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City of Glrange� Cali.fc�rnia
SALEM LUTHERAN CHURCH AND SCHOOL
OPA COMPROMISE SPECIFIC PLAN
November 14, 2014
Lead Agency:
City of Orange
300 East Chapman Avenue
Orange, CA 92866
Applicant:
Salem Lutheran Church
6500 E. Santiago Canyon Road
Orange, CA 92869
Prepared by:
Salem Lutheran Church
6500 E. Santiago Canyon Road
Orange, CA 92869
SALEM LUTHERAN CHURCH AND SCHOOL
OPA COMPROMISE SPECIFIC PLAN
TABLE OF CONTENTS
1.0 INTRODUCTION
1.1 Background and History _ _ __ _ __ _, _ __ „__, _ 1-1
1.2 Location and Setting . _ __ _ _ 1-2
1.3 Document Organization _ _ _ _ _ _�� ___ ___1-2
2.0 PLANNING CONTEXT
2.1 Purpose and Intent � _ _ ._ ._ 2-1
2.2 Authority and Requirements _ 2-1
2.3 Goals and Objectives of the Specific Plan 2-2
2.3.1 Project Defining Issues (PDI) and Project Responses
2.3.2 Goals and Objectives
2.4 Relationship to City General Plan and Orange Park Acres (OPA) Specific Plan ___ _____2-15
2.5 Relationship to City Zoning Ordinance _� �_ __ 2-16
2.6 Relationship to California Environmental Quality Act (CEQA) _____2-16
3.0 ENVIRONMENTAL FACTORS
3.1 Land Use 3-1
_. ._� ._ _ _ — — — — � _.__ _ _
3.1.1 Land Uses and Physical Conditions Onsite
3.1.2 Surrounding Land Uses
3.1.3 Compatibility Analysis
3.2 Hydrology _. . .. — — — �_ __ __. _ 3-3
3.2.1 Drainage
3.2.2 Water Quality
3.3 Traffic and Circulation 3-4
— - - __._ .. . — _
3.3.1 Traffic Movement and Stacking
3.3.2 Parking
3.3.3 Recreation, Trails and Open Space
3.4 Noise 3-6
.__ . � ___. _�� �., ._._ .. _._. __ . � �__ _ . _ _._____._�.
3.5 Aesthetics 3-6
_ _ _ _
4.0 DEVELOPMENT PLAN
4.1 Project Chronology __ _ . _ __ _ _ 4-1
4.2 Land Use Plan 4-3
— _ ____. _ _ — _ _� _ __ _
4.2.1 Church Parcel
4.2.2 Westerly Parcel
43 Circulation Plan 4-16
— — __. . _�_.._ _� _ — _� _. .
4.3.1 Existing Conditions
4.3.2 Proposed Circulation Plan
4.3.3 Emergency Access
4.4 Open Space and Recreation _ _ _ . _____ _ _ _ „__,�4-30
4.4.1 Open Space
4.4.1.1 Grass Multipurpose Field
4.4.1.2 Edge Conditions and Buffer Zones
4.4.2 Recreation
4.4.21 Multipurpose Field
4.4.22 Paved Play Courts and Play Equipment
4.4.2.3 Preschool Play Area
4.4.2.4 Perimeter Equestrian Trail
4.4.2.5 Class II Bicycle Trail
SA FACILITIES AND SERVICE PLAN
5.1 Infrastructure Plan 5-1
5.1.1 Water _ __ _ __ __
5.1.2 Sewer
5.1.3 Water Quality Plan
5.1.4 Grading, Earthwork and Storm Drainage
5.2 Public Service 5-4
_ _ __ T
5.2.1 Law Enforcement
5.2.2 Fire Protection
5.2.3 Schools
5.3 Utilities 5-4
_ __ __ __ __ _ _ _
5.3.1 Electricity
5.3.2 Natural Gas
5.3.3 Solid Waste Disposal
5.3.4 Telephone
6.0 DESIGN GUIDELINES
6.1 Sustainable Building Design __..._.. __...._�__ _._.__.._...... _.. ..._.____ _�____..__m___�6-1
6.1.1 Site Planning
6.1.2 Building Design
6.1.3 Leadership in Energy and Environmental Design (LEED)
6.1.4 Low Impact Development (LID)
6.1.5 Landscape
6.1.6 Waste Reduction
6.2 Preschool Guidelines 6-4
__ _ _
6.2.1 Site Planning
6.2.1.1 Building
6.2.1.2 Play Area
6.2.1.3 Parking
6.2.1.4 Trash Enclosures
6.2.2 Architecture
6.2.2.1 Building Form and Mass
6.2.2.2 Materials and Color
6.2.2.3 Doors and Windows
6.2.2.4 Roof
6.3 Worship Center Guidelines .__�____ _. ___...,.. . ___....._... _.......�____.__�6-7
63.1 Site Planning
6.3.L 1 Building
6.3.1.2 Play Courts, Play Structures and Playfield
6.3.1.3 Shade Pavilion
6.3.1.4 Parking
6.3.1.5 Trash Enclosures
6.3.1.6 Frank Lane
6.3.2 Architecture
6.3.2.1 Building Form and Mass
6.3.2.2 Materials and Colors
6.3.2.3 Doors and Windows
6.3.2.4 Roofs
6.4 Landscape Guidelines 6-11
6.4.1 Landscape Overview
6.4.2 Signage
6.4.3 Streetscapes
6.4.3.1 Frank Lane
6.4.3.2 Santiago Canyon Road
6.4.3.3 Orange Park Boulevard
6.4.4 Edge Treatments
6.4.5 Recreation and Open Space
6.4.5.1 Open Space
6.4.5.2 Recreation
6.4.6 Fences
6.4.7 Paving
6.4.8 Irrigation
6.4.9 Trash Enclosures
6.4.10 Site Furnishings
6.4.11 Sustainable Design Strategies
6.4.11.1 Plant Selection
6.4.11.2 The Reduction of Heat Island Effect
6.4.11.3 High Efficiency Irrigation Design
6.5 Site Lighting ^ _____ _ ...._...__.__._..� ..._ T_ _._....._ 6-18
6.5.1 Parking Lots
6.5.2 Multipurpose Field
6.5.3 Safety and Security
7.0 ZONING AND DEVELOPMENT REGULATIONS/STANDARDS
7.1 Definitions 7-1
__._.. ._. ....._ __...... _. _.__
7.2 General Provisions 7-2
_ _ _
7.2.1 Purpose and Intent
7.2.2 General Provisions
73 Development Standards _ _ ___ 7-3
7.3.1 Permitted Uses
7.3.2 Building Lot Area
7.3.3 Building Height
7.3.4 Building Setback
7.3.5 Gross Floor Area
7.3.6 Useable Open Space
7.3.7 Parking
7.3.8 Architectural Fa�ade Enhancement
7.3.9 Signage
7.3.10 Trash Enclosures
7.4 Additional Development Regulations Incorporated by the Property Owner____________ _ ___7-5
7.5 Parking Management Plan (PMP) _ _,,_____ __, , � _ .. _7-7
7.6 Landscape Standards _ ___ _7-7
7.6.1 Fences and Walls ������� __ _ _ _
7.6.2 Paving
7.6.3 Screening
7.6.4 Planting Requirements
7.6.5 Irrigation
8.0 IMPLMENTATION AND ADMINISTRATION
8.1 Purpose and Intent _ _ —_ ,_ _ _ _ ___. _ _ 8-1
8.2 Phasing Plan _____ _ _ _ __ _ 8-1
8.3 Lot Line Adjustment _ _ _ __ _ __ . 8-2
8.4 Site Plan Review __ _ ____ _ _ __ _ _ ____ __8-4
8.4.1 Exemptions
8.4.2 Reviewing Bodies
8.4.3 Site Plan Review Procedures
8.4.4 Site Plan Review Submittal Requirements
8.4.5 Site Plan Review Environmental Determination
8.4.6 Site Plan Approval Time Limitations
8.4.7 Site Plan Revisions
8.4.8 Mandatory Findings for Site Plan Review
8.5 Demolition Review g-g
8.6 Specific Plan Administration � _ __ __ _ _ _.8-9
8.7 Specific Plan Amendments _____ _ g-9
8.8 Public Notification 8-9
__._
8.9 Financing Mechanism �_ _ ______�_ __ _ _ _ _.. _...�.____8-9
8.10 Maintenance and Operations 8-10
8.10.1 Public Maintenance Operation
8.10.2 Private Maintenance Operation
APPENDIX
Exhibit A Letter of Support from Orange Park Association to the Mayor and Orange City
Council A-1
Exhibit B City of Orange Fire Department Hammerhead Turn-around Diagram A-6
Exhibit C Emergency Vehicle Hammerhead Turn-around Submitted to City
of Orange Fire Department far Review 02.03.06___ A-7
Exhibit D Water Use Calculations A-g
Exhibit E Process Flow Chart Back Sleeve
LIST OF TABLES
4.1 Community Issues Comparison ______ __ _4-9
4.2 Land Use Summary - --__---........_.._..._...__4-12
-_..- - .__._..................._.
4.3 Statistical Summary_ ____ ___._ _ _ _-_ _ __4-16
6.1 Plant Materials List 6-20
7.1 Development Regulations and Standards _ �7-3
LIST OF EXHIBITS
1.1 Local Vicinity � 1-4
_ .__ ___ _
1.2 Aerial Perspective _ _____ . --- __. - _� _� _ -1-5
1.3 Specific Plan Area Boundary �� _�� _ _ 1-6
2.1 Design Review Committee Land Use Plan 05.05.2006 _ _2-6
2.2 Community Alternative A Plan 07.2009 _.______ ___ ___ ___._2-7
2.3 Community Alternative B Plan 07.2009 ______ ___ 2-8
2.4 Summary of OPA Site Plan Modifications 02.07.14 ____._____� 2-9
2.5 The OPA Compromise Plan .,,..._.._ _ _ _ ,,,,,_._ __ _ 2-10
� 2.6 Proposed General Plan Designation ____�_______, 2-17
2.7 Zoning Designations, Existing and Proposed ___________________._���..��_......._..__..__._.___ 2-1 g
3.1 Existing Onsite and Surrounding Land Uses � _, _ ___ ___�_ _3-8
4.1 Conceptual Plan 09.28.2004 _ ___ �__4-5
4.2 Design Review Committee Land Use Plan 05.05.2006 ._.___.___ ..._ _ 4-6
4.3 Community Alternative B Plan 07.2009 4-7
_� ___ __ ---- __.
4.4 The OPA Compromise Plan _ __._ _ 4-8
4.5 Use Distribution Plan 4-14
_._. ____ �__ � _ _._.. � _ ___ ___.
4.6 Conceptual Development Plan �4-17
4.7 Surrounding Roadway Netwark 4-21
4.8 Proposed Circulation and Parking _.._...................................._�.._..�__-__---_____- __.._. _...... _� ._ _.. __ __4-22
4.9 Roadway and Intersection Characteristics �__�4-23
4.10 1998 City Approved Circulation Plan ____ ��4-24
4.11 Weekday School Circulation Plan _ _____ _... _...._ ___ 4-25
4.12 Sunday Church Circulation Plan ___ 4-26
4.13 Orange Park Boulevard Exclusive Right Turn Lane __ 4-27
4.14 Frank Lane, Plan and Section (technical) ..._ __ ,_, ,_ _,_ ___ _ _ ___ __4-28
4.15 Emergency Access Diagram 4-29
4.16 Recreation and Trails Plan 4-34
4.17 Equestrian Crossing Demand Light_-------_...__...._._............_..._.._____._ _--_----.--._.................................._.._...._....__..__4-35
5.1 Water System Plan ___ _ _ � __ _ _5-5
5.2 Sewer System Plan . __...._ _ _ _...._. . __._._ _._____5-6
5.3 Water Quality Plan __ _ _5-7
5.4 Existing Site Topagraphy and Easements _ _ �____ 5-8
5.5 Grading, Earthwork and Storm Drainage Plan �_____,_,, __ __ __ „_„„ , 5-9
5.6 Erosion Prevention Plan 5-10
.� _�_ ___ ___.... ............._._.._..._.___._______
6.1 Conceptual Preschool Building Elevations __________ 6-8
6.2 Conceptual Worship Center Building Elevations _ 6-12
6.3 Landscape Master Plan 6-22
6.4 Tree Conservation Plan 6-23
�. _.._.�_.�....__.....�_..__ _-_- —
____ _. —
6.5 Orange Park Boulevard Enhancements _
6-24
6.6 Frank Lane Enhancement, Plan and Section _ 6-25
6.7 Fence Details 6-26
__ __�_ __. --- — - _.. . ....._..____ _.___
8.1 Phasing Plan _ _ ___ __ _ __� _ __� 8-3
8.2 Site Plan Review Process 8-7
A Letter of Support from the Orange Park Association to the Mayor and Orange City
Council, dated/executed June 5, 2014_______ _____ _ _Appendices
B City of Orange Fire Department Hammerhead Diagram Appendices
C Emergency Vehicle Hammerhead Turnaround prepared by
Irwin-Pancake 02.03.06 and reviewed by City of Orange Fire Department ___Appendices
D Preliminary Water Use Calculations� _ .�Appendices
Process Flow Chart Back Sleeve
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Salem Lutheran Church and School OPA Comnromise Specific Plan Introduction
CHAPTER 1 - INTRODUCTION
1.1 Background and History
Salem Lutheran Church is proposing to redesign its six-acre campus on the corner of Santiago
Canyon Road and Orange Park Boulevard. The plan proposes the relocation of the existing
preschool to a new building on the campus approximately 130-feet to the west, demolition of the
aging preschool and sanctuary buildings and the construction of a new sanctuary with
administrative space, referred to as the worship center (proposed "Project"). Improved onsite
parking and a new circulation design to improve the flow of traffic entering and exiting the
project are also part of the redesign. No new uses are proposed and all existing uses conform to
the "Public/Quasi-public" designation for the site as specified in the Orange Park Acres Specific
Plan. This Salem Lutheran Church and School OPA Compromise Specific Plan has been
prepared in order to implement the Land Use Element of the City's General Plan and to serve as
the entitlement vehicle for the Proposed Project.
Salem Lutheran Church was established in 1965 by the Lutheran Church Missouri Synod as an
unincorporated association and had its first worship service at the Villa Park Elementary School.
In 1966 the current property in Orange Park Acres, at the corner of Santiago Canyon Road and
Orange Park Boulevard, was purchased by the Southern California District of the Lutheran
Church — Missouri Synod. Salem Lutheran Church of Orange, California became incorporated
as a California non-profit arganization in 1968. The following year the Sanctuary ("chapel") and
pre-school building were completed and occupied on the current site.
In 1973 Salem Lutheran Church of Orange acquired the property from the Southern California
District of the Lutheran Church—Missouri Synod in a land transfer of approximately 5.03 acres.
In 1980 Terrence and Roselie Fowler purchased one acre of land from the Lutheran Church —
Missouri Synod. This property, known as the Fowler property, is now owned by the Salem
Lutheran Church and combined with the previously owned land the Salem Lutheran Church
property totals 6.03 acres.
The pre-school opened for students in 1976 followed by the opening of the elementary school in
1983. The elementary school building was completed in 1984 and the multi-purpose building
and eight additional classrooms were completed in 2000.
Salem Lutheran Church and Campus has been at its current location, co-existing with the
neighboring residential areas and has been a member of the Orange Park Acres Community for
over forty (40) years. During this time Salem Lutheran has generously shared its property with
the Orange Park Acres community. The campus is a registered polling place and is used by
various community groups for meetings and small events. During the Sierra fire, the church
offered its property as a staging area for the fire trucks and sleeping quarters for fire fighters.
Community Organizations that have used the Salem Lutheran Church facilities over the years
include':
1 Source: Salem Lutheran Church and School website www.salemorange.com
November 14, 2014 1-1
Salem Lutheran Church and School OPA Compromise Specific Plan Introduction
• Orange Park Acres Association Board and General Meetings
• Rhodesian Ridgeback Dog Club
• Broadmoor Home Owners Association
• Pheasant Run Home Owners Association
• Los Tesoros Home Owners Association
• Boy Scouts of America
• Girl Scouts of the USA
• Cub Scouts
• Brownie Scouts
• The Red Cross
• Moms in Touch
• Firefighters Staging Area
1.2 Location and Setting
The Salem Lutheran Church and Campus site is on the south side of Santiago Canyon Road,
west of Orange Park Boulevard, and north of Frank Lane. The project site is located in a largely
residential area and is situated within the Orange Park Acres (OPA) community and Specific
Plan area. Access to the project site is provided via Frank Lane, a private access easement
serving the church and adjacent residential properties to the south and west, which intersects
with Orange Park Boulevard. Salem Lutheran Church has been a member of this neighborhood
for over 40 years.
Portions of the Orange Park Acres community fall within the jurisdiction of the City of Orange,
with a "central island portion" under the purview of the unincorporated County of Orange. The
"county island" is located just south of the intersection of Frank Lane and Orange Park
Boulevard. A multipurpose trail borders the site's northern and eastern property lines, which is
dedicated to the County of Orange and maintained by the Orange Park Association. An
equestrian center is located to the west of the project and residential properties to the south and
east and west. Other uses within the Orange Park Acres community and/or in proximity to the
project site include a concrete/asphalt recycling plant to the northwest, Santiago Oaks Regional
Park and Nature Center to the northeast, Holy Sepulcher Cemetery to the east, and the former
Ridgeline Country Club to the southeast. Refer to Exhibit 1.1, Local Viciniry, Exhibit 1.2, Aerial
Perspective, and Exhibit 1.3, Specific Plan Area Boundary.
1.3 Document Organization
The Salem Lutheran Church and School OPA Compromise Specific Plan is intended to
implement the Orange Park Acres Specific Plan ("OPASP"), aka, the Orange Park Acres Plan
(hereafter referred to as the "OPA Plan"). It accommodates the expansion plans of Salem
Lutheran Church and School with the flexibility to anticipate future needs while providing
development and design controls to assure that the Specific Plan will be implemented as planned.
The following is a summary of each chapter contained in this document.
November 14, 2014 1-2
Salem Lutheran Church and School OPA Comnromise Specific Plan Introduction
Chapter 1.0, Introduction, includes a general discussion of the Church's history, project �
background, location and setting, and organization of the Specific Plan.
Chapter 2.0, Planning Context, discusses the Specific Plan's purpose and intent, authority and
requirements, goals and objectives, and relationship to applicable plans and policies. The goals
and objectives are more general than the detailed guidelines and regulations contained in the
other sections. However, these should be considered as the intent behind the more specific
guidelines and should be used to check project consistency and development within the Specific
Plan area.
Chapter 3.0, Environmental Factors, discusses Salem Lutheran's existing land uses and physical
site conditions, surrounding land uses and provides an assessment of compatibility of the
proposed project to the surrounding environs. Hydrology, traffic and circulation, and noise are
also discussed as to general impacts and mitigations.
Chapter 4.0, Development Plan, contains the components that provide the rationale for the
development regulations and guidelines that will be used in the Site Plan Review process.
Included is a detailed discussion of the project's history as it pertains to the chronology of
planning and design studies for the Salem Church and School and provides a summary of
concerns raised by neighbors and the project's design response to these concerns. Other
components include the proposed land use plan, existing and proposed circulation plans, and
existing and proposed open space and recreation plans.
Chapter 5.0, Facilities and Service Plan, contains the infrastructure, public services and utility
components of the Specific Plan. Conceptual plans for the Specific Plan's water, sewer,
grading/earthwork and storm drainage systems are included, as is a discussion of public services
(police, fire and schools) and utilities.
Chapter 6.0, Design Guidelines, contains guidelines to enhance the redevelopment of the Salem
Lutheran Church and School and provides visual order and continuity through Specific Plan
build-out. The guidelines cover preschool related site planning and architecture, the worship
center site planning and architecture, landscape guidelines (including signage) and site lighting.
These guidelines will be adhered to for site plan review, as they convey the intent of this Specific
Plan.
Chapter 7.0, Zoning and Development Regulations/Standards, contains development provisions,
regulations and standards establishing the Salem Lutheran Church zoning. Site development
standards provide the parameters within which development will occur.
Chapter 8.0, Implementation and Administration, contains the implementation procedures for the
Specific Plan. A discussion of the anticipated phasing is included in this section. The
Administrative Approval process for the review of lot line adjustments and site plans is
discussed, as well as the Specific Plan's Amendment procedure.
November 14, 2014 1-3
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Salem Lutheran Church and School OPA Comnromise Specific Plan Plannin�Context
CHAPTER 2 - PLANNING CONTEXT
2.1 Purpose and Intent
The purpose of preparing a Specific Plan for the Salem Lutheran Church and School is to
provide a comprehensive development plan for the relocation and redevelopment of existing on-
site uses for the property to include the relocation of the preschool to a new building on-site and
construction of a new worship center building to house the sanctuary, administrative offices and
ancillary rooms. The Specific Plan also implements the Land Use Element of the City's General
Plan, which is the OPA Plan. This process is being initiated in response to a years-long effort on
the part of the applicant involving neighboring residents and City staff ineetings. The Specific
Plan process enables the development of the property and implementation of these proposed
improvements, both short-term and long-term, while also addressing infrastructure
improvements and community services.
The City has previously opined that the existing church and school uses are consistent with the
OPA Plan/General Plan designations. City Planning Staffhave further stated that: (1) processing
a specific plan pursuant to State law as the entitlement vehicle for the project is appropriate; (2)
processing a zone change to change the zoning of the site to Specific Plan/Public Institutional
("SP-PI") is appropriate; and finally, (3) that the processing of a specific plan and zone change is
consistent with the entitlement process utilized for Chapman University and St. John's Lutheran
Church and school, both of which are public institutional uses as defined by the Orange
Municipal Code and are governed by a specific plan.
By pursuing this approach to the project, responsible redevelopment of the property can be
ensured through the adoption of a development control mechanism. The most suitable control
mechanism for this project is the Specific Plan which, when adopted by the City, serves both a
planning and regulatory function. The Specific Plan, as such, contains the necessary standards,
guidelines and procedures to implement the desired improvements to the Salem Lutheran Church
property in a manner that will be clearly defined, thus allowing for clarity in the processing and
administration of improvement plans and related policies.
The Specific Plan will implement an approved land use plan, adopted by the City of Orange by
City Council Ordinance in conjunction with a Zone Change and Lot Line Adjustment for the
project as well as a General Plan Amendment to ensure that the project is consistent with the
City's 2010 General Plan and Land Use Policy Map, as described in Section 2.4 of this
document. The ordinance will require that information be included in the Specific Plan with
respect to development standards, grading, site access and circulation, provisions for parking, the
completion of public infrastructure and facility improvements, and the project's interface with
adjacent land uses.
2.2 Authority and Requirements
The Salem Lutheran Church and School OPA Compromise Specific Plan has been prepared
pursuant to the provisions of the California Government Code, Title 7, Division 1, Chapter 3,
Article 8, Sections 65450 through 65457, which grants authority to cities to adopt specific plans
November 14,2014 2-1
Salem Lutheran Church and School OPA Compromise Specific Plan Planning Context
for the purposes of implementing the goals and policies of the General Plans. The California
Government Code authorizes cities to adopt specific plans by resolution as policy or by
ordinance as regulation and that specific plans must be consistent with the General Plan.
The Salem Lutheran Church and School OPA Compromise Specific Plan is intended to meet the
requirements of the State of California Government Code and City of Orange General Plan. The
Specific Plan is reflective of extensive technical analysis along with input from adjoining
neighbors forming a vision for the site as an educational, religious and community oriented
facility. Included in the Specific Plan document are land use regulations, infrastructure plans,
zoning and development regulations, design guidelines and implementation measures to ensure
that the project will be implemented in accordance with the goals and objectives established for
the project area.
This Specific Plan, when adopted by ordinance becomes the plan that serves as the zoning
ordinance for the subject property. All other City codes and ordinances shall continue to be
applicable, unless inconsistent with this Specific Plan, in which case they are superseded by this
Specific Plan. Proposed parcel maps, site plans, agreements and any other development approval
must be consistent with this Specific Plan. Projects which are found consistent with the Specific
Plan will be deemed consistent with the City's General Plan and its adopted elements.
