HomeMy WebLinkAboutGP Update-Scoping SubcomitteeCITY OF NEWPORT BEACH
PLANNING COMMISSION STAFF REPORT
Agenda Item No. Study Session
February 20, 2003
TO: PLANNING COMMISSION
FROM: Tamara J. Campbell, AICP, Senior Planner
(949) 644 -3238, tampbell @city.newport- beach.ca.us
SUBJECT: General Plan Update — Joint Planning Commission /General Plan
Update Scoping Subcommittee Study Session
DISCUSSION:
Background:
The Scoping Subcommittee of the General Plan Update Committee has met three
times, and has made preliminary recommendations regarding the scope of the General
Plan update. As suggested at the joint study session of the City Council and Planning
Commission on January 28, 2003, we have scheduled a joint meeting of the
Commission and subcommittee. At the meeting, the Planning Commission will be
asked to review and comment on the direction the subcommittee is pursuing, as well as
provide input regarding any other issues the subcommittee should be considering. Staff
also suggests that the group discuss a system for the continual update and involvement
of the Planning Commission and City Council.
Minutes from the subcommittee meetings are attached. Also included are 1) an
analysis of the existing General Plan prepared by consultant Woodie Tescher and 2) a
matrix identifying General Plan issues and visioning input prepared by staff.
Importantly the subcommittee voted to recommend the following:
1) Conduct a comprehensive update of the entire General Plan (with the exception of
the Housing Element) rather than updating only selected Elements on an individual
basis.
2) Conduct a complete rewriting of the document incorporating existing information
where found to be relevant and applicable.
3) Create a separate policy document and an appendix for all technical data
General Plan Update — Joint Study Planning Commission and GPUC Scoping
Subcommittee
February 20, 2003
Page 2
4) Develop a consistent hierarchy of goals, policies and programs for each element.
5) Test alternatives such as land use, circulation systems and infrastructure with the
information provided in the traffic and fiscal models.
The subcommittee also discussed format and organization of the General Plan and
requested that the Consultant prepare a matrix of options for review at future meetings.
There are several options available such as combining various elements versus
maintaining independent elements. If the Commission has any particular preference, it
would be advantageous to the subcommittee to have its input at this time.
Prepared by:
Submitted by:
Tamara Campbell, AICP, Senior Planner Patricia L. Temple, PI Wing Director
Attachments: GPUC Subcommittee draft minutes (2110/03, 1/27/03 and 1/13/03)
Analysis of Existing General Plan
Matrix with Visioning Input
DRAFT
CITY OF NEWPORT BEACH
General Plan Update Scoping Subcommittee
Minutes of the General Plan Update Scoping Subcommittee Meeting held in the
Conference Room, Central Library, City of Newport Beach, on 2- 10 -03.
Call to Order
Members present:
Barry Eaton, EQAC Designee
Allan Beek, Measure S Supporter
Shant Agajanian, Planning Commissioner
Mike Toerge, Planning Commissioner
Staff present:
Sharon Wood, Assistant City Manager
Patricia Temple, Planning Director
Tamara Campbell, Senior Planner
Consultants present:
Woodie Tescher, EIP
Approval of Minutes of 1 -13 -03 and 1 -27 -03 meetings
The minutes of January 13, 2003, were approved. The committee corrected the minutes
from the January 27, 2003, meeting by removing Mayor Bromberg from the list of
members present.
Discussion
The committee discussed organizing the General Plan by topic rather than by element.
Mr. Eaton mentioned that a majority of the committee supports a comprehensive update
except Mr. Beek. Mr. Beek said that we should only change what's absolutely necessary.
The Land Use element is the only thing protecting the City from unfettered development.
It should not be changed.
Mr. Tescher recommended a technical document or appendix for information that gets
dated.
The subcommittee discussed the Elements to be addressed and the sequence of
preparation. Mr. Tescher presented an analysis of the existing General Plan.
