HomeMy WebLinkAbout97-103 - Adoprting General Plan Amendment GP-97-03ARESOLUTION NO.
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
COSTA MESA, CALIFORNIA, ADOPTING GENERAL PLAN
AMENDMENT GP -97-03A, AMENDING THE GENERAL
PLAN OF THE CITY OF COSTA MESA.
THE CITY COUNCIL OF THE CITY OF COSTA MESA DOES HEREBY RESOLVE
AS FOLLOWS:
WHEREAS, the General Plan was adopted by the City Council of the City of
Costa Mesa by Resolution No. 92-27 on March 16, 1992; and
WHEREAS, the General Plan is a long-range comprehensive document which
serves as a guide for the orderly development of Costa Mesa; and
WHEREAS, by its very nature, the General Plan needs to be updated and refined
to account for current and future community needs: and
WHEREAS, General Plan Amendment GP -97-03A makes appropriate changes
to the text of the General Plan to reflect the Fairview Park Master Plan; and
WHEREAS, a public hearing was duly held by the Planning Commission
on November 24, 1997, in accordance with Section 65355 of the Government Code
of the State of California, all persons having been given the opportunity to be heard
both for and against said amendment GP -97-03A to the General Plan; and
WHEREAS, this Council deems it to be in the best interest of the City that said
amendment to the General Plan be adopted;
NOW, THEREFORE, BE IT RESOLVED by the Costa Mesa City Council that the
General Plan is hereby amended by the adoption of General Plan Amendment
GP -97-03A, amending the text of the General Plan as set forth in Exhibit "A",
attached to this resolution.
BE IT FURTHER RESOLVED that an initial study was prepared pursuant to the
California Environmental Quality Act. Although the proposed project could have a
significant effect on the environment, according to the initial study and the Negative
Declaration, which reflect the independent judgment of the City of Costa Mesa, there
will not be a significant effect on the environment because mitigation measures have
been added to the project. Additionally, the evidence in the record as a whole
indicates that the project will not individually or cumulatively have an adverse effect
on wildlife resources or habitat.
PASSED AND ADOPTED this 15th day of December, 1997.
ATTEST:
2L4� T.
Deputy Ci Clerk of the City of Costa Mesa Mayor of the City of a Mesa
STATE OF CALIFORNIA )
COUNTY OF ORANGE ► ss
CITY OF COSTA MESA )
APPROVED AS TO FORT
CITY ATTORNEY
I, MARY T. ELLIOTT, Deputy City Clerk and ex -officio Clerk of the City Council
of the City of Costa Mesa, hereby certify that the above and foregoing
Resolution No. 97- lz2 5 was duly and regularly passed and adopted by the said City
Council at a regular meeting thereof held on the 15th day of December, 1997.
IN WITNESS WHEREOF, I have hereunto set my hand and affixed the Seal of
the City of Costa Mesa this 16th day of December, 1997.
l
Deputy Cit Clerk and ex -officio Clerk of
the City CoYincil of the City of Costa Mesa
EXHIBIT A
The text of the Biological Resources and Open Space Subelements of the 1990
General Plan is amended as shown on the following pages.
BIOLOGICAL RESOURCES
Costa Mesa's largely developed nature belies the variety of wildlife and
natural vegetation located within and adjacent to the City limits. The
following sections will inventory and discuss these resources in greater
detail.
FLORA AND FAUNA
A majority of Costa Mesa's valuable biologic resources are located in
areas free from large scale development intrusion. Areas such as these
are found in western Costa Mesa near the Santa Ana River (Figure 15).
Additionally, the agricultural fields in northern Costa Mesa support a
unique animal community related to field crop production. Although
directly related, the City's vegetative (flora) resources and animal
(fauna) resources will be described separately.
Flora
Prior to man's intense occupation of the area within what is now Costa
Mesa, the ground was probably covered with a wide variety of native
grasses with small sagescrub communities along the coastal bluffs and
canyons. What remains of this natural environment is not representative
of conditions at that time. The grasslands on the mesa at the Fairview
Park site and Santa Ana River lowlands have been significantly altered
by the introduction of nonnative grasses; grazing, agricultural
production and discing; and frequent human activity. Adjacent sage -
scrub communities have been disrupted by bluff erosion and grading while
the smaller riparian community near the Santa Ana River has been
impacted by efforts to channelize the river for flood protection
purposes.