Further, the Government Code states that specific plans may be amended as many times as
necessary in the same manner as it was adopted. In the case of this Specific Plan, it is adopted
by ordinance and shall be amended by ordinance. Refer to Section 8.7, Specific Plan
Amendments, of this Specific Plan.
2.3 Goals and Objectives
The primary purpose of the Specific Plan is to serve as a planning tool that implements the
physical redevelopment and redesign of the Salem Lutheran Church and School. By providing
the review mechanisms for implementation, the Specific Plan responds to a multiplicity of
concerns. The following contains a summary of key "Project Defining Issues", issues raised by
neighbors and the City during the course of this project and how the Salem Lutheran Church and
School OPA Compromise Specific Plan responds to these issues. This discussion is followed by
a statement of goals and objectives to guide the redevelopment of the Salem Lutheran Church
and School.
2.3.1 Project Defining Issues (PDI) and Project Responses
Since September 8, 2008 the applicant, adjoining neighbors and the Orange Park Association
have met on numerous occasions to obtain input on the existing church operations and solicit
recommendations for the project, culminating in the OPA Compromise Plan. Many of these
items and proposed solutions below are reflective of these discussions. In addition to this
section, Chapter 4, Development Plan; Chapter 6, Design Guidelines; and Chapter 7, Zoning and
Development Regulations/Standards provide discussions, guidelines and standards responsive to
these items.
November 14,2014 2-2
Salem Lutheran Church and School OPA Compromise Specific Plan Plannin�Context
2.3.1.1 Land Use
PDI-1 Consistency of the project with the City of Orange General Plan, the
Orange Park Acres (OPA) Specific Plan, and the City's Zoning Code.
RESPONSE: The City has determined that:
1. The Orange Park Acres Plan ("OPA Plan") governs the project
site.
2. The OPA Plan is part of the Land Use Element of the City's
General Plan.
3. Under the OPA Plan the project site is designated Public/Quasi-
public.
4. The existing church and school uses are both consistent with the
OPA Plan land use designations; and
5. The preparation of this specific plan will implement the land use
element of the City's General Plan, which, for the Project site, is
the OPA Plan.
6. Additionally, the applicant will address any potential
inconsistencies between the OPA Plan and the General Plan Land
Use Map by seeking a General Plan Amendment concurrent with
the Specific Plan to ensure that the project is consistent with the
City's 2010 General Plan and Land Use Policy Map.
PDI-2 Neighbors expressed concern regarding the placement of the Worship
Center/Sanctuary adjacent to Santiago Canyon Road, its size and the fixed
seat capacity of 757 seats, as shown in the May 5, 2006 plan. Please refer
to Exhibit 2.1, Design Review Committee Land Use Plan 05.05.2006.
RESPONSE: As a result of many meetings with neighbors held since
September of 2008, three resulting alternative concepts were presented.
Community Alternative A located the Worship Center/Sanctuary adjacent
to Santiago Canyon Road, comparable to an earlier plan rendition
presented to The City of Orange Design Review Committee in May of
2006 that proposed 757 fixed seats in the sanctuary. Community
Alternative B located the Worship Center/Sanctuary in the general
location of the existing Sanctuary and Pre-school buildings and proposed
712 fixed seats in the sanctuary. In June of 2014, after continued meetings
and work sessions with OPA, a plan known as the "OPA Compromise
Plan," was agreed upon by all parties. The plan reduced the seating
capacity from 757 fixed seats to 590 fixed seats in the sanctuary (less
22%), which has a corresponding reduction in land use impacts. In the
same spirit of cooperation the Specific Plan now reflects the OPA
Compromise Plan. Please refer to Exhibit 2.2, Community Alternative A
Plan 07.2009, Exhibit 2.3, Community Alternative B Plan 07.2009 and
Exhibit 2.S, The OPA Compromise Plan 02.14.14.
November 14, 2014 2-3
Salem Lutheran Church and School OPA Comnromise Specific Plan Plannin�Context
PDI-3 Earlier versions of the plan proposed the Worship Center to be adjacent to
Santiago Canyon Road along the northerly edge of the project. This
resulted in a proposed parking lot and play court area close to and
paralleling Frank Lane in the area of the existing Sanctuary and Preschool.
Neighbor concerns were expressed regarding an increase in the amount of
noise that would be generated by student play and gatherings on the play
courts with this configuration. Please refer to Exhibit 2.1, Design Review
Committee Land Use Plan 05.05.2006.
RESPONSE: Per the OPA Compromise Plan the proposed location of the
Warship Center building is now generally where the existing Sanctuary
and Preschool are located. The parking lot and play court alignment
mimics the existing condition which is perpendicular to Frank Lane rather
than parallel. With the current proposed placement of the Warship Center
play court noise will be buffered in a manner comparable to the current
conditions onsite. Please refer to Exhibit 2.4, Summary of OPA Site Plan
Modifications 02.07.14, which shows the modifications made to a refined
Concept B plan resulting in Exhibit 2.S, The OPA Compromise Plan
02.14.14 and this Specific Plan project.
PDI-4 The neighbors expressed concern of the use of an existing residential
building for preschool use and the precedent it would set. There were also
concerns expressed as to noise generated by children's play in the
proposed outdoor play yard area adjacent to the building.
RESPONSE: As shown in the OPA Plan exhibit "Existing Land Uses"
(page 43 of the OPA Plan) the Fowler House/Salem Lutheran Church
property is designated Public/Quasi-public. Per Table 4 (page 42) and
Table 20 (page 117) of the OPA Plan, types of uses under the
Public/Quasi-public land use include church and school. Within the City's
General Plan the Public Facilities land use includes public, quasi-public
and institutional uses. The City of Orange Zoning Ordinance, 17.24,
Public Institution includes allowance for church and school uses.
Per the agreement with the Orange Park Association, the Fowler House
will be removed and will be replaced with additional parking. The
existing preschool will be relocated to a newly constructed one-story
preschool building adjacent to the west side of existing Classroom
Building B.
2.3.1.2 Traffic, Circulation and Parking
PDI-S Frank Lane Improvements: Frank Lane is a private road easement
serving the church and several adjacent residential properties to the south
and west. In 1998 a City approved circulation plan was put in place
November 14, 2014 2-4
Salem Lutheran Church and School OPA Compromise Snecific Plan Plannine�Context
providing ingress and egress lanes shared by the residents, school and
church, and surface parking for the school and church.
The 1998 City Approved Circulation Plan consisted of two main
components;
1) To improve the school drop-off/pick-up operation within the existing
parking lot; and
2) To improve the circulation along Frank Lane.
The first component consisted of creating a one-way inbound
(northbound) lane with a barrier along the eastern edge of the parking lot.
Two southbound drop-off/pick-up lanes are provided within the existing
drive aisle, thus creating a counterclockwise loop which circulates
inbound from Frank Lane back to outbound on Frank Lane.
The second component consisted of restriping Frank Lane to provide a
combination of four travel lanes with parking on both sides of the road
based on the day of the week and/or time of day. On school days during
drop-off/pick-up times, Frank Lane would operate with two inbound lanes
and two outbound lanes. No parking would be allowed along the north
side of the road between Orange Park Boulevard and the Church parking
lot. On non-school days, Frank Lane would operate with one inbound lane
and two outbound lanes. Parking would be allowed on both sides of the
road.
West of the Church parking lot Frank Lane would remain one lane in each
direction at all times.
In meetings over the past several years the residents have asked that there
be separation provided on Frank Lane between the church ingress/egress
lanes and residential ingress/egress lanes and that the residential lanes use
be exclusive to residents only.
RESPONSE: As indicated in Exhibit 2.4, Summary of OPA Site Plan
Modifications 02.07.14, the project incorporates the requests of the
immediate adjacent homeowners that Frank Lane be modified as follows:
1. Provide separate ingress and egress lanes for residential and
church use.
2. Provide for physical demarcation of the resident and church travel
lanes.
3. Restrict parking along Frank Lane adjacent to the multipurpose
field at peak use times to improve traffic flow.
4. On Orange Park Boulevard provide an exclusive southbound
right-turn lane onto Frank Lane for church/school use. The
November 14, 2014 2-5
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Salem Lutheran Church and School OPA Comnromise Specific Plan Plannine Context
proposed turn lane is within the jurisdiction of Orange County and
therefore will require approval from the County.
5. Residents should have unencumbered access to Frank Lane at all
times.
6. Provide a hammerhead vehicle turn-around at the west end of
Frank Lane. As part of Site Plan Review a Fire Master Plan will
be prepared and submitted to the City of Orange Fire Department
for review and approval.
7. Provide for in-pavement signage and optional post mounted
signage demarcating "Resident" travel lanes and "Salem
Lutheran"travel lanes.
PDI-6 Vehicle Stacking and Circulation: Single point vehicle access, stacking
onto Orange Park Boulevard during school drop-off/pick-up periods and
occasionally during church service hours, and overall circulation.
Difficulty for residents to travel on Orange Park Boulevard past Salem
Lutheran Church to their homes during these hours. Alleviation of this
issue was requested.
RESPONSE: To accommodate these concerns the project proposes a new
exclusive southbound right turn deceleration lane on Orange Park
Boulevard onto Frank Lane. This will allow southbound through traffic on
Orange Park Boulevard to flow better through the Frank Lane intersection.
The proposed turn lane is within the jurisdiction of Orange County and
therefore will require approval from the County.
The inclusion of the new exclusive southbound right turn deceleration lane
on Orange Park Boulevard, in addition to the improvements to Frank
Lane, will act together to improve site access and circulation, and address
concerns regarding Orange Park Boulevard. Please refer to Section 4.3,
Circulation Plan, for more detail.
PDI-7 Emergency Access: Fire and emergency access must be maintained to
the residents, church and school while addressing the request of separation
between resident and schooUchurch travel lanes.
RESPONSE: The plan provides for emergency access as part of the Frank
Lane enhancement to serve both the residents and the school/church
campus. A "hammerhead" turn-around, to be reviewed by the City of
Orange Fire Department and comparable to earlier versions of the plan, is
incorporated into the north portion of the westerly most parking lot in the
same general location, orientation and dimensions as previously reviewed
plans, thus allowing for turn-around capabilities for emergency vehicles
there. Additionally, a hammerhead turn-around is incorporated at the west
end of Frank Lane as part of the plan, also to be reviewed by the City of
November 14,2014 2-11
Salem Lutheran Church and School OPA Compromise Snecific Plan Plannine Context
Orange Fire Department. Please refer to Exhibit 4.1 S, Emergency Access
Diagram in Chapter 4, and Exhibits B and C in the Appendix.
PDI-8 Parking and Special Events: Lack of sufficient onsite parking during
special events results in less than adequate circulation on the site,
impacting adjacent residents and neighborhoods.
RESPONSE: To accommodate this concern the project is providing
improvements to the west side of Orange Park Boulevard to accommodate
an exclusive southbound right turn lane onto Frank Lane for church and
school use (which is within the jurisdiction of Orange County and
therefore will require approval from the County), improved enhancements
to Frank Lane including physically separated resident lanes and
church/school lanes, and an improved internal circulation and parking
(186 paved surfaces spaces and 105 overflow spaces on the multipurpose
field) program. Please note that based upon 186 paved surface spaces and
recent surveys and analysis by the project's traffic engineer:
• Adequate parking will be provided 100% of the time according to
City Code.
• Adequate parking will be provided at least 85% of the time based
upon empirical conditions (actual demand).
• No more than 15% of the time, based upon empirical conditions,
a Parking Management Plan (PMP) will be implemented as per
Section 7.5 of this Specific Plan, allowing overflow parking to
occur on the grass multipurpose field. Events anticipating the need
for use of overflow parking on the grass multipurpose field include
holiday church services (Easter, Christmas, etc.), school
graduations, special school-related events and services (such as
opening school year church service, Christmas
programs, grandparents day, etc.), occasional funerals and
occasional weddings.
2.3.2 Goals and Objectives
The following goals and objectives are intended to provide guidance in the redevelopment of the
Salem Lutheran Church and School and will be used to check project consistency and
development within the Specific Plan area.
Goall Attain the most suitable land use pattern for the campus expansion with a
functional and aesthetic relationship of facilities while being responsive to the
concerns and wishes expressed by surrounding residences and the City of Orange.
Objective 1 a Provide a conceptual future development layout plan that shows
the location of proposed expansion areas based The OPA
Compromise Plan (Exhibit 2.5).
November 14,2014 2-12
Salem Lutheran Church and School OPA Compromise Snecific Plan Plannine Context
Objective Ib Achieve a project design that maximizes the functional and
aesthetic relationships between facilities.
Objective 1 c Mitigate impacts on surrounding neighbors by providing site plans,
design elements and edge treatments responsive to the interface
concerns and as specified by the City of Orange Design Review
Committee in their approval to the Planning Commission of DRC
No. 4538-11, Salem Lutheran Church and School Specific Plan, on
April 18, 2012 and detailed in the Design Review Committee
Meeting Minutes, Final, for the same date.
Objective 1 d Provide development standards far land uses within the Specific
Plan which are responsive to adjacent neighborhood concerns and
as specified by the City of Orange Design Review Committee in
their approval to the Planning Commission of DRC No. 4538-11,
Salem Lutheran Church and School Specific Plan, on April 18,
2012 and detailed in the Design Review Committee Meeting
Minutes, Final, for the same date.
Objective 1 e Locate building masses, landscape and parking such that existing
views into the site at entries and surrounding streets are preserved
and enhanced.
Goal 2 Ensure the quality appearance for Salem Church Campus with consistent design
and visual improvements blending proposed facilities with existing facilities, thus
continuing the visual character and appeal of the existing facility.
Objective 2a Achieve architectural and landscape compatibility between
existing and proposed facilities through the incorporation of
architectural and landscape design guidelines addressing massing,
materials, colors, details,paving, etc.
Objective 2b Provide landscape guidelines that address perimeter and edge
conditions sensitive to the existing landscape of the project site and
its surroundings.
Objective 2c Require adherence to the Specific Plan design guidelines for
architecture, landscape and signage standards.
Goal 3 Have an efficient internal circulation system to alleviate unnecessary project-
related traffic overflow onto adjacent streets while ensuring the functional access
and parking needs of the campus.
Objective 3a Provide an internal circulation pattern that allows efficient ingress
and egress from surrounding streets.
November 14,2014 2-13
Salem Lutheran Church and School OPA Compromise Specific Plan Plannine Context
Objective 3b Provide improved access as necessary to accommodate growth.
Objective 3c Phase construction of the circulation network prior to or concurrent
with development and campus expansion and as per the Orange
Park Association agreement.
Objective 3d Establish parking standards to accommodate all campus functions.
Goal 4 Maintain comparable open space and recreational amenities of the campus while
meeting the expansion and programmatic needs.
Objective 4a Continue to provide adequate open space for student recreation,
special events and existing perimeter landscape as the campus is
built-out.
Goal S Provide a comprehensive, well-rounded master plan for the property that
addresses environmental, water quality, drainage, circulation and public facilities
and services.
Objective Sa Provide an infrastructure system, including sewer, water and storm
drain systems that will adequately serve full build-out of the
Specific Plan development.
Objective Sb Provide designs and plans that meet the requirements of police and
fire departments to ensure the public's safety and efficient
emergency service.
Goal 6 Create a water quality and drainage system that minimizes the impact to off-site
receiving waters and ensures that runoff from smaller events is infiltrated or
otherwise addressed as applicable, before entering Handy Creek and Santiago
Creek.
Objective 6a Provide a water quality and drainage system designed to capture
and filter waters from smaller events on-site before entering into
Handy Creek and Santiago Creek.
Goal 7 Incorporate sustainable design techniques into the redesign plans for the campus.
Objective 7a Require adherence to the Specific Plan design guidelines for
sustainable building design and sustainable landscape design
strategies.
November 14, 2014 2-14
Salem Lutheran Church and School OPA Compromise Specific Plan Plannin�Context
2.4 Relationship to the City General Plan and to the Orange Park Acres (OPA) Specific
Plan
The Salem Lutheran Church site is located within the corporate limits of the City of Orange
(City) and therefore subject to the provisions of the Orange General Plan.
The California Government Code (§65300) requires each city and county, as political
subdivisions of the State, to adopt and update at regular intervals a general plan. In concert with
State law, the City recently completed a multi-year update to the Orange General Plan
culminating with City Council adoption on March 9, 2010.
The Orange General Plan serves as the long-range and policy planning tool for the City to guide
physical development within its borders. The Orange General Plan is considered a
"comprehensive" general plan by incorporating additional, local issues related to cultural
resources, economic development, urban design, and growth management.
As referenced in the Orange General Plan, Goal 7.0, Policies 7.1 — 7.6, the concepts of Crime
Prevention through Environmental Design (CPTED) shall be incorporated in this Specific Plan
including structure orientation and placement, access and visibility of common areas, address
and landscape.
The OPA Specific Plan, dated September 1973 and adopted by the City Council on December
26, 1973, is a multi jurisdictional document whose planning boundary includes portions of the
City and portions of unincorporated County of Orange territory, together known as Orange Park
Acres. The City has previously determined that the Orange Park Acres Specific Plan is also
known as the Orange Park Acres Plan (hereafter referred to as either the "OPASP" or the "OPA
Plan") is the Land Use Element of the City's General Plan for that geographical area covered by
the OPA Plan.
The OPA Plan Land Use Map designates the project site Public & Quasi-Public. Further, this
land use designation includes four land use classifications one of which is Church, which is the
Salem Lutheran Church site. The existing church and school uses are consistent with the OPA
Plan.
In addition, the applicant has agreed to address Orange Park Association's concerns about
inconsistencies between the OPA Plan and the General Plan Land Use Map by agreeing to seek a
General Plan Amendment concurrent with the Specific Plan to ensure that the project is
consistent with the City's 2010 General Plan and Land Use Policy Map. Please refer to Exhibit
2.6, Proposed General Plan Designation.
This Specific Plan will be intended to implement the Land Use Element (i.e., the OPA Plan) of
the City's General Plan and will serve as a single regulatory document governing the proposed
Proj ect.
November 14,2014 2-15
Salem Lutheran Church and School OPA Compromise Snecific Plan Plannine Context
2.5 Relationship to the City of Orange Zoning Ordinance
The Zoning Code, part of the City Municipal Code, also implements the Orange General Plan.
Generally, each zone district specifies the permitted land uses and applicable development
standards. The zoning district on the project site is R-1-40 (Single-Family Residential, minimum
one acre lot area).
The Zoning Code allows churches in all residential zone districts with the granting of a
Conditional Use Permit. The Salem Lutheran Church was granted Conditional Use Permit No.
2213-98 and is therefore consistent with this R-1-40 zone district.
A change of zone will eliminate the R-1-40 district and replace it with the SP/P-I (Specific
Plan/Public and Institutional) zone district. The zone change will provide consistency for this
Specific Plan and the OPA Plan. �
Processing a zone change to SP/P-I as is proposed is appropriate and reflects the City's previous
and current practice with respect to other institutional uses located in the City. Please refer to
Exhibit 2.7, Zoning Designations.
2.6 Relationship to the California Environmental Quality Act
The California Environmental Quality Act of 1970 (CEQA) requires the decision-making body
of a Lead Agency to consider the environmental consequences of a discretionary action prior to
approving a project. For the purposes of implementing CEQA, the City is the Lead Agency.
As required by CEQA, the City adopted Local CEQA Guidelines on April 11, 2006, that
implement the State CEQA Guidelines and includes procedures specific to the City. The City's
Community Development Department has primary responsibility for implementing CEQA.
The Local CEQA Guidelines state an EIR is required when the City determines that a project
may have a significant effect on the environment. The City has determined that adoption of this
Specific Plan requires an EIR that will evaluate the characteristics of the Specific Plan along
with the change of zone.
November 14, 2014 2-16
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Salem Lutheran Church and School OPA Compromise Specific Plan Environmental Factors
CHAPTER 3 - ENVIRONMENTAL FACTORS
The environmental considerations for the Salem Lutheran Church and School include the
following:
• Land Uses
• Hydrology and Water Quality
• Traffic and Circulation
• Recreation, Trails, and Open Space
• Noise
• Aesthetics
3.1 Land Use
3.1.1 Land Uses and Phvsical Conditions Onsite
The site contains approximately 6.03 acres and is developed with the Salem Lutheran Church
and School. The church and campus site is comprised of the following improvements:
• Two classroom buildings (Classroom Buildings B and C) supporting pre-kindergarten,
kindergarten through eighth grade and daycare
• A preschool building
• A multipurpose building
• A grass multipurpose field
• 153 paved parking spaces
• Two basketball courts within the main parking lot
• Two playgrounds (within preschool and east of the main parking lot)
• A 180-seat sanctuary building
The total square footage of building footprint under existing conditions is 43,027 square feet.
The existing Preschool Building is a separate building on campus connected by a breezeway to
the Sanctuary Building and Classroom Building B. The pre-kindergarten and daycare facilities
are located in Classroom Building B with activities allowed outside on the play courts, play
equipment and field. Please refer to Exhibit 3.1, Existing Onsite and Surrounding Land Uses, at
the end of this chapter for a visual reference to the description above.
Total student enrollment onsite is comprised of: daycare, preschool, pre-kindergarten and
kindergarden-8th grade. The enrollment of 726 children (maximum) will not change with the
Salem Lutheran Church and School redevelopment. 726 students is the maximum student
enrollment allowed. The maximum number of students allowed on the campus at any one time is
611 per the Recorded Restrictive Covenant, and as noted in Conditional Use Permit 2213-98
(Condition 14) adopted by Resolution by the City Council of the City of Orange on July 14,
1998, and will remain the same. For the school year ending June 2014 there were 347 students
from kindergarten through eighth grade and �9 84 students in the preschool (including pre-
kindergarten) for a total of 431 students. Not all preschool students are on campus at one time
November 14, 2014 3-1
Salem Lutheran Church and School.OPA Compromise Specific Plan Environmental Factors
due to 2-day, 3-day and 5-day per week programs. Daycare is comprised of students who attend
Salem Lutheran School (not additional students) including preschool students provided extended
care in the daycare area after their school is over. The number of students in daycare at any one
time fluctuates due to the parents needs but is usually between 10 and 20 students. The current
restrictive covenant (dated January 31, 2000) per CUP 2213-98, restricts future growth and caps
the student enrollment, including the preschool, at 726 students with 611 on campus at any one
time, respectively.
Access to the project site is provided via Frank Lane from Orange Park Boulevard, a private road
easement serving the church and adjacent residential properties to the south and west. In
addition to the easement area, the church and school property maintains additional paved
surfaces that parallel this easement providing additional travel lanes.
The site is generally level and occurs at approximately 450 feet above mean sea level.
3.1.2 Surroundin�Land Uses
Residential development surrounds the project site with many including equestrian stables. The
Sully-Miller Equestrian Arena and a retail flower and vegetable building are located adjacent to
the northwest portion of the project site.
The former Sully-Miller sand and gravel mining operation is located across East Santiago
Canyon Road from the site to the northwest. The Sully-Miller site is undeveloped with a small
portion of the site now used for a concrete and asphalt recycling operation. The closed Villa
Park Landfill is adjacent to the western boundary of the Sully-Miller property. Santiago Oaks
Regional Park is located approximately three-quarters of a mile northeast of the site. Holy
Sepulcher Cemetery is located approximately one mile southeast of the project site.
An off-roadway equestrian trail borders the site's northern and eastern property lines, which is
dedicated to the County of Orange but maintained by the Orange Park Association. Also
adjacent to the northern property line is an on-roadway Class II bikeway lane. Handy Creek is
located approximately one-tenth of a mile from the southwest corner of the site and flows into
Santiago Creek located north of the site on the Sully-Miller property.
3.1.3 Compatibilit�al�
The project's emphasis on compatibility contemplates the surrounding existing land uses in
relation to the interface of proposed onsite expansion. Project design includes features that
enhance compatibility with the surrounding land uses.