7�
Mr. Agajanian and Mr. Eaton requested Mr. Tescher prepare a chart showing different
ways of organizing the document and where redundancies would be.
After discussion, Mr. Agajanian and Mr. Eaton moved to have concurrent preparation of
the entire document. There would be a complete rewrite and the amount would be
dependent on the shape of the existing elements. In addition to the Policy document
there would be a separate technical document. The majority of members were in favor.
Mr. Beek was opposed.
Ms. Temple and Ms. Wood explained that the format need not be decided now. The
subcommittee decided to review possible formats as we go through the update.
Staff also discussed some of the problems with the lack of policy direction in the existing
plan.
Mr. Beek and Mr. Eaton moved to have a consistent hierarchy (Goals, Policies, Programs,
etc.) throughout, except where they don't apply. All members were in favor.
Mr. Agajanian and Mr. Toerge moved to include alternatives such as land use, circulation
systems and infrastructure, and to test them with the traffic and fiscal models. All
members were in favor.
Schedule and Agenda for Next Meeting
Mr. Tescher suggested that public participation beyond the General Plan Advisory
Committee (GPAC) meetings should occur to work on the formulation of alternatives and
final recommendations.
Mr. Tescher said he believes GPAC would continue in an advisory role throughout the
update process. One way to keep the City Council and Planning Commission involved
would be to have representatives as ex officio members on the GPAC.
The committee discussed the General Plan Update Committee's ongoing role.
After discussing possible meeting dates the committee agreed to try to hold a joint
meeting with the Planning Commission on February 20, 2003 or on March 6t'.
The committee agreed to meet again after the joint meeting.
2
CITY OF NEWPORT BEACH
General Plan Update Scoping Subcommittee
Minutes of the General Plan Update Scoping Subcommittee Meeting held in the Conference
Room, Central Library, City of Newport Beach, on 1- 27 -03.
1. Call to Order
Members present:
Steve Bromberg, Mayor
Barry Eaton, EQAC Designee
Allan Beek, Measure S Supporter
Shant Agajanian, Planning Commissioner
Mike Toerge, Planning Commissioner
Staff present:
Sharon Wood, Assistant City Manager
Tamara Campbell, Senior Planner
2. Discussion of General Plan Update Scope
The committee reviewed comments from Mr. Agajanian, Mr. Beek and Mr. Eaton.
Mr. Beek said we have three options:
1. do nothing
2. take out "apple pie"
3. do a complete revision
• Remove data that quickly becomes out of date
• Circulation has to wait for the model
• House size is a zoning, not General Plan issue
Mr. Toerge recommended doing a comprehensive overhaul. Mr. Eaton said he would like to
hear Mr. Tescher's analysis.
Mr. Agajanian agrees that the background data should be eliminated. He and Mr. Eaton
also agreed that the update should be done comprehensively using a common format,
contained in a single document. Goals and policies should be developed for all elements.
Mr. Toerge said he would like to review the studies before developing the scope of work.
Mr. Eaton said we should consider whether a Specific Plan for the Airport Area should be
done with the General Plan update.
Mr. Beek suggested that an official ballot should be sent to all voters. Mr. Eaton said that
that ties into the public participation. I would like to hear Mr. Tescher's ideas on that
particular process.
I
� 1
• February 10 — Status of existing General Plan with Mr. Tescher's analysis.
6. Adjournment
DRAFT i
CITY OF NEWPORT BEACH
General Plan Update Scoping Subcommittee
Minutes of the General Plan Update Scoping Subcommittee Meeting held in the Conference
Room, Central Library, City of Newport Beach, on 1- 13 -03.
1. Call to Order
Members present:
Steve Bromberg, Mayor
Barry Eaton, EQAC Designee
Allan Beek, Measure S Supporter
Shant Agajanian, Planning Commissioner
Staff present:
Sharon Wood, Assistant City Manager
Patricia Temple, Planning Director
Tamara Campbell, Senior Planner
Consultants present:
Woodie Tescher, EIP
Mayor Bromberg appointed Mr. Eaton as chairman of the committee.