In spite of these alterations, examples of all three communities
(grassland, sage -scrub and riparian) can be found in limited amounts
within the present City limits. In addition, a detailed description of
these and other plant communities broken down into finer categories can
be found in the Fairview Park Master Plan. This document includes
descriptions of sensitive species and habitats not included below. and
it is hereby incorporated by reference.
at low elevations on flat plains or gent:
of clay -bearing soil. A list of plants
community is included below.
Grasslands are generally found
s hillsides having a deep layer
generally associated with this
TABLE 6: PLANTS OF THE GRASSLAND COMMUNITY
Common Names
Johnson grass
Spear grass
Beard grass
Cactus
Brome grass
Golden -top grass
Wild oat
Slender wild oat
Yellow mustard
Technical Names
Sorghum halepense
Stipa speciosa
Andropogon saccharoides
Opuntia occidentalis
Bromus mollis and rubens
Lamarckia aurea
Avena fatua
Avena barbata
Brassica campestris
53
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Fauna
Based on paleontologic records, it appears that Orange County was
inhabited by a wide variety of wildlife ranging from bison, jaguars,
camels, wolves, ground sloths, bears and sabre-toothed cats to shrews
and rats. The skeletal remains of a nearly perfectly preserved mastodon
was excavated in 1962, near the intersection of Boa Vista Drive and
Nevis Circle, However, as was the case of Costa Mesa's vegetative
heritage, today's range of wildlife has been substantially reduced to
those species which have adapted to close human contact. What remains
today is an abbreviated predator -prey food chain consisting of
squirrels, voles, white -tail kites, redtail hawks, occasional coyotes
and numerous dogs and cats. The dominant form of wildlife is the
California ground squirrel (Spermophilus beecheyi).
There is a direct relationship between the type and diversity of plant
materials found in an area and the type and diversity of wildlife
supported by this vegetation. The plant communities on the County of
Orange Talbert/Fairview Park and the City's Fairview Park sites offer
seasonally important sources of food for migratory birds, occasional
nesting and feeding sites for sea and shore birds. In the same area,
the bluffside vegetation and thickets provide habitats for more
reclusive species of birds, mammals and reptiles.
Some of these species which inhabit the remaining undeveloped lands
within Costa Mesa are unique and of special interest. An example is the
burrowing owl (Speotyto cuniculara). Observations of the owls have been
reported on the Costa Mesa Golf Course and Country Club, on the slopes
of the Corona del Mar Freeway, and on the Orange County Fairgrounds.
The burrowing owl is a wild indigenous species of predatory bird which
uses abandoned rodent burrows for nests, currently on the Audobon
Society Blue List of rare birds.
Two other species which are becoming increasingly rare in the area
occupy the County's parks and City's Fairview Park. The first, Coast
horned lizard (Phrynosoma loronatum), is extremely rare in this area.
Second is the reclusive trapdoor spider, found along the bluff edge
feeding on small ground dwelling insects. These spiders are found in
higher concentrations on the park site than elsewhere in Orange County.
Provisions to retain a natural area for the spiders are included in the
development plans for the park.
One sFftest sensitivesignifieant species which frequents Costa Mesa is
the California least tern (Sterna albifrons), included on the State and
Federal list of endangered species. Although the primary nesting sites
for the least tern are located farther south at the mouth of the Santa
Ana River, the pond south of Victoria Street provides an occasional
feeding area. The pond is of such importance that it has been proposed
as an "essential habitat" for the tern colony by the United States
Department of Interior, Fish and Wildlife Service. Other water fowl
such as ducks, geese, grebes, gulls and shorebirds are also attracted to
this pond.
Based on biological studies prepared as part of the Fairview Park Master
Plan, numerous other sensitive species have been found at the park.
Detailed accounts of these species found in that document are hereby
.incorporated by earlier reference.
57
A general list of wildlife species which are known, or are
presumed to inhabit Costa Mesa is provided in Tables 9 and 10.
