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2003 - August 25 APPROVED MINUTES Planning Commission City of Orange PRESENT: ABSENT: STAFF PRESENT: INRE: INRE: INRE: August 25, 2003 Monday - 7:00 p.m. Commissioners Bonina, Brandman, Pruett, Smith Jim Reichert, Acting Planning Manager/Secretary Gary Sheatz, Assistant City Attorney Roger Hohnbaum, Assistant City Engineer Sharon Penttila, Recording Secretary PUBLIC PARTICIPATION: None ITEMS TO BE CONTINUED OR WITHDRAWN: None CONSENT CALENDAR: 1. APPROVAL OF THE MINUTES FROM THE REGULAR MEETING OF AUGUST 18,2003. MOTION Moved by Commissioner Brandman and seconded by Commissioner Smith to continue the approval of the August 18,2003 minutes to the September 3,2003 meeting. AYES: NOES: ABSTAIN: ABSENT: Commissioners Brandman, Pruett, Smith None Commissioner Bonina None MOTION CARRIED IN RE: CONTINUED HEARINGS: 2. CONDITIONAL USE PERMIT 2459-03, MAJOR SITE PLAN REVIEW 293-03, MITIGATED NEGATIVE DECLARATION 1719-03, AND A DEVELOPMENT AGREEMENT BETWEEN THE CITY OF ORANGE AND ST. JOSEPH HOSPITAL FOR THE PROPOSED MASTER PLAN FOR FUTURE HOSPITAL EXPANSION AND CONSTRUCTION OF A 234,000 SQ. FT. HOSPITAL BUILDING - ST. JOSEPH HOSPITAL A request for a hospital master plan to allow the upgrading of health care facilities and construction of new buildings to comply with State mandated earthquake construction standards. The request includes the approval to allow the construction of a 234,000 sq. ft. hospital building and new physical plant building. The project is accompanied by a Development Agreement to allow phasing of project construction to occur beyond the time period allowed in the City's Zoning Ordinance. This item was continued from the August 18, 2003 meeting. NOTE: Mitigated Negative Declaration No. 1719-03 has been prepared for this project in accordance with the provisions of the California Environmental Quality Act per State CEQA Guidelines. Planning Commission APPROVED August 25, 2003 RECOMMENDED ACTION: Adopt Resolution No. PC 32-03 recommending the City Council approve Conditional Use Permit 2459-03, Major Site Plan Review 293-03, and Mitigated Negative Declaration 1719-03; and Adopt Resolution No. PC 33-03 recommending the City Council approve a Development Agreement by and between the City of Orange and St. Joseph Hospital. Jim Reichert introduced the item. Chris Carnes, Senior Planner, made the staff presentation that outlined the project. Two resolutions have been prepared on the proposal. Conditions 15, 16 and 43 have been modified on Resolution No. 32-03. Planning Commission action is a recommendation to the City Council. The public hearing was opened. Larry Ainsworth. 29 N. Hampton Court. Newport Beach, President and Chief Executive Officer of St. Joseph Hospital of Orange. He stated that this is their 30-year, $650 million master plan for the St. Joseph campus. They will be presenting tonight the details of Phase 1 of the master plan and an overview of Phases 2 and 3. On January 1, 1995, SB1953 became effective. This law required pre 1973 hospital buildings be seismically upgraded or removed from service by the year 2008 (extended to 2013). The state law also requires pre 1973 buildings be replaced by the year 2030. SB1953 is a state mandated and unfunded requirement, which means St. Joseph must fund the entire project. John Pangrazio, 1224 5th Avenue West, Seattle, architect for the project. He gave a PowerPoint presentation which illustrated the removal and replacement of various buildings on the campus. The project focuses on providing state-of-the-art medical facilities. Steve Gilbert, 500 S. Main Street, Orange, representing the St. Joseph's Health System. He answered Commissioner Bonina question regarding street access to the Facility Service building by stating that there is fire truck access gate off of Palmyra and primary vehicular access would be inside the campus. Commissioner Bonina was comfortable that the noise issues have been addressed with the neighbors. Mr. Gilbert stated they have hosted town hall meetings at the hospital and invited the community in to explain the project. Fred Talarico, 1278 Glennevre Street, #110, Laguna Beach, with Vista Environmental. He explained that normally they would prepare a Phase 1 evaluation for contaminates for each building as it comes on line and any adjacent properties such as the parking areas and the landscaping, anything affected by each building, would be included in the Phase 1 evaluation. Commissioner Bonina stated that the time frame between Phase 1 and 2 is significant and he was concerned that some projects between phases would not be aesthetically pleasing. Commissioner Brandman wanted to know if there would be construction continually for the next 30 years on the campus. Mr. Gilbert explained that there are always ongoing hospital projects due to changing technology. This plan has three major phases with new buildings and they may sagway into each other or there may be some downtime between them. 2 Planning Commission APPROVED August 25, 2003 Commissioner Bonina noted that Stewart Street, after the redesign, appears to become a corridor. Mr. Gilbert stated that this would be due to the floor plate of the building which would encroach slightly onto Stewart. Mr. Pangrazio stated that the construction of each project will come to closure in and of itself. Commissioner Brandman appreciated that and didn't want to put words in the mouth of her fellow Commissioner