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HomeMy WebLinkAboutPlanning Comm Rpts./1995/11/15 (5) PLANNING COMMISSION AGENDA STATEMENT Item .1 Meeting Date: November 15. 1995 ITEM TITLE: Public Hearing: PCM 95-01; Consideration of approving the Otay Ranch Sectional Planning Area (SPA) One Plan including the Planned Community District Regulations, Overall Design Plan, Village Design Plan, Public Facilities Finance Plan, Parks, Recreation, Open Space and Trails Plan, Regional Facilities Report, Phase 2 Resource Management Plan, Non-renewable Energy Conservation Plan, Ranch-wide Affordable Housing Plan, SPA One Affordable Housing Plan, and Geotechnical Report The Baldwin Company has submitted the first Otay Ranch Sectional Planning Area (SP A) Plan governing Villages One and Five. SPA One covers 1,061.2 acres generally located south of Telegraph Canyon Road between Paseo Ranchero and the future SR-125 alignment The Otay Ranch SPA One application is the first SP Alspecific plan submitted to implement the Otay Ranch General Development Plan/Subregional Plan (GDP/SRP) jointly approved by the City and the County of San Diego in October of 1993. ISSUES: The following are unresolved policy and design issues between the project applicant and City staff: . Should pedestrian parks receive 100% park credit? . Should the Village One neighborhood park P-2 be located north of Palomar Street? . When should construction of the first community park begin? . Should there be additional internal access north of Palomar Street in Village One? . Should the third access into Village One from Telegraph Canyon Road be closed when access to East Orange Avenue is available? RECOMMENDATION: That the Planning Commission conduct the Public Hearing on the proposed Otay Ranch SPA One Plan (PCM 95-01); and Continue the hearing on the Otay Ranch SPA One Plan including the Planned Community District Regulations, Overall Design Plan, Village Design Plan, Parks, Recreation, Open pcsrspa,doc 11-10-95 Page 2, Item .1 Meeting Date: 11/15/95 Space and Trails Plan, Regional Facilities Report, Public Facilities Finance Plan, Phase 2 Resource Management Plan, Non-renewable Energy Conservation Plan, Ranch-wide Affordable Housing Plan, SPA One Affordable Housing Plan, and Geotechnical Report to November 17 and 29, 1995;and Direct staff to prepare a resolution of approval recommending the City Council adopt the Otay Ranch SPA One Plan (PCM 95-01) with the proposed conditions of approvaL BOARDS/COMMISSIONS RECOMMENDATION: Commission on Aging: On October 11, 1995, the Commission on Aging met to consider the Regional Facilities Report concerning senior citizen services in SPA One. The Commission tabled the report and asked for additional information from Parks and Recreation staff regarding fire, police, transit and park services and facilities. Design Review Committee: On October 23, 1995, the Design Review Committee voted unanimously to recommend approval of the Overall Design Plan for the Otay Ranch and conceptual approval of the Village Design Plan for SPA One, Villages One and Five of the Otay Ranch. Housing Advisory Committee: On October 30, 1995, the Housing Advisory Committee voted unanimously to recommend the adoption of the Ranch-wide and SPA One Affordable Housing Plans be deferred until adoption of the first tentative map for the project to enable the City and the applicant adequate time to satisfactorily revise the documents to address staff concerns. However, major modifications have been made to the plans to City staff satisfaction and the Housing Advisory Commission is scheduled to review the revised plans and make a recommendation to the City Council at the Commission's November 22, 1995 meeting. Parks and Recreation Commission: The Parks and Recreation Commission reviewed the SPA One Parks Master Plan in August of 1994 and in January, March and April of 1995. On October 26, 1995, the Commission voted 5 to 2 to recommend approval of the SPA One Plan for Villages One and Five with the pedestrian parks to receive partial credit to be determined by staff only if the pedestrian parks are maintained under separate agreement (homeowners association or landscape/open space maintenance district). DISCUSSION: 1. Site Characteristics: SPA One is located in the Otay Valley Parcel of the Otay Ranch on 1,061 acres south of Telegraph Canyon Road/Otay Lakes Road. SPA One includes all of Village Five and the portion of Village One east of Paseo Ranchero. Historically, this portion of the Otay Ranch has been used for ranching, dry-farming, and truck farm activities. The site is currently vacant, unoccupied and unimproved The rolling hilIs of VilIages One and Five PCSRSPA.DOC 11,10,95 Page 3. Item.1 Meeting Date: 11115/95 are adjacent to Telegraph Canyon to the north and Poggi Canyon on the south. The Otay Water District property is located