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08-ATTACHMENT I
Attachment AGENDA REPORTITEM #2 ��►f1Pr MEETING DATE: SEPTEMBER 25, 2018 TO: PLANNING COMMISSION FROM: ELIZABETH A. BINSACK, DIRECTOR OF COMMUNITY DEVELOPMENT SUBJECT: CONTINUED PUBLIC HEARING: RED HILL AVENUE SPECIFIC PLAN (SP -13) AND ADOPTION OF ASSOCIATED GENERAL PLAN AMENDMENT 2017- 00001, ZONE CHANGE 2017-00001 AND FINAL PROGRAM ENVIRONMENTAL IMPACT REPORT FOR THE PROJECT RECOMMENDATION That the Planning Commission: 1. Adopt Resolution No. 4367, recommending that the City Council certify the Final Program Environmental Impact Report SCH No. 2017041031, making required environmental findings, including a Statement of Overriding Considerations, in accordance with the requirements of the California Environmental Quality Act; 2. Adopt Resolution No. 4368, recommending that the City Council approve General Plan Amendment 2017-00001 for changes to the text and Land Use Map to ensure consistency with the proposed Red Hill Avenue Specific Plan (SP -13); and 3. Adopt Resolution No. 4369, recommending that the City Council adopt Ordinance 1498 approving Zone Change 2017-00001 to amend the City of Tustin Zoning Map. changing the Retail Commercial (C-1), Central Commercial (C-2), and Commercial General (CG) and Professional (PR) Zoning designations to the Red Hill Avenue Specific Plan (SP -13). BACKGROUND AND DISCUSSION Planning Commission Public Hearing —August 14, 2018 On August 14, 2018, the Planning Commission held a Public Hearing on the adoption of the Red Hill Avenue Specific Plan and associated General Plan Amendment, Zone Change and Program Environmental Impact Report to establish new land use regulations and design criteria for development within a 36 -acre area along Red Hill Avenue (Attachment B — PC report dated August 14, 2018). Red Hill Avenue Specific Plan September 25, 2018 Page 2 At the meeting, eighteen (18) public speakers provided comments regarding the project. The speakers included residents, interested parties,_ and representatives from all major shopping centers including the Red Hill Village, the Stater Bros. shopping center and Red Hill Plaza. Generally, the individuals spoke in opposition to the Specific Plan and expressed concern about incremental changes having to comply with the Specific Plan requirements. Three (3) individuals spoke in support of the project. Supporters included two (2) representatives of the applicant for the pending mixed used project at 13751 & 13841 Red Hill Avenue and a Tustin Legacy resident who was in favor of mixed use and expressed excitement about what it could bring to the Red Hill Avenue area. The concerns expressed by residents in opposition at the hearing included: • Parking (parking problems already exist — the project will exacerbate the parking problem); • Traffic (additional units & new traffic light will further bottleneck Red Hill Avenue); • Density (too many units are proposed); • The numbers of stories/overall height (four to five stories is too high); • Air pollution - negative impacts; • Water usage — negative impacts; • Neighborhood character; and • School impacts After receiving the public comments, the Commission continued the public hearing to their meeting of September 25, 2018, so that staff could address the concerns expressed by the public as well as questions from the Commission. Specific questions/requests from the Commission included the following: 1. Building Height/Density/Distribution of Units: What does a five (5) story structure look like adjacent to existing residential? Provide a cross-section that shows a proposed 5 -story building next to existing residential. How will the 500 units be distributed within the Specific Plan area? Are thety concentrated in one area or distributed throughout? The Plan indicates 395 units north of the 1-5 and 105 units south of the 1-5, but how was it analyzed? Response: In evaluating the overall density of the project area, staff looked at three (3) different land use scenarios for the project area; high, medium and low intensity. The 500 additional units (395 units north of 1-5 and 105 units south of I- 5) and 325,000 square feet of additional square footage within the Specific Plan area represents the medium intensity scenario and was the scenario that was felt to be most appropriate for the area. This scenario also provided thresholds for analysis in the Program EIR. The development buildout and distribution of unit assumptions used in developing the different scenarios are estimates based on several factors in addition to a balance of subjective and objective reasoning that Red Hill Avenue Specific Plan September 25, 2018 Page 3 resulted in the conclusion on threshold assumptions. This reasoning included factors such as: • The identification of parcels with likely potential for revitalization; • Land area for a single residential unit based on unit size, open space per unit, parking land area and a maximum height of 3 stories; • Land area for commercial uses with an assumed parking ratio, open space percentage and height; • Amount of vacant land and probability of development; • Amount of existing commercial development that currently exists in the area and absorption of new development over time; • Consideration of the Kosmont Retail Study, a study prepared to evaluate growth potential in the Specific Plan area; and • Height. limitations in the plan and parcels that will most likely be commercial and single -story with surface parking. Attached are several images of three (3) to five (5) story structures, some of which are adjacent to one (1) and two (2) story residential and commercial buildings (Attachment A). Although this type of development pattern would be allowed by the Red Hill Avenue Specific Plan, it is unknown at this time where specific development may occur. The maximum allowable building height for all mixed use projects within the Specific Plan area is 4 stories in height; up to 5 stories may be allowed subject to specific criteria and additional setbacks (50-68 feet approximately). The maximum allowable building height for commercial projects is 50 feet. The existing Red Hill Avenue corridor is predominately older commercial uses with antiquated site planning and a variety of building heights, which include combination of one, two and three story buildings. Without the adoption of the Red Hill Avenue Specific Plan, commercial properties could still develop or redevelop with new buildings and/or structures within the 35 -50 -foot height limitation depending on the existing zoning designation. While future buildings through the Red Hill Avenue Specific Plan would be limited to 4-5 stories in height, it is not dissimilar to the City's existing maximum allowable building height in the C-2 zone of 50 feet. 2. Parking: Is enough parking being required for mixed use in the Specific Plan and how will it work? Show areas of demand and capacity (and time of use) through an exhibit. Response: The parking requirement of 2.25 spaces per residential unit in the RHASP is consistent with other Specific Plans within the City (i.e. Tustin Legacy Specific Plan and Downtown Commercial Core Specific Plan). For non-residential Red Hill Avenue Specific Plan September 25, 2018 Page 4 or commercial uses, the parking ratios provided in the TCC would prevail based on each individual use. For future development projects, an alternative or shared parking arrangement is also allowed and encouraged in the Specific Plan for a mixed-use development or development that utilizes non-traditional hours. A parking study is required for all non-residential uses and mixed-use developments requesting shared parking, subject to review and, approval by the Planning Commission. Additionally, the RHASP requires the developer/applicant to develop and enforce a parking management plan to ensure that the number of spaces provided will satisfy parking demand. Measures to ensure that adequate parking will be provided include: • Valet Parking • Other off-site parking • Restrictions on hours or operation • Easement or other joint -use parking agreement to share parking 3. Traffic: Describe existing traffic along Red Hill Avenue and what is the percentage increase with the implementation of the Plan. Provide an exhibit to show current traffic volumes (average daily traffic) on streets and what is forecasted for the future, so the overall increase is understood. Response: The Final Program EIR for the Specific Plan analyzed nine (9) intersections within the Specific Plan area including the northbound and southbound ramps of the 1-5 at Red Hill Avenue. All of the intersections studied would continue to operate at an acceptable Level of Service (LOS) during both peak hours, with the exception of the intersection of Red Hill Avenue at the 1-5 southbound ramps. The addition 'of Project traffic from the Specific Plan would cause this intersection to Worsen during the evening peak hour based on the City's ICU methodology. The Project's impact using the ICU methodology would be considered a significant impact. As a result, Mitigation Measure 4.13-1 is proposed to address this intersection and is included in the Mitigation Monitoring & Reporting Plan of the Final Program EIR. Please refer to Attachment CA. for additional text and explanation. As indicated in the Traffic Impact Study, there will .be increases in traffic due to additional development in the Red Hill Avenue Specific Plan. The 500 additional residential units would result in an average increase of approximately 3% to the average daily traffic volume of each segment of Red Hill Avenue in the Project area (See Attachment 1). Red Hill Avenue Specific Plan September. 