HomeMy WebLinkAboutSR - APP-0533-14 - EXHIBIT I PLANNING COMMISSION RESOLUTION 04-14 ENVIRONMENTAL IMPACT REPORT NO.EIR 1818-09
GENERAL PLAN AMENDMENT NO. GPA 2009-002 (INCLUDES AMENDMENTS TO
THE EAST ORANGE AND ORANGE PARK ACRES PLANS)
�ZONE CHANGE NO. ZC 1254-09
DEVELOPMENT AGREEMENT NO. DA 5825
�� SPECIFIC PLAN NO. SP 001-09
TENTATIVE PARCEL MAP NO. TPM 2012-101
TENTATIVE TRACT MAP N0. 17344 (CITY NO.TTM 025-09)
MAJOR SITE PLAN REVIEW NO. MJSP 0595-09
DESIGN REVIEW COMMITTEE NO.DRC 4413-09
RESOLUTION NO. PC 04-14
A RESOLUTION OF THE PLANNING COMMISSION OF
THE CITY OF ORANGE RECOMMENDING THAT THE
CITY COUNCIL OF THE CITY OF ORANGE DENY THE
FOLLOWING: (A) FINAL ENVIRONMENTAL IMPACT
REPORT 1818-09; (B) GENERAL PLAN AMENDMENT NO.
2009-02; (C) ZONE CHANGE NO. 1254-09; (D)
DEVELOPMENT AGREEMENT NO. 5825; AND, (E) ALL
ASSOCIATED ENTITLEMENTS, INCLUDING SPECIFIC
PLAN NO. 001-09, TENTATIVE TRACT MAP NO. 17344,
TENTATIVE PARCEL MAP NO. TPM 2012-101, MAJOR
SITE PLAN REVIEW NO. 0595-09 AND DESIGN REVIEW
COMMITTEE NO. 4413-09, FOR THE RIO SANTIAGO
PROJECT (MAXIMUM OF 130 SINGLE FAMILY HOMES;
A MAXIMUM OF 265 AGE RESTRICTED SENIOR
RESIDENTIAL HOUSING UNITS; PRIVATE
RECREATIONAL FACILITIES; OPEN SPACE; TRAILS;
AND, PRIVATE STREETS) GENERALLY LOCATED ON
110 ACRES AT THE NORTHEAST CORNER OF CANNON
STREET AND SANTIAGO BOULEVARD
APPLICANT: JMI PROPERTIES/SANTIAGO PARTNERS, LLC
Moved by the Planning Commission, and unanimously approved, that the following
resolution be adopted:
WHEREAS, the Planning Commission voted on each of the following individual Project
entitlements in the following order: Environmental Impact Report No. EIR 1818-09; General
Plan Amendment No. GPA 2009-002 (Includes amendments to the East Orange and Orange Park
Acres Plans); Zone Change No. ZC 1254-09; entitlements collectively including Specific Plan
No. SP 001-09, Tentative Parcel Map No. TPM 2012-101, Tentative Tract Map No. 17344 (City
No. TTM 025-09), Major Site Plan Review No. MJSP 0595-09 and Design Review Committee
EXHIBIT I
PLANNING COMMISSION
RESOLUTION 04-14
RIO SANTIAGO
MAY 13,2014 CC MTG.
Planning Commission Resolution No.PC 04-14 Page 2
No. DRC 4413-09; and lastly, Development Agreement No. DA 5825 under a separate agenda
item. Accounting of votes of each motion is reflected in their respective sections of this
resolution; and
WHEREAS, the applicant has submitted an application for a Project in accordance with
requirements of the Municipal Code of the City of Orange which consists of Environmental
Impact Report No. EIR 1818-09, General Plan Amendment No. GPA 2009-002 (Includes
amendments to the East Orange and Orange Park Acres Plans), Zone Change No. ZC 1254-09,
Development Agreement No. DA 5825, Specific Plan No. SP 001-09, Tentative Parcel Map No.
TPM 2012-101, Tentative Tract Map No. 17344 (City No. TTM 025-09), Major Site Plan
Review No. MJSP 0595-09 and Design Review Committee No. DRC 4413-09, all of which are
collectively referred to herein as the"Project"; and
WHEREAS, the Planning Commission has authority per Orange Municipal Code Table
17.08.020 to review the Project and has authority under Orange Municipal Code Section
17.10.020C and OMC Section 17.10.010 to recommend denial of the Project's General Plan
Amendment andlor Zone Change and such decision is final unless appealed to the City Council;
and
WHEREAS, Pursuant to the provisions of the California Environmental Quality Act
(CEQA), local CEQA Guidelines, and the State CEQA Guidelines, an Environmental Impact
Report (EIR No. 1818-09) was prepared for the Project including changes and revisions (Errata)
to EIR No. 1818-09, the Response to Comments, technical appendices, and the Mitigation
Monitoring Program in an attempt to address the Project's potential significant environmental
impacts; and
WHEREAS, Pursuant to the authority and criteria contained in the California
Environmental Quality Act(CEQA), staff analyzed the Project and determined that it will have a
significant unavoidable adverse effect on the environment; and
WHEREAS, Draft Environmental Impact Report No. 1818-09 was circulated for public
review and comment within a State mandated 45-day public review period as required by CEQA,
with the comment period occurring between May 16, 2013, and July 1, 2013; and
WHEREAS, the Planning Commission has authority per City of Orange Environmental
Review Guidelines to make a recommendation to the City Council on Environmental Impact
Report No. 1818-09 (SCH#2009051072); and
WHEREAS, the Planning Commission has reviewed Environmental Impact Report No.