• The proposed worship center building will be located adjacent to existing buildings on
the interior of the site that will minimize visual impacts from Santiago Canyon Road and
Orange Park Boulevard.
• The existing grass playfield located on the eastern portion of the site will be preserved.
• Frank Lane will be enhanced with "Type AY" (as depicted in Caltrans Standard Plans,
U.S. Customary Units, 2010 edition) raised pavement markers that will provide a visual
November 14,2014 3-2
Salem Lutheran Church and School.OPA Compromise Specific Plan Environmental Factors
separation between Salem Lutheran Church and School travel lanes and the residents
travel lanes and also facilitate traffic flow.
• A new exclusive southbound right turn deceleration lane on Orange Park Boulevard onto
Frank Lane will be provided to improve traffic flow on Orange Park Boulevard through
the Frank Lane intersection.
• The existing equestrian trails along the site's northern and eastern borders will be
retained providing continued equestrian access.
• Inclusion of a demand light for equestrians crossing Frank Lane at the intersection of
Orange Park Boulevard and Frank Lane.
There are no potential incompatibilities with the proposed plan. In addition, the redesign will not
result in the physical division of an established community.
3.2 Hydrology
This section discusses site drainage and water quality on site.
3.2.1 Draina�e
The project site is located within the boundaries of the Santa Ana River Watershed. The project
is shown on Flood Insurance Rate Maps (FIRM) Panel Numbers 06059C0158J and 6059C0166J.
FIRM maps designate areas that are within the floodplain of the 100-year or 500-year storm
event and these areas are divided into different flood hazard zones. The zones are determined by
the type of flood analysis performed. The amount of predicted flooding and insurance purchase
requirements vary with the different designated zones. The project site falls within FEMA Flood
Zone X, which are areas determined to be outside the 0.2 percent annual chance floodplain.
Storm water runoff from the project site sheet flows to Frank Lane, flows along the western
extent of Frank Lane and discharges into Handy Creek, located approximately one-tenth of a
mile southwest of the project site. Handy Creek then flows underground through a box culvert
(Facility No. E08S06) and discharges directly into Santiago Creek, which in turn enters the
Lower Santa Ana River and ultimately flows to the Pacific Ocean.
3.2.2 Water QualitX
Under current conditions, storm water discharged from the project site flows untreated into
Handy Creek. Hydrocarbons and other vehicular pollutants such as brake dust and tire rubber
are assumed to be present along with trash and debris. Pesticides and herbicides may also be
present in the storm water flows resulting from landscape maintenance.
The Salem Lutheran Church and School redevelopment includes several project goals and
objectives that will reduce the potential hydrologic and water quality impacts.
November 14, 2014 3-3
Salem Lutheran Church and School OPA Compromise Specific Plan Environmental Factors
3.3 Traffic and Circulation
The sections below, traffic movement and stacking as well as parking, discuss how vehicle
access to the site will be addressed as well as how parking demand will be accommodated.
3.3.1 Traffic Movement and Stackin�
Regional access to the project site is provided by the SR-55 Freeway via an interchange with
Katella Avenue, which eventually changes names to Santiago Canyon Road. The site can also be
accessed by the Orange Freeway (SR-57) via an interchange at Katella Avenue, and by the
Riverside Freeway(SR-91) via an interchange at the Imperial Highway(SR-90). Jamboree Road
could also be used to access the site via the intersection of Santiago Canyon Road and Jamboree
Road.
Santiago Canyon Road and Orange Park Boulevard, to the north and east, respectively, are the
primary traffic corridors abutting the project site. This intersection is signalized.
Access to the project site is provided via Frank Lane off Orange Park Boulevard at the southeast
corner of the project site. Frank Lane is a private roadway that also provides the sole access to
the residences along the south side of the roadway and residences to the west of the project site.
The intersection of Frank Lane and Orange Park Boulevard is not traffio-controlled. As part of
the project, an exclusive southbound right turn deceleration lane onto Frank Lane will be
provided on Orange Park Boulevard. The proposed turn lane is within the jurisdiction of Orange
County and therefore will require approval from the County. A median will be constructed
within Frank Lane to separate church-related traffic from traffic resulting from nearby
residences.
During school arrivals/dismissals, the project proposes a total of four lanes on Frank Lane (two
entry lanes and two exit lanes) by utilizing the full paved surface area on the church property,
combining the Frank Lane private road easement area with on-site paved area immediately
adjacent and parallel to the northern boundary of the easement. Parking would be prohibited in
any of these marked parking stalls in these areas needed for the purpose of travel lanes.
Additionally, two drop-off/pick-up areas are proposed. One drop-off/pick-up area will be
located in the main parking lot adjacent to the proposed worship center. The other drop-off/pick-
up area will be located in the parking lot west of the new pre-school building location. A manual
traffic control person will be stationed at the point where vehicles exiting the main parking lot
cross the queue of vehicles heading to the pre-school drop-off/pick-up area to create gaps in
traffic and assist vehicles exiting the main parking lot. In addition, equestrian crossing signals
are proposed to be installed at the northwest and southwest corner of Orange Park Boulevard and
Frank Lane for the safety of the horse and rider crossing on the equestrian trail along Orange
Park Boulevard.
Please refer to Exhibit 4.11, Weekday School Circulation Plan, and Exhibit 4.12, Sunday Church
Circulation Plan found in Chapter 4 of this document.
November 14, 2014 3-4
Salem Lutheran Church and School.OPA Comnromise Specific Plan Environmental Factors
3.3.2 Parkin�
Prior to the development of the proposed church expansion, there are a total of 153 on-site
striped parking spaces. All of these spaces are part of a previously City-authorized (CUP 2213-
98) shared parking facility that determined the maximum occupancy of the multipurpose
building of 382 persons. Should the church or school anticipate use of the multipurpose building
exceeding its restricted capacity up to 475 people (a maximum load per the fire code) for a
special event, the City has required the church to submit request for permission to implement the
overflow parking plan. The Parking Management Plan (PMP) generally has included a request
to park vehicles on the multipurpose fields to accommodate additional on-site parking spaces.
The City has stated that it is understood that the Christmas and Easter church services would
always require overflow parking, and therefore, these two events would not require PMP.
Besides these two events, the church typically requested permission for school graduations,
special school-related events and services (such as opening school year church service,
Christmas programs, grandparents day, etc.), occasional funerals and occasional weddings.
Surface parking, with play-court overlays, will be located east of the proposed worship center
and aligned in a comparable manner as the existing parking, and in the westerly portion of the
project site with the removal of the existing vacant structure, the Fowler House. Parking of
vehicles is proposed on the existing multipurpose field on the easterly most portion of the project
site (which is currently allowed via a Parking Management Plan [PMP] permit). During times of
high parking demand the multipurpose field will provide 105 parking spaces and has been
designed for both athletics and overflow parking.
Approximately 186 paved/striped spaces will be provided within parking lots and along Frank
Lane and 105 additional spaces could be provided on the multipurpose field, if necessary. Based
on the worship center improvements, 148 parking spaces are required to meet City standards.
3.3.3 Recreation, Trails, and Open Space
Santiago Canyon Road and Orange Park Boulevard are designated as Existing Class II (On
Street) bikeways. Additionally, there is an existing off-street multipurpose trail along Orange
Park Boulevard abutting the east side of the project site, which then runs west along Santiago
Canyon Road abutting the north side of the project site. The multipurpose trail terminates where
it intersects with the Sully-Miller Equestrian Arena that is adjacent to the project site.
Open space resources near the Salem Lutheran Church include the Santiago Oaks Regional Park,
which is located at the intersection of Santiago Canyon Road and Windes Drive. The park
includes: bicycling/bike trails, equestrian trails, a family picnic area and hiking trails, among
other amenities.
Irvine Regional Park is located southeast of the church. Amenities at the park include: fishing,
multipurpose trails, hiking trails, an interpretive center, bike rentals and baseball fields, among
several other amenities.
November 14, 2014 3-5
Salem Lutheran Church and School.OPA Compromise Specific Plan Environmental Factors
3.4 Noise
As identified in the OPA Plan, "In the absence of nearby airports or industrial activities, the
dominant source of noise in the Orange Park Acres community will be the traffic noise on local
roads." The OPA Plan concludes that noise levels will not substantially increase, with future
development and that the noise increase from proposed development in the OPA Plan "...is
negligible relative to the noise impact due to the continuation of present development trends."
Potential sources of noise on the project site include the following:
• on- and off-site traffic noise from the proposed church redevelopment
• operation of the on-site school
• athletic events on the field adjacent to Orange Park Boulevard
• Sunday church services and other church-related activities
• vehicle parking on the athletic field (as needed for overflow parking)
• rooftop mechanical equipment, including HVAC
The City of Orange Noise Ordinance states the following activities are exempt from the
provisions of the Noise Ordinance:
• Construction, repair, remodeling, or grading of any real property, provided said activities
do not take place between the hours of 8:00 PM and 7:00 AM on weekdays, including
Saturday, or at any time on Sunday or a federal holiday.
• Outdoor gatherings, public dances, shows and sporting and entertainment events provided
such events are conducted pursuant to any permit requirements established by the City.
• Activities conducted on public parks, public playgrounds, and public or private school
grounds.
• School bands, school athletic and school entertainment events.
Noise from the school on site is exempt from the provisions of the Noise Ordinance. However,
per the restrictive covenant recorded against Salem's property (January 31, 2000), there is a
restriction on future student growth on site. Student enrollment is capped at 726 students, with
611 on campus at any one time. The student limit includes students at the preschool. Although
the worship center will allow for additional seating fundamentally the land use on site has not
changed because there is still a sanctuary and preschool onsite. Thus, alternations were made to
existing land uses and no new land use is proposed on the project site, the project is simply a
redevelopment of the campus including the relocation of already existing uses, which are not
anticipated to increase noise dramatically from already existing noise levels.
3.5 Aesthetics
The project site is currently developed with the Salem Lutheran Church and School. The church
and campus site is comprised of classroom buildings, preschool, multipurpose building,
recreational facilities, an open grass multipurpose playfield, a vacant building and a sanctuary.
Building improvements generally occupy the western two-thirds of the site with the multipurpose
November 14,2014 3-6
Salem Lutheran Church and School.OPA Compromise Snecific Plan Environmental Factors
playfield occupying the easterly one-third of the site. The existing buildings reflect a loose and
contemporary interpretation of the California Ranch style.
Landscaping across the site consists of white alder and California Sycamore trees located along
Frank Lane, near the existing vacant building. Several eucalyptus trees are located along the
northwest perimeter of the project site, between the church buildings and the adjacent property.
Ornamental landscaping occurs between the parking and play-courts and the preschool and
sanctuary. Additional ornamental landscaping is located between the classroom buildings.
Currently, lighting sources onsite include security lighting, parking lot lighting, and building
lighting. Additional sources of night lighting are the large overhead lights along Frank Lane and
in the church parking lot, which are lit all night. Daytime glare occurs on the project site from
the church and classrooms, and other buildings onsite and from windshields on vehicles parked
on the site and traveling along Frank Lane to and from the project site.
Redevelopment of the Salem Lutheran Church and School includes design guidelines that ensure
compatibility with the existing onsite buildings that will result in an integrated architectural
vernacular that will not degrade the visual quality of the site. The design guidelines will also
result in a church and school campus that integrates with and will not degrade the character or
quality of the surrounding community. The design guidelines include architectural features and
treatments related to building placement and mass, materials and colors, and roof pitch and color
tones. Landscape guidelines address signage, streetscapes, edge treatments, recreation and open
space, fences and a variety of other landscape elements.
Design and operational guidelines for lighting are incorporated into the redevelopment of the
Salem Lutheran Church and School and relate to security lighting, parking lot lighting, way-
finding lighting, and temporary lighting of the multipurpose field for occasional overflow
parking for special events. The guidelines include limiting hours of security and parking lot
lighting, fixtures designed to direct light downward that eliminate offsite light spillage and
pollution, and compliance with the City's minimum photometric requirements. These guidelines
will eliminate significant environmental impacts related to lighting.
November 14, 2014 3-7
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A
Salem Lutheran Church and School OPA Compromise Snecific Plan Develobment Plan
CHAPTER 4 -DEVELOPMENT PLAN
4.1 Project Chronology
As presented in this Specific Plan the proposed plan for the project, referenced as "The OPA
Compromise Plan", is the result of numerous meetings over several years with neighbors, the
Orange Park Association and the City of Orange. In the neighborhood meetings a variety of
concerns were discussed as summarized below and included in an email to the applicant's
representative dated September 22, 2008.
1. Circulation:
A. Frank Lane:
1.) Confusion present at peak traffic times;
i. Weekday mornings and afternoons during student drop-off and
pick-up.
ii. Church services.
2.) Parents picking up students congest and block Orange Park Blvd.
causing residents to wait and sit in backed up traffic as well as
neighbors trying to go home along Frank Lane. Neighbors have the
right to unencumbered access on Frank lane at all times.
3.) Parked cars on Frank Lane reduce traffic flow at peak use times.
2. Access: Ingress is needed off of Santiago Canyon Road in addition to Frank Lane.
3. Parking: Ample parking for activities and events.
4. Warship Center: Location, size/seating capacity(757 fixed seats) and height.
5. Noise from playground.
6. Light intrusion.
7. Conversion of the Fowler House to preschool.
8. Student population.
From these meetings and discussions an agreement was reached between the applicant and the
Orange Park Association, and outlined in the Letter of Support from the Orange Park
Association to the Mayor and Orange City Council, dated/executed June 5, 2014. As outlined in
the letter eleven primary improvements have formed the parameters from which the OPA
Compromise Plan was derived. These improvements are:
• Reduction of the seating capacity of the Sanctuary from 757 to 590 fixed seats,
excluding special events.
• Parking for Project to be confined to Project site, except for (i) additional parking on
the site of the Fowler House (see item below) and (ii) other offsite venues that Salem
has used for special event parking. The offsite venues referred to in section (ii) do
not apply to City and County streets in the Orange Park Acres neighborhood
adjacent to the Project site. Salem will continue to enforce its "good neighbor"
policy, which endeavors to ensure that Salem's congregation and attendees do not
park on City and County streets.
• Demolition of the Fowler House in order to provide additional parking and
relocation of the preschool away from the westerly property boundary.
November 14, 2014 4-1
Salem Lutheran Church and School OPA Compromise Specific Plan Develobment Plan
• Improvement of the west side of Orange Park Boulevard to accommodate an
exclusive southbound right turn lane onto Frank Lane for the church and school use.
Salem shall use best efforts to endeavor that such improvements will be completed
as soon as possible following the commencement of construction of either the
Sanctuary or School facilities. OPA acknowledges that such roadway improvements
will require approvals from the City or the County of Orange ("County") and that
Salem cannot guarantee how quickly the City or County will act to approve such
roadway improvement plans. OPA shall provide any and all documentation
requested by Salem to demonstrate OPA's support of such roadway improvements.
• The inclusion of a demand light for equestrians at the intersection of Orange Park
Boulevard and Frank Lane, which improvements shall be completed as soon as
possible following the commencement of construction of either the Sanctuary or
School facilities.
• Incorporation of additional directional signage at Frank Lane and Orange Park
Boulevard to define residents only travel lanes and church/school traffic lanes, which
improvement shall be completed prior to the issuance of the occupancy permits for
either the Sanctuary or School facilities.
• Lowering of the Worship Center building height to 36 feet as recommended by the
City of Orange Design Review Board(DRC).
• Incorporation of a hammerhead turn around at the west end of Frank Lane per City
standards, which improvement shall be completed prior to the issuance of occupancy
permits for either the Sanctuary or School facilities.
• Provision of"TYPE AY" (as depicted in Caltrans Standard Plans, U.S. Customary
Units, 2010 edition) raised pavement markers to separate Frank Lane into separate
lanes for residents and Salem Church traffic, which improvement shall be completed
prior to the issuance of occupancy permits for either the Sanctuary ar School
facilities.
• Prior to the commencement of construction of the Sanctuary and School facilities,
Salem to coordinate with OPA's Trail Subcommittee to ensure appropriate
protections of horse trail on Project site.
• Incorporation of the following provision into the Salem Lutheran Church and School
Specific Plan: "No application for a building permit, use permit, variance, or any
other entitlement authorizing development or construction inconsistent with this
Specific Plan shall be approved, or deemed to be approved through inaction, by the
City of Orange or any officer or employee thereof."
Prior to "The OPA Compromise Plan"which this project represents, numerous earlier plans were
prepared to address program criteria, sanctuary seating capacity and size, use distribution, site
access and circulation, emergency access, parking and Frank Lane improvements. Each plan
rendition built upon its predecessor in evaluating issues and providing solutions to address the
concerns expressed.
Four plans act as chronological markers to the evolution of this project as proposed with this
Specific Plan. These are:
A. "Conceptual Plan 09.28.2004," Exhibit 4.1;
November 14, 2014 4-2
Salem Lutheran Church and School OPA Comnromise Specific Plan Development Plan
B. "Design Review Committee Land Use Plan 05.05.2006," Exhibit 4.2 (Design
Review Committee Presentation, City of Orange, May 17, 2006);
C. "Community Alternative B Plan 07.2009," Exhibit 4.3; and
D. "The OPA Compromise Plan 02.14.14," Exhibit 4.4.
The "Conceptual Plan 09.28.2004" proposed a 600 fixed-seat sanctuary and worship center
(which includes ancillary rooms and offices) of approximately 16,500 square feet, relocation of
the preschool to the adjacent vacant structure and parking for 207 vehicles. This plan was never
formally submitted to the City. Please refer to Exhibit 4.1, Conceptual Plan 09.28.2004.
In the "Design Review Committee Land Use Plan 05.05.2006" presentation on May 17, 2006
(DRC No. 4027-OS) a plan was presented which proposed a 757 fixed-seat sanctuary and
worship center of approximately 24,000 square feet, relocation of the preschool to the adjacent
vacant structure and parking for 200 vehicles on paved surface and 112 vehicles on the grass
playfield when necessary. This plan was prepared in response to comments received from
neighbors regarding building placement, circulation and parking, and with program re-evaluation
by the applicant. Please refer to Exhibit 4.2, Design Review Committee Land Use Plan
OS.05.2006.
In July 2009 a plan was prepared as a result of ineetings with neighbors and is referred to as
"Community Alternative B Plan 07.2009. " The plan represented substantial modifications from
that which was presented to the Design Review Committee on May 17, 2006 including the
worship centers location, a reduction in size of the worship center and the sanctuary's seating
capacity, site access considerations and circulation improvements. The plan was presented to the
Design Review Committee in March and April of 2012. The plan was also described and
evaluated in the project's Environmental Impact Report.
"The OPA Compromise Plan 02.1414" was developed in response to ongoing work sessions
and meetings with OPA which resulted in the previously referenced agreement. The plan
represents a refinement of the "Community Alternative B" plan and addresses several key
components defined in the agreement including: a reduction in the sanctuary's seating capacity
to 590 fixed seats (excluding special events); the demolition of the Fowler House far parking and
relocation of the preschool away from the westerly property boundary; in place of the proposed
Santiago Canyon Road entry, the addition of an exclusive southbound right turn lane onto Frank
Lane for church and school use; the inclusion of a demand light for equestrians at the intersection
of Orange Park Boulevard and Frank Lane; and incorporation of a hammerhead turn around at
the west end of Frank Lane per City Standards. This plan represents the proposed project that is
addressed in this Specific Plan and described in detail in the following discussion. Please refer to
Exhibit 4.4, The OPA Compromise Plan 02.14.14 and Table.4.1, Community Issues Comparison.
4.2 Land Use Plan
Salem Lutheran Church, through this Specific Plan, is proposing the redesign of portions of its
six-acre campus on the corner of Santiago Canyon Road and Orange Park Boulevard. The plan
proposes the relocation of the existing preschool to a new one-story building to be located
adjacent to the west side of existing Classroom Building B, approximately 130-feet to the west of
November 14, 2014 4-3
Salem Lutheran Church and School.OPA Comnromise Snecific Plan Develonment Plan
its existing location, the demolition of the aging preschool and sanctuary buildings and the
construction of a new sanctuary with administrative space referred to in this document as the
worship center, and the demolition of an existing vacant structure on the west side of the site for
additional parking. Modifications to parking, site access and circulation will improve the flow of
traffic entering and exiting the property. Enhancements to Frank Lane will provide separation
and definition to "resident only" travel lanes and church/school travel lanes. The open grass
multipurpose playfield comprising the eastern portion of the site abutting Orange Park Boulevard
and the perimeter equestrian trail will remain, continuing to enhance the arrival to Orange Park
Acres and adjacent neighborhoods. The campus redesign and site improvements will retain and
enhance the current ambiance of the campus, blend the proposed worship center and preschool
building architecture and materials with the existing buildings that will remain (refer to Chapter
6.0, Design Guidelines), enhance the existing landscape fabric while being cognizant of current
water use regulations (refer to Chapters 6.0, Design Guidelines and 7.0, Zoning and
Development Regulations/Standards) and continue to be a compatible and attractive member of
the Orange Park Acres community. Recognition and attention is also given in this specific plan
to the importance of water management and a well-designed Water Quality Plan (Refer to
Chapter 5.0,Facilities and Service Plan).
As shown on Exhibit 3.1, Existing On-site and Surrounding Land Uses, and Exhibit 4.5, Use
Distribution Plan, proposed uses will be located in the same general location on the site as the
current comparable uses are positioned. The one exception to this is the proposed relocation of
the preschool to a new building on the west side of existing Classroom Building B and the
addition of a proposed parking lot in the west portion of the project site.
(Continued on Page 4-13)
November 14,2014 4-4
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Salem Lutheran Church and School OPA Compromise Snecific Plan Development Plan
The following table summarizes the land uses for the proposed expansion improvements as
presented in this Specific Plan.
TABLE 4.2 - LAND USE SUMMARY
Land Zlse Desi nation Acres
Building Environs 1.43
- Multipurpose Building
- Classroom Buildings
- Worship Center
- Preschool
Recreation and Open Space 3.13
- Multipurpose Field
- Paved Play Courts and Paved
Play Area(with Parking
Underlay) and Play Structure
- Preschool Play Yard
- Plaza and Yard Areas
- Landscape and Open Space
Circulation and Parking 1.47
- Frank Lane
- Parking Lot
Total Site Area 6.03
4.2.1 Church Parcel
The project proposes the construction of a new worship center building to be located in the same
general area as the existing sanctuary and preschool buildings. The new worship center will be
approximately 20,000-23,000 square feet and will house the new sanctuary with a fixed-seat
capacity of 590 fixed seats. The new sanctuary is being built to accommodate the current
worship member population which has outgrown the existing sanctuary and is utilizing the
multipurpose building's auditorium for church services. In addition to the sanctuary, conference
and meeting rooms, the sacristy, offices, choir and music rooms, storage, child care, and other
ancillary/administrative rooms will also be included in the new building.
Demolition of the existing preschool and sanctuary buildings will make way for the new worship
center. The worship center's location is the result of several meetings with neighbors, reviews of
previously prepared plans and plan alternatives, and expressed concerns regarding student
outdoor play areas and associated noise. The location of the new worship center is proposed in
the south-central portion of the site in the general area of the existing preschool building and
sanctuary, and will be adjacent to the remaining school buildings. The main entrance to the
worship center and sanctuary will be on the north side of the building across from and facing the
entrance to the existing multi-purpose building, thus framing and creating a campus plaza.
November 14, 2014 4-12
Salem Lutheran Church and School OPA Compromise Specific Plan Development Plan
Building setbacks from the perimeter property boundaries will be comparable to conditions
found on site today. The architectural style and materials intended for the worship center will be
complimentary to the existing church and school buildings and will include an elegant use of
stained glass. Refer to Chapters 6.0, Design Guidelines, and 7.0, Development
Regulations/Standards, for detailed information addressing these topics.
