SR - ZCG-1276-14 - 2010 GENERAL LAND USE1. SUBJECT
Zone Change No. 1276 -14 to rezone properties in the Industrial 2010 General Plan Land Use Focus
Area, generally located west of Glassell Street/Orange -Olive Road, south of Fletcher Avenue, east
of the Santa Ana River, and northwest of the intersection of Glassell Street and Walnut Avenue.
The Zone Change area abuts, but does not include the Katella Avenue Corridor General Plan Focus
Area and the Orangewood/Eckhoff General Plan Focus Area, which have both been the subject of
separate City Zone Changes.
2. SUMMARY
The City of Orange General Plan update was adopted in March 2010. The Industrial 2010 General
Plan Land Use Focus Area, generally located west of Glassell Street/Orange -Olive Road, south of
Fletcher Avenue, east of the Santa Ana River, and northwest of the intersection of Glassell Street
and Walnut Avenue, has properties with General Plan Land Use designations of Industrial (I),
Light Industrial (LI), Medium Density Residential (MDR), and Open Space (OS).
Presently, many properties falling within the LI land use designation are zoned Industrial
Manufacturing (M2) are split -zoned M2 /M1, are unzoned, or are split -zoned M2 /unzoned. The
zoning classification that corresponds to the LI land use designation is Light Industrial (M1).
Properties falling within the MDR General Plan designation are zoned M2 or Limited Business
(Cl). The zoning classification that corresponds to the MDR land use designation is Residential
Multiple Family (R -3).
Properties falling within the OS General Plan land use designation are presently zoned M2 or are
unzoned. The zoning classification that corresponds to the OS land use designation is Recreation
Open Space (RO).
Properties in the Focus Area with the I land use designation already have M2 zoning. Similarly,
most properties with the OS land use designation already have RO zoning. Therefore, none of
these properties are affected by the subject Zone Change.
ITEM 1 ,, 1 10/13/15
Both State planning law and Program I -1 of the General Plan Implementation Plan require
consistency between General Plan and zoning designations. Zone Change No. 1276 -14 establishes
General Plan and Zoning consistency for the affected properties.
3. RECOMMENDATION
(1) Find that the proposed zoning change is within the scope of the previously- approved 2010
General Plan, which was evaluated in certified Program EIR No. 1815 -09; and find that the
Program EIR adequately describes the zoning changes for purposes of CEQA and no new
environmental documents are required.
(2) Approve First Reading of Ordinance No. 05 -15 approving Zone Change No. 1276 -14 rezoning
properties in the Industrial 2010 General Plan Land Use Focus Area to Light Manufacturing,
Residential Multiple Family, and Recreational Open Space to establish consistency between
the Light Industrial, Medium Density Residential, and Open Space General Plan Land Use
Designations and Zoning classification in accordance with State law.
4. FISCAL IMPACT
None.
5. STRATEGIC PLAN GOAL(S)
2e. Create an environment to attract, retain and expand economic opportunities.
6. GENERAL PLAN IMPLEMENTATION
Land Use Element
Goal 1.0: Meet the present and future needs of all residential and business sectors with a diverse
and balanced mix of land uses.
Economic Development Element
Goal 1.0: Sustain a diversified economic base and strong fiscal stability.
Policy 1.1: Provide for land uses that allow a variety of retail, service, manufacturing, institutional,
office, and recreational businesses to locate in Orange.
ITEM 2 10/13/15
Housing Element
Policy Action 7: Facilitate Infill Construction
Implementation Program
Implementation Program I -1 of the General Plan Implementation Plan calls for consistency
between General Plan and zoning designations to be established.
7. DISCUSSION and BACKGROUND
The City's 2010 General Plan was adopted on March 9, 2010. The 2010 General Plan Land Use
Element included re- designation of certain properties in the Industrial 2010 General Plan Land
Use Focus Area. A map depicting the General Plan changes that occurred in the area is provided
as Attachment 4 to this report. A detailed description of the nature of the land use changes is
provided in Attachment 6.
As part of the General Plan update, refinements were made to the industrial land use designations
in the focus area. Specifically, the three original "Industrial" land use designations that had been
differentiated by floor area ratio (FAR) were condensed to two categories that more clearly
conveyed the purpose of each: "Industrial" and "Light Industrial." Along with this change came
adjustments to FAR in order to simplify the City's land use policies, and provide a framework for
economic development, business expansion, and the long -term protection and viability of the
industrial district. The areas with light industrial uses on- the - ground fell within the Light Industrial
land use designation.
