Planning Commission
Memorandum
Community & Economic Development Department Planning Division 3900 Main Street, Riverside, CA 92522 | Phone: (951) 826-5371 | RiversideCA.gov
June 22, 2023
CITY PLANNING COMMISSION MEETING: JUNE 22, 2023
AGENDA ITEM NO.: 5
DISCUSSION ITEM
RECOMMENDATION
Conduct a workshop to discuss potential policy changes to Title 19 that implement changes to Industrial Development Standards as directed by the City Council Land Use, Sustainability and Resilience Committee.
BACKGROUND
In January 2022, Councilwoman Plascencia re quested that a review of regional best practices and zoning regulations for warehous ing and distribution facilities be brought to the Land Use, Sustainability, and Resilience Committee (Committee). Staff presented an update on June 13, 2022, to the Committee, which included a vacant site analysis; a cross-jurisdictional regulatory analysis of best practices; findings on ongoing regional and state regulatory efforts; and research on community benefits and sustainability standards.
Following the June 13 presentation, the Committee requested that staff return to a future meeting after initiating outreach efforts with community stakeholders to obtain feedback on Riverside’s regulatory efforts related to industrial development. After conducting community outreach in the fall, staff returned to the Committee on December 12, 2022
with an update on the community outreach efforts, sensitive receptor analysis, and identified proposed policy consideration items. Following Committee discussion, the Committee requested that staff return at a future date with additional information about potential policy updates including the required level of effort, timeline, and next steps.
A matrix of potential policy actions for Co mmittee consideration and prioritization was presented to the Committee on February 13, 2023. After discussion, the Committee recommended that staff return to the next regularly scheduled meeting with a final recommendation of policy changes based on the direction of the Committee.
Case Number PR-2023-001523 (Zoning Text Amendment)
Request Workshop – Potential policy changes to Title 19 (Zoning) to implement changes to Industrial Development Standards
Project Location Citywide
Wards All
Staff Planner
Daniel Palafox, Assistant Planner
[email protected]
951-826-5985
June 22, 2023
On March 13, 2023, staff presented a fina l matrix of potential policy actions for Committee consideration (Exhibit 1). The Commi ttee directed staff to pursue Phase 1 of the final matrix including exploring amendm ents to development standards, project noticing requirements and other best practices. A compilation of Staff Reports related to this update can be found in Exhibit 2.
DISCUSSION
Across the Inland Empire region, continue d growth of industrial development has motivated many cities to reexamine if addi tional regulations are needed to address persistent community concerns. The concentr ation of warehousing and distribution facilities in the Inland Empire has created a unique opportunity for the region to serve as one of the nation’s largest logistics hubs, creating jobs and connecting people to purchased goods. Riverside is recognized as having some of the most robust Good Neighbor Guidelines in the region, often serv ing as a framework for other jurisdictions to follow. Still, it is important to recognize and routinely evaluate the environmental and quality of life concerns that these facilities can generate.
As part of staff’s research, a geo-spatial analysis was conducted illustrating the density of sensitive receptors in proximity to vacant parcels zoned for industrial development. The analysis reveals that 78% of industrially zoned land in the City is already developed. It also highlights that, in general, the remaining va cant industrially zoned parcels are located where there is not a high concentration sensitive receptors (Exhibit 3). Pockets of industrially zoned land adjacent to higher co ncentrations of sensitive receptors exist in the City and should be planned for accordingly.
To gain a better understanding of community concerns and stakeholder insight, staff held five community meetings as follows:
1. Tuesday, September 13, 2022
a. Virtual – Microsoft Teams
2. Wednesday, September 21, 2022
a. Virtual – Microsoft Teams
3. Thursday, September 29, 2022
a. In person – City Hall, Fourth Floor Conference Room (Ward 1)
4. Thursday, May 25, 2023
a. In person – SSgt. Salvador J. Lara Casa Blanca Library (Ward 4)
5. Friday, May 26, 2023
a. Virtual – Microsoft Teams
Overall, the meetings were well attended wi th over 70 participants across all five meetings. A summary of all stakeholder comments and suggestions is included as Exhibit
4. Utilizing the feedback obtained and direction received from the Committee, staff has consolidated the potential policy changes and seeks the Planning Commission’s input on shaping future policy changes, includ ing potential amendments to development regulations. Direction obtained will help ensure that remaining industrially zoned parcels are developed responsibly.
June 22, 2023
POTENTIAL POLICY CHANGES
To facilitate the Planning Commission’s review of the potential policy changes, staff has organized feedback and direction received into three policy topics (Development Standards, Project Noticing Requirements and Community Resources). The following sections outline 1) the direction provided by the Committee; 2) the current Code requirements pertaining to that topic; 3) community feedback received; and 4) policy options for consideration and Commission direction.