Directly east of the new worship center, existing classroom buildings and the multipurpose
building will be a central parking lot with play court overlays. The location and orientation of
both the parking lot and play courts is in the same general location and same orientation as the
existing components. Access to this parking lot will be from Frank Lane in a comparable
manner as exists today. This parking lot and play court area will be gated for the safety of play
use.
The gate accessing the central parking lot will be closed during school periods for student
activity and use of the play courts, and will be open during drop-off and pick-up periods,
weekend events such as weddings, and Sundays.
The eastern most portion of the site retains the grass multipurpose playfield. This field provides
a complimentary edge condition along Orange Park Boulevard for those people entering and
leaving the Orange Park Acres community at this location. The existing fence line along the
north, east and south boundaries will remain for player safety. The existing chain link fence will
be replaced with square tubular steel fencing. Where ball control is required the fencing will be
backed by prefinished rectangular welded wire fabric fencing colored to match the tubular steel
fencing. The existing shade shelter and play structure locations may be slightly adjusted to
accommodate new parking lot layout, but are intended to remain in their same general location.
As an accommodation to neighboring residents Frank Lane will be redesigned with
improvements which will include the separation of resident lanes from churcl�/school lanes via
"TYPE AY" (as depicted in Caltrans Standard Plans, U.S. Customary Units, 2010 edition) raised
pavement markers and stripping of parking and travel lanes for the church/school traffic. In-
street signage on Frank lane at the Orange Park Blvd. intersection will clearly define "Resident"
and "Salem Lutheran" travel corridors. Please refer Exhibit 4.6, Conceptual Development Plan,
and Table 4.3, Statistical Summary, for a conceptual representation of the description above and
associated statistics.
4.22 Westerly Parcel
The proposed project includes demolishing the existing vacant structure to the west of Class
Room Building B and using its grounds for additional parking per the Orange Park Association
agreement and for the construction of a new one-story building as part of the overall Salem
Lutheran Church and School campus. The new building, to be located adjacent to the west side
of existing Classroom Building B will serve as a replacement building for the existing preschool
which is subject to demolition as noted above. As described earlier this property was previously
owned by the Lutheran Church Missouri Synod (Salem's parent organization) and is designated
e� in the OPA Plan, "Existing Land Use and Circulation" (page 43), and "Orange Park Acres
Land Use and Circulation Plan" (page 122), as Public& Quasi-Public designation. The
November 14,2014 4-13
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Salem Lutheran Church and School.OPA Compromise Specific Plan Development Plan
narrative within the OPA Plan describes the Public & Quasi-Public designation as including the
following types of uses: church, tennis club, Villa Park Country Club, school site, golf ranch,
cemetery and roads.
The total square footage of the new preschool building will be approximately 7,505 square feet
and will be one-story, thus maintaining a compatible scale with adjacent residential properties
and Classroom Building B. The classroom spaces will meet the California Childcare Licensing
Standards, Title 22 for efficient staffing. There will be seven classrooms; room sizes will be
approximately 525 square feet. Each classroom will have its own storage space and toilet room.
The remaining portions of the building will be occupied with supporting facilities such as office,
public restroom, kitchen/laundry space, reception area, and storage. The main entrance doors to
the preschool will be located on the southwest side of the building.
Salem Lutheran will be looking to slightly modify its license from an occupancy cap of 101
preschool students to an occupancy cap of 105 (seven classrooms of 15 students maximum)
which is well within the limitations set by the existing CUP and the Recorded Restrictive
Covenant on the Salem property for total campus enrollment.
Additional improvements within this area include demolishing the Fowler House and the existing
parking lot and constructing a new parking lot between the new preschool building and the
westerly project boundary. The play area for preschool students will be located adjacent to and
on the north side of the new preschool building. Landscape enhancements will occur between
the new parking lot and Frank Lane, and the new parking lot and the existing masonry wall along
the westerly project boundary, and will be compatible with the existing landscape palette.
Access to the preschool and westerly parking area will be provided via Frank Lane, separated
from the "resident only" lane. Please refer to Table 4.3, Statistical Summary and Exhibit 4.6,
Conceptual Development Plan, for a conceptual representation of the description above and
associated statistics.
(Continued on the following page)
November 14, 2014 4-15
Salem Lutheran Church and School.OPA Compromise Specific Plan Development Plan
TABLE 4.3 - STATISTICAL SUMMARY
Use Existin Pro osed
Sanctuary 3,262sf 10,650sf(1)
Ancillary Rooms and 0 12,350sf(1)
corridors(new warship
center)
Multipurpose Building 11,171 sf 11,171 sf
Preschool 3,040sf 7,SOSsf(1)
Classroom Building B 12,376sf 12,376sf
Classroom Building C 7,380sf 7,380sf
Residential/Quasi-Public 5,798sf 0
Parking 153 striped 291 spaces:
spaces - 142 striped
- 44 Frank Lane
- 105 rass field
Total student enrollment 726 max. (2) 726 max.
(Daycare,Preschool,Pre-K
and K-8)
Acres 6.03 6.03
Total square feet ofbuilding 43,027sf 61,432sf
Notes:
1. Preliminary estimate.
2.726 is the maximum student enrollment allowed. The maximum number of students allowed on
campus at any one time is 611 per the Recorded Restrictive Covenant.
4.3 Circulation Plan
4.3.1 Existin� Conditions
Site Access
Exhibit 4.7, Surrounding Roadway Network, illustrates the general location of the project site and
surrounding street system, which consists of Santiago Canyon Road bordering the site on the
north, and Orange Park Boulevard on the east. Frank Lane borders the project site on the south,
and provides the only vehicular access for the site under existing conditions. Exhibit 4.8,
Proposed Circulation and Parking, illustrates the proposed site plan overlaid on an aerial
photograph depicting existing conditions.
A comprehensive inventory of the street system within the study area was undertaken to develop
a detailed description of existing traffic conditions. Exhibit 4.9, Roadway and Intersection
Characteristics, illustrates the existing physical characteristics of the streets, including lane
November 14, 2014 4-16
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Salem Lutheran Church and School OPA Compromise Snecific Plan Development Plan
configurations and traffic control at the key intersections, number of travel lanes, posted speed
limits, and median types along the adjacent roadways. Regional access to the project site is
provided by the Costa Mesa (SR-55) Freeway, which is located 2.75 miles to the west, the
Riverside Freeway (SR-91), which is approximately 3 miles to the north, and Jamboree Road
that is 2.75 miles to the east of the site.
Parking
153 spaces are currently provided on site and are located in the following areas:
• 28 spaces in a staff parking lot located west of the school buildings
• 24 spaces on Frank Lane, south of the school building, which are primarily used for
preschool drop-off and pick-up on weekdays
• 77 spaces in the main parking lot located east of the school buildings, of which 27 spaces
adjoining the school buildings are used for curbside staging of passenger
unloading/loading during school pick-up and drop-off periods on weekdays
• 24 spaces on Frank Lane, south of the existing field/grass play area, with parking
restricted during school drop-off and pick-up time periods on weekdays
Internal Circulation
Currently, during school drop-off and pick-up time periods on weekdays, vehicles enter and exit
via Frank Lane. Parking on Frank Lane is restricted during the drop-off and pick-up periods to
allow for two inbound lanes and two outbound travel lanes on Frank Lane. The southerly
(Number 1) inbound lane is primarily used for the preschool, while the northerly (Number 2)
inbound lane is primarily used for all the other grade levels. Arriving traffic bound for the
curbside staging area (adjoining the school buildings) would turn right into the main parking lot,
travel around the basketball courts, and drop-off or pick-up along the curb fronting the school.
This curbside drop-off/pick-up staging area accommodates up to approximately 8 vehicles.
During the peak drop-off and pick-up periods, staff inembers/employees help with implementing
the school's traffic control plan for managing the staging area, directing traffic to move forward,
opening vehicle doors to help children get into or out of their vehicles (when necessary) to
expedite the drop-off or pick-up, and controlling the vehicular and pedestrian conflicts on site.
1998 City Approved Circulation Plan
The 1998 City Approved Circulation Plan consisted of two main components; 1) to improve the
school drop-off/pick-up operation within the existing parking lot, and 2) to improve the
circulation along Frank Lane. The first component consisted of creating a one-way inbound
(northbound) lane with barrier along the eastern edge of the parking lot and provided two drop-
off/pick-up lanes southbound within the existing drive aisle, thus creating a counterclockwise
loop which circulates inbound from Frank Lane back to outbound on Frank Lane. The second
component consisted of restriping Frank Lane to provide a combination of four lanes with
parking on both sides of the road based on the day and/or time of day. On school days during
drop-off/pick-up times, Frank Lane would operate with two inbound lanes and two outbound
lanes with no parking along the north side of the road between Orange Park Boulevard and the
Church parking lot. On non-school days, Frank Lane would operate with one inbound lane and
November 14, 2014 4-18
Salem Lutheran Church and School OPA Compromise Specific Plan Develonment Plan
two outbound lanes with parking on both sides of the road. Frank Lane, west of the Church
parking lot, would remain one lane in each direction at all times. Please refer to Exhibit 4.10,
1998 Ciry Approved Circulation Plan.
4.3.2 Proposed Circulation Plan
Proposed Traffic Improvements
The Salem Lutheran Church and School OPA Compromise Specific Plan proposes a new
exclusive southbound right turn deceleration lane on Orange Park Boulevard onto Frank Lane.
Exhibit 4.8, Proposed Circulation and Parking, illustrates the proposed site plan, including the
new right turn deceleration lane, shown as an overlay on the existing site aerial photograph. The
proposed right turn deceleration lane access off Orange Park Boulevard, which will be designed
to facilitate southbound right-turn movements directly into the site, will improve southbound
through traffic on Orange Park Boulevard at Frank Lane. Please refer to Exhibit 4.13, Orange
Park Boulevard Exclusive Right Turn Lane, which shows the addition of the exclusive right-turn
lane on southbound Orange Park Boulevard onto Frank Lane. The proposed right turn
deceleration lane is within the jurisdiction of Orange County and therefore will require approval
from the County.
In conjunction with the new exclusive southbound right turn deceleration lane on Orange Park
Boulevard, providing adequate internal circulation and loop movements within the site will
ensure that queuing does not extend onto Orange Park Boulevard during school drop-off and
pick-up periods on a typical weekday. Exhibit 4.11, Weekday School Circulation Plan and
Exhibit 4.12, Sunday Church Circulation Plan, illustrate the weekday circulation plan and
Sunday church circulation plan, respectively. To facilitate school drop-off and pick-up
operations, traffic control personnel will be stationed along the curbside staging area, within the
internal/main parking lot loop, and at the intersection of Frank Lane and the internal/main
parking lot loop. It is estimated that three to five traffic control personnel will be utilized.
Traffic control personnel for school day drop-off and pick-up are staff inembers/employees.
Two drop-off/pick-up areas are proposed. One drop-off/pick-up area will be located in the main
parking lot curbside adjacent to the worship center in the form of a "car line." The other drop-
off/pick-up area will be located in the parking lot west of the relocated preschool. Parents will
park their vehicles in the parking lot and escort their children to and from the preschool building.
Please refer to Exhibit 4.11, Weekday School Circulation Plan.
To address the concern expressed by Orange Park Acres residents of non-residents leaving the
school, turning right and using Orange Park Boulevard as a cut-through, identifying placards for
vehicles will be provided for Orange Park Acre residents and non-residents, controlling right and
left turns onto Orange Park Boulevard from Frank Lane. Orange Park Acres residents will have
one type of placard allowing them to turn right from Frank Lane onto Orange Park Boulevard.
Non-residents will have a different type of placard and will only be allowed to turn left from
Frank Lane onto Orange Park Boulevard. A traffic control person will be stationed at this
intersection to control vehicle turning.
November 14, 2014 4-19
Salem Lutheran Church and School OPA Comnromise Specific Plan Development Plan
The proposed design of Frank Lane will reflect a condition of two closely spaced but separate
driveways, one for church and school use, and one for residents only, which can be provided in a
safe and efficient manner. The 44-foot private drive for Salem Church will include 2 to 4 travel
lanes with adjoining parking (inbound versus outbound usage of the lanes depends on the day
and/or time of day). During weekday school drop-off and pick-up periods two ingress and two
egress lanes will be provided. One egress lane will be for right-turns onto Orange Park Blvd.
and one egress lane will be for left-hand turns onto Orange Park Blvd. During Sunday church
services one ingress and one egress lane will be provided. In addition to Exhibits 4.11 and 4.12
referenced above, please refer to Exhibit 4.14, Frank Lane.
186 paved surface parking spaces and 105 overflow spaces on the multipurpose field will be
provided on site to accommodate parking needs on weekdays, Sundays and special events. Per
City of Orange Zoning Ordinance 17.34.060 (1 space/4 seats), adequate parking will be provided
100% of the time. However, based upon recent surveys and analysis by the project's traffic
engineer:
• Adequate parking will be provided 100% of the time according to City Code.
• Adequate parking will be provided at least 85% of the time based upon empirical
conditions (actual demand).
•No more than 15% of the time, based upon empirical conditions, a Parking
Management Plan (PMP) will be implemented as per Section 7.5 of this Specific Plan,
allowing overflow parking to occur on the grass multipurpose field.
4.3.3 Emer ency Access
Emergency access onto the project site is via Frank Lane at Orange Park Blvd., providing
between 20ft.-26ft. of paved travel lanes on the north side of the pavement markers and 16ft. of
paved travel lanes on the south side of the pavement markers. The pavement markers allow for
emergency vehicles to cross over them as needed.
Access to the western portion of the site is by way of the church/school portion of Frank Lane,
which is an extension of the above mentioned paved travel surface. An access lane is provided
from Frank Lane through the parking lot located west of Classroom Building B and the relocated
preschool, providing access to the rear of the campus buildings. The central and westerly located
parking lots provide access to the existing and proposed buildings and play areas on the campus.
A fire truck turn around (hammerhead configuration) is provided in the westerly parking lot at
the west end of the service drive.
Access to the residences to the west is by way of Frank Lane, as discussed above. A
hammerhead turnaround is provided at the west end of Frank Lane.
Emergency access, travel surface widths and turnaround/hammerhead configurations will be
reviewed by the City of Orange Fire Department to verify they meet with current city standards.
Please refer to Exhibit 4.1 S, Emergency Access Diagram, and Exhibits B and C in the Appendix.
November 14, 2014 4-20
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. Exhibit 4.13
�� NT5 Orange Park Boulevard Exclusive Right Turn Lane
tio�rember]A,2019 Salem Lutheran Church and School OPA Compromise Specif'ic Plan
City of Orange
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(RfSIDENCES) '* � EQUESTRIAN� IXISTING EDGE
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Salem Lutheran Church and School OPA Compromise Specific Plan Develonment Plan
4.4 Open Space and Recreation
Open space plays an important role in the existing Salem Lutheran Church campus and as
proposed in this Specific Plan. Open space as composed on the existing site and as proposed in
this Specific Plan remains closely the same. Open space provides for landscape enhancements
and buffering within setback areas from property boundaries, for recreational opportunity and
visual enhancement.
Recreation is an important component of the existing Salem Lutheran Church School program
and campus plan and remains so with this Specific Plan. Recreation and play components for
preschool students and K-8 grade students currently exist and will be replicated with the
proposed campus redesign.
Please refer to Exhibit 4.16, Recreation and Trails Plan, for a conceptual representation of the
discussion below.
4.4.1 Open Space
The term "open space" for this project relates to the grass multipurpose field and landscaped
edge conditions/buffer zones on the property.
4.4.1.1. Multipurpose Field
The most significant open space element on the site and within the proposed plan is the
open grass field located in the eastern portion of the project site. Adjacent to Santiago
Canyon Road and Orange Park Boulevard, and abutting the existing equestrian trail that
runs along both roadways, this open grass field enhances the arrival to the Orange Park
Acres community and adjacent neighborhoods while also creating a setback for the
building structures of the campus from Orange Park Boulevard. In addition to this role
the grass field provides for recreation and sports play (discussed in Subsection 4.4.2,
Recreation, below) as well as occasional overflow parking (as discussed in Section 4.3,
Circulation Plan, above). The multipurpose field will be provided with `structural turf
having sub-grade reinforcement allowing for recreation and sports play as well as
overflow parking on a natural grass surface. The grass field will continue to be an open
space and recreation element along the easternmost portion of the project site, suitable for
sports play and recreation.
Events anticipating the need for use of overflow parking on the grass multipurpose field
include holiday church services (Easter, Christmas, etc.), school graduations, special
school-related events and services (such as opening school year church service,
Christmas programs, grandparents day, etc.), occasional funerals and occasional
weddings. The overflow parking for such events will not affect the availability of the
multipurpose field to student related activities.
November 14,2014 4-30
Salem Lutheran Church and School OPA Compromise Snecific Plan Develonment Plan
Please refer to Exhibit 4.6, Conceptual Development Plan, and Exhibit 6.3, Landscape
Master Plan for conceptual representations of the discussions below.
4.4.1.2 Edge Conditions and Buffer Zones
Along the boundaries of the site there exists a variety of edge conditions and setbacks
with trees and vegetation defining the edges and providing a `buffer-like" edge to the
property. Chain-link and split-rail fencing bound the site along these edges. This current
condition will be enhanced and improved upon with the campus redesign. As described
in the paragraphs to follow these edge treatments and buffer zones frame the campus with
vegetation from within and enhance the campus edge as viewed from the surroundings.
The northerly edge along Santiago Canyon Road will be enhanced with trees, shrubs and
groundcover to complement the existing vegetation that will remain. The resulting affect
will be a landscape edge condition that will meander in both horizontal and vertical
planes, provide a buffer zone as needed, and address the importance of this public edge
condition.
The area along the northwesterly edge of the project site between the existing classroom
buildings, multipurpose building and the neighboring equestrian center contains existing
vegetation and trees. This area, providing grade separation between the adjoining
properties, is intended to be undisturbed in the redesign of the campus and will remain in
its current condition.
Along the north and west boundaries in the western most portion of the site landscape
plantings of trees, shrubs and ground cover will provide a visual separation and buffer
between the new parking lot and the adjacent equestrian and residential parcels. Between
the parking lot and Frank Lane (servicing the adjacent resident properties) trees, shrubs
and groundcover will be added to complement the existing campus vegetation and
provide for a pleasant and visually appealing open space separation between the uses.
Along the easterly edge of the project, abutting Orange Park Boulevard and the existing
equestrian trail, landscape enhancements will play multiple roles. Per the agreement with
the Orange Park Association a new southbound right turn lane onto Frank Lane will be
provided. The proposed turn lane is within the jurisdiction of Orange County and
therefore will require approval from the County. A new landscape parkway will extend
from the existing equestrian trail to the curb and will include new uniform street trees,
shrubs and ground covers to provide a buffer and separation of the equestrian trail from
the adjacent vehicular travel lanes.
Equestrian demand lights for crossing Frank Lane will be located at the intersection of
Frank Lane and Orange Park Boulevard. Please refer to Exhibit 4.17, Equestrian
Crossing Demand Light. The equestrian trail crossing Frank Lane will be a broom-
finished concrete.
November 14, 2014 4-31
Salem Lutheran Church and School OPA Comnromise Snecific Plan Development Plan
Along the northerly and eastern boundaries the existing fencing will be replaced with
square tubular steel fencing. Where ball control is required the tubular fencing will be
backed by prefinished rectangular welded wire fabric fencing colored to match the
tubular fencing.
The existing split rail fencing along Frank Lane will remain.
4.4.2 Recreation
The Salem Lutheran Church and School campus plays host to a number of recreational and sport
activities for the school students as well as several community clubs and local neighborhood
residents. In addition to the recreation needs of the school, the campus is used by the women's
exercise group that meets weekly. The Boy Scouts and Girl Scouts occasionally utilize the
multipurpose field and recreation areas during their monthly meetings. Often the neighborhood
residents and children utilize the field and recreation areas as one might utilize a park. Needless
to say, the Salem Lutheran Church and School Campus provides recreational opporiunities for
many individuals and groups. Improvements to the campus, as described in this Specific Plan,
will continue to provide for such opportunities.
4.4.2.1 Multipurpose Field
The grass multipurpose field is used for a variety of recreational and sport activities.
During the weekdays, Monday through Fridays, the field is used for recess related
activities during the school day and several after-school sports such as football and
volleyball. The field is also used for recreation activities during summer day care
programs and Vacation Bible School. The multipurpose field will maintain the ability to
continue to support such uses.
4.4.2.2 Paved Play Courts and Play Equipment
The paved play courts overlaid on the central parking lot provide for basketball, four-
square and hop-scotch during school recess time, Monday through Friday. After school
basketball practice and games take place during the sport's season. Two eight foot high
ball walls as well as a play structure also provide for play and recreation. With
improvements to the campus and parking, these recreation features will be replicated.
4.4.2.3 Preschool Play Area
The preschool play area provides play/recreation areas for the preschool students
separated from the K-8 grades. The relocated preschool play area may include a covered
lunch pavilion, relocation of the existing play equipment, a ball pad, swing set and
covered sand box. A tricycle path with tricycle storage may be provided as well as a
raised garden planter and garden shed. The final design of the preschool play area will be
submitted at Site Plan Review.
November 14, 2014 4-32
Salem Lutheran Church and School OPA Comoromise Snecific Plan Development Plan
4.4.2.4 Perimeter Equestrian Trail
A perimeter equestrian trail runs parallel to Santiago Canyon Road and Orange Park
Boulevard. Along the south side of Santiago Canyon Road adjacent to the Salem
Lutheran Church and School campus the trail extends from the adjacent equestrian center
east to Orange Park Boulevard. At Orange Park Boulevard the trail turns north and
south. Turning south the trail runs adjacent to the campus's east boundary, into the
Orange Park Acres community. Turning north, the trail crosses Santiago Canyon Road,
then travels east and west along the north side of the roadway.
The trail is separated from the Salem Lutheran Church and School campus by a chain
link fence. The existing chain-link fence along the project's boundary will be replaced
with tubular steel fencing as described in Section 4.4.1.2 Edge Conditions and Buffer
Zones, above. As per Exhibit OSGS, Trails Master Plan of the City of Orange General
Plan, Open Space and Conservation Element, the portion of the trail on the north side of
Santiago Canyon Road is part of the County of Orange trail system. The portion of the
trail on the south side of Santiago Canyon Road and turning south along the west side of
Orange Park Boulevard is part of the Orange Park Acres trail system. Equestrian demand
lights will be placed on the north and south sides of Frank Lane for ease in crossing
Frank Lane at Orange Park Blvd. The crossing will be a broom-finished concrete. Please
refer to Exhibit 4.13, Orange Park Boulevard Exclusive Right Turn lane, Exhibit 4.17,
Equestrian Crossing Demand Light and Exhibit 6.5, Orange Park Boulevard
Enhancements.
4.4.2.S Class II Bicycle Trail
As part of the City of Orange Bikeways Master Plan a Class II bicycle route runs along
the north and south sides of Santiago Canyon Road and along Orange Park Boulevard
south of Frank Lane. A Class II bicycle lane is an on-road lane delineated by painted
stripes and other demarcations. No impact to the Class II bike lane on Orange Park
Boulevard is anticipated.
November 14,2014 4-33
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Salem Lutheran Church and School OPA Compromise Snecific Plan Facilities and Service Plan
CHAPTER 5.0 - FACILITIES AND SERVICE PLAN
5.1 Infrastructure Plan
5.1.1 Water
The water service provider for Salem Lutheran Church and School is the Irvine Ranch Water
District. The district owns both a 6 inch diameter asbestos cement pipe (A.C.P.) main and an 8
inch diameter ductile iron pipe (D.LP.) in Frank Lane. The site is served by the 8 inch diameter
main. Three public laterals serving on site fire hydrants extend into the site. Static Pressure
ranges between 59 to 90 PSL Dynamic Pressure ranges between 40 to 75 PSI. Please refer to
Exhibit 5.1, Water System Plan.
5.1.2 Sewer
Salem Lutheran Church and School is within the service area of the City of Orange.