URBAN DEVELOPMENT EFFECTS
The degree to which Costa Mesa's natural biologic resources have
been altered is an unfortunate by-product of rapid urbanization.
What remains of the area's native vegetation and endemic wildlife
is only a small sample of the City's once rich biotic environment.
Continued development of the agricultural fields in northern Costa
Mesa, infill and recycling of vacant and undeveloped lots in other
areas of the City will not reverse this trend. Although the
impacts of urban development are often attributed to private
development interests, it will be public projects which will have
the greatest impacts on Costa Mesa's remaining natural resources.
The possible extension of 19th Street across the Santa Ana River
would reduce existing habitat acreage but may upgrade the wetland
habitat in the area as mitigation. Even—Tt-he planned development
of Fairview Park will result in substantial beneficial
modifications. A majority of the existing non-native vegetation
will be removed and replaced with additional native California
plants. Subsequent increases in human activities will further
disrupt the ecologic processes of the area.
Efforts to protect some of the City's valuable biotic resources
have been initiated during the past few years. Other examples
include the interest in the Santa Ana River lowlands and canyons
by numerous public agencies. All of these areas have been
acquired by the County of Orange and City of Costa Mesa to
preserve for future public use and enjoyment. The California
Coastal Plan indicates that the river lowlands and saltmarsh to
the south are capable of restoration and are proposed as a
regional park and wildlife habitat. At the Federal level, the
Department of Interior Fish .and Wildlife Service has identified
the pond south of Victoria Street as an "essential habitat" for
the California least tern.
Conservation of Costa Mesa's natural biologic resources can
provide significant benefits. A program to reintroduce native
plant material at Fairview Park and the Santa Ana River lowlands
and canyons could reduce maintenance costs and responsibilities of
traditional urban parks. Such a program may also result in an
increasingly diverse annual population if protected from excessive
human interaction. The retention of these publicly owned lands in
relatively natural states will encourage the establishment of new
ecosystems as varied habitats are created. Facilities such as
these would provide unique educational and recreational
experiences not found in most urbanized areas.
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REFERENCES
1. General Plan (City of Costa Mesa) 1981
2. Environmental Resources/Management Element; City of Costa Mesa
General Plan (City of Costa Mesa) 1978
3. Persons and Organizations consulted:
1. John Burke, Orange County Fairgrounds
2. Lisa Burke, County of Orange EMA
3. Dave Alkema, City of Costa Mesa Leisure Services Department
4. Fairview Park Master Plan, (City of Costa Mesa) 1997
63
minimum open space standards in all residential zoning districts
and minimum landscape standards in nonresidential districts.
3. Park Dedication and In -Lieu Park and Recreation Fee Ordinance
As authorized by the Quimby Act, the City has adopted and imple-
ments an ordinance to require the dedication of land for park
sites or the payment of fees in lieu of dedication to acquire or
rehabilitate park sites 'in conjunction with new residential
subdivisions. The initial ordinance and -fee program were adopted
in .the early 1970's and have been amended and updated
periodically. During the 1990 update of the General Plan, the
City Council directed staff to explore the expansion of this
program to include nonsubdivided residential developments.
4. Capital Improvement Program
The most direct action program may be the City's Capital Improve-
ment Program. Adopted as a part of the City budget, the Capital
Improvement Program plans and allocates funds to acquire, develop
and rehabilitate parks within the community.
5. Parks, Recreation and Open Space Master Plan Study
In early 1991, the City Council directed staff to update the Master Plan of
Parks and Recreation. The primary purpose of this update was to develop a
detailed and comprehensive plan to address the long term park and recreational
needs of the community. The draft Parks, Recreation and Open Space Master Plan
Study was completed in late 1993 and accepted by the City Council in 1994.
Upon acceptance of the study, City Council also directed staff to revise the
study based on community input and Councilmanic concerns and to incorporate the
master plan into this General Plan as an optional element. This was
accomplished in 1996. In 1997, the City Council approved the Fairview Park
Master Plan and updated the Parks, Recreation and Open Space Master Plan to
reflect the new plan for the park.