but thought as Commissioner Bonina was asking the question, the thought that came to her was that as you go through each phase, is the campus going to look finished, going to look pretty, going to look OK and clean and it's not going to look in a constant state of flux. Commissioner Bonina questioned why the north tower removal was in Phase 3 instead of Phase 1. Mr. Gilbert stated that this structure conforms to seismic laws, however, it is being removed as part of the project and it will open the view to the original building. Commissioner Brandman suggested that the original hospital building be listed on the Historic Register. Commissioner Pruett liked the design of bringing the original hospital building to the forefront and making it a prominent feature. Commissioner Brandman wanted to know how the City was going to benefit from the expansion of St. Joseph Hospital. Mr. Gilbert stated that the applicant has agreed to make the project site the point of sale and the sales tax proceeds for materials that are purchased for the building and equipment would go to the City of Orange. Commissioner Brandman was concerned with pedestrian access on Stewart. Mr. Gilbert explained how at the end of this project there would be a covered pedestrian walkway at the end of the Stewart cul-de-sac that will lead people directly from the parking area to the front door and the majority of pedestrians will never cross Stewart. There is a connecting tunnel being installed from the new building to Children's Hospital. There will be two-way car traffic on Pepper that will have designated crosswalks and sign age. Commissioner Brandman would like staff to look at safety issues on the pedestrian walkways. Commissioner Smith questions and comments: . what is the plan for the routing of Pepper Street as it is reconfigured and will the Pepper Street re-routing occur first before closing off the existing Pepper Street access? Mr. Gilbert confirmed that the Pepper Street re-routing would occur first. . what will be the use of the original mission-style 1929 building? It currently is used as the administrative offices for the hospital and its use will remain the same. . in the next phase, more parking will be required up to 2040 spaces. It will be increased by 200 spaces in Phase 3. The addition to the existing parking structure will be located between Main Street and the existing parking structure. . Mitigated Negative Declaration reviews cultural resources and she's surprised it doesn't list the original mission style building. She would like to see the building in this report. Mr. Talarico stated this is a case where it has beneficial impacts and they generally are not listed in EIR, but it could be added to the record. . this building needs to be recorded in the National Register of Historic buildings. . is the original building retrofitted? Its believed that some 20 years ago the hospital may have done a retrofit to that building, however, it wouldn't be one that would conform to today's requirements for buildings used for acute care. 3 Planning Commission APPROVED August 25, 2003 · it looks like the buildings being demolished for the new facility service building are post 1950 and don't require historical review. The two buildings were built after 1950. Public comment: Fred Koehler, 2660 N. Vista Bluff Road, is a property owner on property across from the proposed facility service building. He is concerned with the noise that could affect his tenants; he wanted to know if the fire access would be gated or opened on Palmyra and if there was going to be construction traffic on Palmyra. He did not receive a letter from St. Joseph announcing the community meetings even though his family has been a property owner on Palmyra since 1952. Mr. Carnes explained that the Orange Municipal Code does have a noise ordinance section and it establishes maximum noise levels that are at the interior of a structure and at the property line (which in this case is approximately 10 feet in from the curb). Commissioner Brandman wanted to know what kind of sound she was going to hear. She is told you may hear a humming noise. Michael Brown, 501 Santa Monica Blvd.. Suite 508, Santa Monica, with Martin, Newson and Associates. They have designed the building improvements to have noise levels under those allowed by the code. He explained that there are no openings on the facility service building that face the residential properties. Chair Pruett confirmed that the noise from this building has to be managed within the City's code and if it is within the limits, it's allowed. Mr. Gilbert explained they reviewed the placement ofthe facilities building and they felt it was a very passive use and the new structure would provide a screen of the existing parking structure and it would be a benefit in reducing noise from the parking structure. The vehicular access onto Palmyra is gated and they are trying to mitigate the construction traffic on that street. He also explained the notification process they used for the community meetings held a year ago and it mimicked the City's mailing list and went beyond that radius going to property owners as well as occupants. Commissioner Brandman commented that the landscaping was a little sparse in front of the facilities building. Bill Cathcart, 134 S. Glassell. Orange. explained that the louvers on the front of the building are for accessing machinery and that's why the landscaping is low. They