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HomeMy WebLinkAbout1987/04/30 - Agenda Packet-02 0 4 -30-87 PC Agendc ,•- - �� CITY OF 1 RANCHO CC:Cr1N10,',',GA PLANNING NT AMS Sy O N GN r R, 1977 THURSDAY, APRIL 30, 1987 7:00 P.M. SPECIAL PUBLIC HEARING L PLEDGrE ,9F ALLEGIANCE I ROLT* CALL Commissioner Chitiea Commissioner MelliIal,^ Commissioner Emerick_; Commissioner Tolstoy ,_' III. Fd Ai. d BOULEV"M SPEC''MCC P !, A, OVERVIEW OF PRIMARY POLICY ISSUES Staff Presentation: o Overall Corridor Design Concept Activity Centers Suburban Parkway Transitions Gateways o Overall Land Use,Tconomie Concept Existing Land Use Current Land Use Plans _ o Ovc,aall Traffic System Median islands Median Openings Access Limitations Intersection Improvements Public Input: The Commission will take brief comments on those general itet:s discussed so far. However, comments relating to specific areas, problems or issues should be reserved for later on when rr- ore specific items are discussed. AMY p01G`1ISSS $. 4y�gV18 of 58GG�D esentatiun: pT o Stott ,,mO o A eh, n u c►it9 Z'� e � ti eas en s m nemae nt a se $ su e O L e n H'Gb d S 1ecCo s o O 0. eeis Oa' O son O d � l t O eraA O aBeTn� enue p e� o SanD'e si 'Cie flan AM pub �InFu {' R�stG e -U`Ln AT � IQTA s be god s AZtD ST � tmi°"' G. ede n$ tt►e L GaTY V1i 1RrAN�nV CUlalu+lONGA ST kFF REPORT nATr- A-1 4n ii3a,7 s TO: Chairman and Members of the Planning Commission FROM, Brad Buller, City Planner BY: Otto Kroutil Senior Planner Aran barren, Associate Planner SUBJECT: FQOTHILL BOULEVARD SPECIFIC PLAN - A public hearing and wor s op to cons er a prov sfons of the Draft Foothill Boulevard Specific Plan. This meeting bagins the formal public hearing process on the 'Draft Foothill Roulevard Specific Plan which is. the result of an extensive study ant' - analysis by the Plan Consultant (FORMA- Planning Network), City staff and .'k City Council appointed AO!iisory Committee.. The result is a document which Contains the following major parts; o Part I, Community Background: o Part II, Development framework; o Part III, Development Standards; o Pat IV, Implementation The document format is designed for convenient use and the issues, answers, and implementation methods are interwoven throughout the text. This staff report will attempt to separate the major and minor issues in a logical format to aid the Commissioners in their deliberations. I A suggested "road map" for the review is depicted on Exhibit "A". 'the review process will be through a series of issue papers which address the three major concepts (Community Design, Land Use /Economics, and Traffic). Each issue paper contains 'key information, describing: L. What the plan does; 2. What the issues are; and 3. Staff position. Subarea i > 14 to b M .r Foothill Sugaxea L I j a 4 s These subareas will be referred to frequantty in the text as part of special design guidelines and development standards. PLANNLN1j COMISSZON STAFF REPORT Foothill Boulevard. Specific Plan April 30, 1987 Page 2 It is suggested the reviaw process be conducted in the fallowing manner: 1. Review all primary "big picture" issues in the area of design, land use, and circulatio,�l, then; „ 2. Review all secondary issues withvtn each major plan � area, then;, r 3. Review of specific design guidelines and development standards. In an effort to better identify the varying aspkt3 of the boulevard and address their unique needs, the plan divided the cor-^idor Into four geographlt ,subareas as follows: Subarea 1: From Grove Avenue easterly to Vineyard Avenue. Subarea 2: Frmvl 9ineyard Avenue easterly to Hellman Aven('e. 1 1111 Subarea 3: From 4eilman Avenue easterly t� Haven Avenue. Subarea 4: The 1-15 Freeway easterly to Eaat Avenue,, i i Subarea i > 14 to b M .r Foothill Sugaxea L I j a 4 s These subareas will be referred to frequantty in the text as part of special design guidelines and development standards. �l a. In addition, there is a lot �onsoiidation program_ as part of the development standards and all implementation part Which will be revised and expanded substantially as a result of Planning Commission determinations on moor portions of the document. Pinxtly, the whole process wi111r include review 'of a f6tused environmental impact report to consider any significant impacts which may result from the p ect. This 'document will be forwarded to the � Planning Co6wission for iiubiic hearictg review during the review of the Draft Specific Pl"�n. Y Recaasendation: It is recommended that the Planning- t.ommissioaers r¢View the entire document in preparation for the first meeting. Staff anticizates that we will t' -.3 able to complete reviews of the "bia picture" items and work well : - ,.,,nto the secon6r issues at primary first meiting. Ifissues�atisthis completes their revie�,.: of the meeting, staff wood re waend that we proceed into the discussion of the itandards)Regiclatiun!'