specific population characteristics and include teen facilities, daycare, Head Start, health services, counseling, and meeting rooms for the elderly. Pedestrian.friendly streets. Sustainable conununi. ties have safe and pedestrian-friendly streets. A system of interconnected streets with sidewalks is a basic component for encouraging pedestrian ac- tivity. Neighborhood plans should define the de- sired character of their streets. Special attention should be given to night lighting, so that people feel safe when walking. Overly long and dead-end streets should be eliminated, because city blocks in a gJ-id pattern are safer than culs-de.sac. Pedestrian saiety in the West Village is a concern wIlen scl100llelS Ollt at the Roberl Heideman Ele. ment.1ry School. 27 The vacanl parcel of land on the corner 01 McFadden Avenue ami T"sllO Village Way is all excellent location lor neigllborhood -serving retoil. Schools. Ideally. a neighborhood should have an el- ementary school in a central location that is within walking distance for the population that it serves. Children should be provided with a safe and clean route of daily travel. Streets to and from schools should have wide sidewalks and bike lanes. Street crossings showd be protected and manned. Parks and neighborhood schools, along with safe and clean pedestrian routes, should be structures common to all 'lUstin neighborhoods. New blocks of owner-occupied housing around these facilities should be encouraged, because they provide com- munity stability and vested citizenry. Together, good schools, well-designed parks, and a perime- ter of diverse, owner-occupied homes form a neighborhood's sense of place and identity. Each neighborhood possesses a distinct flavor, reflect- ing its social composition. It is essential to provide neighborhood parks and their much-needed social and recreation services in the West Village neighborhood. The panel rec- ommends that these be located near Heide:rmann School to form a neighborhood center. The Cume Middle School and Jeane Thorman El- ementary School sites are important to the South- ern Gateway neighborhood. They should become a focal point for the neighborhood; the open space should become a joint park and school-operated 28 facility. The Beswick School and adjacent Frontier Park, which also serves as a focal point for the Southern Gateway neighborhood, should continue to serve as such. The neighborhood in the expanded study area north of McFadden Avenue and west of Newport Avenue lacks both open space and community ser- vices. The panel recommends that the city acquire land to develop a new one-acre park that is central to the neighborhood. An unsuccessfnl shopping center in the oeighborhood's northeast corner has vacant retail space in the rear that would make an excellent community center if pedestrian access could be provided for the whole neighborhood. Discussions with the owner could be mutually heneficial: f01' the city, a long-term, low-cost lease and for the owner, increased traffic and potential customers. Commercial services. Sustainable communities con- tain diverse commercial and retail services that deliver necessary goods and services to the sur- rounding population. The quality of these services in the study area varies greatly. The Southern Gateway and City Center neighborhoods have a range of retail options along Newport Avenue and . are sufficiently served. The West Village is defi- cient in both commercial and retail services. A su- permarket is needed, and the panel recommends that the city begin negotiations with a major chain for the development of an urban market on the va- cant parcel ofland on the cornel' of Williams and McFadden Avenue. This should be a full-service store, with a deli, prepared foods, international foods, a pharmacy, a bank, and delivery service. Neighborhood Planning An impOltant result of the neighborhood planning process will be greater :nticulation of a commu- nity vision, based on the collective vision of indi- vidual neighborhood plans. The panel recommends that the city make a commitment of time and re- sources to the development of neighborhood plans for the study area neighborhoods. These plans must be developed with meaningful community input and must address, at a minimum, the issues of density, open space, community facilities, trans- portation connections, and public safety. N eigh- borhoods need to be given an overall framework An Advisory Services Panel Repor! ~ ~ /~ -- ./' - -*-- ---. ~ .- -- -, within which they can be expected to produce plans that address these issues. Neighborhood plans are essential to establishing the predictability that developers will demand be- fore they will become active paliners in the trans- formation of the study area. Such plans will also inform tbe investment decisions of individuals and institutions. Many of them base such decisions on the anticipated return on investment. A compre- hensive set of neighborhood plans will contribute to the perception that Thstin is a city with a de- fined vision for the future and thus, less invest- ment risk. City leaders in the municipal, develop- Tustin, California, June 11-16,2006 .. ment, and chmnber communities can actively mar- ket the city with a coherent message that captures the desired vision of a future Thstin. Development opportunities will benefit from a less arbitrary ap- proach to site development and design review, and this approach will ultimately eliminate the ClUTent piecemeal development. Regulatory Examination: land Use Designations and Zoning Districts In its discussions, the panel evaluated the current land use designations. It is readily apparent that a disconnect exists between the city's commitment to provide additional housing opportunities and Proper maintenance. management, and code enforcement are tools used to deter crime in tile numerous aileys in the study area. 29 It is not uncommon for the garage onits in the study area to be osed lor illegal business or pur- poses other than tlleir infended ose. both the land use designations and the zoning code. To address current development opportu- nities that would integrate mixed uses, it will be necessary to revise land use designations and zoning districts. The revision of land use designations is essential to allow for higher residential densities and mixed-use development. The panel recommends that the city create a land nse designation that in- corporates a mix of residential and commercial uses. The designation must address an increase in building height limits to accommodate