are trying to design the landscaping to a residential level. In response to Commissioner Bonina' s question, Mr. Cathcart explained that the center courtyard in the new hospital building is an area for people to go to reflect and to be calm. On Stewart they are trying to recall the 1929 entrance by making a median and adding a row of Italian Cypress trees. Commissioner Smith questioned whether any orange or pepper trees were included in the plan. Mr. Cathcart answered no because there is no space to do it correctly and there is a maintenance issue. Commissioner Smith suggested they use the pittosporum, the mock orange tree, where appropriate. Chair Pruett was concerned with the traffic flow from Main onto Stewart where it seems to narrow to a driveway and is there going to be any signage indicating the parking structure to the left? Also sometimes the traffic going into the parking structure backs up into the intersection and he'd like to know if there are any plans to make Bush Street one-way south out onto Main Street. Mr. Hohnbaum explained that with the street rerouting, the main traffic will be coming 4 Planning Commission APPROVED August 25, 2003 off of Main Street so the two crossings at Stewart and Bush should see less traffic with that concept. The section of Stewart easterly of Bush will be seen as a private roadway and the City and the campus will be entering into an agreement where the hospital will be responsible for its care and maintenance. The concept of making Bush one-way has not been looked at. Chair Pruett was also concerned with the one parking structure entrance at Stewart and Bush. He suggested making the entrance two lanes of ingress and the egress would occur at the current employee entrance on Main Street. Mr. Gilbert explained they did study making Pepper one-way and it was determined that two- way traffic was most appropriate for the circulation between St. Joseph Hospital, CHOC and the 1201 La Veta buildings. Commissioner Bonina was told there would be stop signs at the plaza at Stewart and Bush. The public hearing was closed. Commissioner Bonina wondered if Phase 2 and 3 would come back to the Commission. Ms. Angus explained that in terms of the master plan and due to the fact that they are also tying it to the development agreement, which would allow it to extend for a period of 30 years, what is being seen tonight is Phase 1 with an application for a major site plan review. Future phases will require major site plan reviews because of the large size of the buildings. If the future plans deviate from the conceptual plans shown in the master plan in Phase 2 and 3 or if they change conditions from an environmental standpoint, then it may require additional environmental review and would come back to the Commission. However, if it remains within the perimeters of the master plan, it would come to the Commission as a consent calendar item as a major site plan review. Commissioner Brandman indicated she was uncomfortable with issuing a blank check and she wanted assurances that what they are approving would go forward the way they are approving it. Ms. Angus explained that if, for example, technology changes and they are proposing a significantly different building configuration that would have to be re-reviewed from an environmental standpoint. Commissioner Brandman stated, for the record, it was a fine project and she's very cognizant that the applicant needs an assurance because they are privately funded and they have a plan, they have to start on this plan. She was not suggesting that the City would come back and be heavy handed or change the rules in any way, shape or form. She was just asking that they be good stewards and make certain that they work together and continue to work together. This is in our City, there are things that spill out onto our public roadways, etc. She's very pleased with the project, she was just asking because she felt as a Commissioner she needed to go on record and make those points and put those questions down so the Council will see that those questions were asked. She just wanted to make certain that the concerns she had raised were properly answered. Ms. Angus explained in terms of the development agreement both the City and the hospital recognize they still need to go through approval processes with future phases. Commissioner Smith's comments: · she was very pleased with this project, including the phasing aspect and the clear delineation of the phasing, buildings, roadways and the walkways. · she is used to construction on this site including the pavilion, CHOC and the cancer center. It's a parcel where growth has continued through the last 50-60 years. 