The city owns an 8 inch diameter vitrified clay pipe (VCP) main in Santiago Canyon Road which
is near the northeast(upstream) corner of the site. However, this main does not currently provide
service to the site, nor is it expected to do so in the future.
The Orange County Sanitation District (O.C.S.D.) owns a 21 inch diameter VCP main in Frank
Lane which turns north and passes through the subject site within a public easement within the
primary parking lot of the site. The O.C.S.D. main is reduced to a 16 inch diameter at an angle
point in Santiago Canyon Road at which point the O.C.S.D. main turns easterly and continues in
Santiago Canyon Road.
The O.C.S.D. 21 inch diameter main which passes through the site currently serves the school
and the church, and is expected to continue as the point of service. Please refer to Exhibit 5.2,
Sewer System Plan.
5.1.3 Water Qualitv Plan
The proposed Project will meet the current MS4 Permit (Municipal Separate Storm Sewer
System) requirements for run-off management and quality assurance. The Project will introduce
proven Best Management Practices (BMP's) and a Low Impact Development (L.I.D.) approach
to do so. These features will include biofiltration strips or planters alongside paved areas to
arrest, infiltrate and treat flows. Rain garden and planted treatment basins will also be
implemented to collect, treat and infiltrate the required two year interval (85`h percentile) level of
flows. Additional flood storage may be desirable in these water quality areas if warranted and as
determined during final designs. Finally, L.I.D. features such as permeable pavements, the
reinforced turf covered multipurpose field allowing for overflow parking, and water conserving
landscapes will reduce run-off and aid with water quality. Please refer to Exhibit 5.3, Water
Quality Plan.
5.1.4 Grading, Earthwork and Storm Draina�
November 14, 2014 5-1
Salem Lutheran Church and School OPA Comnromise Specific Plan Facilities and Service Plan
Grading and Earthwork
At present, the topography of the site falls toward the southwest with an overall change in grade
of about 14 feet. The site is generally flat with an overall slope a gentle 1.6%. Please refer to
Exhibit 5.4, Existing Site Topography and Easements.
The six-acre site is developed with a multipurpose field on the easterly 30% (approximate) of the
site. The central portion of the site is occupied by the primary parking lot/play court area
(approximately 10% of the site) and the school and sanctuary campus (approximately 40% of the
site). The remaining portion of the site (west) is occupied by an existing vacant structure
(approximately 20%).
Grading of the site will include re-grade of the existing multipurpose field to create a reinforced
turf surface, referred to as `structural turf,' to be utilized for recreation and sports play, overflow
parking and as a storm water storage and infiltration area. A common form of reinforced turf
consists of natural grass with a sand and soil/compost root zone into which is blended a network
of small interlocking mesh elements. The grass roots penetrate the mesh to form a deep
anchored root system and very stable root zone. The result is a free draining natural grass
surface with no visible structures, having high load bearing capabilities while being suitable for
sports play. The mesh root zone distributes the weight of vehicles more efficiently to reduce
`rutting' by tire movement. A sample product of this type is "Netlon Advanced Turf, Reinforced
Root Zone System."
The existing preschool building, sanctuary building and parking lot/play court area located in the
middle of the site will be razed and will be replaced by a new sanctuary/worship center and
parking lot/play court area. The new sanctuary/worship center and parking lot/play courts will
conform to the existing site topography with minor excavation and recompaction. Any unused
materials from the razed building will be exported from the site.
On the west portion of the project site the existing Fowler house (vacant structure), pool and
backyard features will be razed and will be replaced by a new parking lot, preschool building and
play area (preschool building and play area to be located adjacent to the west side of existing
Classroom Building B). Minor cut and fill will be required to construct the proposed facilities.
Grading will require approximately 10,000 cubic yards of remediation consisting of over
excavation and re-compaction of existing soils. It is anticipated that there will be nominal export
or import of material required to balance the earthwork. Please refer to Exhibit S.S, Grading,
Earthwork and Storm Drainage Plan and Exhibit 5.6, Erosion Prevention Plan.
Stormwater Management
The Salem Lutheran Church currently occupies a six acre site that will be redesigned in phases to
a modernized worship facility. The Project is located near Handy Creek and Santiago Creek and
has a FEMA Zone X designation which is outside the 500 year flood frequency level of those
drainageways. The proposed Project has also been compared to the existing drainage run-off
conditions. This hydrology study computes peak flow discharges for both the current and
November 14, 2014 5-2
Salem Lutheran Church and School OPA Compromise Specific Plan Facilities and Service Plan
ultimate build-out condition using a 25 year storm reoccurrence interval and its level of required
protection. The proposed Project nearly equals the existing condition because total impervious
surface remains similar.
Existing
Currently 5.4 acres of the site drains southwesterly to Frank Lane where it is transmitted
to Handy Creek, approximately 450 LF from the property. The flows travel along Frank
Lane and over private property to reach this natural drainageway. Approximately 0.5 Ac
of the site drains over the northwesterly property line and "sheet flows" across a private
equestrian property to Santiago Canyon Road and into Handy Creek. The remaining 0.1
Ac. flows directly onto Santiago Canyon Road from a frontage area.
Proposed
The Project Master Plan closely resembles the existing drainage patterns, rates, and
volumes. A Hydrology Study has been completed to identify changes with recommended
offsets and improvements. The proposed Project would redirect the overland flow away
from the Equestrian Property(0.5 Ac) to Santiago Canyon Road avoiding drainage across
a property line. The small increases in flow introduced to Frank Lane by applying new
County of Orange hydrology manual criteria will be offset by redirecting flows to
Santiago Creek as described below. Three alternatives for redirecting the combined 5.9
acres into Santiago Canyon Road have been identified:
■ Alternate `A": Connect a proposed onsite storm system to the existing 36"
reinforced concrete pipe (RCP) drain in Santiago Canyon Road. This line
discharges to the existing Handy Creek culvert under Santiago Canyon Road.
■ Alternate "B": Outlet the onsite storm drain system to the surface of Santiago
Canyon Road via a parkway culvert or catch basin that will release flows to the
surface via pressure head.
■ Alternate "C': Install a new storm drain pipe within Santiago Canyon Road
westerly and join the existing Handy Creek culvert.
The preferred solution is Alternative "A" which takes advantage of an existing storm
drain and avoids overland flow in the street. The capacity and availability of this storm
drain will be evaluated for this use during the design phase. The overland street flow or a
new "parallel" storm drain remain as secondary options. Finally, there are project
features that lessen storm run-off by reducing impervious surface such as a turf parking
zone and planted catchments that contain flows for Water Quality treatment. Please refer
to Exhibit 5.5, Grading, Earthwork and Storm Drainage Plan, and Exhibit 5.3, Water
Quality Plan.
November 14,2014 5-3
Salem Lutheran Church and School OPA Comnromise Specific Plan Facilities and Service Plan
5.2 Public Service
Public services shall continue to be provided by those currently providing service to the Salem
Lutheran Church campus.
5.2.1 Law Enforcement
Police service is provided by the City of Orange Police Department.
5.2.2 Fire Protection
Fire and emergency service is provided by the City of Orange Fire Department.
5.23 Schools
The project does not generate any student population for public schools. No residential uses
exist or are proposed on the site. The existing Salem Lutheran Church School which includes
preschool and grades K-8 is a private school. The school is open to members and non-members
of the church.
5.3 Utilities
Utility services shall continue to be provided by those currently providing service to the Salem
Lutheran Church campus.
5.3.1 Electricitv
Electrical service is provided by Southern California Edison.
5.3.2 Natural Gas
Natural gas service is provided by Southern California Gas.
5.3.3 Solid Waste Disposal
Solid waste collection is provided by CR&R Waste and Recycling Services.
5.3.4 Telephone
Telephone service is provided by AT&T.
November 14, 2014 5-4
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Salem Lutheran Church and School.OPA Compromise Specific Plan Desien Guidelines
CHAPTER 6 - DESIGN GUIDELINES
The purpose of the Salem Lutheran Church and School OPA Compromise Specific Plan design
guidelines is to establish a context for the future redesign of the campus that ensures
complimentary and compatible additions to the existing setting and community. The design
guidelines define and reinforce the regulations and standards contained in the Specific Plan.
These guidelines will be used by architects, landscape architects and engineers, with assistance
from Salem Lutheran Church, to assure a high-quality campus appearance in use compatibility
and architecture and building placement.
The following design guidelines are intended for the relocated preschool and the proposed
worship center. Any changes in the future to existing buildings not covered in this Specific Plan
shall be submitted to the Community Development Director who shall make a determination as
to whether the modification can be approved without an amendment to the Specific Plan.
The goals of these design guidelines are as follows:
A. To provide guidance to Salem Lutheran Church, architects, landscape architects,
engineers and other professionals in order to maintain the desired design quality.
B. To provide guidance to the City's Community Development Department, City staff and
the Design Review Committee as well as Planning Commission and City Council when
called upon, in the review of Site Plan submittals.
C. To recognize the City's "Orange Goes Green" policy and incorporate elements of
sustainable design to the degree possible.
D. To provide guidance to ensure that new buildings are architecturally compatible with the
existing campus architecture.
E. To enhance the architectural quality already represented on the campus with addition of
new, compatible architectural style and materials.
F. To provide edge and transition standards that respect the character of the campus and
community interface.
6.1 Sustainable Design Guidelines
The City of Orange "Orange Goes Green" program provides recommendations for
environmentally responsible everyday practices regarding water conservation, energy efficiency,
air quality and waste reduction, in addition to other considerations. To encourage the community
to "build green" the City of Orange is offering "Priority Processing" for planning entitlement and
building permits for new third-party certified green buildings within the community, and for
"eligible upgrades" to existing buildings. The City is also offering a Local Recognition Program
whereby "green" projects will be recognized and promoted by the City as an example of
environmentally responsible development in Orange. Recognizing the City's desire to create
environmentally friendly buildings and development, the following guidelines are provided.
6.1.1 Site Plannin�
November 14,2014 6-1
Salem Lutheran Church and School.OPA Compromise Snecific Plan Design Guidelines
As depicted in Exhibit 4.5, Use Distribution Plan, the location of the future worship center and
the relocated preschool �s are set within the site in response to numerous meetings with
neighbors and the OPA as described earlier in this document. However, energy conservation
through site planning, while restricted in this instance, can be accomplished via orientation and
design of the building to provide window and door placement allowing for cross-ventilation.
This can allow for air flow through the building's interior spaces providing natural ventilation
and reducing the dependency on a mechanical air conditioning system.
6.1.2 Buildin�Desi�
The design and construction of the new buildings (i.e. the worship center and the relocated
preschool buildings) shall incorporate energy efficient measures which result in a reduction in
the use of energy. Title 24, Part 6, of the California Code of Regulations (California's Energy
Efficient Standards for Residential and Nonresidential Buildings) provides for
design/construction considerations and possible incorporation of new energy technology and
methods to help reduce the State's energy consumption. Such elements include, but are not
limited to:
A. Building construction:
1. Create a tight building envelop, thus stabilizing interior temperatures and reducing energy
cost to heat and cool.
2. Increase insulation/R-value in walls and ceilings.
3. Use double-glazed windows with low U-value.
4. Provide overhangs and other shading devices to limit solar heat gain.
5. Provide proper HVAC and duct sizing (not oversized).
6. Improve duct sealing in existing systems.
7. Utilize light colored roofing and minimum 25-year composite roofing.
8. All structures shall comply with the requirements of Municipal Code Chapter 15.52
(Building Security Standards) which relates to the use of specific hardware, doors,
windows, address, lighting, etc. (Ord. 7-79).
B. Energy efficient appliances and lighting shall be considered such as:
L Hot water jacket insulation.
2. Install faucets with flow reducers.
3. Low flush model toilets.
4. Water and energy efficient appliances (Energy Star)
5. Compact fluorescent light bulbs.
6.13 Leadership in Energy and Environmental Desi�n (LEED)
LEED is the nationally accepted benchmark for the design, construction and operation of high
performance green buildings. LEED gives building owners and operators the tools they need to
have an immediate and measurable impact on their buildings' performance.
LEED provides three levels of support:
November 14,2014 6-2
Salem Lutheran Church and School OPA Compromise Specific Plan Design Guidelines
1. The LEED Rating System. The Leadership in Energy and Environmental Design
(LEED) Green Building Rating SystemTM encourages and accelerates global adoption of
sustainable green building and development practices through the creation and
implementation of universally understood and accepted tools and performance criteria.
Anyone can incorporate practices that adhere to LEED ratings criteria without being
officially certified.
2. LEED Project Certification System. LEED certification provides independent, third
party verification that a building project meets the highest green building and
performance measures. All certified projects receive a LEED plaque, which is the
nationally recognized symbol demonstrating that a building is environmentally
responsible, profitable and a healthy place to live and work. In November 2007, fees for
certification ranged from $2,000 to $23,000.
3. LEED Professional Accreditation. LEED Accredited Professionals (LEED APs) have
demonstrated a thorough understanding of green building practices and principles and the
LEED Rating System. Mare than 40,000 people have become LEED APs since USGBC
launched the Professional Accreditation program in 2001.
While the City of Orange has embraced its "Orange Goes Green" movement, there is no
requirement in the City or this Specific Plan for buildings to attain LEED certification. There are
costs increases associated with certain aspects of design, construction materials and certification
that must be taken into consideration, offset by the savings in energy and operation costs over the
life span of the building. Designers, architects and the applicant are encouraged to utilize
principles as outlined in Section 6.1.2, Building Design, as well as other principles that may be
found in LEED's literature in the design and construction of the new buildings.
6.1.4 Low Impact Development (LID�
Low Impact Development (LID) is an approach to developing land and managing storm water to
imitate the natural hydrology (or movement of water) of the site. Benefits of this approach
include:
A. LID techniques remove pollutants from storm water and reduce the overall volume of
storm water.
B. LID can help reduce flooding and protect property. Reducing impervious surfaces,
increasing vegetation and dispersing and infiltrating stormwater results in less runoff.
This reduces the likelihood of flooding from big storms.
C. LID protects drinking water supplies by ensuring that rainfall infiltrates where it can
recharge aquifers, rather than being treated as a waste and discharged to marine waters.
D. LID provides cost-effective alternatives to systems upgrades. In many cases, LID
systems, such as bio-retention, are much less expensive to use than costly stormwater
vaults ar land-consuming stormwater ponds.
E. LID can increase the appearance and aesthetics of communities. LID projects leave mare
trees and plants and have less impervious surfaces, which makes for greener
developments and communities.
November 14,2014 6-3
Salem Lutheran Church and School.OPA Compromise Specific Plan Design Guidelines
The applicant and design engineers will identify potential Low Impact Development and water
quality/water conservation features for inclusion in the project based upon beneficial and
practical application for this project and site context. Please refer to Section 5.3, Water Quality
Plan, for additional discussion of such features.
6.1.5 Landscane
Appropriate sustainable landscape design features include:
A. Plant climate appropriate grasses, plants and trees which require minimal water and
fertilizer
B. Give all plants space to grow to their natural sizes.
C. Use high efficiency irrigation systems with low-flow drip and weather-based controllers.
D. Operate landscape irrigation between midnight and 8AM to reduce evaporation and
interference from wind.
E. Program irrigation systems appropriate to the season.
F. Minimize irrigation run-off.
G. Utilize recycled water for irrigation if possible.
H. Provide shade structures.
I. Minimize impervious pavement areas.
J. Provisions for storm water management and Best Management Practices (BMP's)
considering first flush pollutants and point source pollutants shall be considered and
incorporated into the design through the utilization of bio-retention basins and vegetated
swales.
6.1.6 Waste Reduction
Practices to be considered for waste reduction include:
A. Provide recycle containers.
B. Dispose of construction waste (such as wood, plumbing scraps or asphalt) at recycling
facility for reuse instead of in a landfill.
6.2 Preschool Guidelines
The following guidelines apply to the construction of the new building to which the preschool
will be relocated.
6.2.1 Site Plannin�
6.2.1.1 Building
A. The building shall be sited adjacent to the west side of Classroom Building B.
B. The building's main entrance shall orient towards the south and Frank Lane or
west and the new parking lot� and shall be clearly visible to vehicular and
pedestrian approaches.
November 14,2014 6-4
Salem Lutheran Church and School.OPA Comnromise Specific Plan Desien Guidelines
C. The building placement shall respect existing setbacks from residential
property lines to the west and south as described in Chapter 7, Development
Standards.
D. Building design, placement, scale, height and context should complement the
adjacent existing structure and the new worship center.
6.2.1.2 Play Area
A. An enclosed outdoor play area shall be allowed on the north (back) side
of the new building for preschool students.
B. The play area shall be directly adjacent to the building and provide direct
access from the enclosed outdoor play area to the preschool.
C. Fencing shall be provided to prohibit uncontrolled access from the front of the
building around to the sides and back of the building.
D. Shade trees shall be provided within the play area.
6.2.1.3 Parking Lots
A. Shared parking concepts that allow adjacent uses with different peak parking
demand times to share spaces will be applied whenever possible.
B. A parking lot shall be located west of the preschool building and play area
between the building and the western property line.
C. Trees, shrubs and groundcover shall be planted along the wall located along
the western property line.
6.2.1.4 Trash Enclosures
A. Exterior trash enclosures shall be screened from ground-level view on three
sides by a masonry wall that is compatible with the building design. The wall
shall be not less than five feet or more than six feet in height.
B. View-obscuring self-latching gates shall be provided.
C. Trash enclosures shall be covered with a trellis element or roof.
D. Trash enclosures shall be consistent with Public Works Standard 409.
6.2.2 Architecture
It is the intent of the following guidelines to ensure that the new buildings will blend with the
other buildings on the campus. The existing Multipurpose Building, Classroom Building B and
Classroom Building C, have an architectural style that is a loose/contemporary interpretation of
the California Ranch style, even at two-stories. The low-pitch of the roof with extended
enclosed overhangs, covered walkways and entryways, building form and mass, color tones and
materials indicate this. These buildings will remain and define what the campus architecture
vernacular is.
November 14,2014 6-5
Salem Lutheran Church and School.OPA Compromise Specific Plan Design Guidelines
New construction, while being respectful of the existing style, should complement the style but
need not be a direct interpretation. Contemporary themes and architectural styles which evolve
from the existing are a normal course of growth in our communities. While being cognizant of
the current buildings architecture, new buildings can reflect contemporary interpretations in both
style and function. Materials and color, in addition to landscape, are important elements in
blending the old with the new. Facade enhancements will be incorporated into the south side of
existing Classroom Building B to provide visual connectivity with the new preschool building,
the existing classroom building and the new worship center. The final design of proposed new
buildings shall be reviewed by the City of Orange Design Review Committee.
The following guidelines are provided for the new preschool building.
6.2.2.1 Building Form and Mass
A. Simple rectilinear form.
B. Simple gabled or cross-gabled roof to be compatible with the roof line and
pitch of Classroom Building B.
C. Partial covered/trellised front entry area.
D. One-story.
6.2.2.2 Materials and Color
A. Fa�ade colar range shall be of natural tones and colors (beige, tan, sage, light
brown or other earth tones) that are complimentary to the colors and tones of
the existing multipurpose building and classroom buildings with contrasting
trim and fascia.
B. Fa�ade materials: stucco (light lace or smooth).
C. Stone or brick accents with tonal compatibility with the facade.
6.2.2.3 Doors and Windows
A. Simple window surrounds and window divides to compliment the intended
architectural character of the building.
B. Enhanced window sills.
C. Entries and doors shall be scaled to the size of the fa�ade and of a style
appropriate to the architecture. Entries shall be covered.
D. All visible side and rear elevation windows and doors must have thematic trim
detail appropriately colored to match or compliment the building color ar trim.
E. Glazing may be either clear or tinted. Reflective glass is not permitted.
6.2.2.4 Roofs
A. Gabled and cross gabled roof form with low to medium pitch (3:12 to 6:12) in
a manner complimentary to the existing/adjacent buildings.
B. Simple cornice trim at gabled ends.
C. Slight to moderate overhangs, open or closed.
November 14,2014 6-6
Salem Lutheran Church and School OPA Compromise Specific Plan Desi�n Guidelines
D. Roof materials shall be non-combustible and can be tile, shingle or seamed
metal.
E. Roof tones should be earth tones complimentary to the buildings colors and
that of the adjacent existing buildings.
F. Solar panels, if used, shall be integrated into the roof design and flush with the
roof slope. Frames shall be colored to match the roof. Mill finished
aluminum frames are not permitted. Support solar equipment shall be
enclosed and screened from view.
6.3 Worship Center Guidelines
The following guidelines pertain to the future worship center and any associated new buildings.
The final design of proposed new buildings shall be reviewed by the City of Orange Design
Review Committee.
6.3.1 Site Plannin�
6.3.1.1 Building
A. The new buildings should be sited in a manner that will be compatible with
adjacent buildings and landscapes, their open space, height, mass and bulk.
B. Building main entrances should orient toward plazas or parking lots and
should be clearly visible to vehicular and pedestrian approaches.
C. The building placement shall respect existing setbacks from residential
property lines to the south as described in Chapter 7, Zoning and Development
Regulations/Standards.
6.3.1.2 Play Courts, Play Structure and Playfield
A. Play courts, play structures and playfields impacted by the construction of
campus improvements shall be replaced in a comparable manner and location
as per existing conditions and as described in Section 4.4, Open Space and
Recreation.
B. Play courts shall be allowed to be overlaid on parking lots, as per existing
condition, for use as play areas for school students. Parking of vehicles shall
not be allowed on these parking lots when in use for school day play activities.
C. A decorative metal vehicle gate shall be provided at entries to parking lot(s)
which have play court overlays to prohibit uncontrolled access to the lots
when children are at play.
D. The grass multipurpose field shall be a minimum of forty(40) yards by eighty
(80) yards to allow for football league play associated with the school grades.
E. Fencing shall be provided around the multipurpose field for safety and
separation from Santiago Canyon Road, Orange Park Boulevard and the
adjacent equestrian trails.
F. The existing play structure shall be replaced in kind if dismantled during
November 14,2014 6-7
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Salem Lutheran Church and School OPA Comnromise Specific Plan Desien Guidelines
construction of improvements.
6.3.1.3 Shade Pavilion
A. The existing shade pavilion, used for lunch time gatherings and other
activities, shall be replaced in kind if dismantled during construction of
improvements.
6.3.1.4 Parking
A. Shared parking concepts that allow adjacent uses with different peak parking
demand times to share spaces will be applied whenever possible.
D. Parking lots shall be designed for clear and easy vehicular movement.
Parking (perpendicular and parallel) shall be allowed on the north side of
Frank Lane per the standards described in Table 7.1, Development Regulations
and Standards.
E. A decorative metal vehicle gate shall be provided at entry to the central
parking lot to prohibit uncontrolled access.
6.3.1.5 Trash Enclosures
A. Exterior trash enclosures shall be screened from ground-level view on three
sides by a masonry wall that is compatible with the building design. The wall
shall be not less than five feet or more than six feet in height.
B. View-obscuring self-latching gates shall be provided.
C. Trash enclosures shall be covered with a trellis element or roof.
D. Trash enclosures shall be consistent with Public Works Standard 409.
6.3.1.6 Frank Lane
A. Frank Lane shall be designed to allow for a visible separation between the
residents' ingress/egress lanes and those used for church and school purposes.
63.2 Architecture
As previously described in Section 6.2.2, Architecture (Preschool) the existing Multipurpose
Building, Classroom Building B and Classroom Building C, have an architectural style that is a
loose/contemporary interpretation of the California Ranch style, even at two-stories. The low-
pitch of the roof with extended enclosed overhangs, covered walkways and entryways, building
form and mass, color tones and materials indicate this. These buildings will remain and define
what the campus architecture vernacular is.
New construction, while being respectful of the existing style, should complement the style but
need not be a direct interpretation. Contemporary themes and architectural styles which evolve
from the existing are a normal course of growth in our communities. While being respectful of
the current buildings architecture, the new building(s) can reflect contemporary interpretations in
November 14,2014 6-9
Salem Lutheran Church and School.OPA Compromise Specific Plan Desien Guidelines
both style and function. Materials and color, in addition to landscape, are important elements in
blending the old with the new. As such, the following guidelines are provided.