DEVELOPMENT STANDARDS
1. Committee Direction
a. Examine and obtain feedback on changes to development standards including:
i. Additional sensitive receptor protections
ii. Maximum building sizes
iii. Maximum number of buildings
iv. Setback requirements
2. Current Code & Community Feedback
Development
Standard Current Code Requirement Community Feedback
Sensitive
Receptor
Protections
2020 Good Neighbor Guidelines
(GNG-2020): Provides guidelines to
protect schools, parks,
playgrounds, day care centers,
nursing homes, hospitals, and other
public places.
Title 19 (Zoning Code): Establishes
building size and height limits,
permit requirements and other
protections based on proximity to
residential zones and uses only.
A number of comments favored
expanding sensitive re ceptor protections
to a wider variety of land uses (i.e.,
churches, parks, schools). Some
comments expressed a desire to increase
distances at which stricter requirements
apply. Others shared that the GNG-2020
adequately protects sensitive receptors.
There may be unintended consequences
of expanding protections to other land
uses.
Maximum
Building Size
Title 19 (Zoning Code): Establishes
tiered maximum building sizes
based on distance to residential
zone or use:
a) 200 feet – 10,000 sq.ft.
b) 200 – 800 feet – 100,000 sq.
ft.
c) Outside 800 feet – No limit
(must meet floor area ratio
[F.A.R.] standards)
Some expressed concern that building
size limits are ineffective if multiple smaller
buildings can be developed on a single
lot. Some suggested setting a maximum
building size prohibiting the construction
of warehouses larger than 200k sq. ft.
Others felt that the City should limit the
number of buildings on a given lot or
establish a cumulative limit on floor space
within a given proximity to sensitive uses.
Other comments reiterated that the 2020
GNG and corresponding Title 19
regulations are already the most robust in
the region, and that polices should be
flexible to account for site-specific
conditions.
Maximum
Number of
Buildings
No current regulation limiting
maximum number of buildings.
Projects must meet underlying
F.A.R. and building size
requirements.
June 22, 2023
Development
Standard Current Code Requirement Community Feedback
Setback &
Design
Requirements
Title 19 (Zoning Code): Rear and
side yard setbacks apply when
adjacent to residential zone/parcel
(60 feet) & require 15 feet of
landscape setback. Title 19 does
not provide any design
requirements; projects are
evaluated for consistency with
Citywide Design Guidelines through
Design Review process.
Some comments indicated a desire for
enhanced landscape buffers including
earthen berms and tree planting to
create a gradient effect camouflaging
industrial buildings to the greatest extent
possible. Color palettes that blend in with
natural environment and to scale the
buildings were suggested. Others shared
that specific design regulations (as
opposed to guidelines) are uncommon
and would may be too prescriptive
limiting the overall layout of the project.
3. Potential Policy Changes
a. Sensitive Receptor Protections:
i. No change:
1) Maintain existing regulations.
ii. Moderate change:
1) Existing tiered sensitive receptor protections (building size, height limits) can be extended to an increased radius from residential areas by a distance determined by the Commission.
iii. Substantial change:
1) Additional land uses (schools, parks, community centers, etc.) can be incorporated into the sensitive recept or protections, independently or in combination with extending radius where tiered limitations apply. b. Maximum Building Size & Number of Buildings:
i. No change:
1) Maintain existing regulations.
ii. Moderate change:
1) Maintain existing maximum building size limitations but establish a tiered Floor Area Ratio (F.A.R) that increases with distance from residential zones or sensitive receptors and/or decreases with increasing lot size. iii. Substantial change:
1) Create a new maximum building size fo r buildings beyond 800 feet from sensitive receptors and establish a cumulative floor area limit at a value determined by the Commission. Additionally, apply tiered F.A.R contingent on lot size.
c. Setback & Design Requirements:
i. No change:
1) Maintain existing regulations.
ii. Moderate change:
1) Maintain setback requirements bu t increase landscaped buffer requirements.
iii. Substantial change:
1) Create specific design standards for indu strial buildings (architectural treatment, color palettes, etc.) and increase landscaped setbacks requirements.
June 22, 2023
PROJECT NOTICING REQUIREMENTS
1. Committee Direction
a. Examine and obtain feedback on potential changes to project noticing requirements to increase public awareness and feedback on industrial development proposals.
