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HomeMy WebLinkAboutV- C- 1 Monrovia Nursery Specific Plan and Project 1 AGENDA ITEM TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL FROM: ROY BRUCKNER, DIRECTOR OF COMMUNITY DEVELOPMENT JENNI SUVARI, PROJECT MANAGER VIA: RICK COLE, CITY MANAGER DATE: JANUARY 21, 2003 SUBJECT: MONROVIA NURSERY SPECIFIC PLAN AND PROJECT RECOMMENDATION Based on compliance with the provisions of the Azusa Municipal Code and conformance with the General Plan and CEQA guidelines, the Planning Commission recommends to the City Council approval of the Monrovia Nursery project as follows: 1. A resolution certifying the Final Environmental Impact Report, and adopting a Statement of Overriding Considerations and a Mitigation Monitoring Program; 2. A resolution approving General Plan Amendment No. GPA 2002-03; 3. An ordinance adopting Zone Change No. Z-2002-03; 4. An ordinance adopting the Monrovia Nursery Specific Plan as amended; 5. A resolution approving Vesting Tentative Map 54057 subject to the conditions of approval listed in the attached Exhibit A; 6. A resolution approving the pre-zoning of the 433-acre portion of the project site within the County of Los Angeles; and 7. Approval of the resolution to initiate proceedings with the Local Agency Formation Commission for reorganization (annexation). PROJECT SUMMARY 2 The proposed Specific Plan for the Nursery site provides for up to 1,575 dwelling units and up to 50,000 square feet of commercial uses on 281 developable acres. An additional approximately 220 acres are reserved as permanent open space. The land plan contains three planning areas: 1) the Promenade District, a more urban district anchored by a great walking street and a light rail transit center that consists of a station, 30,000 to 50,000 square feet of transit-oriented development and residential uses; 2) the Park Neighborhoods consisting of detached residential homes anchored by a series of neighborhood parks; and 3) the Village Core, anchored by a community recreation facility and includes housing. A K-8 school and joint-use park, maximization of street connections, and utility and infrastructure improvements are also proposed. BACKGROUND Over the past three years, the City’s General Plan public participation effort has been the most ambitious for any city of our size in California. As a new community-driven vision and goals emerged from the Citizens Congress, the need for the City to plan for the future of the Monrovia Nursery site became clearer. Rather than wait for a developer to take the lead, the City agreed with the property owner to cooperatively sponsor a unique planning process that has resulted in the draft Specific Plan. The creation of the Monrovia Nursery Plan was a collaborative effort of Azusa citizens, the City, and the Land Owner, Monrovia Nursery Company, utilizing a series of workshops, charettes, and study sessions. No developer participated in the planning process. An initial community workshop formulated the four Guiding Principles for the future planning and development of the Nursery property, which formed the foundation for the Plan. The City and the Monrovia Nursery Company conducted a nationwide search for land planning and design firms to participate in a design charrette/competition. Four firms were chosen to prepare conceptual land plans to be evaluated by the community. Based on public evaluation of the plans, the City and the Monrovia Nursery Company chose California-based EDAW and Maryland-based Torti Gallas and Partners to prepare one comprehensive land plan. Six months of collaborative planning culminated in the presentation of a final draft land plan to the community in April 2002. That land plan further evolved, and with the addition of detailed standards and design guidelines, ultimately became the draft Monrovia Nursery Specific Plan. The following discussion presents how the proposed Specific Plan is respectful of the Guiding Principles formulated by the community: Guiding Principle #1 Natural and Community Environment Vision- Protect the foothills, preserve natural habitat and terrain, and integrate nature into future development and use. Enhance the existing fabric of Azusa neighborhoods with new development integrated into the rest of the community by open access and compatible neighborhood design: Natural and historic flow of water enhances the area; Historic resources are preserved with the development; and Public and private views are protected and development is compatible with surrounding neighborhoods and uses, including the Dhammakaya International Meditation Center. The Specific Plan land plan respects the natural and community environment in a number of ways: • The foothills are preserved and the existing biological resources are protected. The development plan does not extend beyond existing Nursery operations, ensuring protection of the foothills by 3 preserving 184.5 acres of natural open space. • The land plan provides a drainage arroyo in the general location of the historic canyon that drained the foothills. The arroyo will convey storm flows, contain natural riparian habitat, provide bio-filtration to treat urban pollutants, and include a trail system connecting to the Garcia Trail. • The land plan maximizes the number of connections to the City. Furthermore, the realignment of Sierra Madre Avenue includes a linear park and trail connecting to the City and the arroyo trail. • The romantic bent grid design of the Park neighborhoods minimizes landform alteration by incorporating the existing topography into