on the east side of Village Five, and the future Sunbow project is located to the west of Village One. 2. Zonin!! and Land Use: Villages One and Five, along with the entire Otay Ranch properties, were prezoned Planned Community (PC) as part of the General Development Plan (GDP) process. The PC zone implements the GDP by requiring the preparation of a sectional planning area (SPA) plan. The SPA plan provides for the orderly planning and development of large tracts ofland with a variety ofland uses. The Otay Ranch GDP requires the implementing of SP As to focus on the pedestrian oriented village concept SPA One accomplishes that goal. The Otay Ranch GDP and the PC Zone also require additional master plans and studies to be completed in conjunction with the first SPA. Those include Planned Community District Regulations, Overall Design Plan, Village Design Plan, Public Facilities Finance Plan, Parks, Recreation, Open Space and Trails Plan, Regional Facilities Report, Phase 2 Resource Management Plan, Non-renewable Energy Conservation Plan, Ranch-wide Affordable Housing Plan, SPA One Affordable Housing Plan, and Geotechnical Report These plans and reports are outlined in the Document Organization Flow Chart, Exhibit I- I, of the SPA One Plan and summarized in the Project Proposal section of this agenda statement Since this is the first SPA application in the Otay Ranch, the GDP requires the preparation of several additional Ranch-wide plans including the Overall Design Plan (ODP), Ranch- wide Affordable Housing Plan and Phase 2 Resource Management Plan (RMP). The GDP further requires concurrent approval of the ODP and Phase 2 RMP including the Funding and Conveyance Plans by the County of San Diego and the City of Chula Vista prior to the adoption of the first SPA. County staff is currently processing these plans for the County Planning Commission November 17, 1995 meeting and the Board of Supervisors December 13, 1995 meeting, 3. Proposal: SPA One Plan Alternative B-2 The B-2 Alternative is the land plan proposed by the applicant and recommended by City staff with modifications. This plan is a revision of Alternative B in the SPA One Environmental Impact Report (EIR) , The revisions were prepared to respond to staff concerns over the original submittal. Except for the location of Park P-2 in Village One, staff is satisfied the proposed B-2 Alternative meets the goals, objectives and policies of the Otay Ranch GDP with the resolution of the policy issues and adoption of the proposed conditions of approval. PCSRSPADOC 11-10-95 Page 4, Item J. Meeting Date: 11115/95 The plan proposes access points to Villages One and Five off Telegraph Canyon Road. These access points are proposed to enable the applicant to start construction of single- family homes in the villages without the major infrastructure improvement costs associated with constructing La Media. Second phases will provide access from Paseo Ranchero and La Media. The B-2 Alternative also proposes pedestrian parks located in the single-family neighborhoods. The applicant sees these parks as one of the key components of the pedestrian-oriented village concept. Both villages implement the GDP village concept policy by planning the villages around urbanized cores that contain future transit stations at the center of the village. Elementary school sites are planned for each village just off the core along with large neighborhood parks. Telegraph Canyon Road and East Orange Avenue are Prime Arterial streets in scenic corridors that border SPA One on the north and south, The Prime Arterials providing north/south access are Paseo Ranchero and La Media (the extension of Otay Lakes Road south into the project), These roads provide sidewalks on one side and regional trails on the other. Palomar Street is planned as a Village Entry and Core street and it is proposed that the transit right-of-way run in the street median. Placing the transit in the median eliminates the need for gates on the village streets under current Public Utilities Commission and Metropolitan Transit Development Board (MTDB) design criteria. The transit alignment is designated on the SPA land use plan, and its dedication will be a condition of tentative map approvaL However, transit alignment west and south of SPA One still needs to be determined and construction funding identified for extending the transit to Villages One and Five. The Village Core streets also have a 10-foot electric cart path in addition to a 5-foot sidewalk on one side of the street. The Promenade streets provide the main pedestrian access to the village core. These streets have a 6-foot wide sidewalk with an 8-foot parkway with trees on both sides of the sidewalk. This design promotes a better pedestrian walking environment than City-standard monolithic sidewalks by providing a shaded walkway separated from the