As noted earlier, the master plan study provides a new strategy to meet
the majority of the community's long range open space and recreation
needs through joint use of existing public school facilities. This
strategy from the master plan and the policies contained within this
subelement of the General Plan will serve as the basis for a long range
action program to meet the open space and recreation needs of the
community through the life of this plan.
6. Intergovernmental Cooperation
The large amount of publicly owned land in Costa Mesa requires close
coordination to ensure that existing land used for open space or
recreational purposes are maintained. Cooperation is also required to
ensure that future improvements to public lands are compatible with
adjacent private uses. Examples of the need for this cooperation are
the current plans for the improvement of the Fairview and Talbert
Regional Park by the County of Orange; the Master Plan for the Orange
County Fair and Exposition Center by the Fair Board; the possible school
closures or sale of surplus land by the Newport -Mesa School District and
Coast Community College District; and the continued use and development
of the Fairview Development Center. Intergovernmental coordination is
also necessary to realize the benefits of the regional Institutional
Open Space Corridor and the joint use facility recommendations contained
in the Parks, Recreation and Open Space Master Plan Study.
79
The text of the Parks, Recreation and Open Space Master Plan element of the 1990
General Plan is amended as shown on the following pages.
Active Recreation Facility Siting Analysis: As part of the Master Plan preparation, a land analysis
was conducted to identify potential locations for active recreation facilities within the City of Costa
Mesa.
The analysis provides few opportunities for new development as the City is near buildout, but the
following sites were identified as having potential available acreage. As noted in the vacant land
analysis, there are additional small parcels distributed throughout the City but they are too small for
developing any suitable facilities and not economically feasible.
' Fairview Park
' Sakioka Farms Property
' Segerstrom Home Ranch
' Mesa Verde Drive East/Adams Avenue Site
' Orange Coast College
' Costa Mesa High School
' Estancia High School
' Harper School
' Lindbergh School
' Mesa Verde School
' Monte Vista School
' Wilson School
' Fairview Developmental Center
Each of the individual sites are evaluated below:
Site: Fairview
Available Area: 211 Total Acres, (200 undeveloped)
Potential Facilities: The inclusion of these facilities, "lighted baseball fields, lighted softball
fields, and a gymnasium," on the park site is contingent not only on the agreed upon
development concept but on available space, use of the adjacent school properties,
environmental concerns, and City Council approval.
Acquisition Costs: None
Zoning: Institutional and Recreational District
General Plan Land Use Designation: Public Use
Location Suitability: Fairview Park is centrally located and easily accessible by all residents.
Although this site is a candidate to house the potential facilities based on acreage alone, City
Council has
a�--I a fiatuFal—state. approved a master plan for the park which does not include any
active recreation.
Administrative Suitabilitv: City owned, no scheduling conflicts.
34
Site: Costa Mesa High School
Available Area: 14.0 acres undeveloped; 18.0 potential availability
Existiniz Facilities: Track; baseball fields (6); soccer fields (3); softball field; large turf area;
swimming pool; outdoor asphalt multi-purpose courts.
Potential Facilities: Lighted soccer fields (2)
Acquisition Costs: None, Joint -Use Agreement
Zoning: Institutional and Recreational District
General Plan Land Use Desi nation: Public Use - School
Location Suitability: The remaining 18 acres of agricultural land would be most appropriate
for the development of soccer fields, as a Joint Powers Agreement and Site Specific
Agreement already exists between the School District and the City for the use of existing
baseball and soccer fields.
Administrative Suitability: The difficulty in establishing a joint -use facility lies in scheduling
and use conflicts.
Site: Estancia High/Parsons School
Available Area: 5.0 Acres
Existing Facilities: Track; baseball fields (2);,softball field; tennis courts (8) and handball
courts; large turf area; swimming pool; outdoor asphalt multi-purpose courts; soccer fields,
(3) (to be improved in 1996).
Potential Facilities: Softball fields
Acquisition Costs: None, Joint -Use Agreement
Zoning: Institutional and Recreational District
General Plan Land Use Desi nation: Public Use - School
Location Suitability: This school's adjacency to FaiFVieW Pads And Parsons School could
possibly provide for shared use amongst the tkfee two sites.