appropriate densities at dermed nodes. The new land use des- ignations should include zoning overlay distdcts in targeted neighborhoods that address residential and commercial character. Such distdcts would need to be approved through a commission. In addition, consideration should be given to re- viewing the existing code to allow a form-based or performance-based code within defined dis- tdcts. Such codes would better facilitate both appropdate development and efficient review and permitting. By providing opportunities for market-dtiven de- velopment to occur in the context of established policies on land use, zoning, and neighborhood character, the city can actively promote and en- able development opportunities both at existing 30 nodes and in other neighborhoods-opportunities that will not only capture desired market share but will do so in the conte,,1 of Tustin's community development goals. Improve Government EUectlveness The city of Tustin would like the development community to see the city as a "can do" place. To show that the city is open for business, it mnst ex- amine its processes and interactions with both the ptivate sector and public institutions such as the school dist!ict and neighboring communities. The city has demonstrated that it can effectively work with the private sector in the Tustin Legacy proj- ect. However, the redevelopment of neighbor- hoods poses challenges not present in the entitle- ment and development of Tustin Legacy. The desired revitalization of the study area neighbor- hoods will require pursuit of a legal process to change land uses and densities. Entitlement Process It is essential that the city make a sedous effort to improve its entitlement processes. Duling the in- terviews, the panel confirmed the assumption in the ULI assignment bdefthat planning and pro- cessing actions needed to be streamlined. Many developers indicated that they would never do a project in Tustin, given any alternative. Specific problems cited included the follO\ving: . The unpredictability of what the city would approve; . Conflicting advice from different city staff members regarding what the city wants to see happen; . Uncertain timetables for approval; . Costly and tardily delivered requirements from city staff for development improvements; . Excessive parking and open space requirements; . Increased cost and tisk to developers from the process of combining conceptual and detailed land use approvals and subdivision mapping; and An Advisory Services Panel Report . An antidevelopment attitude on the part of key city staff members. Although these are the views that developers often express toward regulators, the panel believes that the consistency of expression and the specificity of complaints makes these views more than the nor- mal grumbling one wonld expect from the devel- opment connnunity. Much of the authOlity for the entitlement process is vested in the community development director. The panel reconnnends a number of changes in the way business is done, changes that it believes ,,~II result in a process that is predictable, transparent, objective, reliable, and flexible. Predictability. Developers need to be able to un- derstand what the entitlement process is, how long it Mil take, and what steps are required. Transparency. All interested parties need to be able to understand decisions as they are made, and the rationale for decisions needs to be clear. Objectivity. Entitlements need to be made accord- ing to clear criteria that are based on a foundation of solid neighborhood planning and design criteria that have been subject to public review and scrutiny before adoption. Reliability. Developers need to know that once a decision has been made it Mil not be overturned or reviewed outside established processes. The City Council needs to focus on the adoption of plans and policies, not the review and approval of land use and building entitlements. Those tasks should be delegated to the Planning Connnission. Flexibility. Developers are seeking flexibility rather than the rigid prescription of land use codes, to produce projects that Mil work better for them and for the communities they serve. Changes to the entitlement process that produce these results would be a welcome change for the development community and shonld make the jobs of city staff easier as well. Process Changes Thstin's entitlement process for land use approvals shonld be revised. CUlTently the community de- velopment department has broad discretion, but it Tustin, California, June 11-16, 2006 does not appear to have all the tools necessary to create better development in the city, The panel recommends an approval process gronnded in neighborhood planning that Mil give developers and neighbors the ability to maximize the benefits of a development to the community. This should be thought of as a way to create a Mn- win situation. The new approval process shonld have the follow- ing objectives: . Offer an alternative to prescriptive codes; . Encourage better design; . Allow a project to be responsive to a site's context; . Enable flexibility in the application of develop- ment standards; and . Engage citizens and developers early in the process. The panel recommends that the city offer develop- ers the option of securing land use entitlements without producing more than a concept plan for a project. As an example, developers should not have to submit detailed building plans Mth rezon- ing requests. Furthermore, developers who Msh to follow the zoning ordinance Mthout a variance or departure from the established standards should be entitled to building permits based solely on their submission of plans and snpporting docu- mentation that are consistent Mth the applicable codes, It is likely that few, if any, developers Mil avail themselves of this option, given the OppOltu- nity to improve their project through the new process. The entitlement process should enable developers to negotiate depaltures from the land use codes in exchange for improvements to their projects. Use 01 Planning Commission The panel reconnnends the use of an independent board such as a planning commission to conduct the entitlement process. The connnission should review projects brought to the city and guide them through the predevelopment process. The commission should consist of an architect 01' other design professional, a developer, and a neighbor- 31 hood resident. Business leaders and community organization representatives are also potential members. Staff support should be provided by the community