Administrative
Report
H.9., File # 23-6391 Meeting Date: 7/18/2023
To: MAYOR AND CITY COUNCIL
From: GREG KAPOVICH, WATERFRONT & ECONOMIC DEVELOPMENT DIRECTOR; BRANDY FORBES, COMMUNITY DEVELOPMENT DIRECTOR; SEAN SCULLY,
PLANNING MANAGER
TITLE
ADOPT BY TITLE ONLY ORDINANCE NO. 3258-23, AN ORDINANCE OF THE CITY COUNCIL OF
THE CITY OF REDONDO BEACH, CALIFORNIA, FOR A GENERAL PLAN AMENDMENT TO
ACTIVATE AND MAKE CONSISTENT THE ARTESIA & AVIATION CORRIDORS AREA PLAN WITH
THE CITY OF REDONDO BEACH GENERAL PLAN CONCERNING FLOOR AREA RATIO AND
PREFERRED LAND USES AND DESIGNS AND ADOPTION OF THE ASSOCIATED CALIFORNIA
ENVIRONMENTAL QUALITY ACT (CEQA) MITIGATED NEGATIVE DECLARATION FOR SECOND READING AND ADOPTION; AND
ADOPT BY TITLE ONLY ORDINANCE NO. 3257-23, AN ORDINANCE OF THE CITY COUNCIL OF
THE CITY OF REDONDO BEACH, CALIFORNIA, TO ACTIVATE AND MAKE CONSISTENT THE
ARTESIA & AVIATION CORRIDORS AREA PLAN WITH THE CITY OF REDONDO BEACH
ZONING ORDINANCE CONCERNING ENTITLEMENT PROCEDURES, FLOOR AREA RATIO,
OFFICE DEVELOPMENT STANDARDS, SIGNAGE, ACCESS/WALL DEVELOPMENT
STANDARDS, OUTDOOR RETAIL SALES, OUTDOOR DINING AND USABLE PUBLIC OPEN
SPACE AND ADOPTION OF THE ASSOCIATED CALIFORNIA ENVIRONMENTAL QUALITY ACT (CEQA) MITIGATED NEGATIVE DECLARATION FOR SECOND READING AND ADOPTION.
EXECUTIVE SUMMARY
On December 8, 2020, the City Council adopted the Artesia and Aviation Corridors Area Plan (AACAP). The Plan area is located in North Redondo Beach and includes segments of both Artesia and Aviation Boulevards (Corridors), as well as the properties fronting each roadway. The surrounding area is primarily residential, with approximately 15,000 residents living within a quarter mile radius and 22,000 residents within a half-mile bike ride. A majority of the properties fronting the corridors are occupied by low intensity, commercial businesses that primarily serve customers passing through or arriving by vehicle. The decentralization of shopping and dining opportunities makes the Corridors less conducive for pedestrian activity.
The AACAP was informed by citywide feasibility and market studies. These studies concluded that shallow lot depths and high land values along the corridors limit the natural prospect for redevelopment of the boulevards. To counter these conditions the development standards along the corridors must be adjusted to encourage reinvestment in the properties. Additionally, the market study found that the large number of nearby residents could support, and would be better served by, increased restaurant and office space.
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To encourage revitalization and pedestrian-oriented planning in the area and to better serve neighborhood residents, the AACAP provided the following initial recommendations:
· increase the allowable floor area ratio
· allow restaurants and office uses by right
· encourage restaurants to incorporate outdoor dining by eliminating the conditional use permit requirement
· allow for outdoor retail sales
· increase pedestrian access points to better connect the corridor with the surrounding residential neighborhoods
· implement an open space requirement to create gathering spaces · allow pedestrian-oriented A-frame signs
On July 11, 2023 the General Plan and Zoning Ordinance amendments needed to implement the above recommendations were introduced and reviewed by the City Council. The Ordinances were approved for first reading and are now ready for formal adoption.
BACKGROUND
Adopted by Resolution No. CC-2010-074 on December 8, 2020, the AACAP provides a vision and actions for future growth and development in the approximately 82-acre Plan Area. The purpose of the AACAP is to create a working document that identifies policy approaches and explicit actions that can be used by City staff or property owners to activate, energize and revitalize the Corridors in a coordinated and consistent manner.
At this time, the City is not advancing all of the objectives outlined within the AACAP. The Plan sets forth a vision for a more vibrant, walkable and aesthetically pleasing corridor, but many of the measures would take place in the future and would include future studies, public outreach, additional changes to the zoning ordinance as well as any applicable environmental review. The General Plan Amendment and Zoning Ordinance amendments contained herein propose the implementation of the following recommendations, as previously outlined and approved within the AACAP:
1. Reference the AACAP Development Standards and Design Guidelines where appropriate within the General Plan and Zoning Code.