. �krtion of the review process. 4 4R8spe �futly submitted, Brad But er City Planner BS:OK:te Attachments: Exhibit I - Specific Plan Review Process Chart + Issue Papers on Design, Land Use and Circulation Under Separate Cover - Foothill Boulevard Specific Plan I CWHITY DESIGN: A. COWDOR DESIGN CONCEPT The most significant physical feature of the Plan is the proposed design method to visually unify the project area. This aspect of the project was stated as a primary goal in the Foothill Corridor Interim Policies which states in part, to establish a high quality, attractive, and unifying design image reflective of community heritage ". The acceptance of the Plan's concept will set the stage for general design of the Corridor and this feature should be adaptable to changes in other significant ele-aents of the Plan (i.e. land Use, Circulation, etc.). Discussion: The Plan calls for a series of highly identifiable activity canters and gateway features which are linked by o unifying suburban parkway design as follows: 1. Activity Centers: Actibily Centees are points of interest generally located at major intersections and/or landmarks along the Corridor. They are to provide individual identity by concentrating commercial activity at the following areas: o Foothill at Dear Gulch o Foothill at Vineyard Avenue o Foothill at Archibald Avenue o Foothill at Turner Avenue o Foothill at Etiwanda Avenue 4: Activity Centers Gatevays s w These nodes will generally exhibit more formal urban design characteristics. Specific criteria is developed for each node in the Subarea 'Design Guidelines sections 8.2 through 8.5. 2. Suburban Parkway Transitions: i Thit- feature links the' activity nodes with a less formal streetscape design - to include meandering /undulating sidewalks with informal landscaping. Issue: The Planning Cmiissirn should *%- termine the appropriateness' of this concept in attafaing a unique and unifying design for Foothill Boulevard. Staff Analysis: Staff believes this concept has great potential for providing identity to the Rancho Cucamonga portion of Foothill Boulevard. ke visualize an interesting exrerience of entering the City through high visibility gateways and being led by stretches of informal parkways to high interest commercial centers which` exhibit an urban atmospheve. pedestrian B.1 0482ALL COPiMIJY DUIM CONCEPT (Sectlan 7.6) This section contains specific design guidelines which implement the objectives of the activity center /suburban parkway concept. The components of this section as noted on Pages 7 -5 through 7 -8 contain the following components: o Subarea StructarE u Activity Center o Suburban Parkway o Overall Architectural Concept o Overall Landscape Architectural Concept Issue: The Planning Commission should determine the appropriateness of these design components within the overall design concept for the corridor. r toi r- P I 0:2 ARCHIS'iaCil➢RAl MUMS One of the more recognizable aspects of a community design image is that of its arcMtectural atyle. The Advisory Committee deliberated extensively on what architectural style should be encouraged as an aspect of community identity. The importance of this issue is exemplified by the plans Overall Statement. "Goal. To create a dynamic concourse ", that, is attractive and of high mality With -a unifying design image reflective of cccxxmnity heritage and identity...." Discus;siont Concern was voiced early on that the comeGnity does not have a single identifiable architectural themme, but exhibits a diversity of styles which were identified as winery, 'fission, California barn. 1930`s Route 66, agricultural heritage, etc. The Committee resolved not to limit a -ecM, e$ure to a single theme or style. Rather, it was' decide -that architecture should borrow ce.tain elements from histori:Cal styles found in Rancho Cucamonga. This view resulted in an architectural concept (Rancho Cucamonga Heritage) which: I. Encourages thn use of elements from these types along the Corridor with provisions for design compatibility. 