6.3.2.1 Building Form and Mass
A. The building's form should reflect its primary function and be designed to
accommodate ancillary uses associated with the primary function.
B. New building(s) should be compatible with existing structures in height and
scale. One-story elements should integrate smoothly with two-story elements.
C. Building heights can vary based upon purpose, function and hierarchy on the
site.
D. Adjacent buildings should relate to one another to whatever degree possible to
create plazas and spaces for landscape enhancement, thus allowing a seamless
blend of old and new.
E. Covered exterior walkways and entryways shall be provided.
6.3.2.2 Materials and Colors
A. Building facades shall be primarily stucco.
B. Accent materials such as brick or stone shall be incorporated into the
building's elevation with tonal compatibility to the facade surface.
C. Natural tones and colors that are complimentary to the existing structures shall
be used.
D. All surface treatments and materials should be designed to appear as an
integral part of the design, not merely applied. All materials should wrap
architectural elements in their entirety.
6.3.2.3 Doors and Windows
A. Window and door placement shall be positioned to maximize natural light and
allow for cross-ventilation.
B. Doors should be prominent focal points, scaled to the size of the fa�ade and
assemblage anticipated, and of a style appropriate to the architecture.
C. Prominent windows on highly visible elevations should be articulated in a
manner consistent with the architectural style such as recesses or projections,
decorative grills or trellis projections.
D. Aluminum or vinyl extruded frame windows should be appropriately colared
to match or compliment the building color ar trim.
E. Glazing may be either clear or tinted. Reflective glass is not permitted.
F. The use of stain glass windows at prominent locations is encouraged.
6.3.2.4 Roofs
A. Roofs shall be low to medium pitched (3:12 to 6:12) in a manner
complimentary to existing structures.
November 14,2014 6-10
Salem Lutheran Church and School OPA Comnromise Specific Plan Design Guidelines
B. Roof materials shall be non-combustible and can be tile, shingle, or seamed
metal.
C. Roof tones should be earth tones complimentary to the building's color and
the existing buildings on campus.
D. "Shed" roofs should be provided on one-story components including covered
walkways and entries.
E. Skylights are permitted and shall be designed as an integral part of the roof.
Skylight framing materials should be colored to match the adjoining roof.
White "bubble" skylights are not permitted.
F. Solar panels, if used, shall be integrated into the roof design, flush with the
roof slope. Frames shall be colored to match the roof. Mill finished
aluminum frames are not permitted. Support solar equipment shall be
enclosed and screened from view.
6.4 Landscape Guidelines
6.4.1 Landscape Overview
It is the intent of the landscape design far the Salem Lutheran Church and School to express a
family of materials, both hardscape and planting, that will serve to unify the exterior spaces of
the Salem Lutheran Church property, complement the architectural style of the existing and
proposed buildings, and connect the project contextually to the surrounding Orange Park Acres
community. A variety of outdoor spaces offer quiet, intimate settings for staff, students,
congregation and visitors, as well as larger more public areas for general gatherings, play and
recreation. Large specimen trees with broad canopies are specifically utilized around the new
Worship Center to soften the mass of this structure and to provide shade to the surrounding
hardscape surfaces. Some of these trees will be installed within tree wells with decorative tree
grates, pervious surfaces such as interlocking concrete pavers, and engineered structural soil at
the root ball zone.
A plant materials palette has been developed with consideration to the rural characteristics of this
part of the City of Orange and Orange Park Acres and includes both low maintenance plant
materials and the efficient use of water, as is specified in the City of Orange document,
`Guidelines Far Water Efficient Landscapes'. The primary/major theme tree for the campus is
the California Sycamore (Platanus racemosa). The irrigation system will include low-volume
spray and drip emitter outlets, automated controls, and inclement weather shut-off devices.
Planting areas with similar water requirements (hydrozones) and sun exposure will be grouped
together to maximize irrigation efficiency. Trees are configured in informal groupings,
reflecting the existing landscape characteristics of the surrounding Orange Park Acres
community. With the exception of the multi-purpose field turf grass has been minimized. The
turf grass at the multi-purpose field will be `structural turf; meaning a live turf grass surface
with specially engineered subgrade treatments which provide load bearing strength while
protecting vegetation root systems from deadly compaction. Shrubs, vines, and ground covers
that flower have been selected so as to exhibit flowering during different times of the calendar
year. Please refer to Exhibit 6.3, Landscape Master Plan and Table 6.1, Plant Materials List.
November 14,2014 6-11
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Salem Lutheran Church and School OPA Compromise Specific Plan Design Guidelines
6.4.2 Si�nage
Directional signage shall be provided on Frank Lane at the intersection with Orange Park
Boulevard to clearly define "Resident" travel lanes and "Salem Lutheran" travel lanes. In-street
signage will be provided at the entrance to Frank Lane directly behind the Frank Lane crosswalk
and will define the two travel lane corridors. The in-street signage shall be of a reflective and
contrasting colored paint, thermoplastic-like lettering or other durable street marking material.
An optional post mounted sign no greater than 24" in width may be placed behind the crosswalk
and in-street signage in line with the pavement markers providing separation between the travel
lane corridor, with directive arrows pointing to "Resident" and "Salem" travel lanes.
A signage plan with associated signage details will be submitted to the City's Design Review
Committee as part of Site Plan Review.
Please refer to Exhibit 6.6, Frank Lane Enhancements.
6.4.3 Streetscapes
The Salem Lutheran Church property is bordered by three existing vehicular streets; Frank Lane
to the south, Santiago Canyon Road to the north, and Orange Park Boulevard to the east.
6.4.3.1 Frank Lane
In response to meetings with the adjacent residents the streetscape enhancements within
Frank Lane will consist of "Type AY" (as depicted in Caltrans Standard Plans, U.S.
Customary Units, 2010 edition) raised pavement markers providing physical separation
between Frank Lane residents ingress/egress drive lanes and Salem Lutheran Church
ingress/egress drive lanes. Directional signage addressing these lanes will be integrated
into the design of the hardscape at the intersection with Orange Park Boulevard. Please
refer to Exhibit 6.6, Frank Lane Enhancements.
6.4.3.2 Santiago Canyon Road
Existing streetscape elements along Santiago Canyon Road include a concrete sidewalk, a
curb adjacent landscape parkway with trees and grass, a decomposed granite equestrian
trail and split rail fence, a chain link fence enclosing the church and school's play court
areas and multipurpose field, and various tree, shrub, and ground cover plantings. These
existing streetscape elements will remain with the exception of the existing chain link
fence, which will be replaced with new tubular steel fencing.
Along Santiago Canyon road in the plant beds between the equestrian trail and fence line
along the Salem Lutheran Church property new shrub plantings will be incorporated with
the existing plant materials to refresh and enhance the streetscape's appearance.
6.4.3.3 Orange Park Boulevard
November 14,2014 6-13
Salem Lutheran Church and School OPA Comnromise Specific Plan Desien Guidelines
The Orange Park Boulevard streetscape includes a curb adjacent asphalt sidewalk, tree
plantings, a decomposed granite equestrian trail, a split rail fence, and a chain link fence
separating the equestrian trail from the adjacent multi-purpose field. Per the agreement
with the Orange Park Association a new southbound right turn lane onto Frank Lane will
be provided. The proposed turn lane is within the jurisdiction of Orange County and
therefore will require approval from the County. A new landscape parkway will extend
from the existing equestrian trail to the curb and will include new uniform street trees,
shrubs and ground covers to provide a buffer and separation of the equestrian trail from
the adjacent vehicular travel lanes. The existing chain link fence will be replaced with a
new tubular steel fence. Equestrian demand lights for crossing Frank Lane will be
located at the intersection of Frank Lane and Orange Park Boulevard. The equestrian trail
crossing Frank Lane will be a broom-finished concrete. Please refer to Exhibit 6.5,
Orange Park Boulevard Enhancements.
Any disturbance that may occur to the streetscape resulting from the improvements to the
intersection of Orange Park Boulevard and Frank Lane to accommodate the separation of
resident and church/school travel lanes, and the addition of an equestrian crossing signal
at the same intersection, will be replaced to match the existing landscape and materials.
6.4.4 Edge Treatments
Trees, ground level plantings (shrubs, groundcovers and grasses), fences and walls are the
primary components of the perimeter of the Salem Lutheran Church and School project area.
Along the northwest boundary adjacent to the neighboring equestrian facility, the existing chain
link fence and wood rail fence will be replaced with a new tubular steel fence and the existing
trees will be preserved.
The northerly project boundary adjacent to Santiago Canyon Road consists of the previously
mentioned chain link and split rail fencing, sidewalk, equestrian trail, trees and shrubs
(subsection 6.4.3.2). The existing chain link fence will be replaced with a new tubular steel
fence. Where ball control is required the tubular fencing will be backed by prefinished
rectangular welded wire fabric fencing colored to match the tubular steel fencing. Any areas
along this project edge impacted by construction of the proposed worship center environs will be
replaced with plantings and materials to match the existing components. In addition, new tree
and shrub plantings will be integrated with the existing landscape to further define this edge.
The easterly edge of the project site along Orange Park Boulevard, as described in subsection
6.4.3.3, will be reconfigured to accommodate a new southbound right-turn lane onto Frank Lane.
Proposed plantings will include new uniform street trees, shrubs, and ground covers within a new
curb adjacent landscape parkway. The existing chain link fence will be replaced with a new
tubular steel fence.
November 14,2014 6-14
Salem Lutheran Church and School.OPA Compromise Specific Plan Desi�n Guidelines
The southern edge of the project is comprised of Frank Lane. With the exception of the
proposed raised pavement markers and directional signage described in section 6.4.3.1, above,
this edge will remain untouched.
Along the westerly edge of the project site, adjacent to the new parking area, the existing
masonry wall located along the property line will remain. The area adjacent to this wall will be
enhanced with landscape plantings of trees, shrubs and groundcovers to soften the presence of
the wall.
6.4.5 Recreation and Open Space
The Salem Lutheran Church and School OPA Compromise Specific Plan intends to retain and
replicate the open space and recreation components which currently exist on the site as described
in Section 4.4 of this document. Open space provides for landscape enhancements and buffering
within setback areas from property boundaries, for recreational opporiunity and visual
enhancement. The campus plays host to a number of recreational and sport activities for the
school students as well as several community clubs and local neighborhood residents. In
addition play courts, play structures and other play equipment are provided for the students at the
various grade levels.
6.4.5.1 Open Space
Open spaces areas as described above, and defined as "Landscape and Open Space" and
"Multipurpose Field" on Exhibit 4.5, Use Distribution Plan, will be retained and
improved upon based on location and effects of construction and related activity. As
stated in subsection 6.4.1 of this chapter, a plant materials palette has been developed
with consideration to the rural characteristics of this part of the City of Orange and
Orange Park Acres and includes both low maintenance plant materials and the efficient
use of water. Trees are configured in informal groupings, reflecting the existing
landscape characteristics of the surrounding Orange Park Acres community. Shrubs,
vines, and ground covers that flower have been selected so as to exhibit flowering during
different times of the year. The multipurpose field will be provided with structural turf
having sub-grade reinforcement allowing for both sports play and overflow parking on a
natural grass surface (refer to Section 5.1.4) and will continue to enhance the arrival to
Orange Park Acres and adjacent neighborhoods and provide a setback for the building
structures of the campus from Orange Park Boulevard.
6.4.5.2 Recreation
Recreation opporiunities currently existing on the site, and are defined as the
"Multipurpose Field", "Paved Play Areas/Structures and Parking", and "Preschool Play
Yard" on Exhibit 4.S, Use Distribution, will be retained and replicated as part of the
campus improvements. Recreational elements and play features shall include the
following.
November 14,2014 6-15
Salem Lutheran Church and School OPA Compromise Specific Plan Design Guidelines
Multipurpose Field:
• Football
• Volleyball
• Recess related activities
• Summer day-care related activities
Paved Play ArealParking and Play Structure:
• Basketball
• Four square
• Ball walls
• Play structure with slides, climbing apparatus, monkey bars, etc.
• Covered lunch pavilion
Preschool Play Area(may include, to be finalized at Site Plan Review):
• Swing set
• Sand box
• Tricycle path and storage
• Raised garden planter and garden shed
• Ball pad
• Miscellaneous play equipment
• Covered lunch pavilion
6.4.6 Fences
All existing chain link fencing, and the split-rail fencing in the northwest portion of the site, shall
be replaced with square tubular steel fencing. Where ball control is required the tubular fencing
will be backed with by prefinished rectangular welded wire fabric fencing colored to match.
Internal to the property decorative metal fences, vehicular gates, and pedestrian gates are
proposed at the central parking area points of access. These are proposed for reasons of safety
and security and will complement the architectural style of the existing and proposed buildings
and the rural character of the Orange Park Acres community. New fences will not exceed six (6)
feet in height.
As described in subsection 6.4.4 above, at the property line along the west edge of the project,
adjacent to the proposed parking lot, the existing masonry wall located along the property line
wi11 remain. The area adjacent to this wall wi11 be enhanced with landscape plantings of trees,
shrubs and groundcovers to soften the presence of the wall.
Please refer to Exhibit 6.7, Fence Details.
6.4.7 Pavin�
Pedestrian paving surfaces will complement the architectural style of the existing and proposed
buildings and the rural character of the Orange Park Acres community. Enhanced paving
finishes will be used to highlight primary gathering and drop-off areas, plaza spaces and building
points of entry. Proposed pedestrian paving surfaces include poured-in-place concrete (colored
November 14,2014 6-16
Salem Lutheran Church and School OPA Compromise Specific Plan Desi�n Guidelines
and textured), stone pavers and pre-cast concrete pavers. Stamped concrete and stamped asphalt
paving are not proposed. Pedestrian paving surfaces will meet all of the requirements set forth in
the Americans with Disabilities Act with respect to safe accessible paths of travel.
6.4.8 Irri ag tion
The proposed irrigation system at the Salem Lutheran Church property will meet the
requirements set forth in the City of Orange document, `Guidelines For Water Efficient
Landscapes', including the preparation of the required water budgeting calculations, and
identifying both the maximum allowable water use and estimated applied water use. All planting
areas will be irrigated with a fully automatic, permanent underground irrigation system. This
system will utilize low-volume spray and drip emitter outlets, each with matched precipitation
rates, a separate water meter, and inclement weather shut-off devices. The system will be
controlled by a `smart controller' utilizing local evapotranspiration, soil moisture, and climatic
data in the programming and scheduling of irrigation operations. Planting areas with similar
water requirements (hydrozones) and/or sun exposure will be grouped together to maximize
irrigation efficiency.
6.4.9 Trash Enclosures
Newly constructed trash enclosures shall be designed to fully screen the trash receptacles or
dumpster. Screen walls, enhanced gates and trellises which match the architectural style of the
adjacent building are encouraged. Shrubs, vines or espaliers should be used to soften the
appearance of the trash enclosure. Trash should be stored in receptacles or dumpsters that are
easily accessible to trash collector trucks. Trash enclosures shall be consistent with Public
Works Standard 409.
6.4.10 Site Furnishin�s
New site furnishings proposed for the Salem Lutheran Church property will consist of benches,
tables, trash receptacles, and play equipment. These products will have a high percentage of
recycled material content in them and will be selected for durability and compatibility with the
setting. They will meet all of the barrier-free/accessibility requirements set forth in the
Americans with Disabilities Act.
6.4.11 Sustainable Design Strategies
The proposed landscape improvements far the Salem Lutheran Church property will contribute
to the successful implementation of sustainable design strategies in the following ways:
6.4.11.1 Plant Selection
No invasive plants are proposed. Conventional turf is minimized. A high percentage of
trees, shrubs, and ground covers are proposed that are drought tolerant and efficient with
respect to water-use.
November 14,2014 6-17
Salem Lutheran Church and School OPA Compromise Specific Plan Design Guidelines
6.4.11.2 The Reduction of Heat Island Effect
Pedestrian paving surfaces are proposed with light-colored, high-albedo materials, thus
reducing the local heat island effect. The careful location of shade trees in pedestrian
areas will also assist in the reduction of the heat island effect.
6.4.11.3 High Efficiency Irrigation Design
The proposed irrigation system will consist of low-volume spray and drip emitter outlets,
each with matched precipitation rates, automated controls, a separate water meter and
inclement weather shut-off devices. Planting areas with similar water requirements
(hydrozones) and/ar sun exposure will be grouped together to maximize irrigation
efficiency.
6.5 Site Lighting
�� Lighting Design Plan and a Photometric Plan shall be prepared by a licensed electrical
engineer. The Lighting Design Plan shall be submitted to the City of Orange Design Review
Committee at the time of Site Plan Review. For purposes of this Specific Plan the following
information is provided.
6.5.1 Parkin�ts
Lighting for paved parking areas and vehicular drive aisles will assist the congregation, staff,
visitors, and emergency service vehicles with safe, clear, unobstructed way-finding between the
adjacent streets and the parking areas. Light sources for the parking lots shall be shielded and
adjusted to avoid light overspill. All light direction shall be downward, rather than upward or
sideways, to eliminate light pollution to the extent possible. Per Building Security Standards
Ordinance No. 7-79, open parking lots providing more than ten (10) new parking spaces for
general use by the public, shall be provided with a maintained minimum of one foot-candle of
light in the parking surface from dusk until the termination of business every operating day.
6.5.2 Multipurpose Field
Lighting for the multipurpose field will occur when used for occasional overflow parking only.
Temporary portable light units will be used to illuminate the area and shall be shielded and
adjusted to avoid light overspill. All light direction will be downward rather than upward or
sideways to eliminate light pollution to the extent possible. The areas illuminated shall be
minimized but will comply with the City's minimum photometric requirements. Lighting for
overflow parking will operate from dusk until no later than 10:30PM. It is anticipated that
overflow parking requiring evening lighting will only occur two or three times a year for events
such as Good Friday services and special children's events.
6.5.3 Safety and Securitv
November 14,2014 6-18
Salem Lutheran Church and School OPA Compromise Specific Plan Desien Guidelines
Safety and security lighting for all areas around both existing and proposed buildings will assist
the congregation, staff, visitors, and emergency service vehicles with safe, clear, unobstructed
way-finding between the adjacent parking areas and the buildings. The style of light fixtures will
complement the style of the building architecture and be mounted on building surfaces wherever
suitable. All lighting will be indirect, with light sources concealed or shielded from view. All
light direction will be downward, rather than upward or sideways to eliminate light pollution to
the extent possible. The areas illuminated shall be minimized, but will comply with the City's
minimum photometric requirements for such areas. Safety and security lighting will operate
from dusk until dawn.
November 14,2014 6-19
Salem Lutheran Church and School OPA Comnromise Specific Plan Desien Guidelines
TABLE 6.1 PLANT MATERIALS LIST
The following list of plants represents a candidate list of preferred plant species proposed
for the Salem Lutheran Church property.
Trees
Platanus racemosa California Sycamore
Alnus rhombifolia White Alder
Quercus agrifolia Coast Live Oak
Quercus ilex Holly Oak
Ulmus parvifolia `True Green' Evergreen Elm
Rhus lancea African Sumac
Lophostemon confertus Brisbane Box
Pinus eldarica Mondell Pine
Cercidium floridum Blue Palo Verde
Robinia pseudoacacia `Idahoensis' Black Locust
Eucalyptus rudis Desert Gum
Shrubs
Baccharis pilularis `Pigeon Point' Dwarf Coyote Brush
Grewia occidentalis Lavendar Star Flower
Ligustrum japonicum Wax-Leaf Privet
Rhamnus californica Coffeeberry
Ceanothus `Yankee Point' Yankee Point Ceanothus
Cotoneaster spp. Cotoneaster
Rhaphiolepis spp. India Hawthorn
Heteromeles arbutifolia Toyon
Grevillea spp. Grevillea
Abelia grandiflora Glossy Abelia
Carpenteria californica Bush Anemone
Rosa spp. Rose
Muhlenbergia rigens Deer Grass
Callistemon viminalis `Little John' Dwarf Bottlebrush
Dietes vegeta Fortnight Lily
Salvia spp. Mexican Sage
Limonium perezii Sea Lavender
Helictotrichon sempervirens Blue Oat Grass
Bougainvillea `La Jolla' Bush Bougainvillea
Heuchera sanguinea Coral Bells
Hemerocallis spp. Day Lily
November 14,2014 6-20
Salem Lutheran Church and School OPA Comnromise Specific Plan Desien Guidelines
Vines
Bougainvillea spp. Bougainvillea
Distictus buccinatoria Blood Red Trumpet Vine
Ground Covers
Arctostaphylos spp. Monterey Manzanita
Lantana sellowiana Trailing Lantana
Leymus condensatus `Canyon Prince' Wild Rye
Rosmarinus spp. Rosemary
Ribes viburnifolium Evergreen Currant
Trachelospermum jasminoides Star Jasmine
Grasses
Turf Grass (Structural Turfl Marathon II [sod]
November l4,2014 6-21
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� Exhibit 6.7
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Vovember lA,2074 Salem Lutheran Church and School OPA Compromise Specific Plan
City of Orange
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7
V
Salem Lutheran Church and School OPA Compromise Specific Plan Zonine and Develonment
Regulations/Standards
CHAPTER 7-ZONING AND DEVELOPMENT REGULATIONS/STANDARDS
Implementation of the Salem Lutheran Church and School OPA Compromise Specific Plan is
accomplished through a set of detailed zoning and development standards as set forth herein.
7.1 Definitions
For the purposes of this Specific Plan, the following terms, phrases, words and their derivations
shall have the meaning given herein. Terms, phrases and words not specifically defined herein
shall be deemed to have the meaning described in the City of Orange Municipal Code under
Section 17.04 "Definitions."
Building Lot Area — The building lot area shall include all portions of the Salem Lutheran
Church and School project area as defined in this Specific Plan and the boundary as depicted on
Exhibit 1.3, Specific Plan Area Boundary.
Campus—The Salem Lutheran Church and School environs.
Church - In the Specific Plan the term "Church"refers to the Salem Lutheran Church.
Conceptual Development Plan - A plan showing existing and proposed uses and location and
the intended extent of development of land.
Fowler House - The existing vacant structure on the project site owned by Salem Lutheran
Church and to be demolished for additional parking as part of the OPA Compromise Plan.
General Plan and Orange Park Acres (OPA) Specific Plan - The Orange General Plan serves
as the long-range and policy planning tool for the City to guide physical development within its
borders. The Orange General Plan is considered a "comprehensive" general plan by
incorporating additional, local issues related to cultural resources, economic development, urban
design, and growth management. The OPA Specific Plan, dated September 1973 and adopted
by the City Council on December 26, 1973, is a multi jurisdictional document whose planning
boundary includes portions of the City and portions of unincorporated County of Orange
territory, together known as Orange Park Acres. The City has determined that the Orange Park
Acres Specific Plan, also known as the Orange Park Acres Plan (hereafter referred to as either
the "OPASP" or the "OPA Plan"), is the Land Use Element of the City's General Plan for that
geographical area covered by the OPA Plan.
OPA Compromise Plan —The Project as defined herein resulting from numerous meetings with
the OPA which resulted in an agreement with the Orange Park Association and which the
agreement points are outline in a Letter of Support from the Orange Park Association to the
Mayor and Orange City Council dated/executed June 5, 2014.
Orange Park Acres (OPA) Community - Orange Park Acres Community falls within the
jurisdiction of the City of Orange, with a "central island portion" under the purview of the
unincorporated County of Orange. The "county island" is located just south of the intersection
of Frank Lane and Orange Park Boulevard.
OPA Plan—The Orange Park Acres Specific Plan, also known as the OPASP.
Parking Management Plan (PMP)—As defined in Section 7.5 of this document.
Parkway - The landscape area between the back of a street curb and a parallel sidewalk.
Preschool - In this Specific Plan the term "preschool" refers to the existing preschool at the
Salem Lutheran Church.
