HomeMy WebLinkAbout- Item 1 - Attachment 3 - 9/8/2015COSTA MESA
City of Costa Mesa
Memorandum
TO: City Council and Planning Commission
FROM: Gary Armstrong, Deputy CEO; Claire Flynn, Asst.
CC: CEO Hatch, Planning Staff Q•!
DATE: August 10, 2015
ATTACHMENT 3
Dev. Svcs.'rec r
SUBJECT: STRATEGIC PLANNING: NEW "GENERAL PLAN" DESIGNATION
FOR THE FAIRVIEW DEVELOPMENTAL CENTER SITE
PURPOSE
The purpose of this memo is to provide a status update of a potential long-range
planning effort to proactively anticipate the full closure of the Fairview Developmental
Center Site (anticipated closure by Year 2021) and study land use alternatives for the
subsequent redevelopment of the 114 -acre property.
*NOTE: This work effort will be discussed — in concept only -- at the September 8,
2015 Joint Study Session with the City Council and Planning Commission at 5:OOPM.
Authorization to staff to proceed with any related work activity will be as specified by the
City Council at a public hearing.
BACKGROUND
Fairview Development Center Site History
On January 5, 1959, the Fairview Developmental Center opened as a State hospital
originally occupying 752 acres. Fairview Developmental Center had an initial bed
capacity of 2,622 and was intended to house some 4,125 residents. The population at
the facilities peaked in 1967 and have been declining since. The current population is
275 persons, and the downward trend is expected to continue due to the restructuring
of the State of California's approach to providing institutionalized care for the
developmentally disabled. In the past decade, the State has been focusing on
residential care options (as opposed to institutional care) for these disabled individuals.
POPULATION ON THE LAST WEDNESDAY OF THE MONTH
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As operations at Fairview Developmental Center continue to scale down, underutilized
portions of the site have been converted to other uses. A large portion of the original
land was transferred in 1979 to the City of Costa Mesa and now encompasses Fairview
Park and the golf course. In 1985, the City granted a General Plan amendment and
rezone of 54 acres of surplus land immediately to the north of the hospital facilities for
high density residential uses. In 2004 and 2006, other parcels were converted to
residential uses. These areas are planned developments with one-story, single-family
residences, two-story, small -lot residential subdivisions, and two-story apartment
buildings (Harbor Village Apartments).
Aerial Photo — Fairview Developmental Center at 2501 Harbor Blvd.
Senate Bill 82
Bill Authorizes Housing Project on maximum 20 -acre site (Shannon's Mountain)
Existing law authorizes the Director of General Services, with the consent of the State
Department of Developmental Services, to lease up to 60 acres located within the
grounds of Fairview Developmental Center for a period of up to 55 years, for the
purpose of developing affordable housing for the employees of, and transitional housing
for patient -clients of, Fairview Developmental Center.
This bill would additionally authorize the Director of General Services, with the consent
of the Director of Developmental Services, to lease from 12 to 20 acres located within
the grounds of Fairview Developmental Center for a period of up to 55 years, at a price
that will permit the development of affordable housing for people with developmental
disabilities.
The bill would require the proceeds of this housing project and the housing project
described above to be deposited in the Department of Developmental Services Trust
Fund, which the bill would create. The bill would require that money in the fund be used,
upon appropriation by the Legislature, to provide housing and transitional services for
people with developmental disabilities, and would require that any funds not needed to
support individuals with developmental disabilities be transferred to the General Fund.
Twenty Percent of Housing Project to be Available for Developmentally Disabled;
Eighty Percent for Market Rate Housing Units
The bill will provide housing for individuals who qualify based upon criteria established
by the Department of Developmental Services. A minimum of 20 percent of the housing
units developed shall be available and affordable to individuals with developmental
disabilities served by a regional center pursuant to the Lanterman Developmental
Disabilities Services Act (Chapter 1 (commencing with Section 4500) of Division 4.5 of
the Welfare and Institutions Code). When filling vacancies, priority for housing shall be
given to individuals transitioning from a developmental center or at risk for admission to
a developmental center.
The bill will allow for lease revenues or other proceeds received by the state under the
leases for projects, to be utilized by the Department of Developmental Services to
support individuals with developmental disabilities, including subsidizing rents for those
individuals.
The other units (80 percent of housing project) are intended to be available at a market
rate. A Request for Proposal is to be issued by the State by the end of Year 2015. At
this time, a site specific density, building design, and architecture have yet to be
determined.
Please refer to Attachment 1 for a description of other related pending legislation.