2. The use of a single style of rrchitectural element is not a part of this plan. 3. Encoaragement of design themes on a site-by-site basis is encouraged and provided For at activity _ centers and key features (Section 8,2 - 8.41,. Issue: Pill an architectural program made up of different distinct styles be able to form a unifying design concept for the Corridor? Staff Analysis: Staff bell4ves the Advisory Committee's recommendation has definite potential within the overall design framework so long as distinct architectural styles /themes are implemented at each activity center. In this (manner, compatible architectural diversity can act as a unifying element in the suburban parkway streetsrape while maintaining distinct architectural styles at key activity nodes /centers. i c� ? As an alternative! the Planning Ca"ion may wish to consider narrowing the band of architectural styles to he designated along tie entire length of tie boui'ovard. C. i1MCM 6U1DELMESISfAlitiW: 'these standards contain tht imrtementation features for the objectives of the special design areas. Issue: 7he Piaaini g T,oWssion should review all of the guidelines to dotavine if the desired design objectives can be I achieved. I i 4RF Aim USE: A. OVERAM LAND USE/ECONMC S RAV! f The lard Use goal is to "develop a specific-'plan which is sensitive to community, land use, and, physical needs". As a major component of this statement, the Advisory Committee =Et the tone for the land use /economic planning along Foothill through thz foli,owing objectives: "Maximize the economic po lt!nnn of Foothill Corridor commercial activities, capturing neighbor hood and subregional demand.' This objective strongly influences the ultimate scope of commercial activity and character of the corridor and the following discubsion focuses on potential result of such an aggressive commercial vee.ure. Discussion: As part of the fact finding portion of the Plan study, an economic analysts was performed by the consulting tease. The results of the economic consultants' study are as follows: o The City is experiencing a loss of sales tax revenue by °sales potential leakage" in excess of $200 million annually to othe< r; aunities due to lack of significant high sales voles - ;businesses. o Within the planning area, only a little more than half of the commercial land is currently being used by retail, service, and office businesses. The O*ainant use for all land use categories along �the'Corridor is vacant land (277- bcres). a Based -;on projected population at buildout and 1,.14 acres of General Plan commercially designated land, the City has an unrealistically high allocation of commercial land for future needs when compared to "comparable cities". o Residential dev,lopment along and adjacent to the corridor would help to improve commercial viability along the boulevard. 9 r 1 The sales leakage is not the result of the rack of commercially zoned land; commercial growth normally lags behind residential development in all growing areas. As new commercial uses develop along with new shopping patterns, new cities beliry -to capture a greater proportion of the sales. Powewer, overly ambitious commercial zoning can have a negative impact, on the many vacant and currently underutilized parcels along the western portion of Foothill. The Advisory Committee did not feel that additional commercial lance would result in tiny negative impacts if other previsions and implementation programs of the Plan aggressively promoted commercial activity, As a result, the p,lai calls for signif 'Mant additional commercial acreage along the corridor, with the intent of capturi--g a portion of the regional traffic. Conversely, the number of acres available for residential growth would be reduced. The statistical land use breakdown is as follows- Present Draft General Plan Specific Plart Difference Commercial /Office 262 369 acres + 107 acres Residential 226 157 acres - 69 acres Industrial Park 63 0 acres - 63 acres Other 7 32 acres + 25 acres Issue: Should Vie cowwrc9al /offi'ce acreage along the corridor ba increased from 262 acres to approximmately 369 acres. Staff Analysis: The key to a successful land use plan is balance. We concur with the Committees' recommendation In that