25, 2018 Page 5 4. Existing Shopping Centers: How is the transition for shopping centers from existing uses to mixed use being defined in the Specific Plan so there is not an adverse financial impact as expressed by some of the large land owners? Response: Initially, the Specific Plan would have required improvements to property upon change in tenancy when more than a 50% modification to a tenant space was being proposed. The City has proposed revised text to the Specific Plan contained within an Errata List (see Attachment F). The revised text states that conformance with the regulations and design criteria outlined in the Specific Plan will be required when land uses intensify and/or occupancies change, additional square footage is added or when new development is proposed. This is consistent with the City's practice and policies related to legal nonconforming structure and uses. City Staff has also met with the respective shopping center owners to discuss the Plan and contemplated redevelopment within the area. In order for the goals and objectives of the Plan to be met changes to the existing shopping centers will need to ultimately take place. 5. Cal -Trans 1-5 Widening: Provide more details about the Cal -Trans 1-5 widening at Red Hill Avenue (if the relocation of the existing retaining wall will take away parking) and explain what Cal -Trans is doing to help the City at the intersection of Red Hill Avenue and the 1-5 interchange. Response: The 1-5 widening project is a collaboration between the Orange County Transportation Authority (OCTA) and the California Department of Transportation (Caltrans) to relieve congestion by increasing capacity and improving traffic operations on both sides of the segment of 1-5 between SR -55 and 1-405. The City of Tustin, as a stakeholder, has taken part in the process at monthly Project Development Team meetings since the environmental phase of the project study began in 2014. The alternatives include a No Build Alternative (Alternative 1) and one Build Alternative (Alternative 2) which proposes to add one general purpose lane and improve deficiencies in each direction. Alternative 2 has two 'design variations (2A and 213) related to the use of Caltrans design standards. Alternative 2A results in the most significant impacts, environmental and monetary, including moving the retaining walls that may affect the street width of Nisson Road between Red Hill Avenue and Browning Avenue. Alternative 2A has an estimated price tag of $960 million versus an estimated cost of $480 million for 2B. Alternative 2B is the same as Alternative 2A except it includes Caltrans non-standard reduced lane and shoulder widths in certain areas (this alternative does not require the relocation of the existing wall). Alternatives 2A and. 2B are the same as far as traffic volume and traffic operations. The 1-5 widening project is currently in the environmental review process funded by OC Go (formerly Measure M), a ballot measure approved in 2006 by voters with the promise of bringing relief to freeway mainline congestion. The environmental impacts of the project alternatives were recently presented at public hearings in May 2018. Red Hill Avenue Specific Plan September 25, 2018 Page 6 Ramp intersections would be improved only if significantly impacted by the project, and according to the environmental study, the project does not significantly impact the ramp intersections or adjacent intersections in the City of Tustin including Red Hill Avenue. Therefore, the 1-5 widening project is not required to improve the 1-5 on - and off -ramp intersections on Red Hill Avenue. At this time, the exact date for project construction is unknown since there is currently no construction funding, but for analysis purposes it is.assumed that the opening year is 2030. 6. Summary of Public Comments: Provide a summary of comments from social media and group comments into major categories and tabulate the number of comments in each category. Quantify the data on a matrix. Response: A matrix is provided for the Commission that categorizes and tabulates the comments received through social media as of September 18, 2018 (Attachment H). The most comments posted were related to traffic, parking and density. Additional Public Comments/Concerns-(Attachment G);-- - --- - - In addition to the Planning Commission comments, members of the public expressed the following concerns during and after the public hearing: 7. School Impacts: With the 500 additional residential units in the Project area there will be additional children living in the area; how will that affect the existing schools within Tustin? Response: As stated in the Program EIR, if full build -out occurs there are approximately 146 students that would be introduced into the attendance area of the Tustin Unified School District with the 500 additional residential units in the Red Hill Avenue Specific Plan area. TUSD has indicated that there is adequate capacity to serve these students. Through the issuance of building permits, future development projects within the Plan area will be required to pay developer fees to the school district and payment of the adopted fee would provide full and complete mitigation of school impacts. 8. Water Infrastructure: How will the 500 additional new units impact the existing water system within Tustin? Response: The Program EIR analyzed the existing water supply, sources and ultimate build -out within the City and the City's 2015 Urban Water Management Plan (UWMP). The anticipated growth within the RHASP area falls within the assumptions made for growth in the City through 2040 and sufficient water supply exists to serve the proposed uses and additional 500 units identified in the Specific Plan. In addition, future development within the Specific Plan area would need to Red Hill Avenue Specific Plan September 25, 2018 Page 7 comply with the Green Building Code which includes performance standards for plumbing fixtures, construction waste management plans, and reduction in construction waste. Future development would also be required to comply with the City's Water Efficiency Landscape Ordinance for new exterior landscaping or rehabilitation of existing landscaped areas. 9. Affordable Housing: Concerns of lack of affordable housing and the provision of affordable units within the Specific Plan. Response: The City has recently adopted a Workforce Housing Ordinance that will require future developers within the Project area to provide affordable housing units to address the need for a variety of housing types and diverse socioeconomic needs of all community residents. This Ordinance would apply in conjunction with the Residential Reservation Allocation (RAR) process, which is included in both the Downtown Commercial Core Specific Plan and the Red Hill Avenue Specific Plan areas. Unless specifically exempted, all residential projects are required to provide workforce housing units on the same site as the residential project. Depending upon the level of affordability, the project will be required to set aside between 5-15% of the units for affordable housing. 10. Parkland Fees: A request has been provided_ to consider a required parkland in - lieu fee of $8,000 per unit. Response: The City has clarified the method of calculation for the Parkland fee that is to be paid in -lieu of actual parkland dedication. This method is consistent with the City's parkland dedication and in -lieu fee provision and is based upon 2.24 average persons per dwelling unit, a $2,500,000 land value and a dedication rate of three (3) acres of parkland per one thousand (1,000) persons. 11. Open Space: — Concern that there won't be any new parks in an already open space deficient area. Response: The Final Program EIR describes and analyzes the availability of and anticipated demand ori parks and recreation opportunities proximate to the Specific Plan. There are two (2) existing parks adjacent to the Specific Plan area; Pine Tree Park located at the corner of Red Hill Avenue and Bryan Avenue and Frontier Park located at the corner of Mitchell Avenue and Utt Drive, just west of Red Hill Avenue. The City's General Plan identifies. policies in the Open Space/Conservation/Recreation Element and establishes a parkland standard of 3 acres of usable parkland per 1,000 residents. Based on the ratio of 3 acres per 1,000 residents, all residential units as part of a new mixed use project within the Specific Plan area will be required to either dedicate the required acreage or pay a parkland dedication fee, if no land is provided. Please refer to Mitigation Measure 4.12-1 contained within Attachment C.4. Red Hill Avenue Specific Plan September 25, 2018 Page 8 12. Sidewalks: Sidewalks need to be wide enough for multiple people to walk side by side, wheelchair use and mandate bike lanes. Response: A 4 -foot minimum landscaped parkway (adjacent to the existing curb line) with a 4 -foot minimum sidewalk are requirements within the Specific Plan. Sidewalks and landscaped parkways can both be greater than 4 -feet, if desired for a particular project. Chapter 5 of the Specific Plan requires ample width and design for ADA access along sidewalks and pathways. A Class II on -street bikeway is planned on both sides of Red Hill Avenue within the Plan area. This bikeway will connect with the existing bikeway segment on both sides of Red Hill Avenue between EI Camino Real and Nisson Road. 13. Plant Palette: Do not use Magnolia or Carrotwood trees since they consume too much water and have surface roots that heave sidewalks. Please consider Chinese Pistache as a better option. Response: The proposed plant palette within the Specific Plan includes a total of six (6) types of parkway trees which includes the Brisbane Box, Japanese Zelcova, After Dark Peppermint Willow, Australian Willow, Crape Myrtle and Fruitless Olive. The Chinese Pistache, Native California Sycamore and Honeylocust are trees proposed for the landscape medians. 