AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 191 of 205
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Kevin Snyder, AICP
June 30, 2023
Pag
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9 01414.0001/903465.1
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VIII.
City’s Argume
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Dev
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AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 192 of 205
S
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v
e
n
W
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j
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t
y
k
Kevin Snyder, AICP
June 30, 2023
Pag
e
10 01414.0001/903465.1
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AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 193 of 205
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June 30, 2023
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t
h
e
i
n
t
e
r
v
i
e
w
p
a
n
e
l
.
(
5 2
:
1 -
1 8
)
A
s
t
o
R
e
a
s
o
n
8 ,
a
n
d
s
p
e
c
i
f
i
c
a
l
l
y
r
e
f
e
r
e
n
c
i
n
g
a
b
a
n
d
o
n
m
e
n
t
o
f
A
p
p
l
i
c
a
n
t
’
s
f
i
r
s
t
c
h
o
i
c
e
l
o
c
a
t
i
o
n
o
n
P
e
a
c
h
S
t
r
e
e
t
,
t
h
e
C
i
t
y
n
o
t
e
d
n
o
p
r
o
h
i
b
i
t
i
o
n
o
n
t
h
e
n
u
m
b
e
r
o
f
l
o
c
a
t
i
o
n
s
f
o
r
p
u
r
p
o
s
e
s
o
f
o
b
t
a
i
n
i
n
g
z
o
n
i
n
g
v
e
r
i
f
i
c
a
t
i
o
n
.
(
T
r
a
n
s
c
r
i
p
t
,
5 4
:
5 -
1 2
)
F
u
r
t
h
e
r
,
t
h
e
p
r
o
p
o
s
e
d
z
o
n
i
n
g
c
h
a
n
g
e
s
w
e
r
e
p
u
b
l
i
c
k
n
o
w
l
e
d
g
e
s
t
a
r
t
i
n
g
i
n
m
i
d
-
2 0
2 0
,
c
u
l
m
i
n
a
t
i
n
g
i
n
t
h
e
c
h
a
n
g
e
s
m
a
d
e
i
n
S
e
p
t
e
m
b
e
r
o
f
2 0
2 0
.
T
h
e
p
l
a
n
n
i
n
g
p
r
o
c
e
s
s
w
a
s
“
v
e
r
y
p
u
b
l
i
c
”
w
i
t
h
“
m
a
i
l
i
n
g
o
f
n
o
t
i
f
i
c
a
t
i
o
n
t
o
p
r
o
p
e
r
t
y
o
w
n
e
r
s
a
l
o
n
g
t
h
e
c
o
r
r
i
d
o
r
—
s
e
v
e
r
a
l
a
r
t
i
c
l
e
s
,
s
o
c
i
a
l
m
e
d
i
a
,
”
f
o
l
l
o
w
e
d
b
y
“
t
h
e
t
y
p
i
c
a
l
p
u
b
l
i
c
h
e
a
r
i
n
g
p
r
o
c
e
s
s
b
e
f
o
r
e
a
l
e
g
i
s
l
a
t
i
v
e
b
o
d
y
”
b
y
S
e
p
t
e
m
b
e
r
2 0
2 1
.
(
T
r
a
n
s
c
r
i
p
t
,
5 5
:
2 0
-
5 6
:
1 3
)
IX
.
Analysis
A.
T
he Sco
pe of the Administrative He
aring and the
Powers of the Hea
ring Officer
Are Limited
Review of an administrative hea
r
ing determination, or
a
“quasi
-
judicia
l hearing
,
” is
a
ccom
p
li
shed via Code of Civil Procedure section 1094.5. Specif i
cally, Subsection
(b) pr
ovides
the scope of
judicia
l
review carri
ed out by a revie
wing court of a hearing officer’s final
administrative o
r
der
:
(1) whether the
hearing officer
has proceeded wi
thou
t
,
or in excess of,
jurisdiction; (2) whether there was a
f
air proceeding; an
d (3)
whether there was an prejud
icial
abuse of
discretion. “Abu
se of discretion” is established if the hearing officer “
has no
t
proceeded in t
he manner requir
ed by law, the o
rder
is
not supported by the findings, or the
findings are not
supported by the e
videnc
e.” (Cal. Civ. Proc. Code
§
1094.5(b)).
T
hese provisions
AGENDA ITEM #3.1
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12 01414.0001/903465.1
c
reate a statutory right to a fair hearing before an impa r
tial p
arty. (
Clark v.
City of Hermosa
Beach
(1996) 48
Cal.
A
pp
.4th
1152
)
.