Foothill Boulevard does '%ve a tremendous commercial potential with regional commercial opportunities. This is true particularly in the eastern portion of the City, where large parcels of land are available for regional commercial use, with easy access aid visibility from the I -15 freeway, relationship to the regional mall, and a main gateway to the western portion of Fontana. However, staff has some concerns with the western portion of the corridor. If excessive amounts of commercial acreage are available, significant commercial areas may,' remain undeveloped. This could have a negative effect on the viability and dasirability of the area for quality commercial services and would limit the potential for the upgrading or reconstruction of exitptirg nen- conforming- structures or uses. Dr the other fiand, the Commission should be aware that the only viaWte alOarnative to commercial or office, uses along: the corridor is residertial land use, The. corri6r:wM not be an envi ronment conducive to single4amily residential uses, and �Io�vwatibilityl multiple-family projects create traffic, other problems of their own,, Staff WWd suggest the Commission review the -overall land ;,,ze 'conr concept with these erns in mind,.recognizihg thatthere may not be a clear cut, ideal solution availahle for each parcel of land in the study area. B.1 UM USE CAMMIES: In an effort to tailor the plan to unique opportunities and constrains of selected areas, special land use cw(t�'----Ions 'The were developed. following discussion desoibaz� and analyzes each case. 1. Re0onally Related Cammercial (RC) This category is locatod imedtately adjacent to the east side of the I-1S Freeway and was proposed to take advantage of the land"s freeway exposure and close proximity to the future mall. Discussion: The main issues in this land use category are as followst o What ac6unt of land area should be reserved for this activity? On the south side of Foothill, the zone extends to EtiNanda Avenue. o The extent of commercial activity allowed within this category was extensively discussed. Some concern was voiced that only reqional related commercial uses which would not compete for space or business with the future mall should be allowed. The alternative view which was recommended is that there should be little or no restriction to competition with the mall for space or busines$. I Issue: Should the regionally relai*d, COMWC141 One allow for businesses which trill not only coolem t but toy also Compete with the business types anticipated for the future loll? Staff Analysis; Staff believes the level of City commitment to the mall and its importance to the community's plan warrants some consideration to limit the uses in the immediate rrea so as not to compete but complement the mall busiirdbs activities. �. Specially Commercial (SC) This designation was incorporated into the Plan, to facilitate the specialized development of landmark and activity centers of the Corridor. The location of this designation is at the intersections and entries to the City as follows: o Grove Avenue to thr, Bear Gulch Area o Vineyard,Avenue Intersection (northeast corner) o Archibald Intersection Discussion: The land use and deve7opment provisions of this zone provides for zWlal standards to encourage the redevelopment and retention of existing features unique to the boulevard. Towards this goal, the allowed activities have iJe" tailored to those business types which would lend support to the establishment of theme oriented activity centers. A sample of authorized uses include: Antique shops, bed and breakfa =t, book, gift and stationery stores, cafes, Jewelry, luggage shops, art galleries, travel agencies. Activities which rpay not lend themselves to this special character development are not authorized and include: Supermarkets, nurseries, garden supplies, television and stereo sales, hardware stores, auto service, laundries,. In this matter, the restricted activities help to keep the development character within the interi4ed specialized design of the high interest area, it Issue: Does the special commercial designation provide sufficient activity ailoaances and appropria" Tisitatioks to : ensure specialized development of key points of interest and landmarks? Staff f alusis: Staff concurs with the use limitations to help' ensure developments of unique character. Uses which do not lend themselves to this specialized character should locate in the community commercial or other districts. 