street. The Promenade streets run ITom the residential areas to the village core. Residential streets are proposed to have 6-foot parkways with street trees and 4-foot sidewalks to enhance the pedestrian experience. A specific list of street trees using root barriers has been developed to avoid root damage to sidewalks. While cart paths are part of the village design in the paseos, promenade and village core streets, no provision is proposed by the project applicant to make electric carts available as part of the home sale. The City's Environmental Resource Manager has identified funding sources that could assist in acquisition by residents of electric carts in the future. Staff believes the carts will be utilized when the village core or other destinations are built. PCSRSP A DOC 11.10,95 Page 5, Item J. Meeting Date: 11/l5/95 The pedeslrian bridge between Villages One and Five has been included in the Public Facilities Finance Plan and required by the conditions of approval Its construction will be phased with other improvements between the two villages. The future bridges to Village Two and Six are proposed to be financed by the facilities portion of the open space maintenance district Village One Village One comprises 585 acres located in the northwestern portion of the Otay Valley Parcel Village One is an urban village with transit and pedestrian orientation The land use pattern emphasizes balanced yet diverse land uses, environmentally sensitive development, transit and pedestrian orientation, and creating a "sense of place" for the Village One residents, The village core is centrally located and includes 1,566 multi- family residential units, an elementary school site, two neighborhood parks, commercial and Community Purpose Facility (CPF) sites and the light rail transit right-of-way The Village One core is based on a traditional "main street" theme. The main street concept is implemented with commercial, office and public/quasi-public uses along a pedestrian friendly, tree lined main street The secondary area of Village One contains 1,314 single- family homes with a range oflot sizes and two pedestrian parks Village Five Village Five is comprised of 476 acres located south of Otay Lakes Road between La Media and the future alignment of SR-125. Village Five is an urban village to be served by the light rail transit The land use pattern emphasizes balanced yet diverse land uses, environmentally sensitive development, and transit and pedestrian orientation creating a "sense of place" for the Village Five residents. The village core is located in the southwestern portion of the village and includes 1,615 multi-family units, an elementary school site, two neighborhood parks, a town square, commercial and CPF sites and light rail transit right-of-way. The Village Five core identity is based on a traditional town square design. Commercial buildings, multi-family units, community purpose facilities and a larger neighborhood park are planned around the town square park. The transit station for the light rail has also been planned at the town square, The Village Five secondary area contains 1,263 single-family units in a variety of densities. Planned Community District Regulations Part III of the SPA One Plan contains the Planned Community (PC) Regulations. These regulations will be adopted pursuant to Title 19, Zoning, of the Chula Vista Municipal Code and are intended to implement and integrate the Chula Vista General Plan, the Otay Ranch GDP and the SPA One Plan These regulations set forth the development and use standards for all property within the Otay Ranch Planned Community District for setbacks, building heights, parking requirements, landscape requirements, land use restrictions, lot sizes and signage regulations. The PC District Regulations are organized into three different land use districts: Residential, Village Core, Open Space and Parks, PCSRSPADOC 11,10,95 Page 6, Item .1 Meeting Date: 11115/95 Each of the three land use districts are divided into specific land use categories as follows: Residential: Single-Family Three (SF-3) Single-Family Four (SF-4) Residential Multi-Family One (RM I) Residential Multi-Family Two (RM 2) 5,000-8,000 square foot lots 3,000-5,000 square foot lots Small lot single-family detached housing Attached multi-family housing It is the intent of the residential regulations to provide one set of residential regulations for the entire Otay Ranch. The SF-4 designation is proposed for small lot single-family home projects such as auto court or alley products. The SF-3 designation will allow standard single-family projects The rural villages that have lower density single-family GDP designations will have the SF-E, SF-I and SF-2 districts designations. These designations are not part of this SPA One Plan, The Village Core Districts contain the Commercial (C) and