1818-09, including all public comments,responses, errata and technical appendices; and
WHEREAS, the Planning Commission held a duly advertised public hearing on January
13, 2014, which was continued to January 20, 2014 then to January 27, 2014 then to February
19, 2014 then to March 3, 2014 then to March 17, 2014 at which time interested persons had an
opportunity to testify either in support of, or opposition to, the proposal and for the purpose of
considering the Project upon property described in the attached legal description(Exhibit A); and
Planning Commission Resolution No.PC 04-14 Page 3
WHEREAS, at said public hearing, upon hearing and considering all testimony and
arguments, if any, of a11 persons desiring to be heard, the Planning Commission considered all
factors relating to the proposed Project, including potential environmental impacts addressed in
the Environmental Impact Report No. 1818-09; and
WHEREAS,the Plannuig Commission has carefully reviewed and considered the information
contained in Draft Environmental Impact Report No. 1818-09 and public testimony prior to fmding
Environmental Impact Report No. 1818-09 inadequate for the reasons included in the findings; and
WHEREAS, the Project was processed in the time and manner prescribed by state and
local law; and
WHEREAS, affected City Departments have reviewed the Project; and
WHEREAS, The Design Review Committee reviewed the Project design at their regular
August 7 and October 21, 2013 meetings and recommended approval of the Project by the City
Council with Specific Plan design criteria and development standard changes and recommended
conditions to facilitate Design Review Committee review and acceptance of the Project's sub-
level site, architectural and landscape plans prior to the issuance of building permits; and
WHEREAS, City staff has provided the Project recommendations of the Design Review
Cominittee to the Planning Commission in the form of a staff report dated January 13, 2014, and
in the form of a staff report and meeting minutes of the Design Review Committee attached to
the January 13, 2014 staff report; and
NOW, THEREFORE, BE IT RESOLVED that the Planning Commission recommends
denial of Environmental Impact Report No. EIR 1818-09, General Plan Amendment No. GPA
2009-002 (Includes amendments to the East Orange and Orange Park Acres Plans), Zone Change
No. ZC 1254-09, Development Agreement No. DA 5825, Specific Plan No. SP 001-09,
Tentative Parcel Map No. TPM 2012-101, Tentative Tract Map No. 17344 (City No. TTM 025-
09), Major Site Plan Review No. MJSP 0595-09 and Design Review Committee No. DRC 4413-
09 ("Project") based on the following findings:
SECTION 1 —ENVIRONMENTAL IMPACT REPORT FINDINGS
The Planning Commission recommended denial of Environmental Impact Report 1818-09. The
votes were as follows:
MOTION: Commissioner Gladson
SECOND: Commissioner Correa
AYES: Commissioners Buttress, Correa& Gladson
NOES: None
RECUSALS: Commissioners Cathcart and Steiner
Planning Commission Resolution No.PC 04-14 Page 4
The Planning Commission finds that Environmental Impact Report (EIR) 1818-09 does
not reflect the independent judgment and analysis of the City of Orange and is inadequate for use
for this project for the following reasons:
1. The Planning Commission finds that the information contained in EIR 1818-09, does
not provide an adequate assessment of the potentially significant environmental
impacts of the proposed Project and required discretionary permits; and
2. The Planning Commission finds it is not possible to conclude that, even with the
implementation of all mitigation measures recommended in EIR 1818-09, there are
substantial overriding benefits of the Project which outweigh the significant and
unavoidable environmental impacts of the Project, with the exception of the project's
internal design, that could override site-based significant and unavoidable aesthetic
impacts; and
3. The Planning Commission finds that the EIR is lacking in clarity, information,
accuracy, disclosure and completeness and that document components are dismissive
and or misleading, specifically pertaining to the Threshold analysis and responses for
the Land Use analysis with regard to a lack of analysis of changing the existing
Orange Park Acres Plan, East Orange Plan, Santiago Creek Greenbelt Plan and the
proposed General Plan text amendment implications for the City's Open Space, Park
General Plan Land Use Element designation; Biology with regard to lighting impacts
on sensitive species; Hydrology and Water Quality with regard to dam inundation;
Geology with regards to creek erosion; and Traffic with regard to the conclusion that
no impacts would result even if all mitigation improvements were implemented; and
4.. The Planning Commission finds that critical public comments on the EIR received
through comment letters, public comments and correspondence support the
Commission's finding of inadequacy; and
5. The Planning Commission finds that the EIR did not undergo sufficient peer review
because it was only reviewed in certain subject areas at the beginning of the process
and not at critical stages throughout or at the end of the process; and
6. The Planning Commission finds that due to insufficient analysis in the areas of Water
Hydrology and in particular with regard to dam inundation,the EIR would not further
the City's goals to provide for the safety of residents or protect the liability of the
City; and
7. The Planning Commission finds that the EIR does not include exploration of
appropriate project alternatives, as evidenced by the number of overriding
considerations being requested for significant and unavoidable impacts; and
Planning Commission Resolution No.PC 04-14 Page 5
8. The Planning Commission finds that the EIR includes deferred mitigation for
multiple impact areas,particularly in the area of Traffic, because the timing for traffic
related improvements are not included in the City's current Capital Improvement
Program(CIP), or reasonably foreseeable in future CIP's.