the land plan. Furthermore, the bent grid causes roof and front elevation movement minimizing the view of one continuous row of homes. • Historic resources, such as the Vosburg House and millstone, are being preserved. The Vosburg House will remain on site and continue to function as Monrovia Nursery’s headquarters. The Specific Plan EIR includes an assessment and mitigation measures for the cultural resources on- site. • The Specific Plan is compatible with surrounding land uses and creates new great neighborhoods that benefit the entire community. Existing land uses are buffered. The Dhammakaya International Meditation Center is buffered on the west by the Vosburg House; on the south by a roadway and landscaped detention facility; and on the north and east by a landscaped slope. The homes backing onto the Nursery in the Nob Hill neighborhood are buffered by a landscaped drainage course. The homes in Glendora that back onto the Nursery are buffered by a park and landscaped slopes. The homes that currently take access from Sierra Madre Avenue will be provided with a new private driveway. Guiding Principle #2 Quality Neighborhoods and Homes Vision- Maintain Azusa’s family-oriented community identity by offering a diversity of home ownership opportunities, reflecting traditional neighborhood patterns: Dominant housing type is single-family detached homes attractive to middle and upper income home buyers; Architectural styles and features draw on historic patterns and scale; and high quality construction, home design, and neighborhood amenities promote well-being and maintain value. The Specific Plan has been designed as an extension of Azusa’s family-oriented traditional neighborhoods. • The Specific Plan has a number of neighborhoods each based on planning principles that have held value over time. The world-renown landscape architect and planner, Frederick Law Olmstead, pioneered these principles. The Park neighborhoods are based on a romantic bent grid network formed around parks. The Village Core neighborhood is designed as an activity center focused around the arroyo and private recreation facility. The Promenade District is patterned after the great walking streets of the world. Examples of local communities that were planned around these principles include Palos Verdes Estates, Beverly Hills. and the Vista Bonita neighborhood in Azusa. • The Park neighborhoods constitute 17.3 percent of the Nursery property while the Village Core neighborhood and Promenade District constitute 2.2 percent and 7.7 percent respectively. Both the Village Core and the Garden Court neighborhood in the Promenade District allow for detached rear- loaded housing. • In the Park neighborhood, Village Core, and Promenade District, all streets have parkway 4 separated sidewalks and street trees, and a majority of the streets open onto parks. These amenities are shared by everyone in the community. • Architecture in all neighborhoods de-emphasizes the garage. The living portion of the homes are pulled forward toward the street with outdoor living space such as porches, stoops, and balconies. This architectural design encourages neighborhood interaction, a pedestrian lifestyle, and promotes safety by allowing for “eyes on the street.” • The architecture in all neighborhoods is based on heritage architecture from the San Gabriel Valley. Examples include Spanish Colonial, Craftsman, European Cottage, American Traditional, Monterey, and American Farmhouse. The Specific Plan identifies elements for each style that make the style accurate and recognizable. The Specific Plan promotes the “Simple House” concept, which encourages simple plan forms and elevations that reduce costs while providing authentic architectural form and massing. • The Specific Plan identifies a variety of housing products that range in size and price. Furthermore, the Promenade District has seven different building typologies. This variety in housing types, sizes, and prices provides homeownership opportunities for a variety of people in different stages of homeownership. • The Specific Plan includes housing products for the middle to upper income buyer. In the Promenade District, housing prices are anticipated to range from the low to high $200,000s. The Village Core may see housing prices from the mid-$200,000s to over $300,000. In the Park neighborhoods housing prices are expected to begin in the low $300,000s and extend well above $500,000. • Central to all neighborhoods is a landscape plan that incorporates great landscape design which will improve the value of the homes within the community. Guiding Principle #3 Mobility and Mix of Uses Vision- Create a walkable mixed-use core, suitable for business or residential uses adjacent to a future Gold Line light rail stop blending and connected with adjacent residential neighborhoods and the emerging University District to the south: Campus-style office space suitable for high-tech, corporate or institutional users; A shared neighborhood core with small-scale retail/service businesses for transit riders, business park employees and surrounding residents; and Compatible townhomes and apartments. The Promenade District creates a mixed-use neighborhood that promotes transit, commerce, and high-quality residential development. • The Specific Plan incorporates space near Citrus Avenue for a future light rail transit station. • A transit plaza is planned adjacent to the light rail station as a formal park and inviting gathering place surrounded by transit-oriented retail. • Mixed use, live/work, and three-story residential are the land