Community Purpose Facility (CPF) designations, and the Open Space/Park District contains the Open Space/Park One and Two designations, Additional sections in the PC District Regulations cover special and conditional uses, comprehensive sign regulations, off street parking and administration of these districts, The project applicant is concerned with the Community Purposes Facility requirements for SPA One. The concern focuses on the amount ofland required and the limited land uses allowed in the designation, The Zoning Ordinance allows additional uses in the SPA CPF designation upon the approval of the Planning Commission. The applicant has recently proposed additional uses in the SPA One CPF designation which staff will continue to review and bring forward to the Planning Commission at a later time. Additional SPA One Documents The SPA One Plan is organized as outlined in the Document Organization Flow Chart, Exhibit I-I, of the SPA One Plan and summarized in this section of the agenda statement A. Overall Design Plan The Overall Design Plan (ODP) identifies the major design features that will tie the 23,000-acre Otay Ranch Project together. The goal of the Plan is to identify the features that will be present in all three major parcels to let people know they are within the Otay Ranch. The ODP is required by the Otay Ranch GDP and is one of the plans that requires both City and County approval: The San Diego County Planning Commission reviewed and recommended approval of the ODP at their May 26, 1995 meeting. The Board of Supervisors is scheduled to consider the ODP on December 13, 1995 prior to the City PCSRSPADOC 11-10.95 Page 7, Item J. Meeting Date: 11115/95 Council meeting of December 19, 1995, The ODP identifies nine unifying elements that tie the three major parcels together. Those elements are: Riparian Meander, Mountain Landforms, Dominant Skyline Landscape Treatment, Major Streetscapes, Landscape Palette, Sign age, Furnishings, Linkages and Pedestrian Design The ODP design elements will be applied and implemented in two ways: through open space, streetscape and landscape zones and by identifying elements, linkages and destinations. These elements further define functional outdoor spaces, enhance natural features and create a cohesive sense of community. Each feature is fully explained with text and exhibits Special design criteria are also provided for grading and viewshed development. B. Village Design Plall The Village Design Plan (VDP) is required by the Otay Ranch GDP for each village at the SP A level of planning. Villages are the heart of the Otay Ranch communities, and the GDP requires special attention to such design considerations as overall character, creation of a sense of place and pedestrian/transit orientation of the village core, Village-specific design guidelines are required to address the following landscaping and streetscapes, signage, site plan, grading and architectural guidelines, special visual studies and the village core concept. The SPA One VDP is divided into three main sections, Part One establishes the overall framework for future village design plans and addresses overall design guidelines and administrative procedures which will apply to this and each of the subsequent Otay Ranch villages, Part One also provides a description of the "village concept", addresses the required design elements of the Overall Design Plan and presents guidelines for the pedestrian/transit orientation of the villages. Part Two and Three address the specific design guidelines for Villages One and Five, respectively. When the Design Review Committee (DRC) reviewed this plan, the graphics had not been updated to reflect the B-2 Alternative, so they recommended approval of the plan in concept. No additional review of the plan by DRC is necessary since the B-2 Alternative was presented during their revIew. C. Public Facilities Financing Plan The Otay Ranch GDP and the City's Growth Management Program require the preparation of a Public Facilities Finance Plan (PFFP) in conjunction with each SPA Plan for the Otay Ranch, The PFFP is required to ensure that the phased development of the villages is consistent with the GDP and General Plan Quality of Life Threshold Standards. The PFFP is based on the phasing of Alternative B-2. This phasing is done to assist in the prediction of when additional or upgraded facilities will be needed to meet or maintain PCSRSP A.DOC 11,10-95 Page 8, Item .1 Meeting Date: 11115/95 compliance with the City's Quality of Life Threshold Standards. The PFFP provides recommended mitigation necessary for the continued compliance with the Growth Management Program and Quality of Life Threshold Standards. Willdan Associates was selected to prepare the PFFP for SPA One, Public facility master plans for all utilities have been prepared for the SPA One Plan and were used