In fact, t
he due process clause of the Cali
f
ornia Constitution
at Ar
ticle 1
§
7, includes a lib
erty
interest
to be free from “
arbitrary adjudicative procedures.” (
People v. Ramirez
(
1 979) 2
5 Cal.3d
260, 26
8 -
69 ;
accord
,
Sa
leeby v. State B
ar o
f
C
alifornia
(1985) 39 Cal.3d 547, 563
-
64 )
.
Further, admin
i
strative proceedin
gs are
distinguishable from legis
lative proceed
ings, where
legis
lative actions formulate rules to be applied
—
for example
,
adopt
ion of ordinance
s and
amendments
to municipal co
des
t
o
regulate the issuance of cannabis business permits. (Se e
,
e.g.,
J.D. Patte
rson v
. Central Coast Regional Co
astal Zone Con
serv. Comm’n
(197
6) 58
Cal.App.3d 833, 840). Legislative actions establis
h
publi
c policy and rul
es applicable to
groups or
types
of
p
ro
perty, while administrative hearings apply to individua l
properties or par
ties b
y
application of establishe
d standards to
individualized f
acts, in order to determine specific rights
or to take s
p
ecific
actions under e
xisting law. (
Ar
nel Dev. Co. v.
City
of
Costa Mesa
(1980) 28
Cal.3d
511, 519;
20th Century Ins
.
Co. v. Garamendi
(1994)
8 Cal.4th 216, 273;
Mounta
in
Defense Lea
gue v. Board of S
upervisors of San Diego County
(1977) 55 Cal.App.3d 723,
729
;
L
indgren and Matt
as, CEB Cal. Lan
d Use Prac.,
§
1 .49)
.
Ultimately, however, the findings made in an administra t
ive hearing must b
e rele
vant to
adopted applicable
criteria in st
atutes or policie
s. (
See, e.g.
J.L. Thomas, Inc. v County of Los
Angeles
(
1991)
232
Cal.App.3d 9
16 [
finding adop
ted by planning
comm
i
ss
ion to support
denial
of a use permit for an adult busi
n
ess did not addres
s the
criteria in
the county code
for approval
of use permit, an
d that the decision to deny
therefore came “as a
complet
e
non sequitur from
the
findings.”
]
).
I
n this matter, t
he j
u
ri
sdiction of the Hearing Officer is set by IMC
123.23(A)
and
123.24(A)(
1 )
—
g
eneral
ly,
pertaining to
deviation
s from the Cit
y’s published pro
cedure guidelines and review
criteria that advers
ely aff
e
cted the Applicant by
altering the out
come of the City
’s d
e
ci
sion on
the application.
The plain language of IMC 123.
2 4(A)(1) necessaril
y incl
udes “published
procedure g
uidelines and
review criteria.”
The City Council adopted Resolution no. 10314
es
tablish
i
ng procedure guideline
s and review cri
teria
to govern
the
a
pp
lication and selection
process for cannabis storefront
r
etail permits.”
3 T
hus, t
he City’s compliance with t
he guidelines
3 See:
https://
www.
i
ndio.org/home/showp
ublisheddoc
ument/2481/63800507760947000
0 This document w
as ref
erenced
by the partie
s, and
there
was dis
pute as to existe
nce or t
he
conten
t of the docume
nt; the document was consider
ed
as part o
f the Hearing Officer
opinion,
sua spo
nte
.
AGENDA ITEM #3.1
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June 30, 2023
Pag
e
13 01414.0001/903465.1
and criteria set
forth in Resolution no. 10314 also falls within
the scop
e
of the administrative
hearing. Resolu
tion no. 10314 i
nclu
d
es
as Exhibit “A” twelve pages of guidelines and review
c
r
iteria. (See also
Exhibi
t
4 ).
B.
Applicant’s Argume
nt Regarding t
he City Council’s
Legislative Determination
s
Are
Beyond the Scope of the
A
dministrative Hearing
and the
Jurisdic
tion
of the
Hear
ing
O
ff
icer
Applicant raised
and
a
r
g
u
e
d
c
riticism
s
of
w
h
a
t
t
h
e
C
i
t
y
C
o
u
n
c
i
l
s
h
o
u
l
d
h
a
v
e
p
r
i
o
r
i
t
i
z
e
d
(
R
e
a
s
o
n
6 )
.