development department. Two of the primary objectives of this approach are to involve the community early in a project's design, giving the developer the opportunity to respond to com- munity concerns before spending large sums of money, and to create the transparency that the development community believes is missing in the cutTent process. All planning commission meetings should be open to the public. A typical sequence of events would start with an initial meeting at which a developer presents a concept plan and the comlnission gives early design guidance on a variety of issues. This guidance would be informed by neighborhood plans, the plans of adjacent and nearby property owners, and input from the community. Topics to be re- viewed early in the process include the following: . Site plans, including vehicular access and off- street parking locations; . Bulk and scale, including setbacks, modulation, and lot coverage; . Architectural elements and materials; . Pedestrian environment; and . Landscaping and the streetscape. The commission would be able to waive or modify any of these requirements in exchange for im- provements to the building's overall design and appearance. Consideration could also be given to allowing the commission to . Increase building height within a prescribed en- velope (i.e., building height could be increased up to a celtain percentage within valious zones) with 01' without an increase in the number of units; . Increase the number of units in a project for af- fordable housing purposes (again within a cer- tain range); 32 . Modify the nmnber of required off-street park- ing spaces within a prescribed range or for a fixed set of criteria; and . Reduce required open space in exchange for a contribution to an open space fund. Planning commission decisions should be binding on the community development director. Appeals should be limited to review of the process and questions related to the authority of the commis- sion to authorize certain deplUtures, not the de- sign judgment decisions ofthe commission. The commission needs to be professionally staffed by the community development deplUtment, and adequate training for both the commission and de- partment staff is essential. After the planning commission has approved a zoning decision, the developer would submit de- tailed drawings and, after review, a building per- mit would be issued. Inlergovernment Relations Tustin must improve its relationships with a nmn- her of jurisdictions. They are discussed in order of importance. Thstin Unified School District. The city and the school district need to work together to resolve key problems. The first task is to establish open and honest channels of communication hetween the two entities. One way to make this happen is to hold joint regular meetings between school dis- trict bOlU'd members, the City Council, and key leaders of both entities. A focus on a common vi- sion for cooperation between the two entities is essential. Other agenda items should include discussion of common problems: . Youth issues; . Property crime; . Before- and after-school activities; . Joint use and programming of school buildings and playing fields; . The location of any new or rehabilitated elemen- tary and middle schools; An Advisory Services Panel Report . Open space to accommodate the growth in school enrollment; and . Entitlements needed for the existing Tustin High and Lambelt Elementary Schools site. It will take a commitment of time and etIort to make this new approach work, but such communi- cation is necessary to address these and other pressing issues. Santa Ana. A number of issues relating to the West Village cannot be resolved without the coop- eJ'ation of the city of Santa Ana. Only a coopera- tive effort of community policing between the two police departments for the West Village neighbor- hood can address issues such as gang activities and the pursuit of offenders. Many of the resi- dents in this area live in a state offear. Other government agencies. The city of Tustin rec- ognizes that it is located in an environment where change is rapidly occurring, both within and out- side its boundaries. In urbanizing areas such as Orange County, it is impossible to avoid the im- pacts of these changes. The panel recommends that the city undertake a "best practices" review of the surrounding communities in order to pre- pare itself for the changing world in which it is lo- cated. Just as the orange groves are not returning to Orange County, the social and political prob- lems affecting Tustin are not going away either. Intra- Tustin Processes One of the problems identified in the interviews is that key city staff members and elected officials have not necessarily bought into the same vision and plans for the study area neighborhoods. Al- though this is understandable, given the lack of planning for these neighborhoods, it is a core ele- ment of the lack of predictability and clarity per- ceived by many participants and observers. It is very clear what the city does not want to do (Le., use eminent domain to transfer property from one palty to another, become a public developer), but it is less clear what the city does want to do. For any enterprise to be successful, all leaders must be on the same page. For Tustin to display a "can do" attitude, this is an essential step. Given the palt-time natme of the City Council, it is im- portant that adequate time be set aside to permit Tustin, California, June 11-16. 2006 the city's elected and appointed leaders to syn- chronize their thinking. Create a Community Development Corporation: A Better TUstin CDC In many cities, the city government develops the housing policy and the private sector implements that policy. Based on the panel's review, it recom- mends the establishment of a community develop- ment corporation (CDC), charged with responsi- bility for implementing the city's goals for providing affordable housing and neighborhood revitalization. The city should continue to be re- sponsible for making and enforcing public policy regal'ding neighborhoods and affordable housing, while the private sector would be responsible for implementation. A community development corporation is a 501(c)(3) nonprofit organization that facilitates the provision and maintenance of affordable housing, both for rent and for sale, within a service a1'ea. The corporation would acquire and rehabilitate multifamily properties within the target area. For the purposes of this report, the panel has named the organization A Better Tustin CDC. Organization A board of directors consisting of Tustin resi- dents and area stakeholders should govern the CDC. The board should seek to include an ethni- cally diverse group of development, finance, and policy professionals, in addition to local residents. It is impOltant that the hoard represent all ele- ments of the community. Mission One of the main roles of the CDC will be to pro- vide homebuyer counseling and training, to facili- tate new homeownership. The CDC's activities would enhance the quality of life for all residents. Programs could involve safety and secmity, beau- tification and maintenance, area marketing, eco- nomic development, job training, educational programming and augmentation, community in- volvement and outreach, and building community pride. The building of community pride (and en- hanced quality of life) would parallel improve- ments in the built environment. 