The project includes an amendment of the City’s General Plan Land Use Element and Zoning Ordinance that serves to activate the AACAP and require future development to be consistent with the intent, standards and design guidelines of the AACAP. First, specific General Plan and Zoning Ordinance amendments are proposed to resolve inconsistencies between the standards and guidelines within the AACAP and some existing sections of the Redondo Beach General Plan and Zoning Ordinance.
Specifically, Pages 2-26 and 2-61, 2-62/63, of the General Plan contain sections pertaining to Artesia and Aviation Boulevards. The proposed General Plan Amendment includes changes to reference the AACAP where appropriate. With regards to the Municipal Code, Sections 10-2.2500 (Administrative Design Review), 10-2.2502 (Planning Commission Design Review), and 10-2.2506 (Conditional Use Permits) outline the process and criteria by which each entitlement type is reviewed. The proposed Zoning Ordinance amendments includes changes to each section to reference the AACAP where
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appropriate.
On June 1, 2023, the Planning Commission unanimously recommended City Council adopt the amendments to resolve any inconsistencies between the General Plan, Zoning Code, and AACAP.
No changes were requested included in the Planning Commission recommendation.
2. Increase allowable Floor Area Ratio (FAR) from 0.5 to 0.6. to further encourage redevelopment within the corridor.
Floor Area Ratio is a development standard that is meant to regulate overall building mass. The AACAP was informed by a citywide market study and a development feasibility study, which concluded that the existing shallow lot depths and high land values along the AACAP significantly hinder redevelopment unless existing development standards allow for increases in buildable area.
The AACAP identified an increase to the allowable floor area ratio would help overcome the development limitations caused by small lot sizes. Increasing the allowable FAR would accommodate additional square footage applied to the upper floors, thus accommodating additional rentable floor area.
This amendment for additional FAR could potentially result in a future buildout of up to approximately 36,318 square feet of new commercial development along the Corridor (Appendix B of the AACAP environmental document). The Initial Study/Mitigated Negative Declaration presents the assumptions and methodology utilized in determining the land use buildout envisioned by the AACAP. This additional commercial square footage was calculated by converting some of the existing Automotive and Service Commercial uses, as well as some older and/or underdeveloped retail uses within the Corridor to 50 percent office and 50 percent restaurant uses to achieve a “preferred land use mix” that aligned with the vision and intent of the AACAP and more closely emulated the existing land use mix of one of the city’s most successful commercial destinations, the Riviera Village.
The AACAP includes a recommendation to increase the maximum FAR from 0.5 to 0.6. This increase in FAR currently exceeds the maximum allowable FAR for the C-2, C-2-PD, and MU-1 zoning districts within the Corridors. This amendment is proposed to encourage reinvestment in the Plan Area by providing an incremental incentive to improve development feasibility. Text in Section 10-2.622, Development standards: C-2 commercial zone, Section 10-2.625, Development standards: C-2-PD pedestrian oriented commercial zone, and Section 10-2.913: Development standards: MU-1 mixed use zone in the City’s zoning code will be amended to allow for the FAR increase to 0.6.
The General Plan also contains language limiting the maximum floor area ratio to 0.50 in the C-2 land use designation (page 2-8), C-2-PD land use designation (page 2-31), mixed use land use designation (page 2-34), and Community and Highway-Related land use designation (page 2-36).
The proposed General Plan Amendment proposes to increase each to 0.60 to maintain consistency between the General Plan, Municipal Code and AACAP.
On June 1, 2023, the Planning Commission unanimously recommended City Council adopt the amendments to increase the allowable FAR to 0.60. No proposed changes were included in the Planning Commission recommendation.
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3. Allow preferred land uses by right.
The AACAP was informed by a market study that concluded additional office and restaurant uses could be supported by the existing residential neighborhoods, given that 15,000 citizens live within a quarter mile of the corridor area and over 22,000 live within a half-mile bike ride.
Currently, the C-2-PD zoning district, which accounts for approximately half of the commercially zoned properties along Artesia Boulevard, only allows for office uses above the ground floor. In addition, the MU-1 zoning district limits office to 50 percent of the ground floor frontage. The General Plan also includes language on page 2-31 encouraging offices above the ground floor. The proposed General Plan and Zoning Ordinance amendments seek to allow office uses on the ground floor fronting the corridor.
Concerning the incentivization of restaurants within the AACAP area, currently, restaurants that are less than 2,000 square feet in size are already permitted by right. However, the Zoning Ordinance requires a restaurant with “more than 2,000 square feet” to obtain a conditional use permit. The traditional purpose of a conditional use permit is to provide the municipality with additional control over certain uses that could have a detrimental effect on a surrounding community. The idea is that a municipality can review these potentially detrimental uses on a case-by-case basis and only approve such a use upon finding that there are no negative effects or any potential negative effects that can’t be mitigated by placing rules or restrictions on the use.