November 14,2014 7-1
Salem Lutheran Church and School OPA Compromise Specific Plan Zonine and Development
Re�ulations/Standards
Project - The term "project" refers to the OPA Compromise Plan and those improvements and
new construction as defined in this Specific Plan.
Sanctuary - The facility designed specifically for religious services and prayer.
Specific Plan — The words "Specific Plan" shall mean this Salem Lutheran Church and School
OPA Compromise Specific Plan.
Useable Open Space - Any space on a lot not enclosed by buildings and intended for recreation
and leisure uses. Usable open space includes enclosed play areas, parking lots with play court
overlays, structural play equipment and grass multipurpose fields.
Worship Center - The new building housing the sanctuary and other ancillary rooms and
administrative offices associated with the operation of the Salem Lutheran Church and School.
Zoning Ordinance—The City of Orange Zoning Ordinance in force at the time Salem Lutheran
Church and School OPA Compromise Specific Plan is approved by ordinance.
7.2 General Provisions
7.2.1 Purpose and Intent
The regulations set forth in this chapter have been established to provide for orderly expansion
and development on the Salem Lutheran Church campus. The standards provide for the
arrangement, development and uses consistent with intent, purpose and goals of the City's
General Plan, Zoning Ordinance and approved Specific Plan for this project. The application of
these regulations is specifically intended to provide the most appropriate use of the land, create a
harmonious relationship between the existing facilities on the campus and the new facilities
proposed, be responsive to surrounding land uses and protect the health, safety and welfare of the
community.
7.2.2 General Provisions
A. Any stipulation by the applicant to restrict the use of the sanctuary and multipurpose
building for assembly purposes simultaneously is hereby incorporated as a condition of
approval of this Specific Plan (refer to Section 7.4, Additional Development Regulations
Incorporated by the Property Owner, and Section 7.5, Parking Management Plan).
B. Any land use proposal not specifically covered by the provisions herein shall be subject
to the regulations of the City of Orange Zoning Ordinance, Chapter 17.24, Public
Institution District, in effect at the time that the Salem Lutheran Church and School OPA
Compromise Specific Plan was approved.
C. Whenever the regulations herein differ from the regulations of the City of Orange Zoning
Ordinance, the regulations of the Salem Lutheran Church and School OPA Compromise
Specific Plan shall take precedence.
D. Although the Specific Plan proposes construction of a new worship center and new
preschool building on lands currently constructed upon, grading plans shall comply with
the City of Orange Grading Ordinance and standards established by this Specific Plan. A
preliminary geotechnical engineering report and soil engineering investigation showing
evidence of recommendations for safe and stable construction is to be submitted with all
site plans. The recommendations of the engineering geologist and soils engineer shall be
November 14, 2014 7'2
Salem Lutheran Church and School OPA Compromise Specific Plan Zonine and Development
Re�ulatio ns/Standards
incorporated into the grading plan design prior to grading plan approval. The stability of
the project site must be certified by the engineering geologist and soil engineer prior to
issuance of building permits.
E. All construction shall comply with all provisions of applicable building codes and the
various mechanical codes related thereto.
F. The zoning of the entire Salem Lutheran Church property as defined in this document
shall be changed to Specific Plan-Public Institution.
G. Salem Lutheran Church and School shall have the right to park up to 105 cars on the
grass athletic field as needed during special services and events as described in Section
7.5, Parking Management Plan.
H. The design of the new worship center, preschool and surrounding grounds shall be
submitted for Site Plan Review as per Chapter 8.0, Implementation and Procedures,
Section 8.4 Site Plan Review, of this Specific Plan.
7.3 Development Standards
Table 7.1, Development Standards, apply to improvements to the site and construction of any
new structures on the Salem Lutheran Church Campus. "Preschool" refers to the relocation of
the existing preschool to a new building.
TABLE 7.1 DEVELOPMENT REGULATIONS AND STANDARDS
7.3.1 Permitted Uses
1. Sanctuary, ancillary and administrative offices, classrooms and other uses
associated with the operation and administration of church,preschool and
school grades K-8.
7.3.2 Buildin�Lot Area
1. Shall be the configuration of land within the"Specific Plan Area Boundary"
as depicted on Exhibit 1.3 of this document.
7.3.3 Buildin�Qht
1. Worship Center: Thirty-six (36) feet. However no more than twenty-five
(25)percent of the building's roof plane area can exceed thirty-two (32) feet.
2. Preschool: The preschool building shall be one-story and shall not exceed
twenty-two (22)feet.
7.3.4 Building Setback
1. Worship Center
A. From south property line within Frank Lane: Fifty-five (55)feet. (3)
B. In all other instances as per City of Orange Zoning Ordinance 17.24.070
as follows:
1.) Front: Twenty(20)feet. (1)
2.) Interior Side Yard: None.
3.) Exterior Side Yard: Ten(10) feet.
4.) Rear Yard: Ten (10)feet. (2)
2. Preschool:
November 14,2014 7-3
Salem Lutheran Church and School OPA Compromise Snecific Plan Zonine and Development
Re eulations/Standards
A. From the south property line within Frank Lane: Forty-eight (48) feet as
currently exists to the covered walkway that is part of existing Classroom
Building B.
B. From the west property line adjacent to residential parcels: One Hundred
Thirty(130)feet.
C. From the northwest property line adjacent to the equestrian center
property: Sixry(60) feet.
7.3.S Gross Floor Area
1. Worship Center: Twenty-three thousand(23,000)square feet.
2. Preschool: Seven thousand five hundred and five(7,505) square feet.
7.3.6 Useable Open Space
1. Grass Athletic Field: 0.5 acre minimum
2. Play Courts, Play Equipment and Play Yards: As per State standards for
preschools and grades K-8.
7.3.7 Parkin�
1. Parking Spaces Required:
A. Worship Center: One (1) space per 2.28 seats up to 186 spaces; and one
(1) space per three (3) seats in excess of 186 spaces.
B. Preschool: Two(2) spaces per employee. (4)
2. Setbackfrom Properry Line: Six(6) feet.
3. Parking Space Dimensions(5):
A. Open Parking Stalls: Not less than nine (9)feet wide and eighteen(18)
feet long, except when adjacent to a wall which requires ten (10) feet
wide.
B. Parallel Parking Stalls: Not less than none (9)feet wide and twenty-four
(24) feet long.
4. Drive Aisle Widths(5):
A. Thirteen(13)feet wide for thirty(30) degree parking with one-way
circulation only.
B. Fifteen(15) feet wide for forty-five (45)degree parking with one-way
circulation.
C. Nineteen(19) feet wide for sixty(60) degree parking with one-way
Circulation.
D. Twenty-five(25)feet wide for ninety(90)degree parking.
E. One-way isles shall be a minimum of twelve(12)feet wide. However,
one-way aisles providing backup area for ninety(90)degree parking shall
be a minimum twenty-five (25)feet wide.
F. Two-way aisles shall be a minimum twenty-five (25) feet wide.
S. Overflow Parking:
A. Overflow parking shall be allowed on the multipurpose field.
7.3.8 Architectural Fa�ade Enhancement
1. Worship Center: Four(4) sides.
2. Preschool: Four(4) sides.
7.3.9 Si�ge
1. As per City of Orange Zoning Ordinance 17.36, Sign Regulations,as
November 14, 2014 7-4
Salem Lutheran Church and School.OPA Comnromise Sbecific Plan Zonine and Development
Reeulations/Standards
amended.
7.3.10 Trash Enclosures
l. Trash collection areas shall be adequately and conveniently placed
throughout the campus.
2. Trash collection areas shall be screened from view on three sides by a
minimum five (5) foot high, maximum six (6) foot high wall. A visually
opaque self-latching gate shall be provided.
3. Trash collection areas shall be setback a minimum of fifteen (15) feet from
adjacent residential properties and a minimum six (6) feet from other
property boundaries.
4. Per City of Orange Public Works Standard 409.
Notes:
1. Per City of Orange Zoning Ordinance 17.24.070, Yard Requirements, if a property fronts on a block
partially within a residential zone district, the front yard shall be the same as required for that residential
zone.
2. Per City of Orange Zoning Ordinance 17.24.070, Yard Requirements, if a property abuts a residential zone
district and the structure exceeds one-stary or twenty (20) feet, a rear yard of at least ten (10) feet shall be
required.
3. As currently exists with the preschool/sanctuary building.
4. As per City of Orange Zoning Ordinance 17.34.060, Required Number of Parking Spaces, Table A,
category"Day Care and Nursery."
5. As per City of Orange Zoning Ordinance 17.34110,Parking Area Dimensions.
7.4 Additional Development Regulations Incorporated by the Property Owner
The Salem Lutheran Church and School OPA Compromise Specific Plan provides General
Provisions (Section 7.2) and Development Regulations and Standards (Section 7.3).
Furthermore, the applicant has agreed to the following additional development regulations
incorporated by the property owner.
A. Frank Lane shall have "Residents Only" ingress and egress travel lanes (2 total),
separated from the church/school travel lanes by raised pavement markers.
B. During school day drop-off and pick-up times traffic control monitor persons shall be
stationed at various locations to ensure smooth traffic movement, including the
intersection of Frank Lane and Orange Park Boulevard.
C. Parking shall be prohibited on Frank Lane south of the multipurpose field during school
day drop-off and pick-up times and two (2) ingress lanes and two (2) egress lanes shall be
provided
D. Identifying placards for vehicles will be provided for Orange Park Acre residents and
non-residents, controlling right turns (OPA residents only) and left turns onto Orange
Park Boulevard from Frank Lane. A traffic monitor will be stationed at this intersection
to control vehicle turning.
E. Light sources for the parking lots and temporary lighting for the multipurpose field shall
be shielded and adjusted to avoid light overspill. Light direction shall be angled
downward rather than upwards or sideways to eliminate light pollution to the extent
possible.
November 14, 2014 7_5
Salem Lutheran Church and School.OPA Compromise Snecific Plan Zoning and Develonment
Re eulations/Standards
F. There shall be no concurrent use of the multipurpose building and the sanctuary for
assembly purposes if the total attendance for the assembly will exceed 590 persons,
excluding special events.
G. In addition to the above, the following provisions shall be included as per the Orange
Park Association agreement and as outline in the Letter of Support from the Orange Park
Association to the Mayor and Orange City Council, dated/executed June 5, 2014:
• Reduction of the seating capacity of the Sanctuary from 757 to 590 fixed seats,
excluding special events.
• Parking for Project to be confined to Project site, except for (i) additional parking on
the site of the Fowler House (see item below) and (ii) other offsite venues that Salem
has used for special event parking. The offsite venues referred to in section (ii) does
not apply to City and County streets in the Orange Park Acres neighborhood
adjacent to the Project site. Salem will continue to enforce its "good neighbor"
policy, which endeavors to ensure that Salem's congregation and attendees do not
park on City and County streets.
• Demolition of the Fowler House in order to provide additional parking and
relocation of the preschool away from the westerly property boundary.
• Improvement of the west side of Orange Park Boulevard to accommodate an
exclusive southbound right turn lane onto Frank Lane for the church and school use.
Salem shall use best efforts to endeavor that such improvements will be completed
as soon as possible following the commencement of construction of either the
Sanctuary or School facilities. OPA acknowledges that such roadway improvements
will require approvals from the City or the County of Orange ("County") and that
Salem cannot guarantee how quickly the City or County will act to approve such
roadway improvement plans. OPA shall provide any and all documentation
requested by Salem to demonstrate OPA's support of such roadway improvements.
• The inclusion of a demand light for equestrians at the intersection of Orange Park
Boulevard and Frank Lane, which improvements shall be completed as soon as
possible following the commencement of construction of either the Sanctuary or
School facilities.
• Incorporation of additional directional signage at Frank Lane and Orange Park
Boulevard to define residents only travel lanes and church/school traffic lanes, which
improvement shall be completed prior to the issuance of the occupancy permits for
either the Sanctuary or School facilities.
• Lowering of the Worship Center building height to 36 feet as recommended by the
City of Orange Design Review Board(DRC).
• Incorporation of a hammerhead turn around at the west end of Frank Lane per City
standards, which improvement shall be completed prior to the issuance of occupancy
permits for either the Sanctuary or School facilities.
• Provision of"TYPE AY" (as depicted in Caltrans Standard Plans, U.S. Customary
Units, 2010 edition) raised pavement markers to separate Frank Lane into separate
lanes for residents and Salem Church traffic, which improvement shall be completed
prior to the issuance of occupancy permits for either the Sanctuary or School
facilities.
November 14, 2014 �_g
Salem Lutheran Church and School.OPA Compromise Snecific Plan Zoning and Development
Re gulations/Standards
• Prior to the commencement of construction of the Sanctuary and School facilities,
Salem to coordinate with OPA's Trail Subcommittee to ensure appropriate
protections of horse trail on Project site.
• Incorporation of the following provision into the Salem Lutheran Church and School
Specific Plan: "No application for a building permit, use permit, variance, or any
other entitlement authorizing development or construction inconsistent with this
Specific Plan shall be approved, or deemed to be approved through inaction, by the
City of Orange or any officer or employee thereof."
7.5 Parking Management Plan (PMP)
Based on a proposed supply of 186 paved parking spaces, adequate parking will be provided
100% of the time according to City code and at least 85% of the time based upon
empirical/actual demand. For no more than 15% of the time under empirical conditions, which
equates to approximately eight Sunday's per year but in reality only occurs two or three times a
year, implementation of this Parking Management Plan will occur. For the times that the parking
demand may exceed 186 spaces, the Average Vehicle Occupancy (AVO) will be greater than
2.28 (1 space/2.28 seats) and likely be 3.0 (1 space/3 seats), due to the typical increase in family
members per vehicle associated with special events, such that the peak parking demand would
likely never exceed 200 parking spaces.
This Parking Management Plan allows for parking on the multipurpose grass field on the eastern
portion of the site, which would add approximately 105 spaces for a total parking supply of
approximately 291 spaces. The need for overflow parking is intended to be anticipated based
upon past attendance records of events including holiday church services (Easter, Christmas,
etc.), school graduations, special school-related events and services (such as opening school year
church service, Christmas programs, grandparents day, etc.), occasional funerals and occasional
weddings. Overflow parking on the multipurpose field will be set-up prior to the event and is
anticipated to fulfill the parking need. Traffic cones, tape and rope will define travel lanes and
parking. Two or more traffic control persons will direct vehicle movement. Traffic control
persons are trained volunteers and part of the Church's Parking Committee.
It should also be noted that there will be no concurrent use of the multipurpose building and the
sanctuary for assembly purposes if the total attendance for the assembly will exceed 590 persons,
excluding special events. Based on these considerations, it is concluded that adequate parking
will be provided on site to accommodate parking needs on weekdays and Sundays.
7.6 Landscape Standards,
As per the City of Orange document "Guidelines for Water Efficient Landscapes", beginning
January 1, 2010, all California cities are required to adopt and use new guidelines or regulations
that promote the use of water conserving landscape and irrigation in new or rehabilitated
landscaping. The purpose is to further water conservation in landscape design, installation and
maintenance. Pursuant to this regulation the Salem Lutheran Church and School project, as
November 14, 2014 7_7
Salem Lutheran Church and School OPA Comnromise Snecif'ic Plan Zonine and Develonment
Re gulations/Standards
autharized by the approval of this Specific Plan, incorporates the standards and guidelines as
specified in the following City of Orange documents:
1. City of Orange, Community Services Department, DRC Landscape Design
Guidelines; and
2. City of Orange, IX. Water Efficient Landscapes, including the preparation of the
required water budgeting calculations identifying both the maximum allowable water
use and estimated applied water use.
The following landscape standards work in conjunction with the above referenced documents.
7.6.1 Fences and Walls
A. Walls that are extensions of a building's architecture and site fencing shall be constructed
of material, finish and color complimentary to the building architecture they relate to.
B. Pilasters shall be used in changes in wall direction and wall type.
C. Chain link fencing, as currently exists on the site, shall be replaced with square tubular
steel fencing. Where ball control is required the tubular steel fencing shall be backed by
prefinished rectangular welded wire fabric fencing colored to match the tubular steel
fencing. Maximum fencing height shall be six (6) feet.
D. Rolling metal fence/gates shall be constructed at the entry to the central parking lot for
safety and security due to play court usage.
E. Prohibited fence materials include chain link, grape stakes, glass, crib walls, railroad ties,
barbed wire and concertina wire.
7.6.2 Pavin�
A. Paving finishes shall compliment the architectural style of the buildings.
B. New paving shall blend with existing paving that remains when abutting one another.
C. Where appropriate, paving should act as an extension of the building architecture.
D. Enhanced paving shall be used as appropriate to the surface, location and purpose and
shall include stone, brick, pavers, exposed aggregate concrete, and colared textured
concrete.
E. Paving areas visible from the public view should receive an enhanced finish or scoring.
F. Stamped concrete and stamped asphalt paving are prohibited.
7.6.3 Screenine
A. Utilities, including gas meters, electrical boxes, transformers and irrigation components
such as controllers and backflows, shall be screened with vegetation when located in
planting areas away from buildings. If these utilities are located in close proximity to
newly constructed buildings the apparatus shall be screened by walls. The walls shall be
constructed as part of the architecture.
B. All fire protection devises such as backflow preventers and detector checks shall be
screened with planting but accessible to agencies.
C. Trash dumpsters and utility areas shall be screened with the use of walls and enclosures,
and enhanced with plant materials.
November 14,2014 7_g
Salem Lutheran Church and School OPA Compromise Specific Plan Zonine and Develonment
Re�ulations/Standards
D. Blank building walls are discouraged and shall have plant screening along their fa�ades
as well as architectural features to enhance the structure.
E. Careful consideration regarding visibility shall be taken into account to prevent hidden
areas from encouraging criminal activity and promote clear view sheds for peace officers
and security personal.
7.6.4 Plantin�Requirements
A. 25% of new trees shall be 24" box or larger. All other new trees shall be 15-gallon
minimum.
B. All shrubs shall be five gallon or larger, except Agapanthus, Daylilies, Star Jasmine and
similar, which may be one gallon or larger. Ground cover may be one gallon or flatted
material.
C. Large specimen trees with broad canopies shall be utilized around the new Worship
Center to soften the mass of this structure and to provide shade to the surrounding
hardscape surfaces. Some of these trees shall be installed within tree wells with
decorative tree grates, pervious surfaces such as interlocking concrete pavers, and
engineered structural soil at the root ball zone.
D. Shrub planting areas shall be a minimum three feet width.
E. Plantings installed at intersections and adjacent to driveways must provide for vehicular
site distance.
F. In slopes and planting areas adjacent to the existing equestrian trail, vines, shrubs and tree
plantings must be of a non-toxic selection to horses and shall comply with the City of
Orange Trails Master Plan.
G. Refer to plant palette for suggested plant materials.
H. Planting which requires low amounts of supplemental water is required.
I. Root barriers shall be used where necessary to minimize the damage caused by migrating
roots which can uplift streets, sidewalks,parking lot paving and other hardscapes.
J. Tree wells shall have a Sft. by Sft. opening and 18" of porous pavement. See "Tree Grate
Planting Detail" on Exhibit 6.3, Landscape Master Plan.
7.6.5 Irri ation
A. All landscape areas shall be irrigated by a fully automatic, permanent underground
irrigation system, with equipment provided by a reputable nationally recognized
manufacturer.
B. Irrigation design shall incorporate environmental considerations such as plant material,
sun, shade, soils, wind and percolation rates.
C. Automatic irrigation controllers utilizing either evapotranspiration or soil moisture sensor
data shall be required for irrigation scheduling in all irrigation systems.
D. The irrigation system shall be designed to prevent runoff, low head drainage, overspray
or other similar conditions where irrigation water flows onto non-targeted areas, such as
adjacent property, non-irrigated areas, hardscapes, roadways or structures.
E. Irrigation systems shall be maintained at regular intervals to ensure proper application
rates, discourage water waste and ensure plant health.
F. Valve boxes shall be grouped where possible.
November 14, 2014 �_g
Salem Lutheran Church and School.OPA Compromise Snecific Plan Zonine and Development
Re gulations/Standards
G. Plans shall be prepared by a CID qualified irrigation design consultant.
H. Irrigation systems shall be installed by a qualified licensed irrigation contractor and
experienced workmen.
November 14, 2014 7-10
T--
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Salem Lutheran Church and School OPA Com romise S ecific Plan Im lementation and Administration
CHAPTER 8 - IMPLEMENTATION AND ADMINISTRATION
8.1 Purpose and Intent
Improvements to the Salem Lutheran Church and School Campus shall be implemented in
conformance with the regulations and guidance contained within this Specific Plan. This chapter
contains the procedures for administration of the provisions included herein and estimated
phasing for the development. Specific Plan implementation will be carried out by the method of
Site Plan Review as outlined in this chapter. Other information covered in this chapter pertains to
general administration, demolition, amendment procedures, and the linkage between these
elements. No application for a building permit, use permit, variance, or any other entitlement
authorizing development or construction inconsistent with this Specific Plan shall be approved,
or deemed to be approved through inaction, by the City of Orange or any officer or employee
thereof. Furthermore, prior to the commencement of construction of the Sanctuary and School
facilities, Salem shall coordinate with OPA's Trail Subcommittee to ensure appropriate
protection of the horse trail on the Project site.
8.2 Phasing Plan
Improvements to the Salem Lutheran Church and School campus are expected to begin in late
2014.
Phase One
Generally speaking it is estimated that Phase One will take eight (8) months to twelve (12)
months to complete once undertaken and will entail:
A. Demolition of the existing vacant structure.
B. Improvement� of the west side of Orange Park Boulevard to accommodate an
exclusive southbound right turn lane onto Frank Lane for church and school use
(requires approval from Orange County), installation of adjacent landscape
improvements, installation of the equestrian crossing demand lights, and the
installation of the broom finished crossing and in-street signage at the Frank Lane
and Orange Park Blvd. intersection.
C. Improvements consistent with neighbor meetings to Frank Lane to provide for
separation between residential and schooUchurch traffic lanes. Improvements to
include "Type AY" pavement markers, striping and directional signage and
hammerhead turnaround at the west end. Please refer to Exhibit 6.6, Frank Lane
Enhancements.
D. Construction of new preschool building and preschool play area.
E. Construction of new westerly parking lot and adjacent landscape.
F. Removal of the existing fencing along the northwest portion of the site and
installation of tubular steel fencing.
Phase Two
Generally speaking it is estimated that Phase Two will take eighteen (18) to twenty (20) months
to complete once undertaken and will entail:
November 14, 2014 8 1
Salem Lutheran Church and School OPA Comnromise Snecific Plan Imnlementation and Administration
A. The demolition of the existing preschool and sanctuary buildings.
B. Construction of the worship center.
C. Construction of the central parking lot.
D. Improvements to the existing multipurpose field.
E. Installation of the remaining landscape and hardscape improvements.
F. Removal of the remaining existing fencing along the north and east boundaries of
the project site and installation of tubular steel fencing.
Phasing shall address issues including drainage and storm water management, utilities and
parking. Each phase will include submittal of plans to the Community Development Director
and Design Review Committee for Site Plan Review as per the standards outlined in Section 8.3,
below.
Please refer to Exhibit 8.1, Phasing Plan, for a representation of the phasing sequence described
above.
8.3 Lot Line Adjustment
The project site totals 6.03 acres and is comprised of three (3) parcels. A lot line adjustment
shall be prepared to combine these existing parcels into one lot. The three parcels are located
within the project area as defined in Exhibit 1.3, Specific Plan Boundary Area.
The project shall comply with all the criteria stated in Section 16.32.020, Criteria for Acceptance
of Proposed Project, and Section 16.32.030, Items to be Submitted When Applying for
Adjustment, of the City of Orange Municipal Code.
The following procedure shall be implemented when applying for review and approval of a lot
line adjustment:
A. Before submitting an application, the person desiring the lot line adjustment shall first
consult with the Subdivision Section of the Department of Public Works to ascertain
applicable requirements.