2. Discussion of General Plan Update Scope
Mr. Tescher provided background information on the State General Plan requirements
(PowerPoint presentation attached). Discussion ensued. Mayor Bromberg, Mr. Eaton and
Mr. Agajanian were supportive for doing a comprehensive update.
The committee determined that Mr. Tescher should review and assess the existing General
Plan before the Scoping Subcommittee goes further. Mr. Beek said we need to find out
what absolutely has to be changed and what can be deleted.
Mr. Eaton suggested that the Vision Statement should be reviewed and adopted by the
Planning Commission and the City Council.
3. Future Meetings of Subcommittee
The Scoping Subcommittee would tentatively meet on the same dates the General Plan
Update Committee would normally meet; the Monday prior to a City Council meeting.
4. Comments from the Public
No additional comments offered.
S. Items for Future Agendas
• January 27 — Analysis of visioning input. How much in existing General Plan can we
eliminate?
0 City of Newport Beach General Plan
REVIEW OF EXISTING DOCUMENT
Woodie Tescher, EIP Associates
February 7. 2003
GENERAL OVERVIEW
1. All elements need to be reviewed and updated to address all issues
and visions identified during the Visioning process. Subjects that were
unresolved need to be further discussed with the GPAC, alternatives
identified and evaluated, and a preferred course of action selected.
2. It is recommended that background data and analyses incorporated in
each of the elements be updated to reflect current conditions and
incorporated into a separate document. This will be referenced by the
updated General Plan and, also, serve as the "Existing Setting" section
of the General Plan Environmental Impact Report (EIR).
3. It is recommended that the General Plan be re- organized according to
common topics as the existing document contains sections that are
redundant (e.g., riparian habitat, flooding, geologic hazards, and so
on).
4. A "policy" hierarchy needs to be established that is used consistently
throughout the General Plan —such as goals, vo /ices, standards, and
imp /ementation programs.
S. A Vision Statement should be incorporated at the beginning of the
General Plan as the framework of subsequent policy sections.
6. The Plan's implementation programs should be incorporated in a
single section at the close of the General Plan, as many programs
NB GPUC Scoping Subcommittee /2.7.03/ECT /EIP
CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
(e.g., zoning revisions) pertain to more than one element and would
be redundant if incorporated in each element.
7. The Plan should greatly expand its use of maps, diagrams,
photographs, and sketches to illustrate geographic areas of
applicability and the visual character of textually defined policies and
standards. This would considerably enhance the common
understandability and usability of the Plan.
LAND USE ELEMENT
1. The element needs to be re- organized according to a clear hierarchy
of goals, policies, standards (where appropriate), and implementation
programs. The present document contains a mix of "policies,"
"implementation," and extensive narrative describing background
analyses and issues, land use development intentions, and "major land
use proposals" for sub -areas of the City. Legally, the document is
somewhat unclear regarding what is City policy and what is not (e.g., •
are the "major land use proposals" actually City policy ?). As I read the
element, there are only 12 paragraphs that are formally listed as
"policies." There are numerous narrative statements incorporated in
the document that should be labeled as "policy' (e.g., descriptions of
the application of the plan to non - conforming uses and annexation).
Sections pertaining to the land use categories and "major land use
proposals" should be re- written as policies.
2. The 12 "policies" are general and need refinement to meet State
requirements that they are "action- oriented commitments of the
legislative body" and serve as a useful and justifiable basis for
development review and decision - making. Policy statements that
(Policy C) "...facilities in and around the harbor shall be controlled and
regulatedto minimize traffic congestion and parking shortages, to
ensure access..." need to be clarified regarding how they will be
"controlled and regulated" to subsequent evaluation of consistency for •
proposed projects. As written, the policy is closer to a "goal' than a
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
• "policy." To some extent, the implementation measures incorporate
principles and standards that could be included in the policies.