uses planned around the transit center to create the community of persons who will embody the vision of a transit-oriented district. • The transit plaza anchors the Promenade, which is a great walking street that connects the plaza to the residences of the Promenade District. • The residences in the Promenade District are planned as for-sale housing. The only rental would occur in the area surrounding the transit square as a mixed-use development, with apartments above retail or office uses. 5 Guiding Principle #4 Green Spaces and Public Uses- Build on the green and open character of the natural setting and history by incorporating passive green space and active recreational facilities. Incorporate abundant public and neighborhood-serving facilities such as schools, child-care, and gathering places: A system of neighborhood parks to serve local residents and larger parks as a resource for the entire community; Comprehensive trail system for walking, hiking, and biking; Distinctive landscaping/greenery/greenbelts/trees; and Hillside open space. Azusa’s heritage is tied to the San Gabriel Canyon and Mountains. The Specific Plan fosters that heritage through a series of parks, open space, and trail connections that will incorporate landscape commemorative of the Nursery and great botanic gardens of the world. • The arroyo provides a spiritual, visual, and physical connection through the new community to the mountains. The arroyo is a natural corridor located on top of a historic drainage canyon. The arroyo will function has a natural park with riparian habitat and a trail system connecting to the Garcia Trail. The trail system will pass underneath Sierra Madre Avenue. • The Park neighborhoods are designed to provide parks within the line of sight and within a five- minute walk from each home in the neighborhood. • The Specific Plan provides for a variety of parks. Some parks are designed with ballfields and turf area for active recreation. Other parks are more passive in nature designed for viewing and sitting. Along Sierra Madre Avenue a linear park provides both view opportunities and trail connections between Azusa, the arroyo trail, and Glendora. The Promenade includes a walkway- styled park, community gathering opportunities, and spectacular landscape. In total 30.93 acres of public park will be dedicated to serve both the existing and new members of the City of Azusa. • The trail system is an important part of the land plan. Every street has parkway-separated sidewalks to promote pedestrian activity. The realignment of Sierra Madre Avenue will include a new linear park and trail providing a trail connection between the City of Azusa and Glendora. The arroyo includes a trail providing north/south access throughout all the neighborhoods. Furthermore, the Promenade District is designed as a walking district. • In addition to public parks, the Specific Plan includes a 2.1-acre private recreation facility and a one-acre public recreation facility. This facility will provide a community room, pool, and other recreational amenities. • The Specific Plan celebrates the heritage of the Nursery by incorporating botanical garden themes and historic references to Nursery plantings. • A Great Park consisting of a 9.0-acre public school and 5.5-acre joint use park anchor the system of parks. The school is designed to accommodate students from kindergarten through eighth grade. • The Specific Plan does not extend beyond existing nursery operations and allows for 184.5 acres of natural open space to be preserved in the foothills. The following is a presentation of the key issues discussed by the Planning Commission: 1. Recommendation from the Planning Commission 6 On January 8, 2003, the Planning Commission considered and adopted Resolution Nos. 2003- 01, 2003-02, 2003-03, 2003-04, 2003-05, and 2003-06 recommending to the City Council approval of the following: Certification of the Final EIR, and adoption of General Plan Amendment 2002-03, Zone Change 2003-03, Monrovia Nursery Specific Plan, Vesting Tentative Tract Map 54057, and Pre-zoning of the unincorporated area (Attachment 1), subject to the conditions, changes, and amendments discussed and presented at the Planning Commission public hearing. 2. Summary of the Planning Commission Public Hearing Public hearings were conducted on two nights: December 11 and 18. At these hearings, about two-dozen people spoke, the majority of which were in support of the project. Issues raised included, fiscal impact, traffic, parks, drainage, Fairmount Cemetery impacts, cumulative impact analysis, Gold Line contingency, grade-separation of railroad track crossings, and noise mitigation. Staff prepared responses to all of these issues and distributed them to the Planning Commission at the January 8th meeting in a report entitled “Supplemental Report #2.” 3. Summary of Planning Commission Deliberations The Planning Commission was methodical in focusing on a list of issues the Commission believed required further discussion and deliberation, as well as those that staff highlighted as requiring discussion. Straw votes were taken to determine which recommendations should be forwarded to the City Council. These issues were as follows: A. Unanimous recommendations to the City Council for changes to the conditions of approval were made as follows: 1. In “Supplemental Report #2”, Staff proposed various changes to conditions, presented conflicts between the Applicant and Azusa Light & Water’s (ALW) conditions, and added two conditions. The meeting was briefly recessed, during which the City Attorney, ALW’s representative, and the Applicant’s legal counsel agreed on language. Subsequently the meeting resumed and all proposed changes as amended, were unanimously approved by the Commissioners. Those changes are reflected in Attachment 2 in highlight/strikeout format. 