as the basis for the PFFP, Those plans reflect Alternative B-2 and indicate that acceptable levels of service and threshold standards can be maintained if the recommended conditions are implemented. As indicated in the Document Organization Flow Chart, those facilities include: Sub Area Master Plan (SPA water plan prepared for Otay Water District) Water Conservation Plan Overview of Sewer Service for SPA One Master Drainage Plan Fiscal Impact Analysis The SPA One PFFP will be presented at the November 17, 1995 Planning Commission meeting, An additional agenda statement analyzing the PFFP will accompany the Plan, D. Parks, Recreation, Open Space and Trails Plan The Otay Ranch GDP requires the preparation of a Parks Master Plan for each SPA. The SPA One Parks, Recreation, Open Space and Trails Master Plan is the project applicant's proposal to satisfy the GDP requirements. The Plan presents the Otay Ranch Park System with its recreation facility requirements including plans for open space, trails and community gardens in SPA One. Phasing, funding and maintenance are also part of the Plan, This Plan satisfies the GDP requirement for a recreation access master plan. The Plan's proposals are different from the standard City parks and open space requirements. SPA One's local park obligation at 3 acres per 1,000 population is 49.7 acres The applicant has proposed that 2/3 of this obligation be satisfied by neighborhood parks within SPA One, and the remaining 1/3 obligation would be satisfied by the future community park in Village Two unless the location is change by subsequent GDP amendments. Based on a household population of2.88, SPA One requires 33.2 acres of neighborhood park, SPA One proposes 41.7 acres of parks with 34.2 acres of neighborhood park and 7.5 acres pedestrian parks. This acreage exceeds the standard by 8,5 acres, If 50% credit is allowed for the pedestrian parks, 37,9 acres will satisfy the neighborhood park standard with the balance of 10.0 being allocated to the community park. The SPA One Parks Master Plan is based on Alternative B. The B-2 Alternative is a refinement of the B Alternative. Staff supports and recommends approval of the Village Five land use plan as indicated in the B-2 Alternative but has conditioned the Village One plan to modify the location of a neighborhood park and pedestrian park. The conditions PCSRSPADOC 11,10-95 Page 9. Item .1 Meeting Date: 11115/95 require the relocation of Park P-2 north of Palomar Street to the westerly end of Neighborhood R-9 and the Pedestrian Park P-3 to be relocated adjacent to Neighborhood R-14, The Parks and Recreation Commission has recommended the B-2 Alternative park plan as proposed by the project applicant with conditions on maintenance and credit. They recommended maintenance for the pedestrian parks not be funded by the General Fund but by an open space maintenance district or homeowner's association. They recommended credit for the pedestrian parks be determined by City staff Staff recommends that pedestrian park credit range from 25% to 50% depending on compliance with small park criteria that will be developed by City staff The Parks Master Plan will be revised to reflect the plan adopted by the City Council. Open space areas and street parkways and medians will be maintained by an open space and landscaping assessment district. Conditions are proposed by staff requiring the project applicant to study the feasibility of forming a master open space maintenance district for the entire Otay Valley parcel. Future SPAs will annex to this district as development occurs. E. Regional Facilities Report The Otay Ranch General Development Plan/Subregional Plan (GDP/SRP) requires that SP A applications be accompanied by a Regional Facility Report. This report identifies the forecasted demand for regional facilities generated by development of the SPA One Plan and addresses how that demand will be satisfied. The regional facilities considered in this report, as required by the GDP, are Integrated Solid Waste Management, Arts and Cultural Facilities, Child Care Facilities, Health and Medical Services and Facilities, Hospitals, Mental Health Facilities, Community Clinics, Nursing Facilities, Community Health, Education, Screening and Research Organizations, Medical Practitioners, Community and Regional Purpose Facilities, Social and Senior Services, Correctional Facilities, Justice Facilities and Cemetery Facilities. F. Phase 2 Resource Management Plan The Resource Management Plan (RMP) is a comprehensive plan for the preservation, enhancement and management of sensitive natural and cultural resources within the Otay Ranch. The tasks required to implement the RMP are collectively called Phase 2. Phase 2 is comprised of the resource related studies, plans and programs that are required prior to the approval of the first SPA. A Habitat