SECTION 2—GENERAL PLAN AMENDMENT
The Planning Commission recommended denial of General Plan Amendment No. 2009-
002 (the denial includes amendments to the East Orange and Orange Park Acres Plans). The
Planning Commission further finds that a recommendation on the environmental document for
this portion of the project is exempt from further analysis pursuant to CEQA section 15270
(Projects Which are Disapproved) because CEQA does not apply to projects which a public
agency rejects or disapproves. The votes were as follows:
MOTION: Commissioner Gladson
SECOND: Commissioner Correa
AYES: Commissioners Buttress, Correa& Gladson
NOES: None
RECUSALS: Commissioners Cathcart and Steiner
The decision of the Planning Commission is based on the following:
The Planning Commission finds that the East Orange and Orange Paxk Acres Plans,
incorporated into the City's General Plan, are well accepted, long established documents that the
community expects to guide the development for the project site and the City is under no
obligation to change the General Plan unless it feels the right project would warrant such change.
The Planning Commission finds that the density is too high under the proposed general plan
amendment for the residential portion of the Project, and with regard to the non residential
portion, the allowable uses are too intense, given that the project site is located immediately
adjacent to a uniquely rural equestrian community and is surrounded by property designated low
density residential. The area of the property designated for a senior residential community
would require a medium density residential general plan designation. This designation would
permit the maximum residential density, such as apartments, allowable in the City. The
Commission finds that this is completely out of context and not an appropriate fit for the area.
The Commission also finds that the area proposed for low density residential would still have a
higher density than what exists in the surrounding neighborhoods. The Commission finds that
the area designated for a recreational amenity was more like a commercial designation because it
would not be operated by a public entity. Finally, while the Commission was in favor of having
50 acres of the project designated for open space, the area would not be sufficient to be
considered a City park because it lacked park amenities and did not have a public entity readily
willing to accept the responsibility and maintenance for the area. Finally, the Commission
determined that the lack of certainty with regard to certain essential aspects of the Project and the
proposed Project inconsistencies did not warrant removing the Project area from the East Orange
Plan or Orange Park Acres Plan.
Planning Commission Resolution No.PC 04-14 Page 6 �
SECTION 3—ZONE CHANGE
The Planning Commission recommended denial of Zone Change No. 1254-09. The
Planning Commission further finds that a recommendation on the environmental document for
this portion of the project is exempt from further analysis pursuant to CEQA section 15270
(Projects Which are Disapproved) because CEQA does not apply to projects which a public
agency rejects or disapproves. The votes were as follows:
MOTION: Commissioner Correa
SECOND: Commissioner Gladson
AYES: Commissioners Buttress, Correa& Gladson
NOES: None
RECUSALS: Commissioners Cathcart& Steiner
The decision of the Planning Commission is based on the following:
The Planning Commission generally agreed that the zone district designation for the
portion of the project identified as Area A should be Open Space for the project. The
Commission did not agree with the zone district designation for the portion of the project
identified as Area B. While the Commission supports land uses offering recreational amenities,
the Commission finds that under the Applicant's proposal, the use as a private facility, coupled
with the support uses to support it, make it more commercial in nature. The Commission agreed
that the commercial use of the property was not appropriate at this location. With regard to the
portion of the project identified as Area C, the Commission finds that the low-medium density
residential zoning designation is completely out of character with the existing surrounding
neighborhoods because it is far too dense for the area. Also, the proposed senior assisted living
and independent living uses are not compatible with the surrounding neighborhood. The
Commission finds that such a use in this area is not convenient, accessible or close to the support
needs of its residents. The Commission finds that the proposed use is too remote to public
transportation, medical uses, shopping centers and similar uses that support the residents.
Finally, with regard to the portion of the project identified as Area D, the Commission finds that
the land use designation of single family residential is appropriate, however, determined that a
zone district designation of R-1-6 was not appropriate as it allowed minimum lot sizes of 6000
square feet, which the Commission determined was too small for that area. The Commission
noted that neighboring development in the area located to the north and south sides of the project
is designated R-1-8, which requires a minimum lot size of 8000 square feet and would be the
compatible size for the Project. The east and north eastern portion of the site are designated Rl-
20, which requires a minimum lot size of 20,000 square feet and R1-40, which requires a
minimum lot size of 40,000 square feet and would be the compatible lot size for these portions of
the Project. The Commission also rejected the idea of privately gating this portion of the
residential development.
SECTION 4—DEVELOPMENT AGREEMENT FINDINGS
The Planning Commission recommended denial of Development Agreement No. 5825.
The Planning Commission further finds that a recommendation on the environmental document
Planning Commission Resolution No.PC 04-14 Page 7
for this portion of the project is exempt from further analysis pursuant to CEQA section 15270
(Projects Which are Disapproved) because CEQA does not apply to projects which a public
agency rejects or disapproves. The votes were as follows:
MOTION: Commissioner Gladson
SECOND: Commissioner Correa
AYES: Commissioners Buttress, Correa, & Gladson
NOES: None
RECUSALS: Commissioners Cathcart and Steiner
The decision of the Planning Commission is based on the following:
The Commission finds that the Agreement proposed was significantly lacking in
additional public benefits. The 50 acres of public open space did not identify any agency or
other entity willing to accept or maintain the property and much of it is located in the middle of
the Santiago Creek watershed. The area identified to be donated to the YMCA or similar
organization lacked a written commitment from any organization willing to acquire or operate a
private recreation facility. A private operator of this type of amenity was viewed as pay to play
and not encouraged by the Commission. The Coxnmission finds that the financial contributions
offered for trail connections are likely insufficient because the Applicant failed to identify the
actual costs of building the trail connections. The Commission finds the relocation of the two
water wells on site is required to develop the property and do not constitute public benefits.
Finally, the Commission finds that most of the benefits offered lack timing as to when they
would occur.