14.Airborne Pollutants: Concerns about air pollutants that may affect students who, walk to and attend the various schools adjacent to the Plan area. Response: Airborne pollution is a regional concern within the Southern California region. The Final Program EIR for the Red Hill Avenue Specific Plan included an analysis of air quality, and related pollutants through the applicable South Coast Air Quality Management District's (SCAQMD) Air Quality Management Plan .(AQMP). Please refer to Attachment C.S. for a detailed discussion on this topic and Findings and Facts in Support of Findings and the Statement of Overriding Considerations regarding this topic. Red Hill Avenue Specific Plan September 25, 2018 Page 9 CONCLUSION Based upon the additional information and/or clarifications included in this report and for the reasons described in Attachment E of Resolution No. 4367 which contains the Statement of Overriding Considerations, the benefits of the proposed Red Hill Avenue Specific Plan outweigh its unavoidable adverse environmental effects, and consequently, the adverse, environmental effects are considered "acceptable" in accordance with Section 15093 (c) of the State CEQA Guidelines. Accordingly, staff is recommending that the Planning Commission recommend that the City Council find the Final EIR adequate, adopt a Statement of Overriding Considerations, and approve the project. Erica H. Denko , AICP Elizabeth A. Binsack Senior Planner Director of Community Development Attachments: A. Photo Exhibit: Mixed Use Project Examples B. PC Report dated 8/14/18 and attachments thereto C. Resolution No. 4367: Final Program EIR 1. Draft Program EIR (Volume 1) 2. Draft Program EIR (Volume 2 — Technical Studies) 3. Response to Comments 4. Mitigation Monitoring and Reporting Program 5. Statement of Overriding Considerations D. Resolution No. 4368: GPA 2017-01 1. Exhibit A — General Plan Consistency Analysis/Findings 2. Exhibit B — General Plan Text Amendment 3. Existing and Proposed General Plan Maps E. Resolution No. 4369: ZC 2017-001 1. Ordinance No. 1498 — Final Draft Red Hill Avenue Specific Plan 2. Zoning Map Update F. Errata List G. Public Comments H. Social Media Comments Matrix I. Average Daily Traffic (ADT) Exhibit AGENDA REPORT �Si!t MEETING DATE: AUGUST 14, 2018 TO: PLANNING COMMISSION FROM: COMMUNITY DEVELOPMENT DEPARTMENT ITEM #5 SUBJECT: RECOMMENDED ADOPTION OF THE RED HILL AVENUE SPECIFIC PLAN (SP -13) AND ADOPTION OF ASSOCIATED GENERAL PLAN AMENDMENT 2017-00001, ZONE CHANGE 2017-00001 AND FINAL PROGRAM ENVIRONMENTAL IMPACT REPORT FOR THE PROJECT APPLICANT: CITY OF TUSTIN 300 CENTENNIAL WAY 'TUSTIN, CA 92780 LOCATION: 36 ACRES ALONG A PORTION OF RED HILL AVENUE GENERALLY BOUNDED BY BRYAN AVENUE TO THE NORTH AND WALNUT AVENUE TO THE SOUTH BISECTED BY INTERSTATE 5 (1-5) GENERAL PLAN: MIX OF COMMERCIAL AND GENERAL OFFICE DESIGNATIONS ZONING: RETAIL COMMERCIAL (C-1), CENTRAL COMMERCIAL (C-2), COMMERCIAL GENERAL (CG) AND PROFESSIONAL (PR) ENVIRONMENTAL: A FINAL PROGRAM ENVIRONMENTAL IMPACT REPORT (FPEIR SCH 2017041031) AND STATEMENT OF OVERRIDING CONSIDERATIONS AND FINDINGS OF FACT HAVE BEEN PREPARED IN ACCORDANCE WITH ARTICLE 7 OF THE CALIFORNIA ENVIRONMENTAL QUALITY ACT (CEQA). REQUEST: ZONE CHANGE 2017-00001 TO ESTABLISH NEW DEVELOPMENT STANDARDS AND REGULATIONS FOR RED HILL AVENUE SPECIFIC PLAN (SP -13) THAT WOULD ALLOW UP TO 500 NEW RESIDENTIAL UNITS AND 325,000 SQUARE FEET OF ADDITIONAL NON-RESIDENTIAL SQUARE FOOTAGE AND INTRODUCE NEW INTEGRATED MIXED-USE LAND USES WITHIN THE PROJECT AREA, AND AMEND THE CITY OF TUSTIN ZONING MAP AND CHANGE THE EXISTING ZONING DESIGNATION FROM RETAIL COMMERCIAL (C-1), Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 2 CENTRAL COMMERCIAL (C-2), COMMERCIAL GENERAL (CG) AND PROFESSIONAL (PR) TO SP -13. GENERAL PLAN AMENDMENT (GPA) 2017-00001 WOULD AMEND THE CITY OF TUSTIN GENERAL PLAN LAND USE MAP AND INCLUDE MINOR TEXT AMENDMENTS TO ENSURE CONSISTENCY WITH THE PROPOSED SPECIFIC PLAN. RECOMMENDATION: That the Planning Commission: 1. Adopt Resolution No. 4367, recommending that the City Council certify the Final Program Environmental Impact Report SCH No. 2017041031, making required environmental findings, including a Statement of Overriding Considerations, in accordance with the requirements of the California Environmental Quality Act; 2. Adopt Resolution No. 4368, recommending that the City Council approve General Plan Amendment 2017-00001 for changes to the text and Land Use Map to ensure consistency with the proposed Red Hill Avenue Specific Plan (SP - 13); 3. Adopt Resolution No. 4369, recommending that the City Council approve Zone Change 2017-00001 to amend the City of Tustin Zoning Map changing the Retail Commercial (C-1), Central Commercial (C-2), and Commercial General (CG) and Professional (PR) zoning designations to the Red Hill Avenue Specific Plan (SP - 13); and adopt Ordinance 1498 approving the Red Hill Avenue Specific Plan. APPROVAL AUTHORITY Government Code Section 65354 requires the Planning Commission to make a recommendation to the City Council on the adoption/amendment of a general plan and Section 65453 requires a specific plan to be prepared, adopted and amended in the same manner as the general plan, except that a specific plan may be adopted by resolution or by ordinance and may be amended as often as deemed necessary by the legislative body. California Government Code Sections 65353 through 65355 require: • The Planning Commission hold at least one (1) public hearing before approving a recommendation on the amendment to the General Plan and adoption of a specific plan. • The Planning Commission make a written recommendation on the amendment to the General Plan and adoption of a specific plan. A recommendation for approval shall be made by affirmative vote of not less than a majority of the total membership of the Commission. The Planning Commission shall send its recommendation to the legislative body (the City Council). Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 3 • The legislative body (the City Council) holds at least one (1) public'hearing prior to amending a General Plan and adoption of a specific plan. OVERVIEW This report is comprised of five (5) parts to assist the reader in referencing the details of the proposed Red Hill Avenue Specific Plan project, as follows: 1. BACKGROUND 2. SPECIFIC PLAN ORGANIZATION & LAYOUT 3. SPECIFIC PLAN CHAPTER SUMMARIES 4. ENVIRONMENTAL REVIEW 5. CONCLUSION BACKGROUND In 2014 and 2015, the City received inquiries and requests to increase density greater than the General Plan allows (25 dwelling units per acre) within the Red Hill Avenue corridor. At the time, the City Council conducted a study workshop and determined that a comprehensive approach and rethinking of the area should be done instead of a piecemeal approach. As a result, the City of Tustin City Council initiated the preparation of a specific plan fora portion of the Red Hill Avenue corridor just north and south of the 1-5 freeway in February 2016 with the goal of promoting revitalization within the existing commercial district. A specific plan is a document designed to implement the goals and policies of the General Plan. These plans contain detailed development standards, distribution of land uses, infrastructure requirements, and implementation measures for the development of a specific geographic area. A key component of the planning effort for the Red Hill Avenue area was the public outreach that the City conducted to ensure that the final plan embodies the goals and desires of the community. This outreach effort, which is described in detail in Chapter 2 of the Specific Plan, included a total of three (3) public workshops that took place during the planning process, in which approximately 90 members of the community participated, including property and business owners, community leaders and members of the public. The "vision" created from this input was refined by Kimley-Horn & Associates and was used as the basis for preparation of the specific plan. The proposed Red Hill Avenue Specific Plan (RHASP) area includes approximately 36 acres of land adjacent to Red Hill Avenue. In general, the project site extends one (1) parcel east and west of the Red Hill Avenue right-of-way. Between San Juan Street and Bryan Avenue, the Specific Plan area does not extend beyond the existing right-of-way. Between Mitchell Avenue and Walnut Avenue, the boundary is generally at the right-of- way for Red Hill Avenue as shown on the location map (Attachment 1 and Figure 1). The Tustin General Plan currently provides the land use designation and the Tustin City Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 4 Code (TCC) sets forth the development standards and regulations for the project area. The existing land uses include a mixture of low intensity commercial, retail, office and non -conforming residential which includes approximately 296,446 square feet of existing non-residential uses (primarily commercial) and 21 dwelling units. If adopted, RHASP and General Plan Amendment will guide development within the project area. While it is likely that existing uses and buildings may remain "as is" for extended periods of time, the standards and regulations contained within the RHASP may assist in revitalization of the area and encourage the creation of a unique mixed- use district. " login!! !! !!! mills l �.