2. Current Code & Community Feedback
Development
Standard Current Code Requirement Community Feedback
Project
Notification
Requirement
Title 19 (Zoning Code): For projects that
require a Minor Conditional Use Permit
or Variance but not a Public Hearing,
mailed postcards are required to be
sent to property owners within 300 feet
radius of site.
For projects that require a Public
Hearing before the Planning
Commission or City Council, mailed
postcards & notice published in one
newspaper 10 days prior to public
hearing.
Participants commented that the
notification radius should be
expanded beyond 300 feet and
should include tenants as well as
property owners. Additionally, a
centralized location for project
notification and information was
suggested. Some stated that
publicizing project information
online would be helpful and that
posting physical notices on project
sites could help.1
1Staff are developing a web-based development activity map that will be made available to the public in 2024.
3. Potential Policy Changes
a. Project notification requirement:
i. No change:
1. Maintain existing regulations.
ii. Moderate change:
1. Increase notification radius for mailed postcards at a distance determined by the Planning Commission.
iii. Substantial change:
1. Increase notification radius for mailed postcards; require that tenants also be notified in addition to property owners; require that a physical placard be posted on the project site.
June 22, 2023
COMMUNITY RESOURCES
1. Committee Direction
a. Examine and obtain feedback on a pote ntial community benefits framework for industrial projects, sustainability practices and related topics.
2. Current Code & Community Feedback
Development
Standard Current Code Requirement Potential Policy Changes Community
Benefit
Requirements
No current framework for community
benefits or requirement for community
meetings in the Riverside Municipal
Code.
Some commenters suggested
increased fees for warehouse
projects, or a special tax on
logistics businesses or properties.
Local hire requirements were also
suggested. Several commenters
recommended direct funding
road and park improvements.
Other commenters referenced the
comprehensive nature of existing
development/impact fee
programs. Flexibility in community
benefit efforts was identified as
important.
Sustainability
Practices
No current requirement for sustainable
design practices exists in the Riverside
Municipal Code beyond compliance
with Building Code standards for energy
efficiency and, when applicable,
mitigation measures for CEQA purposes.
There was general support for
sustainable construction practices
and project design including
clean energy requirements such
as solar-ready roofs or
photovoltaic requirements to
power the facility. Tree
replacement requirements were
also mentioned.
3. Potential Policy Changes
a. Community benefits:
i. No change:
1) Maintain existing regulations.
ii. Moderate change:
1) Provide guidelines or establish re quirement for conducting community meetings for industrial projects.
iii. Substantial change:
1) Study need for specific Development Impact Fees (DIFs) for industrial development projects; create guidelines or establish requirement for community meetings; explore establishing local hire requirements. b. Sustainability practices:
i. No change:
1) Maintain existing regulations.
ii. Moderate change:
June 22, 2023
1) Develop enhanced energy efficiency requirements for new industrial construction projects (equipment, materials, etc.).
iii. Substantial change:
1) Develop enhanced energy efficiency requirements for new industrial construction and facilities operatio n (vehicles, machinery, building electrification, net-zero facilities, etc.).
STRATEGIC PLAN ALIGNMENT
The Industrial Development Standards workshop aligns with Strategic Priority 3 – Economic Opportunity, Goal 3.1 – Facilitate partnerships an d programs to develop, attract and retain innovative business sectors; Strategic Priority 4 – Environmental Stewardship , Goal
4.4 - Implement measures and educate the community to responsibly manage goods, products, and services throughout their life cycle to achieve waste reduction outcomes; and Strategic Priority No. 5 – High Performing Government , Goal 5.3 Enhance communication and collaboration with community members to improve transparency, build public trust, and encourage shared decision-making.
In addition, the project aligns with the five Cross-Cutting Threads as follows:
1. Community Trust – The workshop is presented at an open public meeting and contains transparent information on City processes and regulations.
2. Equity – The workshop allows residents to understand the policy direction from the Land Use Committee and seeks to address residents’ quality of life concerns.
3. Fiscal Responsibility – The workshop will not have any fiscal impact to the City.
4. Innovation – The workshop is seeking policy direction that will innovate how the City addresses future industrial facilities.
5. Sustainability & Resiliency – The workshop seeks to minimize the environmental impacts of future industrial facilities.
EXHIBITS LIST
1. Final Proposed Policy Matrix – March 13, 2023 Land Use Committee Meeting
2. Committee Reports in Reverse Chronological Order
3. Summary of Stakeholder Comments
4. Vacant Site & Sensitive Receptor Map
5. Presentation
Prepared by: Daniel Palafox, Assistant Planner
Reviewed by: Matthew Taylor, Principal Planner
Approved by: Maribeth Tinio, City Planner