CITY OF MURRIETACity Council Meeting AgendaReport3/5/2024Agenda Item No. WS1.TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCILFROM: David Chantarangsu, AICP Development Services DirectorPREPARED BY: Chris Tracy, AICP Senior Planner, Advanced PlanningSUBJECT: Hillside Updates Workshop (DCA-2021-2396) - Ordinance Overview RECOMMENDATIONReceive a presentation by staff, discuss the Ordinance overview, and provide direction related to policyoptions under the proposed Ordinance framework; andReceive public comments.PRIOR ACTION/VOTEOn March 29, 2022, the City Council directed staff to review the hillside development standards (Non-ActionItem).On June 28, 2023, the Planning Commission recommended the introduction and first reading of an Ordinanceproviding updates to the hillside development standards amending Murrieta Municipal Code (MMC) Chapters8.20, 15.52, and updating portions of Title 16 (Vote 4-0-1) (Attachment 1).On August 15, 2023, the City Council hosted a workshop on this item. The City Council requested additionalinformation. The workshop was continued to a future meeting date . Additional details from this discussion areprovided within the Analysis portion of this report below (Attachment 2).CITY COUNCIL GOALMaintain a high performing organization that values fiscal sustainability, transparency, accountability andorganizational efficiency.BACKGROUNDFor details about the historical context of the hillside development standards and why these updates are beingbrought forward, please refer to the Background Section as provided within Attachment 1. Staff is bringingforward these updates in a continued workshop for the City Council to review the proposed standards andprovide input ahead of a future public hearing. This allows for time for staff to walk through the more complexupdates with the City Council and allows for feedback on new information produced by staff since the lastCITY OF MURRIETA Printed on 3/4/2024Page 1 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1.workshop.The purpose of this effort to update the City’s hillside standards is to improve readability and graphic exhibits,resolve code inconsistencies, incorporate best practices, and simplify the standards to make them more user-friendly to staff and applicants. The City’s existing hillside development standards, contained in Chapter 16.24(Hillside Development) of the Development Code, were added in 1997 to support the City’s 1994 General Planland use goals and policies associated with the City’s hillside features. The General Plan continues to containgoals and policies in hillside areas to “maintain the natural character and the environmental and aestheticvalues of sloped areas.”AnalysisAs described in the beginning of this report, the City Council conducted a first workshop on this item on August15, 2023. The workshop was continued to allow staff to conduct additional analysis in response to City Councilquestions and public concerns. Specifically, the City Council directed staff to provide additional mappingdetails for both the hillside areas and prominent ridgeline map exhibits. These recommended updates coverparcels that are owned by the Riverside Conservation Authority (RCA), properties that fall under Multi-SpeciesHabitat Conservation Preservation (MSHCP) Criteria Cells, City-owned parcels, and to identify undevelopedand developed parcels within areas potentially affected by changes to the proposed standards. Attachments 3through 11 depict the data described above graphically through multiple maps and were created using theCity’s land use data available through its GIS software.As a result of the additional analysis conducted by staff, it was determined that out of 371 privately ownedparcels, only 51 would be fully affected by changes to the hillside standards since they were not previouslydeveloped. The developed 179 parcels would be subject to the new hillside standards if adopted, but existingdevelopment would remain. Only new developments such as additions, property redevelopment wherehousing structures were rebuilt, or future subdivisions/ lot splits would be affected. City and RCA-ownedparcels would be unaffected since parcel development is not the goal of public agency ownership of openspace lands other than for recreational purposes. Staff notes a key development restriction applicable toridgelines would be removed with the proposed regulations and replaced with requirements for landscapescreening.Hillside Area(s)319 parcels are developed and are privately owned. These parcels would be subject to the newrequirements if additional development on the parcels was ever proposed, such as a room addition,reconstruction of a home, or a subdivision or parcel map.179 parcels that are developed, are privately owned and are within an MSHCP Criteria Cell.51 parcels in the study area are undeveloped and privately owned. These parcels represent theremaining undeveloped areas within the proposed Hillside Overlay area that would be required tofollow the new requirements if adopted.30 parcels are undeveloped, are privately owned and are within an MSHCP Criteria Cell.0 parcels are undeveloped, publicly owned, and are within the boundaries of an MSHCP Criteria Cell.25 parcels are undeveloped and owned by the RCA.1 parcel is undeveloped and is privately owned by an entity for conservation purposes.Prominent Ridgeline(s)22 parcels are developed and are privately owned.21 parcels are developed, are privately owned and are within an MSHCP Criteria Cell.CITY OF MURRIETA Printed on 3/4/2024Page 2 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1.8 