�LEGEND. t�rll !!! son rin 'C -� � ' • - -�1 � Irl ' • 111111 n! � ► � � = � - 1111111 C /il Illlllllll � � 1111 ■-� :� - lir n _� IIII !Ilii r SII i!I - I Illlw c 11 e � illlll •. 11:11 ,,, r �■ 1111111 � t r— i Figure 1: Red Hill Avenue Specific Pian Project Area General Plan Amendment The RHASP requires a General Plan Amendment (GPA 2017-01) to update the General Plan Land Use Map to illustrate the boundaries and location of the Specific Plan, and an update to the General Plan Land Use Element and other related conforming amendments to General Plan exhibits to ensure that the Specific Plan and the General Plan, as amended, are internally consistent. The General Plan Amendment will Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 5 facilitate SP -13. Attachment 4 — Exhibit B provides the revised pages to the Tustin General Plan. General Plan Consistency The analysis of the Specific Plan's consistency with the applicable goals and policies of the General Plan has been prepared indicating that the RHASP would be consistent with the Tustin General Plan, as amended. The RHASP utilizes average density and based on total acreage and the total number of units within the area, it complies with the General Plan. Utilizing this methodology, the RHASP allows approximately ten (10) du/acre which complies with the maximum allowable density of 25 du/acre as stipulated in the City's General Plan. The General Plan Consistency analysis is included within Attachment 4 - Exhibit A and within Table 4.8-1 of the Program Environmental Impact Report (PEIR). Zone Change/Specific Plan The existing zoning designations within the project boundary will change with the Specific Plan, necessitating a zone change. Existing zoning classifications of Retail Commercial (C-1), Central Commercial (C-2), Commercial General (CG) and Professional (PR) within the project area would be changed to Red Hill Avenue Specific Plan (SP -13). Attachment 5 contains the required findings for the Zone Change. The RHASP is the district regulations which provides specific standards and design criteria to guide future development within the area. If adopted, it would replace the City's existing Zoning requirements and regulations for the area. The RHASP would allow mixed-use development including: 325,000 square feet of additional commercial development; • 500 new dwelling units contained within 4-5 story buildings; • Shared/reduced parking standards; and Streetscape improvements within the public right-of-way. Specific Plan Organization & Layout The proposed RHASP is organized into six (6) chapters: o Chapter 1: Executive Summary/Introduction. Provides the purpose and intent of the document along with background information and history of the area. This section also includes information regarding existing conditions within the Specific Plan area, vision summary and goals, specific plan organization, user's guide and compliance with the California Environmental Quality Act (CEQA). Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 6 o Chapter 2: Vision, Goals and Objectives. Provides the policy foundation for the Specific Plan including the community vision, policy framework, and goals and objectives. o Chapter 3: Development Plan. Provides specific land use, circulation, urban design, and infrastructure plans. o Chapter 4: Land Use and Development Standards. Identifies the allowed land uses and the development standards for parcels within the Specific Plan area. o Chapter 5: Design Criteria. Provides design regulations and guidance for all private properties in the Specific Plan area, including criteria for site planning, building design, and signage. o Chapter 6: Implementation and Administration. Discusses the administrative process and procedure required for review and permitting of land use and development activity within the Specific Plan area as well as development incentives and finding mechanisms. Specific Plan Chapter Summaries: The following discussion summarizes each chapter of the proposed Specific Plan in greater detail and highlights some of the unique aspects and standards within the Plan. Chapter 1: Executive Summary/Introduction Red Hill Avenue is a major arterial roadway consisting of low -intensity commercial, retail and office uses within traditional shopping centers in an auto -oriented setting. The area lacks a consistent theme and character. The area's commercial corridor, directly north and south of the 1-5, is not meeting its full potential to serve the community and as a result, there is a desire to improve it while balancing the needs of current and future residents, pedestrians, bicyclists, automobiles and public transit. The Specific Plan encourages a greater mix of uses within the area, including residential which will facilitate a more walkable, urban environment. Chapter 2: Vision, Goals and Objectives The vision for the Red Hill Avenue area includes the introduction of residential units and an increase in pedestrian -oriented retail and commercial uses that will help create a more dynamic, eclectic and attractive place to visit, shop and live for both residents and visitors. The inclusion of residential will allow for both vertical and horizontal mixed-use options for future development, while also providing an economic incentive to some property owners to redevelop and revamp existing older commercial retail properties. A greater variety of activities along the street is encouraged through the development of mixed uses that reinforce pedestrian scale and orientation. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 7 The Specific Plan incorporates the following elements as part of this Vision: • Sense of place • Compatible land uses in an integrated mixed-use environment • High quality architecture • High quality businesses; and • Improved public streetscape Figure 2: Conceptual Illustration — Red Hill Avenue North of 1-5 Freeway Figure 3: Conceptual Illustration — Red Hill Avenue South of 1-5 Freeway Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 8 Overall, there are eight (8) goals for the RHASP which includes the following: 1. Enhance streetscape, .landscape, and public amenities throughout the Specific Plan area. 2. Improve visual and functional connections and linkages between Red Hill Avenue, surrounding residential neighborhoods, adjacent public and institutional uses, and Interstate 5. 3. Balance flexible and diverse land uses that foster economic development opportunities and support housing opportunities. Land use in the project area will maximize residential opportunities along with neighborhood -serving ' retail and commercial uses. 4. Streamline processes to support future development in the Specific Plan area. 5. Improve pedestrian and bicycle accessibility and vehicular circulation to minimize potential conflicts between different users and improve mobility throughout the Specific Plan area and connectivity with the greater community. 6. Implement parking standards that reflect verifiable demand and consider future land uses in the area. 7. Coordinate existing and future development with infrastructure capacity. 8. Ensure development within the Specific Plan area is sensitive to and compatible with surrounding land uses. Over time, the influx of new.retail, restaurants, services and new.residents will enhance the economic and social vitality of the area and establish the RHASP area as a unique district with its own character. The streets and public spaces will be enhanced through landscaping and street furniture and framed by quality architecture expressed in a variety of building styles. Chapter 3: Development Plan The Specific Plan would establish one (1) new land use category within the area as shown on Attachment 2 (Land Use Map). This category would be Specific Plan 13 (SP -13) and would respond to the Specific Plan goals stated in Chapter 2 by providing a balance of commercial, service, and mixed uses. Land use for all properties within the Specific Plan area is classified as mixed-use, which will allow for freestanding retail and service commercial and/or office uses along with mixed=use developments that include a combination of commercial retail and/or office on the ground floor and either residential or office uses on the upper floors in a vertical mixed-use format or a Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 9 combination of commercial/office uses and residential uses in a horizontal mixed-use setting on the same parcel. The Land Use Plan allows for 500 additional residential units within the Specific Plan area. The Specific Plan allocates 395 dwelling units to the Specific Plan area north of I- 5 and 105 dwellings units to the Specific Plan area south of 1-5. Transferability and conversions of commercial square footage to residential units is allowed between both areas of the RHASP and outlined in Chapter 6 of the Specific Plan. Residential units must be high quality and integrated into a mixed-use development. The residential component of the mixed-use project requires City approval of the