B. After this consultation, the applicant shall submit the application, with any required
processing fees, with any other documents required under Section 16.32.030. The
Subdivision Section shall review the application and related documents to ensure
technical accuracy and acceptable format for recording. When such determination is
complete, the Subdivision Section shall forward the application for review by the
Community Development Director and a staff review committee as designated by the
City Manager.
C. The Community Development Director shall review the application and related
documents to verify compliance with zoning and land use ordinances and with
established policies and procedures of the City. If the project is in compliance the lot
November 14,2014 g_2
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Salem Lutheran Church and School OPA Compromise Snecific Plan Implementation and Administration
line adjustment shall be approved administratively by the Community Development
Director. Should the lot line adjustment be disapproved by the Community
Development Director the applicant shall have the option of revising the application per
comments received from the Community Development Directar and resubmitting or
appealing to City Council.
D. When the lot line adjustment application is approved, the Department of Public Works
shall cause the approval of the application, the lot line adjustment map, and legal
descriptions in precise conformance with the lot line adjustment, to be recorded in the
office of the County Recorder. (Ords. 3-03; 10-99; 40-78; 8-78: Prior Code 10104)
8.4 Site Plan Review
The Specific Plan shall be implemented through the method of Site Plan Review. The Site Plan
Review process encompasses the necessary review procedures for meeting the City's Local
CEQA Guidelines. A Site Plan Review shall be required for all development within the Specific
Plan area requiring a building permit, except for activities listed as exemptions below ar other
activities considered to be exempt as determined by the Community Development Director. All
proposed projects within the Specific Plan shall be required to have an approved Site Plan prior
to issuance of building permits or concurrent with subdivisions, or any other permit for the
property. The Site Plan Review procedure is necessary for the following reasons:
A. To ensure consistency with the Specific Plan, the General Plan and all implementing
ordinances.
B. To promote the highest contemporary standards of site design.
C. To adapt to specific or special development conditions that occur from time to time,
while continuing to implement the Specific Plan and conform development to the
General Plan and implementing ordinances.
D. To facilitate complete documentation of land use entitlement autharized and
conditions pertinent thereto.
E. To adapt to substantial changes that may occur with respect to the circumstances under
which the project is undertaken.
8.4.1 Exem tp ions
The following is a list of activities that are exempt from the Site Plan Review process. This list
is not all-inclusive. The Community Development Director may exempt other special activities
not covered by this example listing.
A. All interior changes, alterations, construction projects that do not result in an increase
of gross building square footage of existing buildings.
B. Repainting.
C. Re-glazing, new windows using materials that match the existing materials and
allow energy-efficient materials.
D. Re-landscaping of existing structures.
E. Re-roofing with similar style roofing materials.
F. Minor exterior repairs.
November 14,2014 8_4
Salem Lutheran Church and School OPA Compromise Specific Plan Implementation and Administration
G. Internal signs.
8.4.2 Reviewing Bodies
A. Staff Review Committee: The Community Development Director in conjunction with a staff
review committee designated by the City Manager shall review all Site Plans within the Specific
Plan area to ensure that the projects conform to the development concepts, regulations and
standards (traffic/circulation, building/site planning, etc.) of the Specific Plan and remain
compatible with surrounding properties. In addition, the Staff Review Committee reviews all
environmental documentation and, based on its findings, has the authority to determine whether
a project's environmental impacts may be significant in accordance with CEQA Guidelines.
B. Design Review Committee: The Design Review Committee reviews all Site Plans within the
Specific Plan area to consider the variable nature of architectural concepts, construction
materials, etc. on a case-by-case basis, and ensure that the projects reflect the highest quality of
planning and design, consistent with the design guidelines of the Specific Plan. Under select
circumstances, Planning Commission shall be the principal reviewing body for Site Plan Review
(see Exhibit 8.2, Site Plan Review Process). In such cases, the Staff Review Committee and
Design Review Committee shall serve as advisory bodies only.
8.4.3 Site Plan Review Procedures
Site Plans, which contain plans, drawings, illustrations, designs, reports and other detailed
information as required herein, shall be submitted to the City staff for review and comment.
Comment from other City departments and service agencies shall be sought by City staff prior to
preparing a recommendation on the Site Plan.
Applications for Site Plan Review shall be submitted to the Community Development
Department for review and approval. Applications shall insure consistency with the development
regulations and design guidelines contained within the Specific Plan. All modifications or new
construction shall consider the context, scale and character of the surrounding uses. The
applicant will make all required revisions and submit the revised Site Plan to the Community
Development Department for review and approval. Once the Staff Review Committee and
Design Review Committee have completed their review of the Site Plan and make a
recommendation to approve, approve with conditions or deny the project, a staff report shall be
prepared and submitted to the Community Development Director along with the Site Plan. If the
project is consistent with the provisions of the Specific Plan, the Site Plan shall be approved
administratively by the Community Development Director. Any decision by the Community
Development Director may be appealed by the applicant to the Planning Commission. The Site
Plan Review process is depicted in flow chart form in Exhibit 8.2, Site Plan Review Process for
convenient reference.
8.4.4 Site Plan Review Submittal Requirements
Submittal for Site Plan Review shall consist of plans, drawings, illustrations and designs, and
any other detailed information as required to determine compliance with the provisions of the
November 14, 2014 g-5
Salem Lutheran Church and School OPA Compromise Sbecific Plan Imnlementation and Administration
Specific Plan and responsiveness to design guidelines. The following list of plans and
information is required:
1. Assessor's parcel(s) numbers.
2. Area and dimensions of the property.
3. Vicinity map indicating project location.
4. North arrow and scale.
5. All applicable tentative parcel maps.
6. A physical description of the site, including boundaries, easements, existing topography,
natural features, existing buildings, structures and utilities.
7. Location, grades, widths and types of improvements proposed for all streets.
8. Site Plan showing the location of all structures, landscape and hardscape areas, parking areas,
walks, internal circulation, access, adjacent streets, sign type and placement and fence/wall
type and placement.
9. Building elevations and schematic floor plans.
10. Cross section(s) and streetscape pattern of the existing and proposed environment for
determining building envelope and streetscape compatibility with the surrounding
neighborhood, including building setbacks, height, massing, floor area ratios, building side
yard setback patterns, and the existing and proposed architectural styles. For buildings
located within 120 feet of a residentially zoned property, height cross sections showing the
existing (if applicable) and proposed building envelopes shall be included.
11. Description of the extent to which design guidelines have been used in the Site Plan and a
statement documenting Specific Plan consistency.
12. A tabulation of square footage, area devoted to parking, parking spaces, landscape coverage,
building coverage and heights.
13. Such applications and environmental assessment forms as required by the City.
14. A summary of building square footage, parcel/lot size, floor area ratio, and a current traffic
and parking analysis. If the traffic analysis indicates a need for improvements to maintain
acceptable service levels on surrounding streets, the applicant may be required to perform
such improvements.
8.4.5 Site Plan Review Environmental Determination
An EIR was prepared for the Salem Lutheran Church and School OPA Compromise Specific
Plan, which covers the campus and its future expansion. If the City, upon review of the
environmental checklist as part of the Site Plan Review application, finds that a subsequent
project is consistent with the Specific Plan, no further environmental consideration is necessary.
These projects shall be subject to environmental review in accordance with the Local CEQA
Guidelines. Discretionary Site Plan Review will be subject to an environmental analysis to
determine whether or not the Specific Plan, EIR or any other prior environmental evaluations
cover the future proposed projects.
November 14, 2014 8_6
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Salem Lutheran Church and School OPA Compromise Snecific Plan Imolementation and Administration
8.4.6 Site Plan A�proval Time Limitations
Site Plan approval, in accordance with this Specific Plan, shall be valid for a period of two years.
If construction of a project does not commence within that period and proceed with due diligence
thereafter, the approval of the Site Plan shall terminate and an additional submittal, review and
approval will be required. Notwithstanding the preceding, a Site Plan approval may be granted
up to three one-year extensions of time (five years total), upon written request describing the
extenuating circumstances. Such time extension shall not require public notice.
8.4.7 Site Plan Revisions
Revisions that are minor in nature or reasonable extensions other than those applied as a
condition of approval shall be submitted for review and approval administratively by the
Community Development Director. Significant changes, additions or omissions shall be
submitted for review and approval by the Approving Body, with appeal to the Planning
Commission if the Community Development Director was the Approving Body, or the City
Council if the Planning Commission was the Approving Body.
8.4.8 Mandatory Findin�s for Site Plan Review
The Community Development Director or Planning Commission, as required in Section 8.3.2 of
this Chapter, shall make the following written findings before approving or conditionally
approving any Site Plan:
1. The proposed project is compatible with other uses within the Specific Plan area;
2. The Site Plan is compatible with the regulations and design criteria and guidelines
of the Salem Lutheran Church and School Specific Plan.
8.5 Demolition Review
Section 17.10.90, Demolition, of the City of Orange Zoning Ordinance requires review of any
structures scheduled for demolition as follows:
1. Any structure within an established historic district that is over one hundred twenty(120)
square feet in area.
2. Any structure listed on the National Register at any location within the City.
The Salem Lutheran Church and School property does not fall within either of these categories
therefore no demolition plans are subject for review and approval by the City.
November 14, 2014 g_g
Salem Lutheran Church and School OPA Comnromise Snecific Plan Implementation and Administration
8.6 Specific Plan Administration
The Salem Lutheran Church and School OPA Compromise Specific Plan shall be administered
and enforced by the City of Orange Community Development Director and case planner in
accordance with the applicable provisions of the City of Orange Zoning Ordinance. Certain
changes to explicit provisions in the Specific Plan may be made administratively by the
Community Development Director, subject to appeal to the Planning Commission and,
subsequently, the City Council, including the following:
1. The addition of new information to the Specific Plan maps or text that does not change the
effect of any regulations or guidelines.
2. Changes to the project's infrastructure, such as drainage, water, and sewer systems which do
not have the effect of increasing or decreasing development capacity in the Specific Plan area,
nor change the concepts of the Plan.
3. The determination that a use be allowed which is not specifically listed as permitted but which
may be determined to be similar in nature to those uses explicitly listed as permitted.
In any case where the processes or procedures for resolving an interpretation or implementation
question are not spelled out or are not agreed to, the order of seeking direction is: Community
Development Director, Planning Commission, then City Council. Any process or procedural
determination may be appealed in the same order by either the applicant or by any planning
commissioner or member of the City Council.
8.7 Specific Plan Amendments
In accordance with California Government Code Sections 65453-65454, all specific plan
amendments may be adopted by resolution, ordinance or combination thereof. This Specific Plan
may be amended as necessary in the same manner it was adopted, by ordinance. When the
Specific Plan is proposed to be amended, the applicant shall, in addition to the normally required
noticing procedures, deliver notification flyers of any future scheduled City of Orange Public
Hearings or public body actions to all property owners and occupants within 300 feet of the
Specific Plan boundary.
8.8 Public Notification
Notices of public hearings and decisions shall be mailed out in accordance with Section
17.08.040 of the Orange Municipal Code, except as provided for otherwise herein. For all public
hearings requiring public notification, including but not limited to Specific Plan Amendments, as
well as decisions by the Community Development Director, notices shall be mailed out via U.S.
First Class mail to all residents, property owners and business owners located within 300 feet of
any portion of the Notification Area.
8.9 Financing Mechanism
Financing for infrastructure improvements will be provided by Salem Lutheran Church and/or an
affiliate of the Lutheran Church-Missouri Synod.
November 14, 2014 8-9
Salem Lutheran Church and School OPA Comnromise Specific Plan Implementation and Administration
8.10 Maintenance and Operations
8.10.1 Public Maintenance and Operation
All improvements on public roadways will be constructed to standards acceptable to the City and
will therefore be entered into the City of Orange's system of roads for operation and
maintenance. All offsite regional trail improvements shall be constructed to standards acceptable
to the City or other public entity of operation and shall be the responsibility of the City or other
public entity for ownership and maintenance. The maintenance of any other land or facilities
dedicated to any public entity shall be the responsibility of the receiving entity.
8.10.2 Private Maintenance and Operation
All improvements within the area defined by the boundary on Exhibit 1.3, Specific Plan Area
Boundary shall be constructed to standards acceptable by the City of Orange and as specified in
this Specific Plan and shall be the responsibility of the applicant for ownership and maintenance.
November 14, 2014 8-10
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EXHIBIT A
Orange Park Association
PO Box 2293 Orange,CA 92$59
Honorable Mayor and Members of the Orange City
Councii
City of Orange
300 East Chapman Avenue
Orange,CA 92866
Re: Salem I.�theran Project
On behalf of the Orange Park Association("OPA"),as well as the undersigned
individuals,we are writing to you regarding the Salem Lutheran Chnrch and School("Salem")
Project,which will be presented to the Planning Commission and City Council for public hearing
at some point in 2014. The Salem Lutheran Project consists of the following:a Resolution
approving an Emironmental Impact Report,State Clearinghouse No.2011101046;a Resolution
approving a General Plan Amendment;a Resolution approving a Specific Plan;and an
Ordinance approving a Zone Change.
As you know,some of the residen�s of OPA have previously objected to the Project on
various grounds,including that it did not include a General Plan Amendment. In response to our
objections,nepresentatives of Salem have met with members of OPA and others and attempted to
address our concems,including by agre�ing to seek a General Plan Amendment that changes the
designation for the site to ensure that the Project is consistent with the City's 2010 General Plan
Land Use Policy Map. In addition,Salem and OPA have agreed that the Project is consistent
with and governed by the Orange Park Acres Specific Plan. Salem also agreed to make a
number of concre[e modifications to the Project,including the following:
• Reduction of the seating capacity of the Sanctuary from 757 to 590 fixed seats,
excluding spe,cial events.
• Parking for Project[o be confined to Project site,except for(i)additional parking on
the site of the Fowler House(see item below)and(ii)other offsite venues[hat Salem
has used for special event parking. The offsite venues referred to in section(ii)does
not apply[o City and County streets in the Orange Park Acres neighborhood adjacent
to the Projec[site. Salem will continue to enforce its"good neighbor"policy,which
entlea�crrs to�nsure th�t S�lem's con�regation anc3 irtentiees do rrc�t park an Cit}and
��runty s�reets.
* l7emalit'son af th��+�wter Haus�in arder t�pra�>ad�aclditianal p�rkin��nd relocation
c�f the pre�chocrl�way fron�the we�ter(y prct�rt}�lsc�a�dary.
* Improvemenc af the west side t�f t)rxn�;e P�rk Bonlevar�to acct�mrnodate an
�xclusive sc�uthboand ri�ht t��rn 7an���ntc>Fc�n�LaE�e for ttte charch artd sch�ol use.
Salent shai! use b�,st efforts tc�enci��vor tha�suc.�,i�n�rc�ve�men�s will be compl�ted as
�a€rr�a�pU�ible followin�tlse ce>n5r�l�ncet9���it,c�t c�nstructic�r7�t eithe.r the Sanctuary
a�r fichEu>1 fss�iEities. flPA�ckn€�wl�cl�es tbat:�uctki rt�adway im�rn��en�ents will
requlre���pa-c��als froan ihe�it,y�c�r the Cc�us�iy of Orang��"County„j anci[tiat Salem
cant��st�uarantee h�tw yuiekly the Cit}or Gaurlty wi11 act tt��ppr�trve�uch ra�civ+ray
imprc�vement piar��. {7PA�hall provide an}and al[dc�cun�ent�tic�n requ�t�d by
Salem tc�d�mot��trut��3PA's suppori�f'suc:h r�adway itt��rc�sement�,
+ The irrclusic�n af�demand lighi far equestrians ai the irrEersect'son af{�ran�e P�rl�
#3c�a(cvaz•cl ar��1 F�ar-�1:Lane,w�i�ich rn��trc�4emc��ts shai�t�e cc?m�3leiec3�js srrc?n as
perssibl�fc�tlowing[hc cc�rn�n�neem�nC�sf�c�nsEructian aP either the�at�ctuary ar
Sc��i?c�l fe�cilitie�.
• I�cprporatian c�f��dc�itita���s1 tlireetic�nal si�n���at Frara�I.aa�e aaici C7r�an�e Paric
�oul�varct tc�ci��n�r��idcnt��c�nl�trav�6 lanes and churctil�claoQl teaf�c Eanes.��hicb
improvemez�t�hall be c�mpieted pric�r t�the issaance�i thc�ceapancy�erniitc fc�r
cither the Sanctuary or Schocrl facilitiee.
+� Lawerir�g c�f the Vr'ar�hig C�nt�r huilci�n�I�c�ri�ht[a 3b t'eet a�;re.ct�rnrt;end�d[�y th�
C'Gt}�c�f Clrang�Desi�n Revieu•E3c}.�ad(T71tC}.
� Iatcarporatia�l t�f a h�mrn�rt�c�d turr�ar€r�nst at the�s�st end c��FraE�k�l,�ne�r C'it}�
stand�s,which imp�-c���e�nent shall be cc�mplet�l prior to the i�suance Qf�ecu�ancy
p�nnit��'c�r either thc 4anctu.�r��r Schc�c�!1i�cilities.
• Pr�rvi�icsn af`"'Z`�'1'�AY'{as depi�te�i�C:�l€ran�S€�nd�rd Plans,U_S.C'nst�m�ur}
CJr�i#�;,2C110 ectitianj e�iseti gar=a��ent i73a���rs�cx se�at•at�Frat�k lane intc�s��arate
lane�f�r re�ide��ts and 5elem�t�urch tr�affic>v�hich in�prc�vement shal€be eampleted
pr�c�r tc�the issuance�tf accupancy}�erm�ts f�r either the�anc[uni•v or 5c�hc�c�l
faeilities.
* Prit�r to the ec�mn�er�ee�t��nt r�f cansixte�ti�3�i c�t�he SancEuar�and Sehoc7l facilities.
Salern ro coordinaC�u�ith C}PA`�Tr�iC Sutrc��nF��itt�to ensure a�prc�priate
�rrcatectic�ns c�f ltor•se trait on Project site.
• lncc�z�paratian af tl�e ft�llow7r��preswi�ion i�to t#�e�iaJerr�L�ther�r�C't7urct�anct Sch{�t�l
�ge�i�iG Plan."Ncs apptzcation P�r a building permit,ase permit,��ari�nce,ar any,
ather entitlement�uth�ri7`s�7�d��elc�pr��ent c�r c�n�Tr�acS.icrrt incon�istent with this
�pecific P]an shall be appra�ed.or d�emed ta�e�ipprowzd Chrc�ugh inacti�z�,by the
C'it}��f C)ra���e c�r ar�y of�cer�r��;rr��t�ye�therer�i�."
1�'�ap���eciaze �aler�a's wiilingei�,�s to�a=e�r3:wiih th�cc�nro�n���ity tc�re�o3ve such i4su�s.
3`he cht�nges ta u�hich Sa1em has ag��e�c3 re�c�IF�at3 af��u pr�vious objec�ions ta t�e Pro}�ct.
A�c�rdln�i},OI'A�nd tl�c und��°si�ner3 hUrebgr�ithdrF�w�I�af saur pric�r o��ectic���s tr�tt�e
I'r-�j�ct t'4it�i�e sr�c�ificati€�ns d�seribe�l�bc���,w�E�lie��the Prc�jc:ct is well d�.�i�ea c��7d u�c
1s�lie4�€�ti�e}'r�3.jict E(i2 i5 well dc>ne,ccrita��a•�}ren�ive,�a�c3 camplie�with 4i11 c>(tE�c;applic�blc
r�t�uirern�r7�,s c�P C'�C�A. Sc�lan�a�Gh��l�tcaje�t i[�clacles Ghe Ger��rs�l Pla�r�t�n��ndrnert�d the
a�r�ave-l��ted mcs�iificatiana,Qr�n�;e Par�:Associ�t�c�n arrci the unsiersi�c�e�inclivi�fuals;u}��art the
Pr�ject a�d will not cha�l�nge the t�r�je�t c�r Ch�Prc�jcc4 EIR eitl�er l�cfore d��City Ccruncil<�r in
Su@eric�r C�urt. 1"�th�c�jntr�ry.�e urg�the City t+�a�prov�the T'ruject.
�'lea�;c fe+;B�rec t�r�:c�r�tazC���}af us if y�ia h�v�ai�y que.�;ti��rs regar�ing the fore�air��.
Sincer�;7y«
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ORANGE PARK ASSOCIATION SETTLEMENT AGREEMENT
SUI1t1MARY 4F SAIEM,/t)ii�N�E PARN ASSt�CIAT14fV AGREEMENT ��
* Reduction of seating caparity of sanctuary from 757 fo 53Q fixed seats,excluding �
� excludin�speciai events.
� * Parkin�for th�Rroject ta be conflned to Project sitp,except for(i)additional parkin�
li on the site p{the Fow�er House(see item below)and(ii)other c�ffsite verru�s that
t Sa3em has used for specia{event parking. The affsite venues r�ferred tca�n sectian
, {il)does no�apply to City and Caunty streets in th�Orange Park Acres nei�hbonc�aod
li ad}acent to the Project site. Salem wifl continue ta enfarce its"�aad nei�hbor'"
palicy,which e�deavors to ensure th�t S�lem's con�regation and atter�dees do not
i �
park on City ar Csaunty streets�
� * (�emolition of Fawler Hause in order to provide additionai parking and relocatian of
th�preschaoi away frorr the westerly pra�ect boundary.
" Imprauem,ent af the west side of Orange P�r�8{vd. to accr�mrr�od�te an exclusive
southbQund right turn fane anto Frank Lane for chirrch and schQol use. Salern shall
use best e+Fforts to endeavor that such improvements wiil be eurnpleted as saon as
possible foNowing the commencement of construction of either the 5anctuary or
Sc�oaf Fati9ities. OPA ackn�wfec��es th�t such roadway improvements wili require
• aPpravals from the Gky ar the Coc�nty of Urange(,"Courrty")and thact Sal�rn can not
guarantee ho+ev quickiy the City ar County wilf act to approve such roadway improve-
ments plans. QP�t shaii provide any and alf documentaticsnrequested by Salem to
� dernonstrate OPA's support�f such roadway improvements.
* Incivaion of a dem�nd iight far e�qu�strians�t the intersect�an of Orange Park Blvd.
and Frank Lane,which smprovernents shai{be campleted as soon as pcassible fo(law-
ing the commencement af canstruction of efther the Sanckuary ar Schaol facilities.
* Incarporatian af additianai div�ctional signage�t Frank Lane and t�r�nge Park 81vd.
to define residents only traved lanes and churchJsch�ol traffic tan�s,which improve-
ments shaii�,e tompieted priar to the issa,ance of the occupancy pErmits for either
ihe Sar�ctuary or S�ct�ooi facilities,
* Lowering of the Wr�rship Center buiidir�g h�ight to 36 feet as r�cammended by the
City of OrangP C�esiga�Review 8oard(DRC}.
* incar�ac�ration of�a hammerhead turn-araurzd at the west end o€Frank Lane p�r City
sta�dards,which improvements shall be tompl�ted priar to fhe issuance af
accupancy permits for either the Sanctuary or Sehoo}tacilities.
* Pravisian far"TYPE AY" (as depicted�n Caltrans Standard Pians,U.5.Cusiomary Units,
2010 edition) raised pavement markers to s�parate Frank t,�ne into se�ar�te tanes
for r�sidents and Salern ChurcF�traffic,which improvemenTs shail he compiet�d priar
ta the issuance of occupancy perrnits for either the Sanctuary ar School facilities.
* Prior[o the cornmencennent of s�nstructipn c�f ihe Sanetuary and Schfloi fac'slities,
Saiem to coardinate with C1PA's TsailSuhcorr�mitt�e tca�nsure appropriate pratec-
� cions of horse�rai#an Proj�ct site.
� incorporation Qf the foUawing provision into the Salem tuthera��hurch and Schoo!
Specrf4e Plan: "No applicatiQn for a building permii,use perrnit,aariance,or any
other entittement authorizing deveiapm�nz or construction incQnsistent witli this �
Specific Plan shall be approved,csr de�m�ed to be approved thraugh inaction,by the�
City af Cfrange or any officer or em{aloyee thereof."
�
4/2014