Another change that occurred in the Industrial Focus Area was the re- designation of properties on
the northeast and southeast corners of the intersection of Taft Avenue and Glassell Street/Orange-
Olive Road from General Commercial (GC) to MDR. This change reflected the fact that at the
time the General Plan update was under preparation, the corners consisted of vacant commercial
property, and small aging strip commercial centers abutting residential districts. A change from
GC to MDR was adopted as part of the General Plan update to accommodate a long -term transition
of the sites from underutilized commercial property to residential use.
General Plan Land Use
Existing Zoning
Proposed Zonin
LI
M2
Ml
Unzoned
Split M2/M1
Split M2/Unzoned
MDR
M2
R3
C1
OS
M2
RO
Unzoned
ITEM 3 10/13/15
As indicated on the maps, the majority of land area affected by the proposed Zone Change
involves industrial properties that would experience a change from M2 to M1. Land uses
allowed in the M2 zone, but not in the M1 zone are generally more caustic types of industrial
uses such as:
• Auto wrecking, salvage and storage
• Chemical Production
• Production of Construction Materials
• Extraction, Manufacture, and Refining of Petroleum Products
• Recycling or Waste Reduction
• Sexually Oriented /Adult Business
A more detailed breakdown of the differences between specific types of uses within each of these
categories is provided in Attachment 5. A complete listing of the wide variety of light industrial
uses allowed under the proposed Ml zoning is contained in Attachment 6. The M1 zoning is
intended to retain, enhance, and intensify existing, and provide for the new development of light
industrial uses.
The proposed R3 zoning accommodates a variety of residential development types (see
Attachment 6). The intent of the zoning is to facilitate higher density multi - family residential
development.
The proposed RO zoning is intended to protect properties from hazards such as flooding, to protect
natural resources and scenic features for public enjoyment and use, and to set aside areas of the
City for active and passive recreational use (see Attachment 6). A limited number of passive uses
are allowed in the RO zone, with trail, park, horticulture, and public utility uses among them.
In accordance with State planning law (Government Code §65860), the City must establish
consistency between the General Plan and its zoning. Furthermore, Implementation Program I -1
of the General Plan Implementation Plan calls for consistency between General Plan and zoning
designations to be established.
Some existing uses in the area would become legal non - conforming as a result of the proposed
Zone Change. In conjunction with adoption of the 2010 General Plan, the City Council adopted
Ordinance No. 12 -09 (OMC Section 17.38.065), making special accommodations for properties
made non - conforming by the land use changes of the General Plan. A detailed review of on -the-
ground uses and status of existing uses in relation to the proposed Zone Change is provided in
Attachment 6.
Public Notice
A City Council public hearing notice was published in the Orange City News on September 30,
2015. In addition, 2,316 notices were mailed to the owners and occupants of affected properties
ITEM 4 10/13/15
and properties within a 300 foot radius. Hearing notices were also posted at City Hall, City
Library, and City Fire Department posting locations.
Planning Commission Hearing
On November 17, 2014, the Planning Commission conducted a public hearing for the proposed
zone change. The Commission adopted Resolution No. PC 32 -14, recommending approval to the
City Council by a vote of 5 -0. Following distribution of the public hearing notice for the Planning
Commission hearing, staff was contacted by representatives of 21 properties in the area seeking
confirmation that existing uses or potential future uses would continue to be acceptable under a
change in zoning. Staffs explanation addressed the majority of the concerns at that time. Staff
continued to work with property owners with remaining concerns following the public hearing to
address lingering issues to the satisfaction of the property owners. The Planning Commission
Resolution and Staff Report are provided as Attachments 2 and 6, respectively. Property owner
communications and follow up related to the Planning Commission hearing are provided in
Attachments 7 and 8, respectively.