Accordingly,the Planning Commission hereby finds that:
l. Development Agreement No. 5825 is not consistent with the objectives, policies,
general land uses, and programs specified in the General Plan and any applicable
specific plan or redevelopment plan, because it is significantly lacking in additional
public benefits required to approve a development agreement and seeks park credits
for open space area that is insufficient to meet the City's threshold for park needs
pursuant to Chapter 16.60 of the Orange Municipal Code; and
2. Development Agreement No. 5825 is not compatible with the uses authorized in the
district or planning area in which the real property is located and would require a
general plan amendment, and zone change to make the project compatible; and
3. Development Agreement No. 5825 is not in conformity with the public necessity,
public convenience, general welfare, and good land use practices because the
proposed project seeks a higher density and land use intensity than what is currently
allowed in the area. The projects lacks additional public benefits required for the
approval of a development agreement and would result in the increase of residential
users of City parks without the benefit of providing additional park space or fees in
lieu.; and
Planning Commission Resolution No.PC 04-14 Page 8
4. Development Agreement No. 5825 would not be beneficial to the health, safety, and
general welfare consistent with the policy of the City with respect to development
agreements as provided in Section 17.44.200 because it is significantly lacking in
public benefits to the entire community. The Commission finds that even the
dedication of 1.3 miles of public trails is deficient in identifying an owner and
maintenance responsibilities for the trails, and fails to identify timing for the trail
improvements; and
5. Development Agreement No. 5825 would adversely affect the orderly development
of property or the preservation of property values in the City because the project as
proposed is too dense and intense in terms of allowable development and land use in
the area in which it is located. As such, it would likely detract from the surrounding
properties, negatively affecting property values; and
6. Development Agreement No. 5825 would not promote and encourage the
development of the proposed project by providing a greater degree of requisite
certainty. The Commission found that the development agreement proposes to
dedicate 50 acres of public open space but does not identify any group or agency
willing to accept the maintenance of the property or any commitment related to the
timing on when the property would be conveyed as public open space. Furthermore,
the development agreement identifies a 10 acre donation to the YMCA or similar
organization for a recreational amenity but there are no written commitments from the
YMCA or similar organization to accept the property or timing identified for the
property dedication. And finally, the developer proposes two separate $100,000
contributions for local trail connections but fails to identify the actual costs to build
each connection or when the money would be donated for the connections.
SECTION 5 — SPECIFIC PLAN, MAJOR SITE PLAN REVIEW, TENTATIVE TRACT
MAP,TENTATIVE PARCEL MAP AND DESIGN REVIEW COMMITTEE FINDINGS
The Planning Commission denied Specific Plan No. 001-09, Tentative Parcel Map No.
2012-101, Tentative Tract Map No. 17344, Major Site Plan Review No. 0595-09 and Design
Review Committee No. 4413-09. The Planning Commission further finds that a
recommendation on the environmental document for this portion of the project is exempt from
further analysis pursuant to CEQA section 15270 (Projects Which are Disapproved) because
CEQA does not apply to projects which a public agency rejects or disapproves. The votes were
as follows:
MOTION: Commissioner Gladson
SECOND: Commissioner Buttress
AYES: Commissioners Buttress, Correa& Gladson
NOES: None
RECUSALS: Commissioners Cathcart and Steiner
The findings for the decision are based on the following:
Planning Commission Resolution No.PC 04-14 Page 9
S�ecific Plan:
The whole of the findings for Specific Plan approval are not met by the Project.
Required Findings:
1. That the proposal conforms to the General Plan in regard to land use designation
and intensity;
This finding is not met. As corroborated by the findings given for the denial of
General Plan Amendment No. GPA 2009-002 the Planning Commission finds that
the Project:
a) Does not conform to the General Plan's existing land use designation
without authorization for a change in Land Use designation.
b) Does not adequately approximate density equivalent to or transition to the
surrounding community.
c) Is not considerate of the low intensity concept of area greenbelt plans that
include the property.
d) Does not provide analysis or consistency with the low intensity nature of the
East Orange Plan or Orange Park Acres Plan.
e) Does not facilitate required public park needs required by the City to justify
the Project intensity.
� Has insufficient analysis to determine that there would not be park
intensification impacts by allowing privatization of parks via changes to the
Open Space—Park General Plan Land Use Designation definition.
g) Would create land use intensity incompatible with the area due to the number
of land uses that could occur and the massing of buildings that could block
viewsheds.
h) Would result in use elements that would introduce a commercial use to an
area that does not have such uses, thereby causing inconsistent land uses,
change of community character and higher traffic intensity via commercial
support vehicle activity.
i) Would include a senior residential component land use that would not be
supported by close convenient services hence, causing a use not compatible
with the area.
j) Would utilize a three story building component that is out of context with the
intensity of any other buildings in the area.
k) Would not have sufficient assurances in place to prevent the future
conversion of planning Area C to unrestricted apartments which would
increase traffic intensity to the area.
Planning Commission Resolution No.PC 04-14 Page 10
1) Includes use intensity not appropriate in a dam inundation area in such close
proximity to dams.
m) Would intensify emergency response needs in the event of a localized or
regional emergency.
n) Is not consistent with the numerous objectives, goals, and policies of the
General Plan specifically with regard to:
• Bullet objective number 2 from"A Vision For Orange: 2030"under the
"Where We Play" header on page I-18 of the General Plan envisions
Santiago Creek protection. The Project has not been shown to be
consistent with this objective in that development occurs immediately
adjacent to the existing creek flow line with potential to affect creek
biology, hydrology and future remediation.
• Bullet objective number 3 from"A Vision For Orange: 2030"under the
"Where We Play" header on page I-18 of the General Plan envisions
the City to strive to build a comprehensive system of parks, open space,
equestrian areas, scenic resources, undeveloped natural areas, as well as
a full array of recreational, educational, and cultural offerings such as
libraries, sports, entertainment areas, and play facilities." The Project
has not been shown to be wholly consistent with this objective in that
� no public parks are provided as required by the Orange Municipal Code
and the project partially obscures view of scenic resources.