33 New housing develop- ment In Tustin Legacy is a major component of the Marine Corps Air StatIOn, Tustin redevelopment. At the outset, the CDC should pattner with expe- rienced development entities that have the capac- ity and [mancial vigor to accomplish the desired outcomes within a reasonable timeframe. This pattnership should expand the capacity of the CDC to ensure the sustainability of both itself and the developments that result from its activities. Staffing Initially, the CDC should be staffed with an execu- tive director, a project manager, and an assistant. The executive director should be responsible for organization, administration, and relationship building, while the project manager should ensure that production and planning goals are established and met in a timely fashion. Additional staffing will be required as the programmatic business lines are established and as they mature. The city should provide office space for the CDC in currently vacant or surplus city offices. Funding The panel recommends that tbe city of Tustin in- vest redevelopment funds and other city resources, as available and subject to any statutory limita- tions (because only patt of the study area is within redevelopment project areas), in funding initial startup, administration, planning, and acquisition capital costs for A Better Tustin CDC. Any in- 34 I vested funds should then be leveraged with philatl- thropic, public, and private capital. Anordable Housing Opportunities The diversity of the population in the eity is recog- nized as one of Tustin's strongest assets. To main- tain this asset, it is important that the stock of af- fordable housing be maintained. The eity may also choose to increase the stock of affordable housing available for homeownership for low- and moder- ate-income families and provide a supply of afford- able housing options for growing families. State law requires that 15 percent of dwelling units in a redevelopment project area be allocated for low- and moderate-income residents. The city also has responsibilities under the Regional Hous- ing Need Allocation process, promulgated by the Southern California Association of Governments, to meet affordable housing goals citywide. The city of Tustin has encouraged affordable hous- ing development through a program that provides soft second mortgages or other subsidies for buy- ers and developers. Research has shown tbat these programs have resulted in a minimal num- ber of new housing units. The panel recommends 'that the city make affordable housing a major tenet in its comprehensive and master plans. The city should commit to providing incentives for a full range of affordable housing units. These hous- ing units should consist of single-fatuily stand- alone units as well as units within multiunit struc- tures (duplexes, quads, etc.). Local conversations revealed that the Community Reinvestment Act is significantly undelUsed in this area, The city should leverage public monies and its relationships with [maneial institutions, in- stitntional investors, developers, and government to amass the necessary funds, while its public pol- icy decisions serve as incentives. A Better Tustin CDC would also leverage funds to reach its goals of affordable housing production. The Tustin Legacy project has opened up loca- tions that could be used to address other impor- tant community facilities and generated the tax increment to fund such community needs. Tustin Legacy also provides new affordable housing stock, including units for both rental and sale. An Advisory Services Panel Report Tlns new affordable housing needs clients for botb types of units. The city should consider these new units as places where current renters in the study area could transfer to new rentals or to homeown- ership. This "Tustin first" relocation approach could assist redevelopment efforts in the study area by requiling no new subsidy and by freeing up rental units in the study area for redevelop- ment or rehabilitation. Improved Properly Management of Rental Properties While touling tbe study area, the panel saw that many multiunit dwellings need significant im- provement. Clime statistics show that a sizable number of police calls come from these units. These same units are overcrowded. The panel recommends that the city establisb an incentive program that encourages owners of these properties to maintain them in better condition. Incentives should include tinancial op- portunities such as grants and rehabilitation loans and adjustable basis financing, but the city should also strengthen its code enforcement where violations are persistent. The TEAM program, wherein the police department and property owners work toward mutually benefi- cial solutions, should be expanded. Parks, Open Spaces, and Plazas The city of Tustin currently requires 30 percent of a new development area to be open space. Existing developed areas have limited open public spaces. The panel recommends that the city acquire (or cause to be acquired) sites in strategically selected areas for open spaces and parks 01' plazas for pub- lic activity. The city should identify targeted areas that lack open spaces and use parks and recreation 01' community development funds to acquire prop- elties to convert to public uses. An alternative ac- quisition approach would be for the city to offer a property owner the opportunity to swap land in the study area for an appropliate parcel in Tustin Legacy. It may also be prudent for the city to use its eminent domain powers to acquire these sites. These open spaces would provide gatheling places within neighborhoods. They could be used for Tustin. California, June 