units through the completion of the Residential Allocation Reservation (RAR) process which is described in Chapter 4. The combination of uses creates a more urban environment which is compatible with the existing vehicular emphasis along Red Hill Avenue and puts residents in close proximity to shopping, dining and job opportunities in the area. The mixed-use environment also helps to improve and area's livability as tenants and/or property owners do not have to drive to complete day-to-day activities, replacing driving with walkability to either within the same building where they live or to a building nearby. Monumentation and Branding: With the goal of creating a distinct district, the RHASP includes several elements to brand the area with a new identity. Conceptual gateway imagery and signage is provided in the RHASP to show placement of different elements within the area. Figure 4: Gateway Concept Plan Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 10 While a formal branding process will be initiated by the City at a future date, the RHASP proposes a coordinated landscape plant palette, medians, public art, street furniture and themed signage to help establish the area. Together these elements will work in concert to compliment new private development within the area and further the vision of the Plan to create a new mixed-use community with distinct character.The RHASP will also include development standards and design criteria which will place buildings oriented towards the street, ground floor uses that will engage pedestrians and architectural features that add interest and reinforce the character and scale. The streetscape improvements that will be implemented will contribute significantly to the visual appeal and identity of the Red Hill Avenue public realm. Infrastructure and Road Improvements: Existing infrastructure within the RHASP area includes water, sewer, drainage, stormdrain, electrical, gas and solid waste. Capacity for each utility and service will be reviewed on a case-by-case basis by the City to determine if upgrades are necessary. Supplemental reports will also be required of private developments to ensure that a project does not exceed allowable limits or capacities. The existing roadways within the RHASP project area will remain intact with the exception of Red Hill Avenue, which will have reduced lane widths to accommodate a Class II bike way on either side of Red Hill Avenue as well as raised medians within certain segments of the roadway. V -1 :s ri_aK , "; 1 P � IIIIIIIII, op t Figure 5: Conceptual Streetscape Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 11 As a major arterial, Red Hill Avenue provides local and regional connections within Tustin and is a point of access to and from the 1-5 freeway. Three (3) through traffic lanes in each direction must be maintained to accommodate existing and future traffic. The proposed streetscape enhancements are designed to create a cohesive and coordinated aesthetic throughout the Red Hill Avenue corridor, by utilizing materials and amenities that promote a timeless look and feel. Streetscape improvements include the installation of street trees, landscaped medians, gateway signage, and reduced lane widths along Red Hill Avenue to accommodate a Class II bike lane. Compatibility w/Ad►acent Buildinqs: Close attention through the design review process will ensure that new projects are compatible with adjacent or existing residential and commercial buildings and uses. New development will introduce a high level of architectural detail and quality materials, setting the stage for overall revitalization of the area. Close attention to building location and size, architectural details, access, parking and the types of uses will ensure that new projects are compatible with established neighborhoods. Chapter 4: Land Use and Development Standards The key section of the proposed Specific Plan is Chapter 4, which contains the regulating code for the project area. Proposed development and improvements would be subject to a set of standards and design criteria that are described 'within Chapter 4 and Chapter 5 of the Specific Plan. The regulating code for the Specific Plan is a hybrid of a conventional or traditional zoning code and a form -based code, in which emphasis is placed on the allowed uses with use of illustrative graphics to depict the location, mass and form of the buildings. The main benefit of a hybrid code is a code that encourages walkable, urban environment while continuing to regulate land uses within a given area. Freestanding Commercial & Mixed Uses Freestanding retail and service commercial. and/or office uses and mixed-use developments are permitted within the Specific Plan area, which contains specific development standards for both types of uses. No stand-alone residential is permitted unless it is in conjunction with a mixed-use project. Freestanding commercial retail and mixed-use development projects require minimum lot width, applicable setbacks (depending on specific details on the project or surroundings), building separation and landscaping. Commercial retail development has a maximum allowable building height of 50 -feet, versus 'mixed-use projects which have a maximum of four (4) stories in height. An additional story can be granted for mixed-use projects if they meet certain criteria (see Table 4-3). Mixed-use projects must also include a minimum amount of private and common open space which provides livability for the residential units and Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 12 necessary open space for projects that are denser than stand-alone commercial buildings. Flexible Format Retail is a new use that will be permitted in the Specific Plan area. This use is defined within the Specific Plan as "...an enclosed space within a development project that permits and is designed for residential and/or commercial uses and may be used as such depending on market conditions and the preferences of the owner or tenant." Flexible. Format Retail space is intended to be occupied by business operators who live in the same structure that contains the commercial activity and can function in whatever capacity is deemed appropriate by the owner or tenant as long as it is consistent with the Specific Plan and California Building Code requirements. Flexible Format Retail is permitted in conjunction with any permitted mixed-use project and when fronting Red Hill, must contain a commercial use on the ground level. Other detailed standards for this use are contained within Chapter 4 of the Specific Plan. Non-Conformina Uses and Structures Provisions for the regulation of non -conforming uses and structures are also addressed in Chapter 4. Existing uses shall be permitted to continue and need not comply with the new standards of the RHASP, subject to the provisions of TCC Section 9273, Legal Nonconforming Structures and Uses. When land uses intensify and/or occupancies change, conformance with the regulations and design criteria outlined in this Specific Plan will be required. Development Standards and Requirements The development standards highlighted in Figure 6 illustrate the required building setbacks and stepbacks from the front, interior and rear property lines to the building fagade (Figure 6). The letters shown above correspond with Table 4-3, General Development Standards & Requirements below. There are required setbacks/stepbacks at the third, fourth and fifth stories of a building to reduce massing and add visual interest and articulation to the building elevation. Additional upper story setbacks may be imposed during the design review process. There are also rear yard setback requirements from an adjoining residential lot or mixed-use lot that contains residential uses. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 13 B 1FOOM •epi MMO Sw iii rum h + Figure 6: Frontage/Lot Width & General Development Requirements Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 14 The proposed development standards for the RHHSP are shown in Table 4-3 (below): .. Development (Standards:., Development Standards Commercial (1) Muted -Use (2) A Minimum Required 51reet 70 feet o 100 feet Frontoge/Loi widt'n * 4 Stories, * 5 Stories allowed subject to specific criteria and additional setbacks (see B Maximum Building Height 50 feet below), See also Section 5.3.3; * 16 -foot minimum ground floor height for commercial uses in a verticol mix3d-use setting - Setbacks >> None with required pedt�striran -accessible amenities (3� 54001 (aggregate) setback above C Front bard (Building) None the third story; * Additional capper story setbacks may be imposed during design reviovi process, * 10 feet; None o 5 feet aggregate setback at the third D Side Yard (Interior) 10 feet from an adjoining story; residential lot or mixed-use lot • AddRional upper story setbacks may that contains residential uses; be imposed during: design review process, * bone with required pedestrian accessible omeniNns, ('P; • 5••foot aggregate setback above the E Side Yard (Corner/Street Side; None third story; * Additional upper story setbacks may be imposed during design review process, None F !tear Pard 10 feet from an adjoining * 10 feet residential lot or mixed-use to that contains residential uses Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 15 Circulation & Parking: To ensure that sufficient parking areas are provided for a project within the RHASP, all parking is required to be provided on-site. For mixed-use development, the