• Bullet objective number 4 from"A Vision For Orange: 2030"under the
"Where We Play" header on page I-18 of the General Plan and bullet
objective number four from"Introduction and Vision for the Future"on
page NR-1 of the General Plan both envision the City developing a
"connected multi-modal network for traveling from one end of town to
the other that provides the option for residents from different
neighborhoods to access parks, open spaces, and scenic areas by
vehicle, transit, foot, bicycle or,where appropriate, horse." The Project
has not been shown to be wholly consistent with this objective in that
Project trail linkages for the Santiago Creek Trail and westerly
terminus of the Santiago Canyon Road adjacent trail are not secured.
Furthermore, the Project does not provide a creek trail crossing or
widening of the Mabury adjacent trail as is identified in the General
Plan. The project also does not propose all trails to meet City trail
right-of-way dimensional standards.
• General Plan Land Use Element Policy 6.4 seeks to "create and
maintain open space resources that provide recreational opportunities,
protect hillside vistas and ridgelines, and conserve natural resources."
This policy is not met in that the Project does not provide recreational
opportunities in the form of public parks and public use of the open
space area proposed north of Santiago Creek. The project massing and
density also partially obscures views of hillside vistas and ridgelines.
Planning Commission Resolution No.PC 04-14 Page 11
2. That the proposal contains at least ten gross acres;
The Project contains approximately 110 acres. This finding can be met.
3. That the proposal provides for a mix of uses (such as, residential, commercial, office,
public facilities, open space);
The Project provides a mix of uses. This finding can be met.
4. That by incorporating features such as, but not Zimited to those listed below, the
proposal constitutes an environment equal to or better than what might be
accomplished under tNaditional development practices:
a) Where usable open space is provided in excess of the amount required under
conventional zoning;
b) YVhere natural features are preserved that enhance the development and will
benefit the community such as trees, scenic points, view corridors, ridgelines,
historic buildings or Zandmarks, unique geological formations and other
community assets;
c) Where perimeteY setbacks of the development exceed the minimum dimension
required;
d) Where distinctive design techniques are incorporated such as architectu�al
treatments, site planning, structural design, landscaping as well as integration
into the community;
e) Where the Project makes use of non-depletable energy sources fo� water
heating or space heating;
f} Where usable recreational amenities are provided in excess of the amount
required; ,
p� Where special amenities are p�ovided such as daycare, preschool, community
care, or other amenities;
h) Where multi-modal transportation opportunities are provided such as
linkages to pedestrian and recreational trails, and public transit facilities;
i) Where public institutional needs are met by providing for schools, religious
facilities, libraries,post offices,police/fire facilities; and
j) Where special needs housing is provided.
This finding is not met in entirety. In addressing each of these issues the Planning
Commission finds as follows:
a) Greater open space would result under the existing Greenbelt plan
designations of the Orange Park Acres and East Orange Plans. The Project
did not wholly consider said plans. The Open Space provided by the Project
does not include open space required by the Orange Municipal Code that
Planning Commission Resolution No.PC 04-14 Page 12
would best serve the City in the form of traditional public park facilities with
recreational facilities and a public parking lot.
b) Site constraints in relation to the surroundings were not adequately
considered. Bulk and height of Project buildings could obstruct view to
nearby Open Space Ridgelines as identified in the General Plan and
incompatibility with the density and scale of the surrounding community
context would result.
c) Perimeter setbacks exceed the requirements of the code however, setbacks
for the bulk and height of the buildings proposed do not alleviate community
compatibility concerns with the Project.
d) The Specific Plan includes distinctive design techniques such as architectural
treatments, site planning, structural design and landscaping; however, the
Specific Plan contains many indefinite clauses that could result in a liability
. to the City when administering and maintaining the Specific Plan. While the
Specific Plan provides illustrations and some framework that would
contribute to internal integration, it does not provide for adequate integration
of the Project into the community due to the nature of uses, intensity, density
and height proposed. The Specific Plan includes inadequate trail timing that
is reliant on unpredictable factors that would need to first occur. The Specific
Plan includes unrealistic contingency provisions for maintenance of the
Project's Area A passive open space, Area D active open space and Project
trails.
e) The Specific Plan contains a Sustainable Design section requiring builders
"to go above and beyond" Title 24 standards by a minimum of five percent.
However, the Sustainable Design section contains several non-mandatory
phrases that could hamper the portrayed sustainable design for the Project.
fl The Open Space provided by the Project does not include open space
required by the Orange Municipal Code that would best serve the City in the
form of traditional public park facilities with recreational facilities and a
public parking lot.
g) The Project allows for the inclusion of special amenities.
h) The Specific Plan offers on-site trails. The eastern end of the Santiago
Canyon Road adjacent trail would connect to an existing trail. A trail
crossing would be provided at Nicky Way. However, trail connections for
the Santiago Creek adjacent trail and the westerly terminus of the Santiago
Canyon Road adjacent trail are not assured by the Specific Plan. Completion
of a creek crossing trail or expansion of the Mabury Avenue adjacent trail
envisioned in the General Plan would not be accomplished, and as such
conflicts with the General Plan. Furthermore, no linkage to public transit
facilities exists or is proposed.
i) Traffic mitigation needs created by the Project may not be met in that the
necessary mitigation measures/traffic improvements for the Project are not
identified and fully funded Capital Improvement Projects by the City.