Administrative Suitability: The difficulty in establishing a joint -use facility lies in scheduling
and use conflicts.
1<
Fairview: This site could be planned as the City's premier park, to include a wide diversity of
recreational opportunities encompassing natural passive parkland. The Master Plan for this site must
addresses the distinctive character of the location and its adjacencies providing a park with unique
citywide significance. The Santa Ana River, Nest# Talbert aiFN,iew Geunt . D l D Nature
Preserve, and the bordering school properties all-sheald influenced the park design and layout. In
addition, the site contains important cultural and natural features which sheer have been planned for
future protection. An Interpretive Center sheer—lie has been incorporated which will serve to
represent and educate users about the character of this park. To improve the appearance of the
existing model railroad and enhance the experience riding the train, ` =FIE planning shoul the
Fairview Park Master Plan incorporates passive parkland within and around the track loop and
station.
Based on the size of this park and the anticipated number of regular visitors, it has been determined
that permanent rest room facilities will be required, the number, size, and location(s) to be
determined through the Fairview Park Master Plan process.
Due to eitywide needs f " youth athletis fie! , ffhe Fairview Park Master Plan sheuld examined
design options and, if possible eest es6mates for athletic fields at the southwest area adjacent to
Estancia High School and Parsons School. The development of active fields should be minifnal and
shall ,
be ea in , + + �� with d PaFseas ` ` ' was rejected by the City
Council.
Location: 2525 Placentia Avenue
Acreaze: 11.0 developed and 200.0 undeveloped acres
Existinz Facilities: The site is primarily undeveloped, with the exception of 11 acres on the
west side of Placentia Avenue which provide, thFeugh a 25 yeagFeemeat with the Orange
Geuat", Model EagineeFs, parking, small turf areas, and the :newel railroad tr-aek a station,
portable restrooms. The Costa Mesa Model Engineers overate the model railroad track and
station on the east side of the park.
Pro am: Park Master Plan................................................................$ 175,000
91,800
Total..............................................................................$ 17.51000
91,800
Improvement Costs: $ 175,009
9,231,900
47
TABLE 11: COMMUNITY CENTER AND PARK
IMPROVEMENT COSTS
Improvement
Site Costs
Community Centers:
Balearic $ 47,900
Rea 55,000
Subtotal $ 102,900
Community Parks:
C
CU V11
Fairview
$ 70,000
Lions
'H5,WO 9,231,900
65,000
TeWinkle
680,000
Subtotal
$ -999;000' 10,046,900
Neighborhood Parks:
Brentwood
$
2,000
Civic Center Park
44,500
Del Mesa
5,000
Estancia
0
Gisler
13,500
1,500
Heller
15,000
Lindbergh
3,000
Marina View
21,500
Mesa Verde
10,000
Paularino
50,000
Pinkley
28,000
Smallwood
0
Shiffer
3,500
Suburbia I
10,000
Suburbia II
0
Tanager
0
Vista
46,000
Wakeham
3,500
Wilson
10,000
Willard T. Jordan .
6,000
Wimbledon
13,000
Subtotal
$
286,000
Joint -Use Facilities:
Costa Mesa High School
$
1,558,000
Estancia High School/Parsons
25,000
Subtotal
$
1,583,000
Unimproved Sites:
Park north of I-405
$
f00,000
Pocket Park at Charle and Hamilton
150,000
Riverbay Trail
58,000
Unidentified Locations - 50 M. pool,
3,527,000
gymnasium, soccer fields (1), softball fields
(1), baseball fields (2)
Subtotal
$
4,335,000
TOTAL $ .996,900
16,353,800
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Alternative Funding Mechanisms:
Alternative Capital Funding Options: It is estimated that the park facility improvements
recommended in this plan will total over $7 million (in 1992 dollars). Assuming a 4 percent annual
inflation rate, this estimated capital improvement budget by phase in future dollars is as follows:
In 1992
In Future
1996-2000 $ 2,959,400
$ 4,050,143
2001-2005 3,984,500
6,634,415
2006-2010 353,000
715,113
Total $ 7,296,900*
$11,399,741
*Total does not include funding for Fairview Park which eould mage up to $15,00 is estimated at
$9,231,900.