Shannon's Mountain is a vacant site generally located south of Florence Circle
and west of Eugenia Way at the Fairview Developmental Center property
STRATEGIC PLANNING
1. How can the City pro -actively plan for the future redevelopment of the
Fairview Developmental Center property, in anticipation for the partial or
full closure of the developmental center in Year 2021?
Similar to the City's approach to the Orange County Fair & Event Center at 88 Fair
Drive (Fairgrounds), a "unique General Plan land use designation" may be created.
In February 2010, City Council adopted a General Plan amendment that revised the
"Fairgrounds" land use designation. The General Plan amendment and ballot initiative
preserved the land uses and activities of the OCFEC should the State Department of
General Services successfully sell the 150 -acre site. The ballot measure identified a
precise land use designation for the OCFEC and that any future amendment to the
Fairgrounds designation would require voter approval.
In this case, in order to "lock -in" specific desirable land uses for the future development
of the Fairview property, a unique General Plan land use designation that is distinct and
solely applicable to this property could be analyzed as part of the General Plan update.
r�
Closure of Fairview Developmental Center planned for Year 2021
2. What is required to "master plan" the property?
Once a unique General Plan land use designation is in place, any proposed use of the
property by the State or other public/private entity, will need to comply with the City's
General Plan. State DGS staff indicated that it is unknown whether or not the State
would retain, lease, sell, or subdivide the property. The 20 -acre Shannon's Mountain
site area is assumed to be a 55 -year land lease.
In contrast to a General Plan or Specific Plan, a master plan is a development specific,
detailed plan which would need to define specific building locations, square footages,
building height, parking, land uses, etc. for the remaining 94 -acre site. It might be
considered speculative to master plan the entire 94 -acre property without knowing the
State's plans to retain and redevelop the property for State institutional buildings.
According to State representatives, it is speculative to guess the extent of the remaining
acreage of Fairview Developmental Center that might be offered for sale/lease and
redevelopment in the future. In other words, the State may retain much of the property
for a "state need" or build -out as it relates to supportive uses for the developmentally
disabled in the community.
3. What are the benefits of creating a unique "General Plan" designation for
the property?
A unique General Plan designation and zoning classification for the Fairview
Developmental Center site will achieve the following objectives and could be
implemented as part of the current General Plan update process given the timing of the
pending environmental and traffic analysis.
-21-
4. How can the City ensure that future development of the property include a
requirement that athletic stadiums, sports parks, and other active use
fields be incorporated into any future development plan (institutional,
housing, or corporate headquarters uses).
If the City wishes to promote the creation of new athletic fields within the Fairview
Developmental Center property, Council may direct staff to explore the possibility of
mandating that a "sports parks component" be included in any future redevelopment of
the property.
For example, if the existing buildings at the Fairview Development Center are planned
for demolition, the new General Plan designation/Zoning will require that a specified
area(s) be designated for sports field. If the property is offered for sale to a private
developer for a housing project or commercial building (corporate headquarters only),
the City may consider requiring a parkland component in order to activate a master plan
for new development. In other words, it may be a requirement that the future housing
or corporate office project must include a specific acreage of active park uses for sports
fields -- or the plan cannot be considered in conformance with the unique General Plan
land use designation.
This will ensure that any future development include a critical mass of sports fields for
active open space to serve the community.
5. If additional land uses (i.e. housing and commercial uses) are considered
in the unique General Plan designation and zoning district, what are some
possible permitted and non -permitted uses?
The unique General Plan designation, in a similar manner as to the Fairgrounds
designation, could strictly prohibit certain uses and promote other uses at the same
time (see table below). A maximum density cap, FAR, and trip budget would need to
be established for the new General Plan designation. These suggested "permitted
uses" are for discussion purposes only and were based on:
• Historic reuse of State lands due to closure of other Developmental Centers or
sale of State lands (See Attachment 2, History of Redevelopment of Certain
State Lands).
Preliminary consultation with State DGS and State DDS on probable future
redevelopment of the property, with emphasis on institutional uses that may be
needed to serve the developmentally disabled.
• An imperative and local need for sports parks / active use fields in Costa Mesa.
—22—
/mac
• Institutional & Recreational
Sports Parks/
Exposition/conference uses
Uses; 0.25 FAR
Athletic Fields
Restaurants
[existing General Plan and
shall be a
Retail Stores
zoning]parkland
Car dealerships
• Institutional Uses supportive of
component of
Concerts/Live entertainment uses
Developmentally Disabled:
any future
Casinos/Gambling Venues
Hospital, medical, dental,
development
ShoppingCenter
physical therapy, in-patient care,
project at the
Hotels/Motels
psychiatric facilities, and short-
Fairview
Swap Meet
term housing, admin offices
Developmental
Center.