Planning Commission Resolution No.PC 04-14 Page 13
Emergency evacuation needs of the Project would likely further strain
emergency responder resources and no detailed plans have been
demonstrated to show that the eventual site operators would alleviate the
need. Park needs of the Project, as required by the Orange Municipal Code
� would not be met with public park facilities and a strain on other existing
City park facilities could result from use by residents of the site. Uncertainty
of Planning Area A open space and the Project trails ownership could result
in a strain of City resources to maintain or encourage maintenance by the
master owners association for the Project. The Specific Plan contains many
indefinite clauses that could result in a liability to the City when
administering and maintaining the Specific Plan.
j) Age-qualified (senior housing) is proposed. However, no special needs
housing for lower income families is specifically included.
Major Site Plan:
The whole of the findings for Major Site Plan approval are not met by the Project.
Required Findings:
1. The Project design is compatible with surrounding development and neighborhoods.
This finding is not met. The Planning Commission finds that the Project:
a) Does not adequately approximate density equivalent to or transition to the
surrounding community. Site constraints in relation to the surroundings
were not adequately considered. Bulk/massing and height of Project
. buildings could obstruct view to nearby Open Space Ridgelines as identified
in the General Plan and incompatibility with the density and scale of the
surrounding community context would result.
b) Is not considerate of the low intensity concept of area greenbelt plans that
include the property.
c) Does not provide analysis or consistency with the low intensity nature of the
East Orange Plan or Orange Park Acres Plan.
d) Would create land use intensity incompatible with the area due to the number
of land uses that could occur.
e) Would result in use elements that would introduce a commercial nature to an
area that does not have such uses, thereby causing inconsistent land uses,
change of community character and higher traffic intensity via commercial
support vehicle activity.
� Would include a senior residential component land use that would not be
supported by close convenient services hence, causing a use not compatible
with the area.
Planning Commission Resolution No.PC 04-14 Page 14
g) Would utilize a three story building component that is out of context with the
intensity of any other buildings in the axea.
h) Would not have sufficient assurances in place to prevent the future
conversion of planning Area C to unrestricted apartments which would
increase traffic intensity to the area.
2. The P�oject conforms to City development standards and any applicable special
design guidelines or specific plan�equirements.
This finding is not met. The Planning Commission finds that the Project merits
denial of General Plan Amendment No. 2009-002 and Zone Change No. 1254-09.
Without the change of land use designation, the Project is incompatible with the
existing General Plan and Zoning Designations for the site because the proposed
uses are not allowed.
3. The Project provides foN safe and adequate vehicular and pedestrian circulation, both
on-and off-site.
This finding is not met. The Planning Commission finds that the traffic mitigation
needs created by the Project may not be met in that the necessary traffic
improvements for the Project are not identified and fully funded Capital
Improvement Projects by the City. Emergency evacuation needs of the Project have
not been detailed to demonstrate that site occupants would be able to be evacuated
and would be evacuated in a manner that would not cause disruption of or
intensification to existing evacuation routes.
4. City services are available and adequate to serve the Project.
This �n�ling is not met. The Planning Commission finds that Traffic mitigation
needs created by the Project may not be met in that the necessary mitigation
measures/traffic improvements for the Project are not identified Capital
Improvement Programs by the City. Emergency evacuation needs of the Project
would likely further strain emergency responder resources and no detailed plans
have been demonstrated to show that the eventual site operators would alleviate the
need. Park needs of the Project, as required by the Orange Municipal Code would
not be met with public park facilities, and a strain on other existing City park
facilities could result from use by residents of the site. Uncertainty of planning Area
A open space and the Project trails ownership could result in a strain of City
resources to maintain or encourage maintenance by the master owners association
for the Project. The Specific Plan contains many indefinite clauses that could result
in a liability to the City when administering and maintaining the Specific Plan.
S. The Project has been designed to fully mitigate or substantially minimize adverse
environmental effects.
Planning Commission Resolution No.PC 04-14 Page 15
This finding is not met. As evidenced in the findings for denial of EIR No. 1818-09,
the Planning Commission finds that the Project does not fully mitigate nor
substantially minimize adverse environmental effects.
Tentative Tract Map:
The whole of the findings for Tentative Tract Map approval are not met by the Project.
The data and analysis upon which these findings are based are set forth in Commissioner
comments at Planning Commission meetings on January 20, 2014, January 27, 2014, February
19, 2014, March 3, 2014 and specifically March 17, 2014.
Required Finding:
A. The requirements for the filing of subdivision maps shall be governed by the
provisions of the Subdivision Map Act and the provisions of Title 16 of the Orange
Municipal Code (OMC). All maps shall comply with the provisions of the Subdivision
Map Act, the City Zoning Ordinance, Title 16 of the OMC, and any other ordinance,
statute or law pertaining to the use, sale, leasing or subdivision of land.
1. The proposed subdivision map and the design and improvements are
consistent with City of Orange General Plan which•includes the East Orange
Plan and Orange ParkAcres Plan as part of the Land Use Element.
This finding is not met. The Planning Commission finds that the Project merits
denial of General Plan Amendment No. 2009-002 and Zone Change No. 1254-
09. Without the change of land use designation, the Project is incompatible with
the existing General Plan and Zoning Designations for the site because the
proposed uses are not allowed.
2. The site is physically suitable foN the type of development and the proposed
density of development.