As shown above, the actual expenditure will be greater due to inflation, and could reach over $11
million during the 15 -year phasing period. City revenue, however, should also be greater, though,
because of Proposition 13's 2 percent limitation on annual increases in assessed valuation (unless
property changes ownership or undergoes substantial renovation), the City budget may not keep up
with inflation proportionately. It is important to have a source of funding that can keep up with
inflation.
Since capital cost expenditures are not evenly distributed over time, the City may also need to finance
park improvements rather than rely on annual General Fund allocations to the capital improvement
program. Debt financing could also allow the City to expedite the implementation schedule, although
interest and issuance costs would be incurred. The following financing scenario is recommended for
consideration:
Sources:
Park In -Lieu Fees
Impact Fees
General Fund
Dedication
Grants
General Obligation Bonds
Certificates of Participation (Optional)
Park In -Lieu Fees:
Park in -lieu fees are the primary source for funding capital improvements. Normally these
fees, or equivalent dedication, would be required to fund parkland acquisition. However, since
this Master Plan Study relies primarily on joint -use agreements with school districts, using
existing public land, substantial land acquisition will not be required. Therefore, the City may
use the fees it collects for capital improvements to existing parks and joint -use facilities.
Park in -lieu fees are based on two factors: the standard which defines the number of acres per
1,000 population required, and the land value basis for establishing the fee. The City can
clearly increase its current in -lieu fee due to changes in both factors.
61
Dedication:
Dedication is the anticipated method for acquiring the new five -acre neighborhood park
proposed north of I-405. The land and improvements can be obtained through the City's park
dedication ordinance.
Grants:
State and regional grants may be available for the bikeway trail improvements and a portion
of the natural park improvements to Fairview Park, depending on the eventual design and
habitat plan for the natural portion of the park. In addition, if the City enters this portion of the
park into the Reserve of the Natural Community Conservation Plan (NCCP) funds may be
available from the non-profit corporation.
General Obligation Bonds:
The other option is to propose to the voters of Costa Mesa a general obligation bond to fund
the balance of the improvement costs not covered by in -lieu fees. Bond markets consider this
the most secure form of financing because the debt obligation is backed by the full faith and
credit of the .City and its ability to raise taxes to cover the debt obligation. The General
Obligation Bond would require a two-thirds vote. However, it is expected that the debt
obligation would be low (especially if in -lieu fees cover a majority portion of development
costs) and, based on the experience of other cities such as Escondido, San Juan Capistrano,
and Laguna Beach, is passable. This should be considered for large capital expenditures to
provide park service for deficient areas such as acquisition of surplus school sites in Planning
Area 3 (eastside).
Certificates of Participation (Optional):
Certificates of Participation (COP'S) is a method for the City to raise money for capital
improvements in advance of receiving the impact fees. Assuming population growth of
approximately 1,000 people per year, annual in -lieu. and impact fees collected should average
$3.2 million (in 1992 dollars), which is more than enough to cover the capital costs incurred
on a pay-as-you-go basis under the phasing program proposed (if the fees are annually
.increased to keep up with inflation). The City could consider issuing COP's if it desires to
raise the capital earlier and expedite the implementation process only if there is a
corresponding increase in future fee and general fund revenue to enable the City to fund the
COP debt service annually. The trade-off is that the City would incur financing and issuance
costs that it otherwise would not incur.
Other Recommended Options: While the financing strategy presented above should be sufficient to
cover all of the costs presented in this plan, the City should consider alternative methods if it decides
not to rely so heavily on in -lieu and impact fees, as follows:
Infrastructure Financing District
An infrastructure financing district that includes all undeveloped land in Costa Mesa, outside of
redevelopment project areas, might be considered. This would require approval of the land
owners that comprise the district. Since the finding comes from tax increment generated by the
property's development, given existing tax rates, property owners would not pay anymore taxes
than they would without the district. A bond could be issued against the increment, with the
proceeds used to finance improvements to the City's community parks and joint -use facilities.
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