Maintenance Assessment District is proposed to maintain the Otay Ranch Open Space Preserve as identified in the Phase 2 RMP, This district is proposed to maintain all of the 11,3 7 5 acres in the preserve and will be funded by the residences of the Otay Ranch, This district is limited to charging $25 per year per parcel by State law with adjustments for inflation, The GDP does not require the developer or land owner to PCSRSP ADOC 11,10,95 Page 10, Item .1 Meeting Date: 11/15/95 provide for recreation, education or research funding These functions are the City's responsibility under the proposed joint powers agreement between the City and the County of San Diego for establishing the Preserve/Owner Manager. Future City funds will have to be identified and budgeted for these functions to occur within the Otay Ranch Open Space Preserve. The other functions of operation and maintenance of the open space preserve will be performed by the County supported by the $25 per parcel habitat district. Also, in the area of education, even though there is a requirement that the developer will identifY the location and study funding source for a Nature Center, there is no requirement that they fund its construction. This probably means such a center will not be built unless other funds are found. G. Non-Renewable Energy Conservation Plan The Otay Ranch GDP requires the preparation of a Non-renewable Energy Conservation Plan for each SPA to address energy conservation within each village of the project. This Plan identifies measures to reduce the consumption of non-renewable energy resources by feasible methods in areas of transportation, building construction and operation, and land use patterns Residential measures focus on housing efficiency with attached and smaller detached single-family homes which use less energy. Pedestrian-oriented villages, with public transit facilities in their core areas and integrated urban villages with commercial and residential services, will also reduce energy consumption. The compact design and integrated street/path circulation systems will encourage pedestrian/walking trips to the core. In addition, the extension of the San Diego light rail transit system through Otay Ranch and provision of electric cart pathways when utilized will lead to a reduction in automobile trips. H. Ranch-wide Affordable Housing Plan The Otay Ranch General Development Plan/Subregional Plan (GDP/SRP) requires an Affordable Housing Plan (ARP) for the entire Otay Ranch Project area as well as an AHP for each village within the Otay Ranch. The GDP/SRP requires the Ranch-wide AHP be consistent with the Housing Elements of both the City and the County for those portions of Otay Ranch which lie within the boundary of either jurisdiction. As a result of the first phase being proposed in the City of Chula Vista, this AHP details how, at both Ranch- wide and SPA levels, Otay Ranch will satisfY the affordable housing requirements of the City housing Element and GDP/SRP, Under the current City of Chula Vista Housing Element, the Otay Ranch is required to provide 10% of the total units be affordable. At least 5% of these units should be for low income households and 5% should accommodate moderate income households. Staff has proposed tiering requirements for the Ranch-wide Plan indicating the level of detail and standards for each Plan and subdivision map, PCSRSPADOC 11-10-95 Page 11, Item .1 Meeting Date: 11!l5/95 I. SPA One Affordable Housing Plan The SPA One AHP addresses the phasing and potential location of affordable housing units to be provided in SPA One, including the area west of Pas eo Ranchero. SPA One is projected to contain 6,20 I dwelling units at buildout, and the affordable housing obligation associated with this construction is 310 low income units and 310 moderate income units Through a prior agreement with The Baldwin Company on Telegraph Canyon Estates project, the City Council required a 3-acre site within Village Five of the Otay Ranch to satisfY that project's affordable housing obligation. The applicant is proposing to satisfY the Telegraph Canyon Estates obligation by providing an additional 34 affordable units in SPA One. The existing agreement for the Telegraph Canyon Estates requirement will need to be amended by the City Council in order to implement the applicant's proposal. No action is necessary at this time in relationship to SPA One, The AHP provides five potential sites for low income affordable housing within SPA One. The governing site selection principles include density, proximity to parks and schools, and proximity to transit and retail and other services A phasing approach is proposed within the proposed SPA One AHP, which encourages the provision of both low and moderate income units in sequence with the proposed development phases in SPA One. J. Geotechnical Report The