3. Nixed Use /Retail'INUMi The large block bordered by Hillman Avenue, San 8ernalydino Road, Klusm+an Avenue, and Foothill Boulevard presented a number of potential difficulties as follows: o [Many small substandard lots in fragmented ownership o Excessive depth of the block to San Bernardino Road o A desire to limit the number of vehicle access: points to Foothill Boulevard o Residents to the north requesting limited access from Foothill developments onto San Bernardino Road o Variety of residential (mobile home parks) and transition commercial uses within the block. The consultant and Advisory Committee recommendation was to provide a land use category which:. a. Allow for multiple family developments from 8 to 14 dwelling units per acre, and; b. Coupled with an establishment of convenience usas and services tailored to the residential needs, and; Y c. Keyed to a mixed use concept is the requirement of a master plan for the entire M/R area which would a accommodate rmedies to circulation J concerns. This laiid uie designation is also proposed for a similarly „ized area at the northeast corner of Foothill a';d''Etiwanda Avenue.> Issue: JCan a co mwercial (residential mixed use scenario be ;alarmed and developed successf-glly under a master plan concept? if so, mat spe -lfic uses would be appropriate within this land use category? Note: The Advisory Committee hearer a regwest from a property owner to include motel uses as an afshorized activity in the category. The Committee 4telt there could be conflicts between the residential activity of multiple family uses and the more transient boarding activities of motels. Staff Analysis: The mixed use designation presents both potential to innovative solutions but can alse result in incompatibilities if not adequately planned. Staff concurs with the Advisory Committee recommendation that master planning of the entire area so designated is a must if the varying uses are to work well together. B..2 SITE SPECIFIC ISSijES: Issue: Should automotive related us,", be eliminated along the Corridor? The proposed plan permlts Lutomotive related uses in portions of the area. However, concerns were voiced that automobile services may not be appropriate along a revitalized Foothill Boulevard and that such uses s�kould be located in the Industrial Area. Issue: Should the community coumercial extend northerly an additional 300 meet along the northwest corner of Foothill and Etiwanda? Staff has concerns on the appropriateness of extending commercial activity northerly into the predominantly rer.4iential Etiwanda Specific Plan. MW r Issue: Showld the south side of Foothill Boulevard opposite the $Ycaxwe Inn be included in the Specialty Coal -rcial Sill ,- District? Staff has concerns on the viability of suc;,4 large area designated solely for Specialty Coeamerciai uses. ,Staff will geeo the Comission's direction in these areas, C DID, TLOPMEidi' S? DS MY4 Planning Commission, should review the permitted uses in III of the Devclopment Standards for all land'' use 4,'atdOories. f . r 'µz . I CIRCilLATICIM: . -.. -. _...... . A. OVER&L TRAFFIC SYSTEM A major cokern to which the Plan must 00vide solutions is that of &t6re traffic congestion. The traffic analysis as part o? the,;, background report preuicted avPs1age daily traffic counts of up'ta,86.000 without the Route,. d Freeway. With the i new freekey, s"sumed in all our plans,.the volumes of traffic on Foothill would decrease to 50,000 - 60,000 ,MT's but projec },ed levels of service will still remain unsatisfactory. The pr!otosed traffic control system is discussed belows: Discussion: The overall traffic system utilizes synchronized traffic signalization and the followinS = 1. Continuous median islands with cuts limited to -aWor intersections, an6 specified locations only. 2. Selected access points on Foothill Boulevard based on existing City police for driveway locations. 