8. ATTACHMENTS
1. Ordinance No. 05 -15 (including exhibits showing existing and proposed zoning)
2. Planning Commission Resolution No. PC 32 -14
3. November 17, 2014 Planning Commission Minutes
4. 2010 General Plan Industrial Land Use Focus Area Map
5. Comparison of Land Uses — M1 vs. M2
6. November 17, 2014 Planning Commission Staff Report
7. Planning Commission Hearing Communications
8. Post - Planning Commission Property Owner Follow Up
N: \CDD \PLNG \Applications\Zone Changes\ZC 1276 -14 Industrial General Plan Focus Area \CC_Rpt_10_13_15.docx
ITEM 5 10/13/15
ORDINANCE NO. 05-15
AN ORDINANCE OF THE CITY COUNCIL OF THE
CITY OF ORANGE APPROVING ZONE CHANGE
NO. 1276 -14 REZONING PROPERTIES IN THE
INDUSTRIAL 2010 GENERAL PLAN LAND USE
FOCUS AREA TO LIGHT MANUFACTURING,
MULTIPLE FAMILY RESIDENTIAL, AND
RECREATIONAL OPEN SPACE TO ESTABLISH
CONSISTENCY BETWEEN THE LIGHT
INDUSTRIAL, MEDIUM DENSITY RESIDENTIAL,
AND OPEN SPACE GENERAL PLAN LAND USE
DESIGNATIONS AND ZONING CLASSIFICATION
IN ACCORDANCE WITH STATE LAW
ZONE CHANGE NO. 1276 -14
APPLICANT: CITY OF ORANGE
WHEREAS, on March 9, 2010 the City adopted its 2010 General Plan, including a Land
Use Element and associated Land Use Policy Map that re- designated Industrial (0.4 FAR),
Industrial (0.6 FAR), and Industrial (3 -story height limit) (0.6 FAR) land uses in the Industrial
General Plan Focus Area to Industrial (I) and Light Industrial (LI). Another change that occurred
in the Industrial Focus Area was the re- designation of properties on the northeast and southeast
corners of the intersection of Taft Avenue and Glassell Street/Orange -Olive Road from General
Commercial (GC) to Medium Density Residential (MDR); and
WHEREAS, certain properties subject to Zone Change No. 1276 -14 have had zoning
classifications of Industrial, split Industrial /Light Manufacturing, split Industrial /unzoned, and
unzoned, none of which are consistent with the Light Industrial General Plan land use
designation. To achieve consistency, a change in zoning to Light Manufacturing is warranted for
these properties; and
WHEREAS, certain properties subject to Zone Change No. 1276 -14 have had a zoning
classification of Industrial and Limited Business, neither of which is consistent with the Medium
Density Residential General Plan land use designation. To achieve consistency, a change in
zoning to Multiple Family Residential is warranted for these properties; and
WHEREAS, certain properties subject to Zone Change No. 1276 -14 have had a zoning
classification of Industrial or are unzoned, neither of which is consistent with the Open Space
General Plan land use designation. To achieve consistency, a change in zoning to Recreational
Open Space is warranted for these properties; and
WHEREAS, California Government Code Section 65860 requires consistency between a
city's General Plan and zoning designations; and
ATTACHMENT NO. 1
ORD. NO. 05-15 (INCL. EXHIBITS SHOWING
EXISTING AND PROPOSED ZONING)
ZONE CHANGE NO. 1276 -14
OCTOBER 13, 2015 CC MEETING
ZONE CHANGE NO. 1-276 -14
RESOLUTION NO. PC 32 -14
A RESOLUTION OF THE PLANNING COMMISSION
RECOMMENDING THE CITY COUNCIL APPROVE
ZONE CHANGE NO. 1276 -14 AND ADOPT AN
ORDINANCE REZONING PROPERTIES IN THE
INDUSTRIAL 2010 GENERAL PLAN LAND USE FOCUS
AREA TO LIGHT MANUFACTURING, RESIDENTIAL
MULTIPLE FAMILY, AND RECREATIONAL OPEN
SPACE TO ESTABLISH CONSISTENCY BETWEEN THE
LIGHT INDUSTRIAL, MEDIUM DENSITY RESIDENTIAL,
AND OPEN SPACE GENERAL PLAN LAND USE
DESIGNATIONS IN ACCORDANCE WITH STATE LAW
APPLICANT: CITY OF ORANGE
Moved by, Commissioner Gladson and seconded by Commissioner Correa that the
following resolution be adopted:
WHEREAS, on March 9, 2010 the City adopted its 2010 General Plan, including a Land
Use Element and associated Land Use Policy Map that re- designated Industrial (0.4 FAR),
Industrial (0.6 FAR), and Industrial (3 -story height limit) (0.6 FAR) land, uses in the Industrial
General Plan Focus Area to Industrial (I) and and Light Industrial (LI). Another change that
occurred in the Industrial Focus Area was the re- designation of properties on the northeast and
southeast corners of the intersection of Taft Avenue and Glassell Street/Orange -Olive Road from
General Commercial (GC) to Medium Density Residential (MDR); and
WHEREAS, certain properties subject to Zone Change No. 1276 -14 have a variety of
zoning conditions including Industrial, split - zoned Industrial/Light Manufacturing, split -zoned
Industrial /unzoned, and unzoned, none of which are consistent with the LI General Plan land use
designation; and
WHEREAS, certain properties subject to Zone Change No. 1276 -14 are zoned Industrial
and Limited Business, neither of which are consistent with the MDR General Plan land use
designation; and
WHEREAS, certain properties subject to Zone Change No. 1276 -14 are zoned Industrial
or are unzoned, neither of which are consistent with the Open Space General Plan land use
designation; and
WHEREAS, California Government Code §65860 requires consistency between a city's
general plan and zoning; and
ATTACHMENT NO. 2
PLANNING COMMISSION
RESOLUTION NO. PC 32 -14
ZONE CHANGE NO. 1276 -14
OCTOBER 13, 2015 CC MEETING