Similarly, Policy 'T", which states that "the City shall
development... standards for landscaping, sign control, site and
building design ... to insure that the beauty and charm of existing
residential neighborhoods is maintained, that commercial and office
projects are aesthetically pleasing and compatible..." needs
clarification regarding these design intentions. The policy should be
expanded to define those elements that City considers contribute to
"beauty and charm." The use of illustrative photographs or sketches
would greatly help the understanding of the policy intention.
3. Many of the implementation measures are written to such level of
detail that they more appropriately belong in the zoning and
subdivision codes. Most general plans characterize the intentions and
scope of the implementation action and describe who is responsible
• for carrying out the action, a timetable, and possible funding sources.
4. The "Major Land Use Proposals" section should be reviewed to
determine the level of detail that is appropriate for inclusion into the
General Plan. Fundamentally, there is no policy direction that
suggests what the City wants to accomplish in each of the sub - areas.
For example, what is the area's intended functional role? (a residential
neighborhood with diverse housing opportunities ?, a regional office
center ?, a neighborhood service center ?, an employment center ?, and
so on), what is the intended scale and character of development? (low -
rise, pedestrian- oriented village ?, high density and high- activity
"destination " ?, highway - serving and automobile- oriented ?, and so on),
how it should "fit" with surrounding uses, and other descriptors that
characterize the City's visions and intentions for development and its
quality.
Secondly, this section precisely defines the amount of development to
• be entitled and, in some cases, detailed development standards (e.g.,
1,200 square foot parcels). These specifications should be reviewed
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
to determine what components would be more appropriately .
incorporated in the zoning and subdivision ordinances, as well as to
assess whether there is sufficient flexibility to respond to and
negotiate for community- desired land uses. This should be carefully
weighed in consideration of community objectives for the City's
neighborhoods and districts. For example, it may be desired to be
very precise in residential neighborhoods /areas where conservation is
the primary objective, but flexibility may be desired in certain
commercial or office districts to account for the changing nature of
retail businesses and economy.
S. The element addresses several topics that more appropriately belong
in other sections of the General Plan. As examples,
policy /implementation actions are defined to protect habitats and
protect development from noise and flood and geologic hazards that
should be incorporated into other sections of the plan.
6. There are a number of sections that would benefit greatly from the •
use of graphics and maps to facilitate understanding by users of the
plan. A citywide General Plan map in color is needed. A second "plan"
diagram that clearly defines those areas in the City in which existing
uses are to be conserved and those in which new development will be
targeted as infill or re -use would also help users of the plan to
understand the City's growth and development policy. Additionally,
policy/ implementation statements that refer to characteristics
pertaining to specific locations in the City (e.g., "riparian corridors,"
"saltwater marshes," "geologic hazard areas," and so on) would greatly
benefit by the inclusion of maps so that the reader can clearly
understand where these apply.
7. The existing element is lacking fundamental policies regarding the
City's overall functional role (though, this is described in the "general
description" section as a City of "villages "), the distribution and
structure (urban form) of the uses, and its growth and development. •
NB GPUC Scoping Subcommittee /2.7.03 /ECT /EIP
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
• 8. The Visioning process suggested the consideration of a number of
contemporary planning concepts that are not reflected in the current
element: mixed -use development, pedestrian - oriented districts,
"livable neighborhood" inter - mixing of uses and design, sustainable
planning and site design, and similar techniques. The update process
needs to consider their applicability for the City and, where
appropriate, formulate pertinent policies, standards, and
implementation programs.