3. Multiple left -turn lanes apd separate right -turn lanes at critical intersections. Even with these measures, the traffic consultant predicts poor levels of service at major intersections. While this problem has been expected without a specific plan study, it is also recognized that the increase in the amount of cripercial land will add incrementally to the overall traffic volumes. Issue: fire the traffic control measures appropriate to ensure a safe circulation system while providing adequate access for the viability of commercial davelapments? Staff Analysis: The UVortance of adequate control measures and timely impiementation cannot be overemphasized. It should be recognized that the corridor is an integral part of the City -wide and regional circulation system and that all traffic control measures must work in concert with one another. The desire to provide additional median openings or points of access to localized areas must be weighed against the Boulevard's ability to carry the projected volumes of traffic as a crucial component of an overall system: 44 B. SELECTEl1r CIRCMATION ISBNs Red Hill Country Club raali t• The alignment of Red 4111 �" Country Clu r_ve was s g *elation .to* I. Its awkward intersection with Foothill ,Mulevar ' and inadequate distance to Grove Avenue causing safety and circulation problems at bath intersections, 2. Its inappropriate use as -a shortcut to Base line Road, thereby increasing traffic through the residential neighborhood on Red Hill. The Committee considered the following alternatives (p. 6_1):. 2. Alternative I calls for realignment southerly to a 90 degree "T" intersection, easterly of the present location. 2. Alternative 2 c411S for the road to be real=igned westerly to Grove Avenue with two possible routes. Route 2 8 was recommended to divide the effected parcel into two developable pieces. 4 Issue: lime Planning GoWssion should consider the ` appropriateness of tM racoeeltdad a5Vinent versus the outer alternatives. Staff Analysis: Staff concurs with the recommensation of the Advisory Comittee. E tension. rangy Estacia Avenue: Residents on the north side of n Ber nar no Roa een Hellman Avenue and Ki usman Avenue expressed concern over potential excessive traffic generated by future develgprmnt on the south side of San Bernardino Road. This concern resulted in a request to prohibit any access points from this area onto San Bernardino Road. The Advisory Committee generally concurred with their and .;4oncerns recommends against any significant access northerly to this street. In order to provide sufficient access into this large block, the fallowing measures were included in the Plan, i. Extension of Estacia Avenue westerly into the area, i 2. The location of two major access points apposite Malachite and Helms northerly into the block. The Malachite access extension would be an appropriate location for a signalized intersection. 3. An inta for circulation system of public or private drives linking the extension of Estacia with th6 access points off Foothill Boulevard. Issues: l i 1. Should access be prohibfted or severely lialted to Sari Bernardino Road ?' 2. If so,,- ;#could access i' _ttm area be as proposed? Staff Analysis; Staff recognizes the valid concerns of the neighboring residents but must point out that San 3ernardino Road has be&i planned as a collector roadway to service the properties on both side, of it. Therefore, some consideration should be give!: - to al,14* limited access to this street. If not, alternate access must be provided. Staff believes that the scenario provided is the only logical alternative to the use of San Bernardino oad. San Bernardino Road Reuli t: The Plan calls for the adjustment of n Bernardino Road intersection opposite the Sycamore Inn by closing off the easterly extension of the "Y intersection. I Staff Analysis: Staff concurs with the recd mendations of them Advisory Committee and recommends approval by the Planning Commission. San Diego Avenue Reali P tt The Advisory Committee re cons id reques s `fro`m t -e —Planning Commission and City Council regarding potential realignment of San Diego Avenue. The options considered incline: 1. Move the roadway westerl;,f to border the realignment of the Cucdmonga Creek Channel, or,, i 2. Abandon the roadway, or; 3. Leave the street as presently c,pifigured with no cut i,a the proposed median islar,d on Foothill. - I .,, The Advisory t:owmittee felt ttere way no evidence to justify, the first two options. Staff Analysis. The retention of San, Diego Aven -.to in its present,---al tgnment is acceptable,' *ith no median upeni,igs, until further development of the area. C. R MOWAY CM10t 73A1q' The Planning Commission should review and reco3 approval of final roadway configuratignc throughput the corrirM'