5 Planning Commission APPROVED August 25, 2003 · she really likes phase 3 that reveals the original hospital building and the median. · she strongly encourages the health system to put this building on the National Historic Register. It does give a basis for attracting both federal and state preservation funding to the proj ect. · she would like to see in the Mitigated Negative Declaration (MND) an identification of the original hospital building as a cultural resource. On page 3-1 of the MND, she would like the project description to include the original 1929 mission style hospital building, on page 3-7, it should be cited that it is still standing and on page 3-8, project objectives should include returning to public view the original St. Joseph's Hospital building for its well preserved 1929 California mission style architecture and the hospital's role of service and health care in the early development of the City of Orange. · she felt the mitigating efforts on the facility building for both the architecture and landscaping is a good fit for the neighborhood. Chair Pruett concurred with Commissioner Smith's suggestion to put the hospital on the National Historic Register and perhaps elicit some money to move the project along a little faster. Ms. Angus explained that items could be added to the MND as long as it does not change the overall character of that document. Commissioner Smith would like to see an addition to Condition No.6 which would include the pittosporum, orange and pepper trees as appropriate in the landscaping plans. Changes to conditions 15, 16 and 43 are to be included as well. She is happy to see the hospital grow and continue to be a viable health care agent in the community. Commissioner Bonina was impressed by the detail and the thought in terms of the phasing of the project and then meeting with the St. Joseph's folks again brought that to life once again. Then here tonight the information that's been shared has been very beneficial and just further clarifies to him that this is a very sound project. He agreed that growth of an institution of this sort is tremendously valuable, not only for the immediate City but certainly the County and the State in general. And not only is it growth, but it's smart growth. There are needs identified, there's economics that are provided and the phasing reflects that so he thinks this is a very smart project, a very aesthetically pleasing project and it will certainly gamer his support. The only thing he would ask that be considered is that parking be added to the latter phase, which is Phase 3, that St. Joseph look at the opportunity of actually adding the additional parking to the existing parking structure versus putting it off of Main Street. To the extent possible he'd like to soften Main Street going forward and in twenty years or so he thinks the impact of Main Street will be just that much more intense. So the extent that St. Joseph can take that parking addition and incorporate it into the existing building and soften up Main Street would be something he'd certainly like to see. Chair Pruett had a question on condition 4 wondering why the landscape study, roof plans, and first floor building plans would go to City Council. Mr. Carnes indicated that condition has an error and it should indicate it's going back to the Design Review Committee. It should read: "the applicant shall submit to the Design Review Committee prior to the City Council consideration of the proposal. . . " Chair Pruett also felt the traffic circulation needed further study as well as the ingress and egress to the parking structure. He is really concerned with the intersection of Bush and Stewart. Mr. Hohnbaum clarified that what Chair Pruett is lookingfor is a circulation plan including flow in and out of parking areas, including structures, as well as wayfinding. 6 Planning Commission MOTION APPROVED August 25, 2003 Moved by Commissioner Smith and seconded by Commissioner Brandman to approve Resolution No. PC 32-03 recommending the City Council approve Conditional Use Permit 2459-03, Major Site Plan Review 293-03 and Mitigated Negative Declaration 1719-03. On the Conditional Use Permit, Condition No.6, add "the landscaping plans shall include a note that any landscaping materials that die or are damaged shall be replaced at size and species so noted on the approved landscaping plans and that the landscape plan shall consider inclusion of orange trees (standard or dwarf), pepper trees and blooming pittosporum as appropriate to recall early site plant materials". Also include revised Conditions 15, 16 and 43. An additional condition needs to be added by staff for the inclusion of review of circulation plans. Also include in the Mitigated Negative Declaration project description reference to the original 1929 mission style hospital building, that the building is still standing, and that its return to public view will showcase its well-preserved 1929 California mission style architecture and its role of service and health care in the early development of the City of Orange. On page 5-11, that there be a citing of the original 1929 St. Joseph Hospital building as a significant on-site cultural resource to be preserved and to be considered as further discussion goes forward. Condition No. 4 should read, "the applicant shall submit to the Design Review Committee prior to the City Council consideration of the proposal". AYES: NOES: ABSTAIN: ABSENT: MOTION Commissioners Bonina, Brandman, Pruett, Smith None None None MOTION CARRIED Moved by Commissioner Smith and seconded by Commissioner Brandman to approve Resolution No. PC 33-03 recommending the City Council approve a Development Agreement by and between the City of Orange and St. Joseph Hospital. AYES: NOES: ABSTAIN: ABSENT: INRE: INRE: MOTION Commissioners Bonina, Brandman, Pruett, Smith None None None MOTION CARRIED NEW HEARINGS: None ADJOURNMENT: Moved by Commissioner Bonina and seconded by Commissioner Brandman to adjourn to the next regular Planning Commission meeting on Wednesday, September 3, 2003 at 6:30 p.m. AYES: NOES: ABSTAIN: ABSENT: Commissioners Bonina, Brandman, Pruett, Smith None None None MOTION CARRIED The meeting adjourned at 9:40 pm. 7