Historically, the City of Redondo Beach Planning Commission has reviewed conditional use permits to ensure any potential detrimental effects are mitigated. However, the business community views the conditional use permit process as one that increases overall cost and time for project execution.
The average conditional use permit can cost between $5,000 to $10,000 and take between three to six months to complete. More importantly, the business community views the process as one of uncertainty with the caveat that the Planning Commission could deny the project or significantly alter its operation. It is common for business owners to seek an easier path and instead find a location within a neighboring jurisdiction that may not be encumbered by the conditional use permit process.
Staff proposes provisions to the Code to allow restaurants with “more than 2,000 square feet” to be issued an “Administrative Use Permit” which would reduce processing time and fees, and thereby incentivize the preferred land use. The proposed Zoning Ordinance amendments include no changes to a restaurant that is less than 2,000 square feet in size, which is currently allowed by right (no additional permits necessary). Staff also does not propose any changes to restaurants with drive -through use, which currently requires a conditional use permit from the Planning Commission. A drive-through is more vehicle dependent and would attract vehicles rather than pedestrian activity, which does not meet the intent of the AACAP to create a pedestrian oriented physical environment.
On June 1, 2023, the Planning Commission considered these concepts and recommended City Council adopt the proposed amendments to allow office uses on the ground floor by right and allow restaurants with more than 2,000 square feet issuance of an administrative use permit. However, the Planning Commission recommended the City Council consider placing a conditional use permit requirement on restaurants over 5,000 square feet in size, so Planning Commission could review and help mitigate any potential negative impacts (i.e. deliveries, noise, traffic, etc.) caused by large restaurants to surrounding residences.
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4. Improve the corridor pedestrian experience by allowing outdoor dining, outdoor retail sales, and A-frame signs.
The types of activities that can be accommodated within the pedestrian realm dramatically impact the sidewalk’s aesthetic and function, while also affecting its safety and navigability. It is important to strike the right balance between the walking area and other uses or amenities on the sidewalk.
Outdoor uses like cafés and retail displays can add enormously to the sidewalk’s vitality. A-frame signs, also known as sidewalk or sandwich boards, are portable outdoor signs that stand up like an easel to form a two-sided “A” shape. They are very popular with small businesses because they are pedestrian oriented, attract foot traffic, are conveniently collapsible and easy to update with new messaging and promotions.
Currently, the Zoning Ordinance prohibits A-frame signs and outdoor retail sales within all zoning districts. In addition, outdoor dining is encumbered with the conditional use permit process for outdoor dining areas greater than 150 square feet in area. Implementation measures within the AACAP cite necessary revisions to the City’s Zoning Ordinance to allow A-frame signs and outdoor retail sales within the AACAP through appropriate administrative permits. The AACAP also proposes removing the conditional use permit requirement to establish outdoor dining.
Staff proposes an administrative use permit, which accommodates staff review of the proposed outdoor dining area to ensure a balance is struck between the walking area, dining area, parking area and that avoids potential impacts upon adjacent commercial and residential uses. An administrative use permit can be reviewed/approved much faster and more inexpensively than a conditional use permit. Additionally, it’s important to note that the Zoning Ordinance already includes specific “Criteria” (RBMC Section 10-2.1622 Outdoor dining) that address any potential impact associated with outdoor dining and thereby ensures that the proposed administrative review will be comprehensive and effective.
On June 1, 2023, the Planning Commission recommended City Council adopt the proposed amendments to allow A-frame signs, outdoor retail sales and outdoor dining. However, the Planning Commission recommends City Council consider placing a size threshold for outdoor dining areas where an administrative use permit is required for areas below a certain size and that a Conditional Use Permit be required if the area exceeds a certain size. The Planning Commission did not identify an exact size for City Council consideration but agreed it should increase from the existing 150 square-foot threshold. In addition, Planning Commission recommends City Council direct staff to place language in the administrative use permits for outdoor dining requiring properties to appear before the Planning Commission if the outdoor dining component of the business is determined to be a nuisance by Code Enforcement.
5. Improve connectivity between the corridor and adjacent residential neighborhoods.
Currently, the General Plan (pages 2-29 and 2-111/112) and the Zoning Ordinance (Section 10-
2.1524) require a six to eight-foot tall wall along any property line that is shared between a residential and commercial zone. In an effort to further encourage additional connection points and mid-block access from adjacent multi-family residential neighborhoods to the corridors, the AACAP recommends allowing access for pedestrians/bicyclists within the required walls if agreed to by all impacted property owners. Staff has included language in the proposed amendments allowing such
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impacted property owners. Staff has included language in the proposed amendments allowing such an access point for properties that share a common boundary with the AACAP.