11-16, 2006 communal play and rest and relaxation, as well as to build community and enhance the quality of life for residents. They could be used for civic programming, public gardens, or simply open green spaces. The panel further recommends that the city part- ner with community-based service groups in joint use agreements for some public facilities, to in- crease the amount and effectiveness of program- ming offered to residents. Enhanced Community Services The city's parks and recreation department pro- vides many opportunities for recreation, with opportunities available for providing additional programmatic services for youth and seniors res- idents. One of the city's services to children and youth in the study area is the Tustin Family and Youth Center. The center is overcrowded and physically landlocked, with little expansion space foreseeable at the current location and no out- door recreational space. It is recommended that the city make provisions for a larger Tustin Fam- ily and Youth Center in order to expand its capacity. The shOltage of parks and open space in the study A large percentage 01 tile IlOllSlllg slock in llie Slll(ly alea IS 111 poor phYSical condltioll alll! III Ileed 01 refurbisllment 01 replocernelll. 35 The Tustin Family ,nd Youth Center provides recreational activities and social services to many residents 01 tile sluely area Tile rear parbon of tile Tustin Freeway Shopping Center on Newport Avenue is an excellent location for a community cenler. 36 area demands better joint programming of avail- able spaces. This improvement should include strengtheuing relationships with the school dis- trict for joint use of facilities. Program improve- ments could temporarily alleviate some of the ef- fects of the overcrowded Family and Youth Center. The city should also look to other service providers to enhance the capacity to serve the needs of the study area. Examples might include the Orange County Office on Aging, the Boys and Girls Club, the YMCA, and others. A propel' mix offee ser- vices and free services should be provided. Also, the study area lacks comprehensive com- munity health care. Because of the long-term public policy implications, the city should address these health care needs. A potential SOUl'ce of re- sources might be the Federally Qualified Health Centers, which have been used in many cities across the nation. PubliclPrlvate Partnership Strategies To maximize the impact of neighborhood revital- ization, the production of affordable housing, and ~. -." -, . An Advisory Services Panel Report the achievement of community services objectives, the panel recommends that the city work with A Better Tustin CDC to pull together a full range of potential financing mechanisms. The entities to in- volve include the private sector, the legislature, and the city. An organized consortium of funding and financing sources will provide capital for oper- ating programs as well as projects. This approach will ensure that public funds are leveraged with private sector investment and ensure the long- term viability and success of the master plan. The panel also recommends that the city promote a physical and programmatic connection between Tustin Legacy and the study area. These connec- tions should include vehicular and pedestrian ac- cess. Public transit connectivity should also be added. In the proposed move of Tustin High School to the Tustin Legacy site, students will be forced to create new pathways to get to and from school. These connections could be encouraged to accomplish some of the city's societal goals within the study area. Tustin, California. June 11-16, 2006 The panel further recommends that the city de- velop and pw'sue a plan to leverage Caltrans high- way improvement plans with city goals and objec- tives. The CUlTent plans to widen SR-55 and 1-5 will affect the neighboring communities, and the city should ensure that these effects will be miti- gated. These mitigation measures should enhance the master plan for the neighborhoods affected. The city should use a publiclplivate partnership approach similar to this recommendation to ad- dress externally generated community impacts, whether they are enviromnental, tmffic and tmns- portation, demographic, Dr public policy impacts. 37 Conclusion The city of Tustin is at a unique moment in its history. I t has an opportunity to capitalize on a convergence of community needs and strong market dynamics. A strong commu- nity visioning process can bring these elements to- gether to create a location that will foster a sense of place for residents and establish the study area's role within the city and the region. The dynamic neighborhoods in the study area offer tremendous opportunities for improved housing ,md commercial space. However, if these neighborhoods are to share in the successes of the Orange County real estate market, the city must take a number of actions. First, it is imperative that the neighborhoods are stabilized and ready for redevelopment. Second, the city must formu- late plans for the study area that reflect the com- munity's needs and desires, to guide private sec- tor development in a way that helps achieve the community's vision more effectively and effi- ciently. Third, the city should create a CDC to assist in the acquisition and assembly of land for development; encow'age property management improvements for existing rental properties; and 38 advance private sector market-driven redevelop- ment of sites that offer significant opportunity. And fourth, the city should foster the application of a full range of publiclprivate financing mecha- nisms to SUPPOlt the creation of new affordable housing and community revitalization. These are not easy tasks; accomplishing them will require strong leadership and cooperation from all involved parties. The city of Tustin must step up to identify all community stakeholders and bring evelJ'one to the table. The city's leaders will send a strong signal to the development and invest- ment community that they are serious about wanting successful neighborhood revitalization and that the city is "open for business." Although the panel's recommendations may seem extensive and overwhelming, the panel strongly believes they can be implemented if the city can establish a community vision, set policies that encourage r€- 'vitalization, and streamline the development ap- proval process. An Advisory Services Panel Repon About the Panel Richard J. D1shnlca Panel Chair Point Richmond, Califrrmia Rick Dishnica is president of the Dishnica