This finding is not met. The Planning Commission finds that the age-restricted
(senior) component of the Project is not located in an area where necessary
support services are conveniently located. The site is located in a dam inundation
zone in close proximity to two dams. Associated potential dam inundation
impacts to life and property have not been fully mitigated by the Project,
specifically in consideration of the request to have the City's highest density land
use designation established for the senior independent and assisted living land
uses in planning Area C. The density of planning Area C and the massing of
building in planning Area B for the Project is out of character with the
surrounding community because the massing and density is substantially higher
than the surrounding rural suburban communityo Furthermore, the three story
building component in planning Area C is out of context with any other buildings
in the area. The Project does not adequately approximate density equivalent with
or transition to the surrounding community. The Project is not considerate of the
Planning Commission Resolution No.PC 04-14 Page 16
low intensity concept of area greenbelt plans that include the property. The
Project does not provide analysis or consistency with the low intensity nature of
the East Orange Plan or Orange Park Acres Plan. The Project does not facilitate
required public park needs required by the City to justify the Project density. The
Project would create land use intensity incompatible with the area due to the
number of land uses that could occur and the massing of buildings that could
block viewsheds. Project uses would introduce a commercial nature to an area
that does not have such uses, thereby causing inconsistent land uses, change of
community character and higher traffic intensity via commercial support vehicle
activity. The road infrastructure of the area requires improvements merited by the
Project and such improvements are not identified in the City's Capital
Improvement Program. The Project would intensify emergency response needs in
the event of a localized or regional emergency.
3. The design of the subdivision or the proposed impYovements are not likely to
cause substantial environmental damage or substantially and unavoidably injure
fish or wildlife or their habitat.
This finding is not met. Environmental Impact Report No. 1818-09 discloses the
Significant and Unavoidable Impacts of the DEIR including:
� Grading and Construction Aesthetic Impacts
• Long-Term Aesthetic Visual Impacts
• Light and Glare Impacts
• Air Quality Impacts
• Hydrology and Water Quality Impacts (Dam Inundation)
• Transportation/Traffic Impacts
• Cumulative (Aesthetics, Air Quality, and Traffic) Impacts
In addition to the above impacts, the Planning Commission finds that the
Environmental Impact Report No. 1818-09 did not:
• Wholly reflect the independent judgment and analysis of the
City of Orange.
• Provide an adequate assessment of the potentially significant
environmental impacts of the proposed Project.
• Provide adequate clarity, information, accuracy, disclosure
and completeness.
• Provide adequate peer review.
The Planning Commission finds that the Environmental Impact Report No. 1818-
09:
• Includes deferral of mitigation for multiple impact areas.
� Would not fiuther the Ciiy's goals to provide for the safety of
residents or protect the liability of the City.
Planning Commission Resolution No.PC 04-14 Page 17
• Includes dismissive and or misleading components,
specifically pertaining to Threshold analysis and responses
for: the Land Use analysis with regard to a lack of analysis of
changing the existing Orange Park Acres Plan, East Orange
Plan, Creek Greenbelt Plans and the proposed General Plan
text amendment implications for the City's Open Space,Park
General Plan Land Use Element designation; Biology with
regard to lighting impacts on sensitive species; Hydrology
and Water Quality with regard to dam inundation; and,
Traffic with regard to the conclusion that no impacts would
result even if all mitigation improvements were implemented.
Therefore, the Planning Commission finds that the Project may cause substantial
environmental damage or substantially and unavoidably injure fish or wildlife or
their habitat beyond that which is reported in Environmental Impact Report No.
1818-09.
4. The design of the subdivision or type of improvements are not likely to cause
serious public health problems.
This finding is not met. The Planning Commission finds Environmental Impact
Report No. 1818-09 inadequate for the reasons stated above and in the denial
findings for Environmental Impact Report No. 1818-09. The Project has at least
three potential serious impact areas related to public health as follows:
• The Project is located adjacent to the Villa Park Landfill and
methane migration is a known potential issue for Project land
and buildings.
• The Project has Volatile Organic Compounds (VOCs) on-site
requiring remediation.
• Portions of the Project are located in and/or adjacent a Very
High Fire Hazard Severity Zone and approval of use of
County land for fire fuel modification purposes is necessary
to secure the tract as proposed.
Given the faults found with Environmental Impact Report No. 1818-09, the
Planning Commission is unable to wholly rely on it to make this finding,
especially in consideration of responsible agency concerns regarding the Project.
S. The design of the subdivision or the type of improvements will not conflict
with easements, acquired by the public at large,for access through or use of,
property within the proposed subdivision.
This finding can be made in that there are no known easements for public use of
any portion of the Property.
Planning Commission Resolution No.PC 04-14 Page 18 �
6. The subdivision provides for, to the extent feasible,future passive or natural
heating oN cooling opportunities.
This finding is not met. The Specific Plan contains a Sustainable Design section
requiring builders "to go above and beyond" Title 24 standards by a minimum of
five percent. However, the Sustainable Design section contains several non-
mandatory phrases that could hamper the portrayed sustainable design for the
Project. The Project Specific Plan does not contain requirements that make
passive or natural heating or cooling mandatory.
7. The proposed subdivision complies with the development standards contained
in the City's Zoning Ordinance.
This finding is not met. The Planning Commission finds that the Project merits
denial of General Plan Amendment No. 2009-002 and Zone Change No. 1254-09.
Without the change of land use designation, the Project cannot comply with the
development standards of the Zoning Ordinance because the proposed uses are
not allowed.
8. The proposed uses are compatible with existing uses located in the vicinity of
the subject szte.
This finding is not met. The density of planning Area C and the massing of
building in planning Area B for the Project is out of character with the
surrounding community because the massing and density is substantially higher
than the surrounding rural suburban community. Furthermore, the three story
building component in planning Area C is out of context with any other buildings
in the area. The number of lots per acre in planning Area D is not commensurate
to the larger size lots to the east of the Project site, specifically south of Santiago
Creek. The Project does not adequately approximate density equivalent with or
transition to the surrounding community. The Project is not considerate of the
low intensity concept of area greenbelt plans that include the property. The
Project does not provide analysis or consistency with the low intensity nature of
the East Orange Plan or Orange Park Acres Plan. The Project would create land
use intensity incompatible with the area due to the number of land uses that could
occur and the massing of buildings that could block viewsheds. Project uses
would introduce a commercial nature to an area that does not have such uses,
thereby causing inconsistent land uses, change of community character and higher
traffic intensity via commercial support vehicle activity. The road infrastructure
of the area requires improvements merited by the Project and such improvements
are not identified in the City's Capital Improvement Program.