parcels are undeveloped and privately owned.7 parcels are undeveloped, privately owned and are within an MSHCP Criteria Cell.0 parcels are undeveloped and publicly owned.0 parcels are undeveloped, publicly owned and are within the boundaries of an MSHCPCriteria Cell.0 parcels are undeveloped and are owned by the RCA.With respect to acreage, the total acreage for all parcels within the mapped hillside areas encompasses 2,157acres throughout the City. Staff notes this figure includes prominent ridgeline areas. Undeveloped privately-owned parcels represent approximately 457 acres, conserved publicly-owned parcels represent approximately492 acres, City-owned parcels represent approximately 163 acres, developed and publicly-owned parcelsrepresent approximately 177 acres, and developed privately owned parcels represent approximately 1,152acres.Lastly, the total acreage for all parcels within the mapped Prominent Ridgelines Area encompassesapproximately 445 acres. Staff notes that overlay does not cover the entirety of a parcel. Undevelopedprivately owned parcels within the ridgelines area represent approximately 114 acres, conserved publicly-owned parcels represent approximately 170 acres, and developed privately owned parcels representapproximately 161 acres.Mapping UpdatesOn December 2022, the Murrieta Hills Specific Plan was annexed into the City’s boundaries as approved byRiverside County’s Local Agency Formation Commission (LAFCO). Murrieta Hills is adjacent to the GreerRanch Specific Plan along its northerly boundary and has a large variation in topography throughout theproject’s boundaries. The prior Hillside Overlay Map Exhibit identified much of the Murrieta Hills project areaas being within the overlay boundaries. Similar to other specific plans within the City, Murrieta Hills has its ownhillside development protocols. Given this additional detail, staff updated the map (see the following page forthe image and as referenced under Attachment 3) to reflect this recent boundary modification.Image 1 - Hillside Overlay ExhibitSummary of Proposed Code Modifications - MMC Chapters 8.20 and 15.52:Updates to MMC Section §8.20.030 “Declaration of Nuisance”oCode Enforcement Division’s request to address revegetation of sloped areas after acatastrophic event.Updates to MMC Section §15.52.020 “Definitions” for Consistency”oClarification of a definition for “Hillside Area” and “Hillside Site” for consistency with theproposed updates under Chapter 16.Summary of Proposed Code Modifications - MMC Title 16For the updates as proposed under Title 16, please refer to Attachment 12 for a“side-by-side” comparison asit relates to the current MMC Section versus the proposed updates. Lastly, as provided in Attachment 12, a“Strikeout-Underline” version of the proposed amendments is included for further details as the PlanningCommission recommends (Attachment 13).For the City Council’s reference, staff also prepared the table below to describe the changes recommended bystaff and approved by the Planning Commission. Attachment 13 depicts additions and deletions to theCITY OF MURRIETA Printed on 3/4/2024Page 3 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1.proposed ordinance in redline/strike-through format.Summary of Changes CITY OF MURRIETA Printed on 3/4/2024Page 4 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1.
The following points summarize the findings from the mapping analysis:“ ” “ ” Natural Areas versus Manufactured Grading - Ridgeline Discussion and ParametersThere is public interest in these overall updates, particularly concerning ridgeline development parameters andhow regulations apply to existing natural hillside areas versus areas previously graded referred to asmanufactured slopes. The applicability of the current standards is summarized below as contained in MMCSection 16.24.020. Regardless of how the ordinance may have been applied in the past, the Municipal Coderequires the standards be applied in the following situations as specified in MMC Section 16.24.020:To uses and structures within areas with a slope of twenty (20) percent or greater and/or aredesignated on the significant features map on file with the department.CITY OF MURRIETA Printed on 3/4/2024Page 5 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1.Development standards, guidelines, and provisions of Chapter 16.24 shall be applied to those portionsof land with a predominance of significant natural slopes exceeding twenty-five (25) percent and areasthat are integrally contiguous or slopes determined as significant by the director.The determination of slope is to be computed on the natural slope of the land before grading iscommenced.Notwithstanding the conflicting slope language that currently exists, the application of City hillside standards inMMC Chapter 16.24 applies to property that exceeds a certain natural slope. Since many properties potentiallyeligible for the proposed regulations were developed under county jurisdiction, there is no precise way todetermine which areas of a site are natural or disturbed other than through an engineering opinion. Adoption ofthe proposed Hillside Overlay Map eliminates any debate or confusion about this topic. Even the currenthillside ordinance recognizes that a property with natural and disturbed grades is still subject to therequirements of the hillside ordinance as described by the second bullet point above.The following information also provides the current General Plan within the Municipal Code and staff’s relatedanalysis.General Plan Provisions and RidgelinesThe following