Com- pany, LLC. The Dishnica Company was formed in 1999 to pursue Dishnica's individual investment goals, to develop infill housing, both for sale and for rent, in the Bay Area and to provide real es- tate consulting services. CUl'l'ent major develop- ment projects include obtaining entitlements for (1) the final phase of a residential project next to the Lafayette BART station in downtown Lafayette (the first phase of75 apartment units was successfully completed and leased in 2001) and (2) the adaptive reuse and conversion of the San Francisco Armory, a building on the National Register of Historic Places located in the Mission District of San Francisco. . Dishnica was an executive vice president and the chief operating officer of Amelican Apmtment Communities, a privately held real estate invest- ment trust, from 1994 through March 1999, with responsibility for all apmtment operations, devel- opment, and rehabilitation. Until its merger with United Dominion Realty Tl'lIst in December 1998, American Apartment Communities owned and managed directly or through subsidiaries, 54 apartment communities containing 14,141 units in nine states (California, Colorado, Florida, Indiana, Kentucky, Michigan, Ohio, Oregon, and Washing- ton). The total asset value on the date of the merger was $787 million. Another portfolio con- taining 4,000 units was retained to continue the business of American Apmtment Communities. Dishnica also served as an executive vice presi- dent of the Klingbeil Company, the predecessor to American Apmtment Communities, with operat- ing responsibilities for the western United States. He was directly responsible for the development of 304 apartment units in San Francisco on the Tustin. California, June 11-16, 2006 site of the former Winterland Auditorium. In addi- tion he was involved in developing three other apmtment projects comprising 1,012 units in the San Francisco Bay Area. He was responsihle for obtaining tax-exempt bond financing at lower floater rates for all of these projects, a new tech- nique for financing apartments in the 1980s. All these projects were in infilllocations. From 1989 to 1993, he also served as the chief financial officer and chief operating officer of K/W Realty Group, a Klingbeil-affiliated company in housing sales. His role in this company included overseeing the joint venture development of 42 subdivisions with more than 4,000 units of housing for sale, most located in three major metropolitan markets. From 1980 to 1982, Dishnica was a principal of Comstock Ventures Limited, a real estate venture capital company. From 1978 to 1980 he was vice president of Fox and Carskadon Financial Corpo- ration, where he was responsible for the solicita- tion, analysis, negotiation, and management of real estate development joint ventures. From 1973 to 1978, Dishnica was an assistant vice presi- dent with Union Bank in San Francisco, Califor- nia, ,vitli responsibility for commercial lending, real estate construction lending, and loan work- outs. Prior to his employment with Union Bank, he served as an officer in the U.S. Navy, achieving the rank of lieutenant with assignments in Viet- nam and as the officer-in-charge of a minesweeper. Dishnica received his master's degree in business administration from the University of Southern California in 1974 and Iris bachelor of science de- gree from Ohio State University in 1968. Dishnica is a member of the Urban Land Insti- tute, serves on the Multi-Family Residential Council as its program vice chair and serves on the San Francisco District Council Executive Committee. He is also a member and was a direc- tor of the National Multi Housing Council. 39 Ray Brown Mernphis, Tennessee Ray Brown offers architectural and urban design services as a consultant to Memphis architectural firms for individual projects. As needed, he pro- vides creativity, skills, experience, knowledge, and ideas in fields of specific expertise the firm may need, such as architectural and urban design, project direction, and project development. He seeks projects that have the potential to improve the quality of life for disadvantaged residents by transfonning at-risk urban neighborhoods into more livable communities. Brown directed the design and construction of AutoZone Park in Memphis-America's finest minor league baseball park, and a crown jewel in Memphis's downtown renaissance. As vice presi- dent for development at the Memphis Center City Commission, Brown set the framework for the downtown urban design plan, facilitated new de- velopment, recruited new businesses, and admin- istered design standards. For 26 years, Raymond Brown Architects spe- cialized in providing municipal and private clients with architectural and urban design projects, f"o- cused on downtown redevelopment and planning. Brown taught architectural design at the Univer- sity of Cincinnati and was the downtown planner for the city of Dayton. He is a member of the Memphis Habitat for Humanity "Green Hat" con- struction committee. Brown holds a bachelor of science degree in architecture from the Univer- sity of Cincinnati. Paul D. Charles Houston, Texas Charles is the executive director of the Neighbor- hood Recovery Community Development Corpo- ration (NRCDC) in Houston, Texas. For the past 40 ten years, he has led the NRCDC in the develop- ment and redevelopment of affordable housing and commerciall'eal estate projects. Charles holds a bachelor of science degree in civil engineering from the Technoiogicai Institute (now the McCormick School of Engineering) at N o!'th- western University. He is also a graduate of the Amos Tuck School at Dartmouth College, with a master of business administration in general man- agement. Charles is a registered, licensed engi- neer in California, where he worked as an engi- neer and a real estate consultant for a number of years. He has also held positions with large-scale master plan developers, as well as other commu- nity-based organizations. Charles is active in a number of civic, community, and professional activities both locally and nation- ally. He is president of the Houston chapter of the National Black MBA Association; a member of Class XVIII of Leadership Houston; the former treasurer of the CDC Association of Greater Houston; president of the Texas Association of Community Development Corporations; assistant treasurer of the National Congress for Commu- nity Economic Development (cochair of the Bud- get and Finance Committee); a member of the Texas Depaltment of Insurance Economic Devel- opment Roundtable; chair