Again
, legi
slative ac
tions establish
publ
i
c
policy, while administrative hearings apply e
s
tablished
standards to indiv
iduali
zed facts, in order to dete
rmine specific
rights or to tak
e specific actions
under existin
g law. (
Arnel
Dev. Co. v. City of Costa Mesa
(1
980) 2
8 Cal.3d
5 11, 519;
20th Ce
ntur
y
I
ns. Co. v. Garamendi
(1994) 8 Cal.4th 216, 27
3 ;
Mountai
n
Defense League v.
Board
of
Supervisors of San Dieg
o County
(1977
) 55 Cal.App.3d 7
23, 729
; Lindgren and Mattas, CEB Cal.
Land U
se Prac.,
§
1.49)
Accordingly, s
e
cond g
uessing th
e policy decisio
ns o
f
t
he City Council is
beyond the scope of an adm
i
nistrativ
e
appeal, and beyon
d the
power of the Hearing Office
r to
consider
.
The Hearing Offi
cer dec
lines to issue any opinion regarding t
he legislatively established numbe
r
of p
ermits
or
the
d
e
l
e
g
a
t
i
o
n
o
f
authority fo
r
th
e
C
ity Manager to advance
t
h
e
“
t
o
p
”
f
i
v
e
s
c
o
r
i
n
g
a
p
p
l
i
c
a
t
i
o
n
s
i
n
P
h
a
s
e
I
I
I
t
o
Phase IV
(
R
e
a
s
o
n
1 )
.
F
u
r
t
h
e
r
,
t
h
e
H
e
a
r
i
n
g
O
f
f
i
c
e
r
d
e
c
l
i
n
e
s
t
o
i
s
s
u
e
a
n
y
o
p
i
n
i
o
n
r
e
g
a
r
d
i
n
g
w
h
a
t
t
h
e
C
i
t
y
“
s
h
o
u
l
d
”
f
o
c
u
s
o
n
t
o
d
e
t
e
r
m
i
n
e
m
e
r
i
t
(
R
e
a
s
o
n
6 )
.
F
i
n
a
l
l
y
,
t
h
e
H
e
a
r
i
n
g
O
f
f
i
c
e
r
d
e
c
l
i
n
e
s
t
o
i
s
s
u
e
a
n
y
o
p
i
n
i
o
n
r
e
g
a
r
d
i
n
g
w
h
a
t
s
a
t
i
s
f
i
e
s
“
l
o
c
a
l
o
w
n
e
r
s
h
i
p
”
a
n
d
p
u
r
p
o
r
t
e
d
“
g
a
m
i
n
g
o
f
t
h
e
s
y
s
t
e
m
,
”
a
n
d
t
o
t
a
k
e
a
n
y
r
e
q
u
e
s
t
e
d
a
c
t
i
o
n
t
o
“
c
o
r
r
e
c
t
f
o
r
”
t
h
e
s
e
a
l
l
e
g
e
d
f
a
i
l
u
r
e
s
(
R
e
a
s
o
n
5 )
,
a
s
i
n
e
x
c
e
s
s
o
f
j
u
r
i
s
d
i
c
t
i
o
n
.
T
h
e
C
i
t
y
C
o
u
n
c
i
l
m
a
d
e
t
h
e
l
e
g
i
s
l
a
t
i
v
e
d
e
c
i
s
i
o
n
t
o
a
d
o
p
t
t
h
e
g
u
i
d
e
l
i
n
e
s
a
n
d
p
r
o
c
e
d
u
r
e
s
f
o
r
u
s
e
i
n
t
h
e
u
n
d
e
r
l
y
i
n
g
d
e
c
i
s
i
o
n
-
m
a
k
i
n
g
p
r
o
c
e
s
s
;
o
p
i
n
i
o
n
s
a
f
t
e
r
t
h
e
f
a
c
t
o
n
t
h
e
w
i
s
d
o
m
o
f
t
h
o
s
e
d
e
c
i
s
i
o
n
s
c
a
n
n
o
t
f
o
r
m
t
h
e
b
a
s
i
s
o
f
a
n
a
d
m
i
n
i
s
t
r
a
t
i
v
e
a
p
p
e
a
l
.
T
h
e
p
r
o
p
e
r
t
i
m
e
f
o
r
r
a
i
s
i
n
g
s
u
c
h
q
u
e
s
t
i
o
n
s
i
s
d
u
r
i
n
g
c
o
n
s
i
d
e
r
a
t
i
o
n
o
f
t
h
e
u
n
d
e
r
l
y
i
n
g
o
r
d
i
n
a
n
c
e
s
,
r
e
s
o
l
u
t
i
o
n
s
,
a
n
d
p
o
l
i
c
y
a
c
t
i
o
n
s
o
f
t
h
e
C
i
t
y
C
o
u
n
c
i
l
d
u
r
i
n
g
p
u
b
l
i
c
m
e
e
t
i
n
g
s
.