9. A general outline that may be useful in considering revisions of the
Land Use Element:
• Citywide growth and development policy (areas of conservation and
growth; infill and recycling, annexation, and so on)
• Organization and distribution of land uses /urban form (districts,
neighborhoods, corridors, open spaces, and so on)
• Uses to be accommodated
• Characteristics of citywide land uses (functional role, permitted
uses, density/ intensity, and design and development character)
- Residential neighborhoods
- Commercial and office districts
- Employment centers
- Public uses
- Open spaces
- Other
r Community sub - areas /major land use proposals (functional role,
permitted uses, density /intensity, and design and development
character)
• Special considerations
• CIRCULATION ELEMENT
NB GPUC scoping Subcommittee /2.7.03 /ECT /EIP
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
(Note., this element has not been reviewed to determine the technical •
credibility of the methodology used for traffic generation, distribution,
le vel of selvIce, or recommended improvements. Any updates of this
element wi/ /require new modeling tasks, wherein the appropriate
methodologies need to be confirmed with Citystaft).
1. The correlation of the Circulation Element with the Land Use Element
is unclear (i.e., correlation of the ability to provide mobility to
accommodate land use buildout). There is some explanation of this in
the introduction of the Land Use Element.
2. As the Land Use Element, the policies are general and need to be
supplemented to provide sufficient and effective guidance for
development review and decision- making. Some are particularly
"sketchy," such as the section addressing the "impacts of summer
traffic." In particular, the standard of service needs to be elaborated.
Should this standard apply to all areas (e.g., residential
neighborhoods, commercial districts, and employment centers) or •
should it be differentiated to reflect the intended character and
functional role of the place? Additionally, the element does not
address possible conflicting objectives for land use and
transportation. For example, intentions for pedestrian activity on
Pacific Coast Highway in Corona Del Mar versus objectives for traffic
flow.
3. The element's policies and recommended improvements should be
separated into two sections. The latter is presented in some detail
and does not "fit" well with the policy statements. The recommended
improvements need to be reviewed and updated to reflect current
conditions and projected needs based on buildout of the Land Use
diagram.
4. The element needs to identify how the City's circulation
system /network "fits" with the regional network and facilities. •
NB GPUC Scoping Subcommittee/ 2.7.03 /ECT /EIP
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
• 5. Though general bicycle policies are presented, there is no
accompanying map designating bicycle routes.
6. There is no discussion or policies pertaining to local and
neighborhood traffic calming, which is a major concern in many cities.
7. A considerable number of statutory and important sections are not
addressed by the current element including:
• Public transit (regional, citywide; local, private, etc.)
• Truck routes
• Pedestrian
• Transportation demand management (e.g., strategies/ incentives
for non - automotive use)
■ Airport
. Infrastructure (storm drainage, wastewater, water, energy, and so
on)
CONSERVATION OF NATURAL RESOURCES ELEMENT
Fundamentally, this element is extremely out -of -date and does not
address many components of the natural resource system, reflect
contemporary planning practices for environmental resource
conservation, or account for State legislative requirements and court
decisions.
2. There is no hierarchy of goals, policies, and implementation programs
to serve as a useful basis for project planning (by
developers /applicants), review, and decision - making. In particular,
there are no policies or standards to enable developers and the
community to understand the City's expectations regarding how lands
should be developed to protect valuable natural resources of (e.g.,
• setbacks, density control, vegetation management, preservation, and
so on) or standards for the assessment of project impacts.
NB CPUC Scoping Subcommittee /2.7.03 /ECr /EIP
7
CITY OF NEWPORT BEACH GENERAL PLAN
' �2
3. It is important to incorporate maps that delineate the locations of
sensitive resources to be managed to assure that developers and
decision - makers clearly understand the applicability of resource
conservation and development policies.
4. As indicated above, the scope of discussion is limited and does not
comprehensively address resource issues. Fundamentals of resource
sustainability and stewardship are not addressed. For example, the air
quality section does not address techniques typically used by
communities to reduce pollution (e.g., trip reduction, multi -modal
systems, mixed use development, and so on). Representative of the
range of topics not addressed are:
■ Terrestrial habitat management and conservation (development
standards, acquisition, public education, and so on)
• Marine habitat protection
• Water conservation
• Solid waste reduction and recycling
• Groundwater quality
5. Representative of the statutory deficiencies, the water quality section
does not address current NPDES requirements for discharge and
runoff control.