GDP required a site-specific geotechnical study at the tentative map level, based on proposed development plans, prior to construction, In this case, the geotechnical studies will be used at the SPA One level. The Geotechnical Report found no faults or geological hazards that can not be mitigated to a level ofless than significant within SPA One. 4. Analvsis The B-2 Alternative implements the Otay Ranch GDP policies for urban villages. City staff has worked closely with the Metropolitan Transit Development Board and the Chula Vista Elementary and Sweetwater High School Districts in designing these two villages. The plans for Village One and Five are comprehensive, well-integrated and balanced. A wide range of residential densities provide a variety of housing opportunities within each village. Alternative modes of transportation are promoted with pedestrian, bicycle and cart facilities and the future light rail transit. The village cores have been planned to give a sense of place to the villages by focusing on the main street and town square commercial location surrounded by recreational, educational and civic uses The proposed project phasing begins construction of both villages concurrently, Phases IA will initiate construction in Village Five while Phase IB will open Village One. Both PCSRSPADOC 11-10-95 Page 12, Item .1 Meeting Date: 11l15/95 of these phases are single-family except for one multi-family site in Village One. The first elementary school site is proposed for Village One in Phase IB while the initial large neighborhood park will be in Phase 2A in Village Five. Pedestrian parks are proposed in Phases IA and 18. This phasing will allow an initial deficit in the large neighborhood parks The project applicant has proposed and staff has concurred with the deficit up to 500 units after which the provision of neighborhood parks will remain in surplus. Initial Phases IA and IB will require off-site Telegraph Canyon Road improvements. According to the traffic study at 10,295 trips, a 1,400 unit threshold requiring additional off-site road improvements will be reached during the construction of Phase 28. At this point in the project development, either Palomar Street or East Orange Avenue needs to be constructed from the western SPA boundary to 1-805, This phase of development will also require the identification of the high school site as required by the high school district Staff proposes that at the I, 150th building permit, a project review be initiated by the project applicant and reviewed by the City to determine: . Which arterial street is extended to 1-805 . Where the high school site will be located . Where the community park will be located . Which village should be encouraged to be completed before additional development is allowed in the other village . How can development of the village core be accelerated. . How will the affordable housing requirement be met The project review requirement has been included as a condition of approval. 5. Issues: Several policy and design issues remain unresolved between the project applicant and City staff. These issues mainly relate to the provision of public facilities and phasing of SPA requirements, Pedestrian park credit Issue: Should SPA One receive 100% park land dedication credit for the 7.5 acres of pedestrian parks proposed in Alternative B- 27 The project applicant has proposed pedestrian parks in each village ranging in size from pedestrian parks of ,6 acres to 2.1 acres. They believe that all of these parks should receive full park credit because the parks satisi)' recreation needs of SPA One residents, and they implement the pedestrian friendly goals of the GDP. Other master-planned communities within the City have received 50% parkland credit for private parks within their communities. Staff believes the pedestrian parks satisi)' part of PCSRSPADOC 11,10,95 Page 13. Item.1 Meeting Date: 11/15/95 the recreation needs of the residents but should not receive full credit. The Park and Recreation Commission agrees and recommended that the credit amount be determined by staff Recommendation: All parks less than 5 acres in size are eligible to receive park fee credit. Park fee credit will range from a minimum of 25% to a maximum of 50% based on small park criteria that includes park size, location and facilities. These parks should not be maintained by the General Fund but by a homeowner's association or maintenance district. Neighborhood Park Location Issue: Should the Village One Neighborhood Park P-2 be located north of Palomar Street? Staff believes that additional parkland is needed north of Palomar Street in Village One, The majority of homes are located north of Palomar Street on the east end of this village and should be provided with better access to parks. The 2,1 acre pedestrian park should replace the neighborhood park south