M
o
r
e
o
v
e
r
,
t
h
e
C
i
t
y
d
e
m
o
n
s
t
r
a
t
e
d
t
h
a
t
t
h
e
n
u
m
b
e
r
o
f
d
i
s
p
e
n
s
a
r
i
e
s
(
R
e
a
s
o
n
6 )
w
a
s
n
o
t
p
a
r
t
o
f
t
h
e
P
h
a
s
e
I
I
I
p
r
o
c
e
s
s
,
making
t
h
e
a
r
g
u
m
e
n
t
i
r
r
e
l
e
v
a
n
t
.
AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 196 of 205
S
t
e
v
e
n
W
i
j
a
t
y
k
Kevin Snyder, AICP
June 30, 2023
Pag
e
14 01414.0001/903465.1
C
.
A
n
y
A
l
l
e
g
e
d
F
a
i
l
u
r
e
s
t
o
P
r
o
d
u
c
e
D
o
c
u
m
e
n
t
s
o
r
O
t
h
e
r
w
i
s
e
C
o
m
p
l
y
w
i
t
h
t
h
e
P
u
b
l
i
c
R
e
c
o
r
d
s
A
c
t
I
s
B
e
y
o
n
d
t
h
e
S
c
o
p
e
o
f
t
h
i
s
A
p
p
e
a
l
T
he findings made in an administra
t
ive hearing must b
e rele
vant to adopted applicable
criteria
in st
atutes or policie
s. (
See, e.g.
J.L
. Thomas,
Inc. v County of Los Angeles
(
1991)
232
Cal.App.3d
9 16
[
finding adop
ted by planning
comm
i
ss
ion to suppo
rt
denial of a use permit for an adult
busi
n
ess did not addres
s the
criteria in
the county code
for approval
of use permit, an
d that the
decisi
on to den
y
therefore came “as a
complete
non sequitur from the
findings.”
]
).
T
h
e
j
u
ri
sdiction of the Hearing Offi
cer is set by IMC
123.23(A)
and
123.24(A)(
1 )
—
g
eneral
ly,
pertaining to
deviation
s from the Cit
y’s published pro
cedure guidelines and review crit
eria that
advers
ely affe
cted the Applicant by
altering the out
come of the City
’s d
e
ci
sion on the
application.
The
plain language of IMC 123.
2 4(A)(1) necessaril
y incl
udes “published procedure
g
uidelines and
review criteria.”
T
h
u
s
,
t
h
e
s
c
o
p
e
o
f
a
p
p
e
a
l
d
o
e
s
n
o
t
i
n
c
l
u
d
e
a
c
t
i
o
n
s
t
a
k
e
n
b
y
t
h
e
C
i
t
y
A
t
t
o
r
n
e
y
i
n
r
e
s
p
o
n
d
i
n
g
t
o
r
e
q
u
e
s
t
s
f
o
r
i
n
f
o
r
m
a
t
i
o
n
o
r
d
o
c
u
m
e
n
t
s
u
n
d
e
r
t
h
e
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AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 197 of 205
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AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 198 of 205
S
t
e
v
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W
i
j
a
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Kevin Snyder, AICP
June 30, 2023
Pag
e
16 01414.0001/903465.1
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Applicant cited
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Moreover, the proces
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City r
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he specific
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n
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i
ng
chang
es and the citywide zoning changes,
comport with
g
eneral pr
inciples
of lan
d
use su
bmissions and appro
vals, colloqui
ally r
eferred to
as “gra
ndfathering” whereby uses
approved under regulations
in effect at
the ti
me wil
l
, general
ly speaking,
re
m
ain
l
eg
al des
pite
their non
-
conforming status due to the passa
g
e of new
regulatio
ns. Th
is under
lies the doctrine
o
f legal non
-
co
nformi
ng use
, and
the Ci
ty’s actions followed
t
h
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s
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n
r
e
q
u
e
s
t
.
(
H
a
ns
en Bro
thers Ent., Inc. v. Board
of Supervisors
(1996) 1
2 Cal.4th
533, 552
-
53 (
de
scribing legal nonconformin
g uses
)
)
.
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ity
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AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 199 of 205
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June 30, 2023
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pplica
nt d
id not show, b
y
a preponderance of the eviden
c
e,
that t
he City f
ailed
to provide notification of
a change in th
e appl
ication pro
cess, failed to
provide equal opportunity to modify its appl
ication, or
o
therwi
se
fai
led to app
ly the review
c
r
iter
i
a
correc
tly.