summarizes the General Plan’s Goals and Policies related to ridgeline development.Goal CSV-5:“Hills and ridges are protected for their environmental and aesthetic values", andrelated implementing Policy CSV-5.1. To substantiate this determination, this ordinance updatewill remain consistent with Policy CSV-5.1 and the following discussion.oPolicy CSV-5.1:“Promote compliance with hillside development standards and guidelinesto maintain the natural character and the environmental and aesthetic values of slopedareas.”For the Los Alamos Hills community: Land Use Goal LU-22 applies to ridgeline development in that“...Naturaland visual resources are valued resources to maintain the rural character of the Los Alamos Hills”and isachieved with the following policies:oLU-22.1:“Encourage the preservation of natural and visual resourceswithin Los AlamosHills, such as rock outcroppings and scenic views of the local hills and valleys, to thegreatest degree practicable."oLU-22.2“Encourage new construction and landscape design that utilizes gradingtechniques to mimic the natural terrain.”Development Code Provisions and RidgelinesChapter 16.24 Current Definitions and Design Parameters:Prominent Ridge: A ridge or hill location that is visible from Interstate 15 or Interstate 215 or from an arterial orsecondary street that forms part of the skyline or is seen as a distinct edge against a backdrop of land.Ridge: An extended, narrow, conspicuous elevation of land generally between valleys. (Staff note: the definedterm “Ridge” has been separated from the definition of “Prominent Ridge” for the purposes of this report. As ofthis writing, it is not known if the language should be separated or left as is. This will require further staffreview). A. Site Design.CITY OF MURRIETA Printed on 3/4/2024Page 6 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1. 1. Design of building sites should be sensitive to the natural terrain. Structures should belocated to minimize grading and preserve natural features (e.g., prominent knolls, ridgelines, etc.)2. Preserve views of significant visual features, as designated on the hillside overlay zone map, as seenfrom both within and outside a hillside development. When designing lots and plotting homes, the followingprovisions should be considered:a. Dwellings should be oriented to allow view opportunities even though views may be limited.Residential privacy should not be unreasonably sacrificed, andb. A significant public vista, skyline, open space corridor, or vertical open space corridor as seen froman interstate, an arterial, or a secondary street should be a major design element in the site planning process3. Structures shall not visually impair ridgeline silhouettes. Structures are not permitted closer to aprominent ridge than fifty (50) feet measured vertically on a cross-section or one hundred fifty (150) feethorizontally on a topographic map, whichever is more restrictive. Exceptions to this requirement for publicfacilities, utilities, and infrastructure necessary to serve the public health, safety, and welfare may beconsidered by the commission.e. Manufactured cut and fill slopes exceeding ten feet in height that will be either exposed to permanentpublic view or are adjacent to environmentally sensitive areas should be designed with features characteristicof natural slopes, where physically feasible so that their ultimate appearance will resemble a natural slope.This will include slopes along streets and highways adjacent to parks, schools, open spaces, other publicfacilities, and other prominent and visible slopes.DiscussionAs demonstrated in the above descriptions, both the General Plan and Municipal Code call for thepreservation of “ridgeline-related” visual resources covering both natural and manmade areas. Policy CSV-5.1speaks to maintaining the aesthetic values of sloped areas where the ridgeline would be a slope component.For the Los Alamos Hills Area under LU-22.1, calls for the preservation of both natural and visual resources,and LU-22.2 speaks to encouraging new construction and landscape design that utilizes grading techniques tomimic the natural terrain. Again, the ridgeline would be an aesthetic component under both of theseimplementing policies.As described within the Development Code, it calls for the preservation ofsignificant visual features, and onecould make the case that a ridgeline represents this type of feature, whether natural or manmade. Further, itdescribes that structures shall not visually impair ridgeline silhouettes with setback criteria. Lastly,manufactured cut and fill slopes with prominent and visible slopes need to be designed in a manner thatemulates natural conditions.FISCAL IMPACTNone.ATTACHMENTS1. Planning Commission Ordinance Introduction Staff Report, June 28, 20232. City Council Workshop 1 Staff Report, August 15, 20233. Citywide - Hillside Overlay Map Exhibit4. Citywide - Prominent Ridgelines Map Exhibit5. Focused 1 - Prominent Ridgelines - Los Alamos Hills Area6. Focused 2 - Hillside - Los Alamos Hills Area7. Focused 3 - Hillside - Greer Ranch AreaCITY OF MURRIETA Printed on 3/4/2024Page 7 of 8powered by Legistar™ 3/5/2024Agenda Item No. WS1.8. Focused 4 - Hillside - Murrieta Hills Area9. Focused 5 - Hillside - Bear Creek Area10. Focused 6 - Hillside - Western City Quadrant - Northwest Section11. Focused 7 - Hillside - Western City Quadrant - Southwest Section12. Title 16 Modifications - “Side-by-Side” Comparison13. Draft Ordinance - Title 16 - Strikeout-Underline14. Correspondence CITY OF MURRIETA Printed on 3/4/2024Page 8 of 8powered by Legistar™