On June 1, 2023, the Planning Commission unanimously recommended City Council adopt the amendment to increase access points between the corridors and nearby multi-family residential neighborhoods. However, Planning Commission recommends City Council consider allowing the access points along all residential properties and not limit potential access points to just multi-family residential properties, thereby increasing the number of opportunities to locate access points along the corridor.
6. Amendment to increase public open space in the AACAP area.
The AACAP area is largely zoned C-2 and C-2-PD, which currently does not require minimum usable public open space through development standards. The AACAP discusses how public open space can create an intentional break in the urban landscape and provide valuable spaces where residents and visitors can sit, play, enjoy and encourage activity within the streetscape. This proposed development standard intends to create additional public open areas that can accommodate additional outdoor dining/outdoor retail sales opportunities that may not exist today. Similar to Section 10-2.913, Development standards: MU-1 mixed use zone, an amendment is proposed to Sections 10-2.622, Development standards: C-2 commercial zone and 10-2.625, Development standards: C-2-PD pedestrian-oriented commercial zone, if certain criteria are met (e.g., minimum lot size, project size, etc.), to include standards specific to the Plan Area that support the creation of public plazas, public walkways and other public spaces.
Specifically, for projects of 15,000 square feet or greater, public spaces of at least 10% of the total project FAR shall be incorporated into the design. It must be accessible to the public (i.e. not fenced), more than ten feet in width and must be designed to be contiguous (i.e. not broken up into several smaller spaces to meet the 10% rule). It’s important to note that for projects developed on lots less than 20,000 square feet in size, the requirement of 10 percent public open space may be modified by the Planning Commission.
On June 1, 2023, the Planning Commission unanimously recommended City Council adopt the amendment requiring open space. No proposed changes were included in the Planning Commission recommendation.
Results of the Environmental Review and Proposed Mitigated Negative Declaration The proposed project includes amendments of the City’s Zoning Ordinance and General Plan that serves to activate the AACAP, ensure consistency between the regulatory documents, and require future development to be consistent with the intent, standards, and guidelines of the AACAP. The changes to the Zoning Ordinance and General Plan do not directly result in a specific development project or a substantial amount of new development. Rather, the purpose of the project is to revitalize the corridor by encouraging allowable uses and addressing design. Specific future projects developed after adoption of these proposed changes would require project level CEQA environmental review on a case-by-case basis. Although the proposed amendments would not directly physically alter any buildings, the environmental review for the proposed amendments found that reasonably foreseeable development facilitated by the proposed amendments could impact the surrounding area. As such, the environmental review looked into the potential impacts to clean air and water, preservation of historical buildings and natural visual amenities such as scenic views, protection of fish and wildlife species, as well as potential negative impacts to traffic, noise, Page 6 of 7 H.9., File # 23-6391 Meeting Date: 7/18/2023
protection of fish and wildlife species, as well as potential negative impacts to traffic, noise, archeological resources and groundwater contamination.
After a thorough and comprehensive CEQA review, as well as an inclusive public comment period, the completed initial study found that the project could result in an impact to existing historical resources through future demolition, construction and reconstruction, most notably associated with the proposed increase to FAR. However, implementation of mitigation measures requiring future projects to identify and evaluate potential historical resources and require avoidance would reduce the impact to less than significant. The CEQA Initial Study/Mitigated Negative Declaration has been completed pursuant to State law requirements, reviewed by appropriate Native American Tribes, publicly noticed and made available for public comment and is ready for formal adoption. As such, staff and the Planning Commission recommend City Council adopt the Mitigated Negative Declaration, which requires future projects to avoid disturbances to any potential historical resource.
COORDINATION
The preparation of the proposed General Plan Amendments and Zoning text amendments have been coordinated between the Community Development Department, the City Attorney’s Office, the Waterfront & Economic Development Department and the Planning Commission.
FISCAL IMPACT
Funding for the preparation of the proposed amendments is available in the participating Departments’ annual operating budgets.
APPROVED BY:
Mike Witzansky, City Manager
ATTACHMENTS
· Ord - No. 3258-23 General Plan Amendment
· Ord - No. 3257-23 Zoning Amendments
LINKS
· Link to the Artesia & Aviation Corridors Area Plan
<https://www.redondo.org/civicax/filebank/blobdload.aspx?BlobID=39058> · Link to Artesia & Aviation Corridors Area Plan ISMND
<https://www.redondo.org/news/displaynews.asp?NewsID=3377&TargetID=48> · Link to the current General Plan Land Use Element
<https://www.redondo.org/civicax/filebank/blobdload.aspx?BlobID=2866>