of the Third Ward Re- development Council; an Inner-City Adviser for the Urban Land Institute; and a member ofthe Executive Committee for the Urban Land Insti- tute Houston Council, the Tuck Alumni Advisory ProgTam, and BluePrint Houston. Charles is also involved in the Advanced Practitioner Program through the Hauser Center for Nonprofit Organi- zations of the Kennedy School of Govetnment at Harvard University. He serves as a mentor and chaperone to the Leaders ofTumOI1'OW (a mentor- ing program). Charles also has served as national treasurer of the National Society of Black Engineers. An Advisory Services Panel Report Charles has received numerous civic awards, in~ eluding Outstanding Young Men of America (tJu'ee times) and the Leadership Award fr'om the Ameri- can Legion, and is listed in Who's Who Among Ex- ecutives and Professionals. Victor Karen Boston, Massachusetts Karen is director of advisory services for the RF Walsh Company, a Boston-based development and construction management firm that provides clients engaged in complex real estate projects with a wide breadth of services from concept de- velopment through coustruction. As part of RF Walsh's predevelopment planning team, Karen focuses ou urban projects that require a balance of public and private interests. His experience in- cludes managing entitlements for the Channel Center mL~ed-use project in the Seaport District adjoining downtown Boston and assisting Beth Is- rael Deaconess Medical Center, in Boston's Long- wood Medical and Academic Area, in creating a partnership with a private developer whereby ex- cess medical center property will be developed into a biomedical research center. Before joining the RF Walsh Company, Karen was director of real estate development for Mass- Development, a state development finance agency, in which capacity he oversaw state involvement in reuse planning for a 1,500-aore naval air station that was closed in 1995. Before that, he was deputy director of the Boston Redevelopment Authority, the city's planning and development agency, where he managed public review and approval of down- town and waterfront revitalizatiou projects, in- cluding the 100-acre Charlestown Navy Yard. Karen is a registered architect with bachelor's and master's degrees from the Massachusetts Institute of TechnoJogy. He served on previous ULI Advi- sory Panels for Treasure Island in San Francisco, Tustin. California. June 11-16, 2006 California; St. Julien's Creek Naval Annex in Chesapeake, Virginia; and Lowell, Massachusetts. Alan S. Levine Seattle, Washington As deputy executive director, Levine manages the Seattle Housing Authority's development and asset management programs. Major projects have included four HOPE VI redevelopment projects including NewHolly, which has received ten major awards, including the HUD-CNU Award for Chang- ing the Face of America's Public Housing. Working with public, nonprofit, and private part- ners, the agency currently has more than 200 acres in development, including affordable and market-rate rental and ownership housing, retail centers, and institutions. When completed, the Authority's four HOPE VI projects will represent a real estate investment o{well over $1 billion. The Asset Management Group oversees a real es- tate portfolio of more than 7,000 units and is ac- tively selling and acquiring properties consistent with the agency's strategic plans. Levine originally worked for the Seattle Housing Authority from 1971 to 19S0 and organized the Neighborhood Housing Rehabilitation and the Scattered Site Housing Programs. He worked in a variety of private sector positions, including his own development and consulting business fr'om 19S0 to 1995. In 1995, he returned to the Seattle Honsing Authority as asset manager, responsible for organizing and implementing an asset man- agement pl'OgJ'am that resulted in new budgeting protocols, staff and agency reorganization, and the introduction of private sector property man- agement methods. In 1999, Levine was named director of development and, in 2000, deputy exec- utive director. 41 Levine received his hachelor's degree from Hunter College of the City University of New York and his master's degree in urban planning from the University of Washington. R. Terry Schnadelbach Gainesville, Florida Schnadelbach, professor of landscape architecture at the College of Planning, Const!llction, and De- sign, at the University of F10lida, is former plinci- pal of Schnadelhach Associates (1969-1995). He has had major commissions throughout the United States, Europe, Southeast Asia, and the Middle East. He has consulted in London, Paris, Rome, Seville, and Berlin to governments, institutions, and plivate industry. Schnadelbaeh earned degrees in architecture at Louisiana State University and in landscape ar- chitecture at the Harvard Graduate School of Design. He was the 1964 and 1965 winner of the Ameliean Academy in Rome's coveted Prix de Rome in landscape architecture. He has received awards in urban design from the U.S. Depart- ment of Housing and Urban Development, the Bard Award of the City Club of New York, and design awards from the Amelican Institute of' Architects, the New York State Association of Architects, the American Institute of Steel, the National Association of' Home Builders/Institute of Residential Marketing, and the Philip N. Winslow Landscape Design Award of' the Parks Council of New York City. Schnadelbach's work has been exhibited at the Museum of Modern A1t, the Whitney Museum, and the Urban Center in New York City, the Nelson Atkins Museum in Kansas City, and the Boston Museum of' Fine A1ts. He has taught land- scape architecture at the University of' Pennsylva- nia, the Harvard Graduate School of' Design, and the Rhode Island School of Design. He has also taught environmental design at the Massachusetts Institute of Technology, and real estate develop- ment at the School of' Architecture of Columbia University. He has lectured at colleges and uni- versities throughout the United States, including Cornell University and the University of Virginia, and in France. 