2. Adding a condition (#98 on Attachment 2) to place safety fencing around detention basins as needed, at the direction of the Community Development Director. 3. Requiring the relocation of palms along Palm Drive when there was a likelihood of survival beyond 10 years (#17 on Attachment 2 and Mitigation Measure CR4 on Attachment 3). Otherwise, the palms would be replaced at a ratio of 1:1. 4. Recommending Mitigation Measure N8(c) as the City’s preferred configuration of the grade-separated crossing at Palm Drive and Citrus Avenue: the railroad tracks would be raised approximately five to seven feet and crossing shall be grade- separated at both Palm Drive and Citrus Avenue by lowering both streets so they pass underneath the railroad tracks (#35 on Attachment 2). 5. Requiring rest areas and benches, as appropriate, along Sierra Madre Trail (#10 on Attachment 2). 7 6. Clarifying Mitigation Measure N1 and N2, referencing the General Plan Circulation Element Truck Route Map and the use of radiator baffles to attenuate noise (N1 and N2 on Attachment 3). 7. Requiring the Applicant to formulate and implement an air conditioning filter replacement plan for affected existing receptors to further abate dust impact during project construction (#70 on Attachment 2). 8. Eliminating four bullet points on pages 96 and 97 on Attachment 1(a), which list goals and policies of the General Plan that the Commission believes do not support Alternative #3. B. Proposed recommendation for changes, which were not approved (3 votes against the proposed change – 1 vote in favor of the change): 1. Although no significant impacts with regard to ground-borne vibration were identified in the EIR, it was proposed that vibrations should be monitored and if they exceed acceptable thresholds, the project should be stopped until appropriate measures are taken. The majority of the Commissioners did not agree that this condition was warranted. 2. It was proposed that grading not take place adjacent to Dalton school when it is in session. The Applicant explained to the Planning Commission that this restriction to do grading only during the summer months would put a large burden on the Applicant. Given that construction-related impacts are temporary in nature, the other Commissioners did not support the proposed conditions. 3. It was proposed that additional mitigation be required for existing residences adjacent to the project site to abate noise impacts. The Applicant explained that short of making permanent improvements to receptors’ windows, everything possible is being done. Given the large cost associated with permanent improvements to mitigate temporary construction-related noise impacts, the other Commissioners did not support the proposed condition. 4. Limitation of the density in the Transit Neighborhood to 30 units per acre, rather than 36 units per acre as proposed. The Applicant explained that this would limit the innovative product types which are available at greater than 30 units per acre. The other Commissioners did not want to limit the plan in this regard. 5. It was proposed that condition #1, part 9 be edited as follows: “Add a provision that all dwelling units shall have two or more bedrooms, or more than 1200 square feet to allow for lofts.” This proposed change pertained to whether loft units should be allowed at all, regardless of size. The Applicant explained that the initial condition called for the prohibition of one- bedroom units, in response to a concern about one-bedroom units being of lower value and standard. In order to ensure high quality, high value construction, but not prohibit the construction of artists lofts or live/work-type units, which is part of the concept of the Promenade, it was proposed to require a minimum size for loft units. Loft units and live/work units are very popular in other cities. The 8 majority of the Commissioners did not want to eliminate the possibility of loft units and therefore, did not support the proposed change. C. Proposed changes where no consensus was reached: 1. Street Widths – Commissioner Hanks advocated a street width standard of 34’ and Commissioner Dodson advocated a street that complies withLA Co. Fire Department Standards (36’). Commissioners Flowers and Prado supported the project’s proposed 32’ street widths. While consensus was not reached on this issue, the Commission felt comfortable with the condition placed on the project (Condition #27, part 12) requiring the project to be consistent with the street width standards to be adopted in the City’s new General Plan. 2. One-story units – Commissioner Dodson wanted to edit condition #27, part 14 as follows: Add language to the Specific Plan to encourage construction of one-story units and/or master bedroom downstairs floor plans, as determined by market conditions. The Applicant explained that market studies indicate that those people buying new homes want two-story homes rather than one-story. Furthermore, by offering a two-story plan with the master bedroom downstairs, it accommodates that very small segment of homebuyers looking for a 1-story unit. The Planning Commissioners could not come to a consensus on this topic. FISCAL IMPACT A Fiscal Impact Study was prepared by Kosmont Partners on behalf of the City to evaluate the net fiscal impact of Monrovia Nursery