RECREATION AND OPEN SPACE ELEMENT
This is one of the better elements of the City's General Plan. There is
a consistent hierarchy of objectives, policies, and implementation
actions and the latter describes the responsible entity and schedule.
E
Maps depicting recreational facilities are helpful in understanding the
text. However, there are no maps delineating the City's trails or
scenic elements and these should be added to the document. As •
there are no statements of goals, it may be appropriate to revise to
NB GPUC Scoping Subcommittee / 2.7.031 ECTJ EIP
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
the element to be consistent with the hierarchy of the comprehensive
plan document.
2. As indicated earlier, background data and analyses should be
incorporated into a separate document.
3. The topics comprehensively address recreation and open space issues.
However, the sections addressing environmentally sensitive habitats
and historic resources should be incorporated into the Conservation
Element or under a separate heading if the "topic- based" format is
used for the update.
4. All policies and implementation programs should be reviewed to
ensure consistency with current conditions, needs, and activities, as
well as to reflect state -of- the -art practices. The latter may explore
innovative strategies for the integration of recreational facilities in
non - residential and mixed -use development projects.
PUBLIC SAFETY ELEMENT
As the Conservation and Natural Resources Element, this element is
extremely out -of -date and does not reflect contemporary planning
practices or account for State legislative requirements and court
decisions.
2. The baseline data and analyses need to be thoroughly reviewed and
updated to ensure that it is current and comprehensive and pertinent
constraints or issues for land use development identified. The data,
as indicated earlier, should be incorporated into a separate document.
(Note: much of this data is current ly being updated citywide as an
expanded task of the City's LCPprogram).
3. There is no hierarchy of goals, policies, and implementation programs
to serve as a useful basis for project planning (by
NB GPUC Scoping Subcommittee /2.7.03 /ECr/EIP
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
developers /applicants), review, and decision - making. In particular,
there are no policies or standards to enable developers and the
community to understand the City's expectations regarding how lands
and infrastructure should be developed in response to the defined
hazards (e.g., setbacks, roadway widths, density control, site and
building design, preservation, and so on) or standards for the
assessment of project impacts.
4. It is important to incorporate maps that delineate the locations of
resource hazards and areas for which development must be managed
to assure that developers and decision - makers clearly understand the
applicability of hazard abatement development policies.
5. A number of important topics are not addressed, such as wildland and
urban fire and peak load water supply requirements. All sections need
to be reviewed for their compliance with current legislative
requirements, development standards, and practices. 0
NOISE ELEMENT
1. Maps depicting existing and future noise conditions will require
updating to reflect current conditions and buildout of the updated
General Plan Land Use diagram. Unlike other technical analyses, these
will have to be incorporated into the element to satisfy State
legislation.
2. In general, the goals, policies, and implementation measures
comprehensively address the defined noise issues. However, most of
the policies do not provide sufficient guidance as the basis for project
review and decision- making. On the other hand, pertinent standards
and practices are defined in many of the implementation programs
and the policies could be rewritten to incorporate these, where
appropriate.
NB GPUC Scoping Subcommittee /2.7.03 /ECT /EIP
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CITY OF NEWPORT BEACH GENERAL PLAN
UPDATE
3. The implementation programs need to include the identification of the
responsible agency /person and schedule.
GROWTH MANAGEMENT ELEMENT
1. Not mandated by the State, this element complies with Orange
County's Measure M, which correlates land use development with the
circulation system. It will need to be reviewed and updated to reflect
current conditions and any revisions proposed in the Land Use and
Circulation Elements.
HOUSING ELEMENT
1 . While the Housing Element update is in progress and expected to be
approved prior to the completion of the updated General Plan, it will
be necessary to review the element to ensure that it is consistent with
other updated elements. In particular, the Housing Element's
discussion of housing capacity may need to be modified to reflect land
use policy decisions (e.g., for mixed use development).
NB GPUC Scoping Subcommittee/ 2.7.03 /ECT /EIP
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