42 Schnadelbach has designed public spaces and waterfront parks in Trenton, Baltimore, Denver, Boston, New York, Baltimore, Washington, and Philadelphia. He directed more than 350 contracts in executing and coordinating the 1976 American 13icentennial site improvements throughout the histOlic and central business distlicts of' Philadel- phia. More than 1 miIlion visitors attended that July 4th celebration. In Baltimore he was asked to submit designs for a park to complete the cultural and commercial Inner Harbor development and link that development to the newly built Camden Yards baseball stadium, home of'the Baltimore Olioles. He has been the site planner and land- scape architect of the U.S. Open Tennis Facility, the largest tennis facility in the world, which at- tracts more than 50,000 spectators a day. Located in Flushing, Queens, New York, the facIlity is con- sidered the most urban expelience on the Grand Slam circuit. In Europe, Schnadelbach has worked extensively in France, Germany, and Spain. He has been the landscape architect for corporate headquarters and industrial plants, including Centre Thomson, GenneviIliers, a national competition won in 1986 and completed in 1988; the new headquarters for Messier-Bugatti in Villacoublay; the Centre du Techniques, EDF/Electro Division de France, in St. Denis; and the GE Medical Division's produc- tion plant at Buc, jle-de-France. Schnadelbach has been commissioned to design a new water- front for the Sabne River, in Lyon. Phase I of a six-year master plan has just been completed. He designed the Longwy Ferrous Museum and In- dustlial Archeology Centre, a Grand Project of President Fran,ois Mitterrand; the Plaine de l'Est, in Lyon, winning project of an international competition; and ecological studies and highway alignment selections for Sophie Antipolis, in the French Silicon Valley near Nice, and for Brest, Fin- istere, Btittany. In Spain, Schnadelbach planned for the cascade entrance between the city of' Seville and the Expo 92 World's Fai1~ This plaza was traversed by more than 100,000 visitors dally. Schnadelbach has been a ULI member since 1989 and has served on numerous Advisory Services panels, many specializing in the revitalization of inner-city neighhorhoods. He was a member of the An Advisory Services Panel Repolt panel on the South Central corridor in Los Ange- les after the 1994 riots. Other panels on inner-city revitalization include those in Fort Wayne, Atlanta, and '!renton. He teaches studio and conducts lec- tures on urban design at the University of FlOlida. His studio research includes urban districts in Jacksonville, Miami, and Orlando, Florida. Richard Shields Chicago, llUnois A principal of Mesa Development, LLC, Shields is a leader in large-scale land and public and pri- vate sector developments. Mesa is a Cbicago- based national real estate developer and investor who is committed to developing residential and mixed-use projects in major cities and urban areas. Tbrough exceptional design and site selec- tion, Mesa seeks and delivers "best of market" liv- ing choices with a focus on urban living. Sensitive to social, contextual, and market opportunities, Mesa works with leading architects, engineers, contractors, and investors to identify, plan, ac- quire, zone, market, and constl'Uct developments that have received significant market success and industry praise. Major developments Mesa has worked on include The Heritage at Millennium Park, a 57-story high rise, and the Legacy at Millennium Park, a 72- story high rise, both condominiums in the east loop of Chicago; One Market Square, a 29-story condominium on the former Market Square Arena site in downtown Indianapolis; and the 1,316-unit Park Boulevard project, a 30-acre mixed-use, mixed-income development on a former Chicago Public Housing Authority site. Other developments include a large-scale lakefront development on former landfill in Milwaukee, Wisconsin, involv- ing more than 1,500 residential units. Shields also led the redevelopment of Glenview Naval Air Station and Fort Sheridan, both in Illi. nois, and the 1,089-acre Orlando Naval Training Center in Florida. Shields has served as an ad- viser to the Secretary of the Al1ny on privatiza- tion; to the National Trust for Historic Preserva- tion regarding the preservation ofFord Island at Pearl Harbor in Hawali; and on the ULI Advisory Tustin, California, June 11-16, 2006 Services panels for Ft. Meade housing and the St. Elizabeth hospital site development in Wash- ington, D.C. Christine Vliia San Antonio, Texas Vifia, a special projects coordinator for the City of San Antonio Planning Department-Neighborhood and Urban Design Division, works primarily with a diverse range of citizens from inner-city neigh- borhoods, to facilitate the public input process for both community planning efforts and design stan- dards development. In her six years with the city, she has developed a zoning overlay program to as- sist neighborhoods that want to protect neighbor- hood cbaracter, through an objective review process that uses specific sets of design standards for each neighborhood. She provides extensive presentation and editOlial material for the depart- ment and research and analysis on Zoning and Board of Adjustment reviews. She also supervises the plan review process for the department's neighborhood and conidor overlay districts. Vifia is cUl1'ently in charge of an extensive com- munity plan for the near west side of San Antonio, most widely known as the true heart of the city's Mexican Amelican culture. The primary commer- cial corridor through the community was the focus of one of two recent Advisory Services panels that the city hosted within a short three-month span. The ULI report, Avenida Guadalupe, and the revi- talization str-ategies outlined in the report will be used to organize tbe community plan and its urban design component. She was also the lead staff liai- son to a second ULI panel visit and report, on the St. Paul Gateway District, for the near east side of San Antonio, which once was the center of the Mican Amelican community and culture. Prior to her service with the city, she served for five years as the executive director of the South- town Mainstreet progl'am, acting as the liaison be- tween property owners and the city for a three- cOlTidor area just south of the Central Business District. Southtown is designated as both an offi. cialnational Main Street program and a local Neighborhood Commercial Revitalization program. 43 Villa holds a bachelor's degree in al'ChitectllI'e from Texas Tech University. She spent ten years in Washington, D.C., with several architectural, engineering, and interior design films, and was also the assistant director for Internship Pro- grams for the National Council of ArchitectllI'al Registration Boards. Prior to returning to Texas, she held a position providing housing market re- search in the multicounty D.C. metro area. 44 An Advisory Services Panel Report [I] - --- - - -