Amusement Center
• Dedicated athletic fields
Industrial Uses
• Sports complex
• Sports field for active use
(soccer, baseball, etc.)
• Educational Institution (Cal Poly,
University of CA, etc.)
• High Density Housing at 20 to
40 du/per acre; maximum 1,000
units
• Corporate Headquarters (Cisco,
Microsystems, etc.) at 0.40 FAR
6. Would a Master Plan for the property be created once the new General Plan
designation is in place?
The unique General Plan land use designation (and corresponding Zoning
District) will require a Master Plan for any future development project, whether or
not the State retains the property or sells to a private entity. A Master Plan is
required to be approved by the City Council if the property is owned by a non -
State entity or if the State elects to participate in the City's planning process for
Master Plan adoption.
The General Plan land use designation will "lock -in" the allowable uses and trip
budget for the property — but unlike a Master Plan -- it is not necessary at this
point to create a site plan showing the specific layout of specific buildings, total
square footage, architecture, building height, parking areas, etc. If Council
wishes to create a Master Plan for a specific development project for the
Fairview Developmental Center site, conceptual plans may be created by an
outside consultant.
-23-
7. If there is interest to expedite the timeline for this work effort, is there an
advantage to implementing this process immediately as part of the City's
current General Plan update?
Because the city-wide traffic analysis is already underway for the General Plan
Update, the creation of a unique General Plan designation, trip budgets, and
site-specific FARs for the property could seamlessly be analyzed with the other
proposed changes to the General Plan. The impacts to Harbor Boulevard could
be fully evaluated and considered by City Council.
While the closure of the Fairview Developmental Center is anticipated by
December 2021, State officials have indicated that the priority focus is on the
Sonoma Developmental Center, and it may be some time before the actual
closure of FDC.
Thus, given the timing of the General Plan Update and the preparation of an
Environmental Impact Report, the new General Plan land use and zoning for the
Fairview Developmental Center site could be adequately incorporated into the
Preferred Land Use Alternative and the General Plan EIR. There would be no
need for a separate EIR for this work effort.
8. What is the timeline and process for adopting a unique General Plan
designation and zoning district for the Fairview Developmental Center
property? Tentative only.
Tentative Timeline
Based on Council €aedback,
create unique General Plan land
use clesianation and Zoning
District For Fairview
Developmental Center
Specify crass section of land use's
in the unique Gen era € Plan
designation. Example:
0.25 FAR -- Institutional Uses
0.40 FAR — Corporate Headquarters
Maximum 20 to 40 du/acre or 1,000
units For maximum 25 -acre site.
Collaborate with State DGS
and State DDS
throughout the process
#I -
Complete
Environmental Impact Report
Create General Alan Land Use Element
with new General Plan designation For
the Fairview Developmental Center
Public Hearings
General Plan Adoption
-2��
Septeniber S. 2015
Study Session
August - September 2015
October - November 2015
Through January 2016
February - March 2016
Attachment 1
Senate Bill 639 (Senator Stone)
Status: 5/1/2015 - Passed Deadline pursuant to Rule 61(a)(2). (Last location was
Committee of Human Services on 4/28/2015)
The State Department of Development Services (DDS) is charged with overseeing the
provision of services to individuals with developmental disabilities. DDS oversees a
number of developmental centers throughout the State. State law currently contains a
number of requirements for retaining certification and detailed closure plans required
before shutting down a developmental facility. Senate Bill 639 would require the
Department of Developmental Services (DDS) to submit a plan to the State Legislature
by April 1, 2016, to close the Sonoma and Fairview developmental centers no later than
December 31, 2018. Should DDS determine that the closure of these facilities is not
feasible within this time frame, the bill allows for an extension to December 21, 2019.
The bill requires a detailed plan for using both properties to benefit the developmentally
disabled community on an ongoing basis and requires the state to estimate potential
revenues that may be generated from different options for use of the properties. These
options could include, for example, lease or rental agreements between DDS and
private entities, developing community-based integrated housing resources, or other
proposals for commercial development.
The bill also includes language that directs DDS to minimize the expenditure of State
funds related to any developmental center residential units that are decertified for
failure to meet Federal or State health and safety laws or regulations, or that receive
notification from a state or federal regulator that they are at risk of decertification.