Thus, the dec
ision of the City is AFFIRMED.
R
espectful
ly submit
ted
,
ALESHIRE & WYNDER,
LLP
G.
Ross Trindle,
III
P
artner
gr
t:
GRT
Attachments:
Exhibit 4:
Application Procedure Guidel
ines and Revi
ew Cri
teria
for a
Comm
ercial Cannabis
Busi
n
es
s Permit (
Storefront Ret
ail Applications)
Exhibit 6:
H
d
L Compani
es, City
of Ind
io Instruction for Cannabis
Interview Pan
el
Exh
ibit7:
Int
erview Scoring Guidance
Exhibit 11:
Appellant’s Notice of
Appeal
Exhibit
1 4
:
Stipulati
on for
Reconsider
ation
E
x
h
i
b
i
t
1 5
-
A
:
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AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ... Page 200 of 205 *IMPORTANT* Maps and data are to be used for reference purposes only. Map features are approximate, and are not necessarily accurate to surveying or engineering standards. The County of Riverside makes no warranty or guarantee as to the content (the source is often third party), accuracy, timeliness, or completeness of any of the data provided, and assumes no legal responsibility for the information contained on this map. Any use of this product with respect to accuracy and precision shall be the sole responsibility of the user. © Riverside County GIS
Legend
Proposed Location for Shryne Indio LLC dba Stiiizy Indio Notes
0 376188 Feet
Parcel APNs
Parcels
Blueline Streams
City Areas
J
a
c
k
s
o
n
Avenue 42
AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ...Page 201 of 205 *IMPORTANT* Maps and data are to be used for reference purposes only. Map features are approximate, and are not necessarily accurate to surveying or engineering standards. The County of Riverside makes no warranty or guarantee as to the content (the source is often third party), accuracy, timeliness, or completeness of any of the data provided, and assumes no legal responsibility for the information contained on this map. Any use of this product with respect to accuracy and precision shall be the sole responsibility of the user. © Riverside County GIS
Legend
Proposed Location for Culture CC Indio dba Culture Cannabis Club Notes
0 376188 Feet
Parcel APNs
Parcels
Blueline Streams
City Areas
Miles
O
a
s
i
s
AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ...Page 202 of 205 *IMPORTANT* Maps and data are to be used for reference purposes only. Map features are approximate, and are not necessarily accurate to surveying or engineering standards. The County of Riverside makes no warranty or guarantee as to the content (the source is often third party), accuracy, timeliness, or completeness of any of the data provided, and assumes no legal responsibility for the information contained on this map. Any use of this product with respect to accuracy and precision shall be the sole responsibility of the user. © Riverside County GIS
Legend
Proposed Location for Indio West Coast Retail, LLC dba West Coast CC Notes
REPORT PRINTED ON... 7/25/2023 8:40:28 AM
0 376188 Feet
Parcel APNs
Parcels
Blueline Streams
City Areas
Highway 111
M
a
d
i
s
o
n
AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ...Page 203 of 205 *IMPORTANT* Maps and data are to be used for reference purposes only. Map features are approximate, and are not necessarily accurate to surveying or engineering standards. The County of Riverside makes no warranty or guarantee as to the content (the source is often third party), accuracy, timeliness, or completeness of any of the data provided, and assumes no legal responsibility for the information contained on this map. Any use of this product with respect to accuracy and precision shall be the sole responsibility of the user. © Riverside County GIS
Legend
Proposed Location for Indio Responsible & Compliant Retail LLC dba Embarc Notes
0 376188 Feet
Parcel APNs
Parcels
Blueline Streams
City Areas
T
o
w
n
e
Wilson
AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ...Page 204 of 205 *IMPORTANT* Maps and data are to be used for reference purposes only. Map features are approximate, and are not necessarily accurate to surveying or engineering standards. The County of Riverside makes no warranty or guarantee as to the content (the source is often third party), accuracy, timeliness, or completeness of any of the data provided, and assumes no legal responsibility for the information contained on this map. Any use of this product with respect to accuracy and precision shall be the sole responsibility of the user. © Riverside County GIS
Legend
Proposed Location for OTC Indio LLC
Notes
0 376188 Feet
Parcel APNs
Parcels
Blueline Streams
City Areas
S
a
l
t
o
n
Requa
AGENDA ITEM #3.1
Award and Issuance of City of Indio Cannabis Storefront Retail Business ...Page 205 of 205