parking ratio stipulated in the RHASP is a total parking requirement of 2.25 spaces for each residential unit plus parking for non-residential. For non-residential or commercial uses, the parking ratios provided in the TCC would prevail based on each individual use. The development community (developers) and Economic Development Department have expressed their concerns with the proposed standards. They have indicated that this standard and requirement is not in keeping with the industry standards and trends. An alternative or shared parking arrangement is also allowed and encouraged in the Specific Plan for a mixed-use development or development that utilizes non-traditional hours. A parking study is required for all non-residential uses and mixed-use developments requesting shared parking, subject to review and approval by the Planning Commission. s:r Dev lopmem StarAords C8mmerc101 (1) M d -Use (2) Building Seporo ion (Freestor ding 6uil&iI!'r s Gi corifainin;g aesidentiol and 0 Feet, V 10 Feet s adjacent laudding(s) Open Space (4) H f"r-ivute N/A& 10{7 skr per unit Common N/A 0 200 sf per unit 10`0 of gross lot size See Section 5.1.3 for n See Section 5 (Design Criterion) for 0 Londsc©pin:g Requirements mixed-use landscaping co m mercia l la n d scalp i ng re uirements rept Iran sits_ Notes: ill) u_es, withavl a resi•denhal ccmpor=W_ his may+b-s a U7trrmercid center •.orzimali'el comms*•sial oro`.tice krsifdingfsj. ,7.1 h`iinCtd.f.Prc rr~'f rrr.:Ci`-S flJi irrl��{vo+I ;I liyri .;irultaf r)r vurCifiyl S:arrtliirinYir]n of ��Rrrh(,Yir;lfpfol�t: tri�0ti w:iCh @ tl� ii�Gri"i;ht ��jrn�y�iren•I, RC;t..ltr�t'it� r:.n ts: we subjec i to tire 'n R,eservntion proi.ess. Padestrar: ,acce_sible amenii'e's mai{ in --(hide outdoor sealing, •owddacr dining ;s � bect to a i ily License• os speeidfed'n TCC Section 9277) pub!•ic aft, plaza spa:e or orckitecrurn! reatirss that ollowfor additior-o' gredevr-an activity. 14) Rc.. ur to fha Opar; Space standards in Cha`k r 4, 5action 4.4. For oddibno!i rcc{uimments. !'M A ITI ni,7,mm r?ieuticrs of I Q L-ei t7F';"Oroo bijilejing'n, coelloir•:ir•.Jq dwvllinj rprtelz on tlrM loi. f htt wir[{ow or Lmindow"fid{7ors of'orry d N,efaing n.init shall riot fore the wridowS or Windu,r./d,,i rs Uf cim)iH,eer afW..l''ir:4 Unit urik6 5.s ;eparafed by Q drStflr'sE of 10 as more feet. NW.A — Nol AppFcab"t! Circulation & Parking: To ensure that sufficient parking areas are provided for a project within the RHASP, all parking is required to be provided on-site. For mixed-use development, the parking ratio stipulated in the RHASP is a total parking requirement of 2.25 spaces for each residential unit plus parking for non-residential. For non-residential or commercial uses, the parking ratios provided in the TCC would prevail based on each individual use. The development community (developers) and Economic Development Department have expressed their concerns with the proposed standards. They have indicated that this standard and requirement is not in keeping with the industry standards and trends. An alternative or shared parking arrangement is also allowed and encouraged in the Specific Plan for a mixed-use development or development that utilizes non-traditional hours. A parking study is required for all non-residential uses and mixed-use developments requesting shared parking, subject to review and approval by the Planning Commission. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 16 In addition, the RHASP requires the developer/applicant to develop and enforce alternatives or other measures to ensure parking will be adequately provided. These measures may include: • Valet Parking • Other off-site parking • Restrictions on hours or operation • Easement or other joint -use parking agreement to share parking Flexible Amenity Setback The Flexible Amenity Setback (FAS) is a component of the public right-of-way that adjoins private development in areas of the RHASP that have or will be required to dedicate land to achieve the full 60 -foot half -width right-of-way for Red Hill Avenue. Because the driving surface (curb -to -curb) width of Red Hill Avenue will not change as part of the RHASP (+/- 42'-0"), in the interim, if a use or activity needs the full dedication for roadway purposes, the remaining +/- 18'-0" right-of-way may be utilized for a range of uses, including expanded walkways, additional landscape, public seating/plaza areas, sidewalk dining, and other similar uses proposed as part of a design review application for a development project. Outdoor dining areas that encroach into the public right-of-way shall be subject to a license agreement from the City. Additional design considerations for uses within the FAS are contained within Chapter 5 of the Specific Plan. Figure 7: Flexible Amenity Setback & Adjacent Red Full Avenue Signage: All new signage associated with development projects within the RHASP will need to comply with the TCC as well as the additional specific standards or requirements Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 17 provided within the Specific Plan. Projecting, window, wall, awning, neon, monument and portable signs are all permitted within the RHASP. The TCC does not have any sign standards for mixed-use development, so in those instances a Master Sign Plan will be required. Residential Allocation Reservation The allocation of residential units within the Specific Plan through the Residential Allocation Reservation (RAR) process is a concept that was introduced in the Downtown Core Commercial Specific Plan (DCCSP) and proposed in the RHASP. There are a total of 500 dwelling units allocated within the RHASP. Table 4-5 below summarizes this information and the total number of units allocated by planning area. • w� Planning Areas Maximum Permihd Nceth kex North, of 1-5 395 dy elling units South Areo; South of 1-5 105 dwelling units TOTAL 500 dwelling units The RAR process would provide a preliminary review of a proposed mixed-use project and its associated residential unit count to determine whether or not it is in compliance with the Specific Plan. RAR findings would need to be made by the Community Development Director. If approved, the RAR serves as a preliminary allocation of residential units for the project and the associated conditions of approval shall set forth time limitations for submittal and approval of the appropriate entitlements. The preliminary RAR allocation of units shall not be considered final until approval of the requested entitlements by the highest approval body (i.e. Community Development Director, Zoning Administrator or Planning Commission). Should the application entitlements be denied or not implemented within the time frame identified in the RAR preliminary approval, the preliminary allocation of units approved under the RAR shall be redeposited into the Residential Allocation Bank for use by other projects. The Community Development Department shall monitor the Residential Allocation Bank and track all residential units reserved, transferred, approved and constructed under a RAR. Chapter 5: Design Criteria As a compliment to the development standards in Chapter 4, the Specific Plan establishes design criteria to further the vision and goals of the Plan. The Design Criteria are contained within Chapter 5 and provide design direction for new development as well as direction for improvements to existing development to enhance Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 18 the character of private property within the Specific Plan area. The Design Criteria apply to all development within the Specific Plan area and are intended to be used as a guide for new development or improvements to existing development. There are five (5) design principles within the Specific Plan that contribute to future development and redevelopment so as to ensure that development activities are integrated, sensitive to surrounding neighborhoods, provide for positive imagery and create an inviting environment for residents and visitors, adhering to the intent of the Specific Plan. These principles include: (1) provide for high quality development, (2) promote a sense of place within the Specific Plan area, (3) provide development that is human scale, (4) create linkages between the Specific Plan area and surrounding neighborhoods and (5) create cohesive thematic elements. Architectural Style Three (3) architectural styles are identified and encouraged within the RHASP; Spanish/Mediterranean, Modern Craftsman and Farmhouse/Agricultural. These styles represent contemporary interpretations of three traditional architectural styles which are drawn from Tustin's varied agricultural heritage with Spanish roots as well as past fruit groves. With time, it is envisioned as an area which integrates existing commercial uses with new development to create a versatile mix of commercial, office, retail and residential uses, which will help to create a sense of place. Spanish/Mediterranean Modern Craftsman Farmhouse/Agricultural Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 19 Public Realm Chapter 5 also includes design criteria for the public realm, which is the area within the public right-of-way such as the street itself, the parkway, sidewalk, and pedestrian amenity setback. Where private development meets and intermingles with the public realm, specific criteria will guide design such as the creation of public gathering spaces (i.e. courtyards, plazas, outdoor dining and mid -block pedestrian paseos, etc.) through the use of different types of building frontages. Figure 8: Pedestrian -oriented uses in the Flexible Amenity Setback such as seating, landscaping, awnings and signage Chapter 6: Administration and Implementation: Chapter 6 explains the procedures and outlines the areas of responsibilities and procedures to implement the Specific Plan. The provisions of the RHASP apply to all existing and future development and land uses in the area. Existing uses shall be permitted to continue and need not comply with the new standards in the RHASP, subject to the provisions of TCC and with respect to legal non -conforming structures and uses. When land uses intensify or change, existing structures are modified, additional square footage or new development is proposed, conformance with the regulations and design criteria outlined in this Specific Plan will be required. In reviewing proposals that include the modification to existing development, however, it is recognized that existing site conditions may constrain the extent to which these development standards and design criteria can be met. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 20 Within the Plan, the following are responsibilities for each of the authorized bodies: Community Development Department The Community Development Department shall be responsible for the administration and enforcement of provisions of this Specific Plan, including processing of applications, providing assistance to applicants, administration of the Residential Allocation Reservation (RAR) and reviewing projects in compliance with the RHASP. Public Works Department The Public Works Department shall be responsible for overseeing improvement projects involving streets, public rights-of-way, and other public properties and improvements within the RHASP. Community Development Director/Zoning Administrator The Community Development Director acts as the Zoning Administrator as outlined in the TCC. The Director shall also be responsible for interpretations of provisions and uses, approval of temporary uses, specification of conditions of approval, site plan and design review to determine compliance with the Specific Plan, consideration of transfers and/or conversions of residential dwelling units or commercial intensity, minor adjustments, approval of Final Maps, and authorization of certificates of use and occupancy for both new development and re -use of existing commercial buildings. The Community Development Director may refer an action to the Planning Commission. Planning Commission The Planning Commission, as defined by the TCC, shall be responsible for approving Variances and Conditional Use Permits; subdivision maps; recommending Specific Plan Amendments and Development Agreements to the City Council; and acting on appeals from decisions by the Community Development Director or Zoning Administrator. City Council The City Council shall be responsible for adopting the Specific Plan, General Plan Amendments and any future amendments to the Specific Plan; approving Development Agreements; and acting on appeals from decisions by the Planning Commission. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 21 Incentives: There are three (3) incentives to encourage development within the RHASP which include: addition of residential units to the area, an additional story in height for mixed- use projects and overall lot consolidation. An additional story in height, up to a maximum of five (5) stories, may be granted to properties requesting the development of integrated mixed-use projects. As outlined in Chapter 4, Land Use and Development Standards, buildings may extend beyond the base height of four (4) stories only where the subject property is not adjacent to existing single family residential development. The height incentive 'shall apply to all mixed-use structures on a site. The RHASP also encourages lot consolidation as a way of maximizing development opportunities and creating better projects that merge smaller parcels into a larger development project that may result in improved design and circulation. Consolidation of lots is considered a benefit to be considered in the allocation of residential units within the RAR process. Con versions/Transfers After the 500 units allowed through the Specific Plan are allocated, conversions of commercial intensity may be allowed between the areas north and south of the 1-5 within the Specific Plan based on certain findings and an evaluation of the vehicular trip assumptions contained within the Program EIR. Transfers of residential dwelling units or commercial intensity between the north and south areas may be permitted at any time subject to approval by the Community Development Director. The ability to transfer residential units or convert commercial square footage allows for greater flexibility as the build out continues and has a potential benefit of creating a better high quality development project with additional housing units for a project when justified. Findings Individual development projects within the Specific Plan area will require Design Review as required by the TCC as well as other specific procedures outlined in Chapter 4. The RHASP contains findings that serve as the basis for determining approval, approval with conditions or denial of development applications that are submitted for projects within the Specific Plan area. The findings are organized into four (4) categories: 1. Findings for all new development projects (including separate findings for design review) 2. Findings for mixed-use development projects 3. Findings for residential mixed-use development projects with Residential Allocation Reservation transfers or conversions 4. Findings for exceptions to the Land Use and Development Plan (Chapter 4) and Design Criteria (Chapter 5) Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 22 ENVIRONMENTAL REVIEW Final Program Environmental Impact.Report Prior to the preparation of the Draft Program Environmental Impact Report (DPEIR), the City of Tustin circulated a Notice of Preparation (NOP) and held an EIR scoping meeting on April .20, 2017 to determine the concerns -of interested parties regarding environmental analysis of the proposed project. The Scoping Meeting notification included only outside/responsible agencies, with the NOP posted on the City's website and at City Hall. Following the scoping meeting, the City of Tustin completed the DPEIR for the proposed Red Hill Avenue Specific Plan, GPA and ZC. The Draft PEIR evaluates the potential environmental effects associated with the addition of 500 dwelling units and 325,000 square feet of non-residential uses to ,the Specific Plan area. For analysis purposes, the Program EIR assumes a buildout year of 2035. The Draft PEIR analyzed impacts to fourteen (14) environmental topical areas: • Aesthetics • Air Quality • Cultural Resources and Tribal Cultural Resources • Geology & Soils • Greenhouse Gas Emissions • Hazards and Hazardous Materials • Hydrology and Water Quality • Land Use and Planning • Noise • Population and Housing • Public Services • Recreation • Transportation and Traffic • Utilities Table 1-1 of the DPEIR (Attachment 3 - Exhibit A) summarizes the conclusions of the environmental analysis. Impacts are identified as significant and unavoidable, less than significant with mitigation, less than significant, and no impact. For all significant impacts mitigation measures are identified. The level of significance after imposition of the mitigation measures is also presented. Issues requiring mitigation include cultural resources and tribal cultural resources, hazards and hazardous materials, hydrology and water quality, noise, recreation and utilities. Significant and unavoidable impacts include air quality, greenhouse gas emissions and transportation and traffic. The Mitigation Monitoring and Reporting Program are included as an exhibit within Attachment 3 — Exhibit D). Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 23 CEQA Comments On February 1, 2018, the City issued a Notice of Availability of the DPEIR which also initiated a 45 -day public comment period in which the public and other outside agencies could review and comment on the document. The comment period concluded on March 19, 2018 and the City received fourteen (14) written letters and/or e-mails of correspondence from affected agencies and interested parties. These correspondences and responses are summarized in Final Program EIR (PEIR). On July 31, 2018, the responses to comments were distributed to those persons or agencies that commented on the DPEIR. Although most potential project impacts have been substantially avoided or mitigated, as described in the Finding of Facts in Support of Findings, there remain some project impacts for which complete mitigation is not feasible. For some impacts, mitigation measures are identified and can be adopted by the City, however, even with implementation of the measures, the City finds that some impacts cannot be reduced to a level of less than significant. As a result, the City, after balancing the specific economic, legal, social, technological, and other benefits including region -wide or statewide environmental benefits of the project, has determined that the unavoidable adverse environmental impacts may be considered acceptable due to specific considerations which outweigh the unavoidable, adverse environmental impacts of the project, each of which standing alone is sufficient to support approval of the project in accordance with CEQA. A Statement of Overriding Considerations in included within Attachment 3 - Exhibit E that outlines the facts that have been considered for approval of the Red Hill Avenue Specific Plan. Other Public Comments A comment letter dated March 16, 2018 was received from Rutan & Tucker, LLP on behalf of WTM Tustin Investors, LP, and Lake Union Investors, LP (Attachment 6) and their property interests at 13852 Red Hill Avenue. This letter commented on the following: 1. Comment: What level of improvements/upgrades to existing structures will trigger application of the Specific Plan requirements? Response: Existing uses shall be permitted to continue and need not comply with the new standards in the RHASP, subject to the provisions of TCC Section 9273, Legal Nonconforming Structures and Uses. When land uses intensify and/or occupancies change, conformance with the regulations, and any other design criteria outlined in the Specific Plan will be required. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 24 2. Comment: The ten (10) percent landscape coverage requirement in the Specific Plan is excessive. Response: Landscape coverage requirements are specified in Chapter 4 of the RHASP and include a minimum of ten (10) percent of the total commercial gross lot size that must be permanently landscaped. Landscaping shall include a variety of live landscape, hardscape materials, and other design elements such as rooftop landscaping (i.e. green roofs), fountains, sculptures, planters, decorative rock, etc. The proposed ten (10) percent minimum landscape coverage for mixed-use projects is desirous to achieve the vision for the area and necessary to enhance livability for future residents within the Specific Plan area. The City's current landscape coverage requirement does not address mixed-use projects. 3. Comment: Are drive-through restaurants not allowed in the Specific Plan? Response: Table 4-1 on page 4-5 of Chapter 4 of the RHASP identifies that drive-through, drive-in and drive -up facilities are permitted in the RHASP with approval of a Conditional Use Permit. Drive-through businesses have additional design considerations related to on-site circulation, noise impacts, vehicular access, outdoor seating, landscaping and other parameters and this is provided in Chapter 5 - Design Criteria. The goal and objectives of the RHASP include a combination of different types of uses within the area including commercial, retail and residential that creates a sense of place and new identity while still balances the vehicular and public transit needs along Red Hill Avenue. As a result, a proliferation of drive-through businesses is not encouraged. 4. Comment: How does the height limitation of light poles within the Specific Plan apply to existing shopping centers within the Plan area? Response: For new mixed-use projects, the installation of new light poles shall not exceed a height of sixteen (16) feet and any new light poles installed on` the rooftop of any parking structure located on a lot adjacent to any residential zone shall not exceed a height of eight (8) feet. For existing shopping centers within the Specific Plan area, the existing light poles may be non -conforming relative to the RHASP requirements. As a result, and in accordance with the RHASP, the TCC Section 9273 relative to Legal Non -Conforming Structures and Uses would be applicable for the RHASP. When land uses intensify and/or occupancies change, conformance with the regulations and any other design criteria outlined in the Specific Plan may be required. 5. Comment: Who is responsible for the costs associated with undergrounding overhead utility lines? Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 25 Response: Costs associated with undergrounding overhead utility lines on private property would be required to be paid for by the individual property owner. Undergrounding overhead lines within the public right-of-way may be required through a project's conditions of approval and the subsequent payment of those costs may be determined through a fair -share arrangement between the City and .project applicant. 6. Comment: Is shared parking allowed within the RHASP? Response: Shared parking within the RHASP area is included and adressed in Chapter 4 of the RHASP. 7. Comment: Will freestanding retail remain a permitted use within the Specific Plan and are supermarkets allowed? Response: Permitted, conditionally permitted and prohibited uses are identified in Table 4-1 within Chapter 4 of the RHASP. Table 4-1 includes a variety of retail, service, hospitality & entertainment, residential and mixed-use, civic, cultural & public uses, medical and automotive -related uses. Grocery stores are classified as "Food Service" and are a permitted use within the RHASP. Freestanding commercial as well as mixed-use are permitted within the RHASP. 8. Comment: When will public improvements and dedications be required? Will re - tenanting an existing structure with standard, tenant improvements trigger this obligation? Response: The dedication of right-of-way to achieve a width of 60 feet from the centerline of Red Hill Avenue will be required at the time of development or redevelopment. Public improvements within the public right-of-way may be completed by the City of Tustin as part of a future Capital Improvement Project or they may be required to be made by a project applicant through conditions of approval for a project when a nexus exists or they may be made through a fair - share cost arrangement between the City and project applicant. 9. Comment: Will existing shopping center agreements and long-term leases be impacted by the RHASP? Will the RHASP require all properties to become mixed-use? Response: Existing shopping center leases are not within the purview of the City and are agreements between tenants and property owners. Existing commercial uses may continue to operate and remain. All new development or mixed-use projects must comply with the standards and requirements of the RHASP. 10. Comment: How will the parking be addressed with the proposed residential development project on the north side of Red Hill Avenue? Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 26 Response: Parking for the pending mixed-use project at 13751 and 13841 Red Hill Avenue is required to be provided on-site, unless alternative shared parking is proposed. For approval of alternative shared parking, a parking study is required for both commercial uses and mixed-use development projects in accordance with the RHASP. The parking study would be subject to review by the City. Additional measures to address potential future parking shortages will also be made a condition of approval. 11. Comment: Please confirm the development standards for mixed-use projects on pages 4-15 through 4-19. Please clarify the meaning of "non-residential". Response: The General Development Standards on page 4-15 through 4-19 apply to mixed-use projects. "Non-residential" includes stand-alone commercial development that is not part of a mixed-use project. PUBLIC WORKSHOPS & NOTIFICATION Notice for the public hearing was sent to property owners and tenants within the project area and within a 500 -foot radius of the project area. Notices were also sent to those listed on the City's interested party list. The notice was published in the Tustin News. In addition, notices were posted at Tustin City Hall, various locations within the.project boundary, Tustin Library, Tustin Senior Center as well as on the Facebook and Nextdoor. Between July 2015 and February 2018, a total of three (3) public workshops were held. Property owners and tenants were notified within the project boundary as well as property owners and tenants that reside 500 -feet outside the Specific Plan boundary. Information was provided on the City's website to keep everyone informed and an interested party list was also developed as the project progressed. The purpose of the workshops was to receive comments on the Draft Specific Plan. The final workshop was also a joint study session between the Planning Commission and City Council where the final draft Specific Plan was presented and additional comments were voiced and/or submitted in writing. CONCLUSION For the reasons described in Attachment 3 — Exhibit E, the benefits of the proposed Red Hill Avenue Specific Plan outweigh its unavoidable adverse environmental effects, and consequently, the adverse environmental effects are considered "acceptable" in accordance with Section 15093 (c) of the State CEQA Guidelines. Accordingly, staff is recommending that the Planning Commission recommend that the City Council approve the proposed project and adopt a Statement of Overriding Considerations. Red Hill Avenue Specific Plan, GPA, ZC and Final Program EIR August 14, 2018 Page 27 a H. Demkowicz, AICP Senior Planner Attachments: 'Elizabeth A. Binsack Director of Community Development 1. Red Hill Avenue Specific Plan Project Area Map 2. Red Hill Avenue Land Use Map 3. Resolution No. 4367: Final Program EIR A. Draft Program EIR (Volume 1) B. Draft Program EIR (Volume 2 — Technical Studies) C. Response to Comments D. Mitigation Monitoring and Reporting Program E. Statement of Overriding Considerations 4. Resolution No. 4368: GPA 2017-01 A. Exhibit A — General Plan Consistency Analysis/Findings B. Exhibit B — General Plan Text Amendment 5. Resolution No. 4369: ZC 2017-001 A. Ordinance No. 1498 — Final Draft Red Hill Avenue Specific Plan B. Zoning Map Update 6. Comment Letter received from Rutan & Tucker, LLP dated 3/16/18 7. Errata List