Senate Bill 639 also includes codified Legislative intent that requires funds previously
used to operate developmental centers instead be shifted to support community-based
services for individuals with developmental disabilities. The bill was last scheduled for a
hearing on April 28, 2015 but failed the deadline pursuant to Rule 61(a)(2).
AP`
Assembly Bill 1405 (Assemblymember Grove)
Status: 7/14/2015 - In committee: Set, second hearing. Hearing canceled at the
request of author. (Committee Location: Accountability and Administrative Review)
Assembly Bill 1405 would require the Department of Developmental Services (DDS) to
close the Fairview and Sonoma Developmental Centers (DCs) and directs the Director
of the Department of General Services (DGS) to, upon the closures, lease all or part of
the parcels. The bill requires the closure of the Sonoma facility by the end of 2018 and
the Fairview facility no later than December 31, 2021. Requires that 50% of the
proceeds generated from the leasing of these facilities be deposited into the
"Community -Based Fund" and appropriated to supplement the activities of DDS. The
balance of the proceeds would be deposited into the Budget Stabilization Account.
According to the bill language, the revenue generated would be used to fund services at
regional centers. Similar to Senate Bill 639, this bill also required that DDS provide a
closure plan for both facilities. As of July 14, 2015, the bill was set for a second hearing
with the Committee on Accountability and Administrative Review. However, the hearing
was cancelled at the request of the author and has yet to be rescheduled.
California Developmental Center Closures &
Current Uses
SHASTA I LASSEN
PLUMA S
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East Agnews Developmental Center, San Jose
oA 5 West Agnews Developmental Center Historic Core, Santa Clara
SAN TACRUZ 6 West Aanews Developmental Center Land, Santa Clara
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LOS Lanterman Developmental Center
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r2 3 California Institution for Men, Chino
Camarillo State Mental Hospital
ORANGE
Camarillo State Mental Hospj
• 1 University Dr, Camarillo, CA 93012
• Closed in 1997
i Currently the location for California State University,
Channel Islands
• As of Fall 2014, total enrollment of the University reached over 5,000 students
-2G-
Lanterman Developmental Center
• 3530 Pomona Blvd, Pomona, CA 91768
■ Closed June 30, 2015
■ Transferred to California Polytechnic State University for academic purposes and
will be used to expand their Innovation Village development.
• Requirements for the property include:
o The property will be used to support the educational mission of the CSU
o Cal Poly must potentially address the needs of individuals with
developmental disabilities served by DDS in the master planning of the
property
o CSU must plan to accommodate the real property needs of Air Resources
Board, California Highway Patrol and the California Conservation Corps
—30—
California Institution for Men, Chino
• In 2004, 710 acres of the Northern portion of the California Institution for Men
were sold
■ 140 acres were developed into the Ruben Ayala Regional Park
■ 100 acres were transferred to Chaffey Community College District for
development into a new full-service campus
• 470 acres were sold to a private developer and was created into 2,200 residential
units
The sale price for the entire property was over $120 million
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East Agnews Developmental Center, San Jose
a In 1995, 155 acres were sold to Cisco Systems, which is
a
now home to Cisco's corporate headquarters, which
employs approximately 13,000 workers
In 2014, 81 acres were sold to the Santa Clara Unified
School District and the City of San Jose for future
development of K-8 school and a high school, as well as a regional park
Total price for both sales amounted to more than $100 million
.�32
West A news Developmental Center
Historic Core, Santa Clara
0 1250 Hope Dr, Santa Clara, CA 95054
0 In 1999, Sun Microsystems purchased
82 acres which included dozens of
buildings in various stages of decay
and turned it into its headquarters
After purchasing the property, Sun Microsystems moved the Visitors Center
building to the cemetery site to be restored; the site was renamed the Agnews
Historic Cemetery.
In 2010, Sun Microsystems was acquired by Oracle Corporation, who still uses
the property as their Santa Clara Campus
Sold for over $50 million
P"33—
West Agnews
Developmental Center Land,
■
a
1250 Hope Dr, Santa
Clara, CA 95054
In 1998, 180 acres weref ■- '
sold to a consortium of "'-"'
national developers, which =tr
has since been developed .'.
for 3,000 units of housing,
a K-8 school with a park
(Don Callejon School, Live Oak Park), shopping center (Rivermark Village),
library, museum (James Lick Mansion) and fire station
In August 1998, the National Association of State Directors of Administration and
General Services conferred an award to the State of California in the public
works category for marketing real property for the West Agnews Developmental
Center.
In June 1999, the State of California was recognized by the American Planning
Association for Planning Implementation of the Agnews West Mixed Use
Conceptual Master Plan.
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