of Palomar Street adjacent to Neighborhood R-14, Recommendation: Move the 7 -acre Park P-2 north of Palomar Street to the westerly end of Neighborhood R-9, and relocate the 2-acre Pedestrian Park P-3 south of Palomar Street adjacent to Neighborhood R-14. Community park construction Issue: When should construction of the first community park begin? The project applicant has proposed that the identification and construction of the community park be coordinated with the high school site during the project review at the 1,400th building permit. These facilities will be located outside the boundaries of SPA One. They propose the SPA One required community park grading, construction, maintenance period and park opening be phased later in the project but over a shorter period of time. The building permit threshold phasing for community park phasing is as follows: Baldwin City Park Grading 4,100 2,650 Park Construction 4,500 3,000 Maintenance Period 4,900 3,400 Park Opening 5,300 3,900 Recommendation: Require the identification of the 25-acre community park at 1, 150th building permit project review with park improvements to satisfY SPA One requirements initiated at 2,650th building permit. Second phase improvements are to be initiated prior PCSRSPADOC 1[.10,95 Page 14. ltem.1 Meeting Date: 11115/95 to 3,OOOth permit. The City has the option to utilize Park Acquisition and Development fees to construct the community park or other parks east ofI-80S. The affordable housing requirement for the Telegraph Canyon Estates project (St. Claire) was for 17 low and 17 moderate units, The project was conditioned by the City Council to provide a 3-acre site for affordable housing in the first phase of the Otay Ranch developed in the City. The Baldwin Company entered into an agreement with the City to provide that site with the development of Village Five. The project applicant is now proposing the provision of 17 low and 17 moderate units in Village Five as part of the affordable housing plan for SPA One instead of conveying the 3-acre site. This modification would require a modification to the Telegraph Canyon Estates housing agreement. Village One Internal Circulation Issue: Should there be additional internal street access to the northern half of Village One? The B-2 Alternative plan for Village One provides just three connections to the northern half of Village One off Palomar Street. Two are at the large centrally located neighborhood park at the village core and the other is at the eastern end of Village One. City staff does not believe these streets provide sufficient access to the northern half of Village One. Recommendation: Condition the SPA One Plan to have two additional access points on Palomar Street at the western end between Neighborhood Areas R-2 and R-20 and in the middle of the project between R-8 and R-9. Access to Village One Issue: Should there be a temporary or permanent connection to Telegraph Canyon Road from Village One? If the Telegraph Canyon Road access is temporary, should additional access be provided from East Orange Avenue? The project applicant has proposed that the initial access to Village One come from Telegraph Canyon Road as indicated in Alternative B-2, Future access will be provided by Palomar Street from Paseo Ranchero to La Media. While the future access to Village One from La Media and Paseo Ranchero will adequately handle traffic capacity, City staff has public safety concerns over this amount of development with just two access points for emergency vehicles. Staff believes a third access point to Village One is necessary for public safety and recommends that the B-2 alternative provide a permanent access to Orange Avenue. The road will align with the future access to Village Two. This change in access points recognizes the access on Telegraph Canyon Road as temporary and will eliminate the need for a traffic intersection and signal on Telegraph Canyon Road when the southerly access could be provided to East Orange Avenue. PCSRSPADOC 11,10.95 Page 15, Item .1 Meeting Date: 11/15/95 Recommendation Access to Telegraph Canyon Road should be temporary and a third access point into Village One from East Orange Avenue should be provided for public safety reasons This access is depicted in Alternative A in the ElR The project has been conditioned to provided temporary access to Telegraph Canyon Road and permanent access from East Orange Avenue when the Telegraph Canyon Road access is closed. 6. Conclusion: City staff believes that the proposed SPA One Plan B-2 Alternative as conditioned implements the goals, objectives, and policies of the Otay Ranch GDP, and the PC Zone and recommends that the Planning Commission recommend to the City Council adoption of the SPA One Plan as conditioned. Attachments I. Board/Commission/Committee minutes 2. Disclosure Statement PCSRSPADOC 11-10,95