9. The Project zs subject to conditions that will preserve the public welfare and
insure that the Project will not have an adverse impact on adjacent land uses,
and local transpo�tation systems, including local and regional trails.
Planning Commission Resolution No.PC 04-14 Page 19
This finding is not applicable. No conditions are merited because the tract map
is denied in part because the Project will have an adverse impact on adjacent land
uses for the reasons cited in this resolution.
10. City departments have reviewed the proposed Project and found that City
services are available and adequate to serve the needs of the proposed use.
This finding is not met. Under their authority, the Planning Commission
overrides any staff determination and finds that Traffic mitigation needs created
by the Project may not be met in that the necessary mitigation measures/traffic
improvements for the Project are not identified and fully funded Capital
Improvement Projects by the City. Emergency evacuation needs of the Project
would likely further strain emergency responder resources and no detailed plans
have been demonstrated to show that the eventual site operators would alleviate
the need. Park needs of the Project, as required by the Orange Municipal Code
would not be met with public park facilities and a strain on other existing City
paxk facilities could result from use by residents of the site. Uncertainty of
planning Area A open space and the Project trails ownership could result in a
strain of City resources to maintain or encourage maintenance by the master
owners association for the Project. The Specific Plan contains many indefinite
clauses that could result in a liability to the City when administering and
maintaining the Specific Plan.
11. The proposed subdivision allows implementation of local and regional
recreational opportunities as stated in the City's General Plan.
This finding is not met. The Project does not facilitate required public park
needs required by the City. The Open Space provided by the Project does not
include open space required by the Orange Municipal Code that would best serve
the City in the form of traditional public park facilities with recreational facilities
and a public parking lot. A strain on other existing City park facilities could
result from use by residents of the site. Greater open space would result under
the existing Greenbelt plan designations of the Orange Park Acres and East
Orange Plans. The Project did not wholly consider said plans. The Project has
insufficient analysis to determine that there would not be park intensification
impacts by allowing privatization of parks via changes to the Open Space — Park
General Plan Land Use Designation definition. The Specific Plan includes
inadequate trail timing that is reliant on unpredictable factors that would need to
first occur. The Specific Plan includes unrealistic contingency provisions for
maintenance of the Project's Area A passive open space, Area D active open
space and Project trails. Trail connections for the Santiago Creek adjacent trail
and the westerly terminus of the Santiago Canyon Road adjacent trail are not
assured by the Project. Completion of a creek crossing trail or expansion of the
Mabury Avenue adjacent trail per envisionment in the General Plan would not be
accomplished.
Planning Commission Resolution No.PC 04-14 Page 20
12. A sufficient water supply is available to the Project.
This finding is met.
Desi�n Review Committee:
The whole of the findings for Design Review Committee approval axe not met by the Project.
Required Findings:
1. In the Old Towne Histo�ic District, the proposed work conforms to the
prescriptive standards and design crite�ia referenced andlor recommended by the
DRC or other reviewing body for the Project(OMC 17.10.070.F.1).
This finding is not applicable. The Project is not in the Old Towne Historic
District.
2. In any National Register Historic District, the proposed work complies with the
Secretary of the Interior's standards and guidelines (OMC 17.10.07.F.2).
This finding is not applicable. The Project is not in a National Register Historic
District.
3. The Project design upholds community aesthetics through the use of an internally
consistent, integrated design theme and is consistent with all adopted speci�c
plans, applicable design standards, and their required findings (OMC
17.10.07.F.3).
This finding is not met. Although the Project is internally consistent with an
integrated design theme, the Planning Commission finds that overall community
aesthetics of the Project:
a) Does not adequately approximate density equivalent to or transition to the
. surrounding community. Site constra'ints in relation to the surroundings
were not adequately considered. Bulk/massing and height of Project
buildings could obstruct view to nearby Open Space Ridgelines as identified
in the General Plan and incompatibility with the density and scale of the
surrounding community context would result.
b) Is not considerate of the low intensity concept of area greenbelt plans that
include the property.
c) Does not provide analysis or consistency with the low intensity nature of the
East Orange Plan or Orange Park Acres Plan.
d) Would result in use elements that would introduce a commercial nature to an
� area that does not have such uses, thereby causing buildings with a mass and
architecturally-related function that reflect a change of community aesthetics.
Planning Commission Resolution No.PC 04-14 Page 21
e) Would utilize a three story building component that is out of context with the
intensity of any other buildings in the area.
4. For infill residential development, as specified in the City of Orange Infill
Residential Design Guidelines, the new structure(s) or addition are compatible
with the scale, massing, orientation, and articulation of the surrounding
development and will preserve or enhance existing neighborhood character
(OMC 17.10.07.F.4).
This finding is not applicable. The Project is not infill residential development,
as specified in the City of Orange Infill Residential Design Guidelines.
I hereby certify that the foregoing resolution was adopted on March 17, 2014, by the
Planning Commission of the City of Orange by the following vote:
AYES: Commissioners Buttress, Correa& Gladson
NOES: None
RECUSALS: Commissioners Steiner and Cathcart
ABSENT:
l `� ��
Pat Buttress, lanning Commission Vice-Chair Date
EXHIBIT A
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