Specific Plan implementation. The findings and results of this analysis will provide a part of the basis for the Development Agreement, which will be negotiated between the City and the Applicant. The following summarizes the Fiscal Impact Analysis: Revenues Upon full build-out, Monrovia Nursery is estimated to produce $1.7 million in annual fiscal revenues for the City. The largest revenue category is property tax with revenues of approximately $852,000 per year, 50% of the total revenues. The four largest revenue sources are summarized below: Top Revenue Sources from Monrovia Nursery Project Source Amount Property Tax $852,000 Intergovernmental Transfers $388,400 Utility-related Taxes $155,300 Sales tax from on-site retail sales $101,500 Indirect Revenues 9 The new residents who will purchase housing in the Monrovia Nursery project will bring new sales tax revenues to the City. Their average incomes will be 83% higher than the typical existing resident, and these households will spend 43% more per household in taxable retail sales. A range of approximately $3,900 to $6,500 in new taxable sales in Azusa from each Monrovia Nursery household is expected. This would represent an annual total of approximately $6.2 million to $10.3 million for the entire project. This would produce total new sales tax revenues of $61,800 to $103,100 annually in 2002 dollars. Expenses The City is estimated to incur annual fiscal expenditure obligations of approximately $2.3 million to provide required municipal services. The largest expenditure category is police services which is expected to require approximately $1.2 million annually, 55% of the City’s total obligations. The six largest expense categories are summarized below: Top Expense Sources from Monrovia Nursery Project ource Amount Police Service $1,246,000 Recreation & Parks $615,700 Community Development $135,200 General Government Services $131,500 Library $109,500 Net Fiscal Impact While the Monrovia Nursery will produce and estimated $1.7 million in annual fiscal revenues for the City, the project will cause the City to incur annual fiscal expenditure obligations of $2.3 million. This will produce an annual negative net fiscal impact of approximately $609,900. Revenues $1,674,200 Expenditures $2,284,100 Net Fiscal Impact ($609,900) Proposed Mitigation Sales tax revenues from taxable sales made by Monrovia Nursery households could offset a portion of the net fiscal impact. Recognizing that there is considerable sales tax leakage to surrounding communities, it could be assumed that 15 – 25% of the taxable sales of the new households may be generated in Azusa. This is speculative, but if this assumption is made, the sales tax revenue to the City would increase, and the net fiscal impact would be reduced by $62,000 to $103,000 annually. The remaining projected annual fiscal revenue deficit ($506,900 to $547,900) potentially could be reduced or eliminated by use of a Community Facilities District (CFD) or Assessment District to fund some or all of the annual maintenance cost of certain publicly owned facilities that are a part of the Project (roads, parks, open space) and other municipal services. This burden would be distributed over the 1,575 units in the Project. If an average special tax or assessment of $322 to $348 per year per residential unit were levied, the total annual special tax generated to fund the maintenance of public facilities and services would equal approximately $506,900 to $547,900. 10 A condition of approval has been included (Condition #9 on Attachment 2) requiring the formation of a CFD and appropriate Maintenance Districts to generate ongoing revenue for the cost of maintenance and repair of the public facilities. OTHER CONSIDERATIONS A letter was received from the City of Glendora at the January 8 Planning Commission meeting, commenting on the EIR, various technical studies and mitigation measures, and requesting a continuance of the public hearing. After briefly reviewing the letter, Staff advised the Commission that, in its opinion, all of the concerns raised by the letter have been adequately addressed in the EIR, Specific Plan, and technical studies, and that the CEQA documentation is legally adequate. Furthermore, Staff explained that the comments were received after the comment period for the EIR had ended, but that a response to the comments would be appropriate. Therefore, the Commission agreed that staff would prepare a written response to the letter and forward it to City Council for review and consideration. (Attachment 4) Staff reported to the Planning Commission that the details concerning the layout and configuration of the Great Park and the new school had been an open unresolved question, requiring the participation of the School District. Staff reported that recent meetings held with the School District Staff, indicated that a resolution to this matter can be accomplished within the parameters of the provisions of the proposed Specific Plan and Tentative Map, and consequently a recommendation for approval of the proposed project to the City Council would be in order. Attachment 1 - Planning Commission Resolutions a. 2003-01 – Findings of Fact and Statement of Overriding Considerations b. 2003-02 – General Plan Amendment c. 2003-03 – Zone Change d. 2003-04 – Specific Plan e. 2003-05 – Vesting Tentative Tract Map f. 2003-06 - Prezone Attachment 2 - Conditions of Approval – 1/21/03 version Attachment 3 - Mitigation Monitoring and Reporting Program – 1/21/03 version Attachment 4 - Letter received from the City of Glendora 1/8/03 and response