HomeMy WebLinkAbout99-64 - Adopting the Centerline Transit supportive development guidelines and a local action plan to incorporate these policiesW1
RESOLUTION NO. 99-64
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
COSTA MESA, CALIFORNIA, ADOPTING THE CENTERLINE
TRANSIT SUPPORTIVE DEVELOPMENT GUIDELINES AND
A LOCAL ACTION PLAN TO INCORPORATE THESE
POLICIES INTO THE GENERAL PLAN, ZONING CODE, AND
OTHER APPROPRIATE PLANNING DOCUMENTS.
THE CITY COUNCIL OF THE CITY OF COSTA MESA DOES HEREBY RESOLVE
AS FOLLOWS:
WHEREAS, the City of Costa Mesa is responsible for the preparation of Rail
Station Area Planning Documents as identified in Article 2.3.4 of the Phase I
Cooperative Agreement for the Orange County Rail Transit Project dated June 16,
1998, for each of the stations within the City; and
WHEREAS, the City of Costa Mesa has an interest in the Centerline station
locations in terms of how they may positively benefit the City in relation to its land
use and economic development plans, the mobility of its residents, the business
climate, and the physical environment; and
WHEREAS, the Orange County Transportation Authority has adopted the
Transit Supportive Development Guidelines and the Joint Development Strategy
contained in Milestone 5 of the Centerline study providing a framework for the cities
to implement transit oriented developments near station areas; and
WHEREAS, the City of Costa Mesa and the Orange County
Transportation Authority have agreed that the Centerline system planning,
engineering, and environmental activities should meet the mutual objectives and
goals of the parties; and
WHEREAS, the Orange County Transportation Authority Board of Directors has
requested the City to prepare an Action Plan related to implementing the Transit
Supportive Development Guidelines;
NOW, THEREFORE, BE IT RESOLVED by the Costa Mesa City Council that the
Centerline Transit Supportive Development Guidelines, as set forth in Exhibit "A" of
this resolution, are hereby adopted.
BE IT FURTHER RESOLVED that the City agrees to execute the City of Costa
Mesa Centerline Local Action Plan, as set forth in Exhibit "B" of this resolution, if the
Orange County Transportation Authority Board decides to build the Centerline Urban
Rail project.
BE IT FINALLY RESOLVED by the Costa Mesa City Council that any future
"Transit Supportive" land use considerations will be in compliance with City Council
land use/zoning policies in accordance with the City's General Plan.
PASSED AND ADOPTED this 20' day of September, 1999.
ATTEST:
Deputy City Clof the City of Costa Mesa Mayor of t1je City of Costa Mesa
am,
STATE OF CALIFORNIA )
COUNTY OF ORANGE ) ss
CITY OF COSTA MESA )
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. 99-64 was duly and regularly passed and adopted by the said City
Council at a regular meeting thereof, held on the 2Vh day of September, 1999.
IN WITNESS WHEREOF, I have hereunto set my hand and affixed the Seal of
the City of Costa Mesa this 21' day of September, 1999.
Deputy City C and ex -officio Clerk of
the City Counci of the City of Costa Mesa
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Politics for Tropsil supporlliue
DeuelOPMORI
BACKHOURD
The Orange County Transportation Authority (OCTA) and seven jurisdictions
(the corridor cities) located along the CenterLine have undertaken a cooperative
planning process in developing the Centerline system. This process will
coordinate the transportation investment in the CenterLine system with land use,
as well as the potential of rail to improve the livability of communities benefiting
from CenterLine access. The information presented here, defines the policies and
general principles presented in Transit Supportive Development Guidelines: A
Handbook for CenterLine Communities.
For this effort to be successful, the corridor cities will need to take actions to
integrate the CenterLine system into their development policy and regulatory
systems. Potential action could include supporting or refining land use
designations in cases where a proposed station is already surrounded by a transit
supportive pattern of uses and compactness of development. It may, in other
instances, require stimulating a pattern of new transit supportive uses in a more
compact form, and providing more convenient and direct pedestrian access to
the station.
These Policy Guidelines provide guidance to the corridor cities as they review
their land use planning and regulatory documents, in order to stimulate patterns
of development and circulation which encourage use of the Centerline system,
recognizing that synergy between the transit system and nearb%- development is
of mutual benefit.
The design guidelines contained in Sections 3, 4 and 5 of the Transit Supportive
Development Guidelines Handbook provide strategies whicl,-orridor cities may
apply in land use and circulation planning, site planning and building design,
and in the development of station areas, as they implement their land use
planning and regulatory documents. The following sunman- points make the
connection bet-;,%,een the general policy statements presented here and the more
specific guidelines in the Handbook.
• Five types of stations and station areas are described in the handbook:
Neighborhood; Activity Center; Town Center; Transportanon Center; and
Special Event Center. Stations of each type may not be located in each
Transit Supportive Development Guidelines
Exhibit "A"
Resolution No. 99-64
Page 1 of 8
EXHIBIT A
1heCenterLine
Ac.vrx-i r ;'d in C'e heart o(ortr.+ge Counr/
48 corridor city. Local variations within the station type may be developed as
well. Therefore, development standards guidance expressed in ranges,
instead of absolute targets. These ranges are intended to accommodate
differing degrees of implementation which may occur at stations, even
among those of a similar type.
The land use intended and circulation focus of these policies and the
Handbook guidance is to achieve compact development around each station.
Compact development means arranging development so that the time and
distance required by pedestrians to get to and from the transit station is kept
to a minimum. While this will certainly involve some localized increases in
density and intensity of use, it is even more important to achieve proximity
to the station. Clearly, the more activities one can place close to the station,
the more potential transit riders there are likely to be. Hotvever,
compactness can be achieved at a variety of density/ intensity scales in
consonance with the characteristics and needs of each station area.
• Compact development is sought in the limited portions of cities served by
the proposed Centerline project as a means of making these areas
particularly accessible by pedestrians.
It should be remembered that the decision to focus on the rail transit routes
note being evaluated was significantly influenced by the desL,-e to connect
areas of existing or emerging concentrations of development throughout
central Orange County. This accounts for the fact that the system is now
beLng referred to as The CenterLine: Advanced rail transit L*i the heart of
Orange County. This part of the Centerline project is aimed at continuing
and expanding upon development patterns already underway.
It is important to remember the following key points while exploring and
interpreting these policy guidelines:
In order to take advantage of the leverage offered by this major investment
in a new component of the transportation system, it is essential to begin
thin_king now about how the Centerline could and should affect the ongoing
evolution of our communities. Evolution will continue to occur, even
without rail transit. However, it can continue in a unique and focused
fashion in the proposed CenterLine station areas.
These are guidelines, not regulations. Although they refer ro land uses and
development standards, the final form these regulations take will be
determined by each city. These guidelines are intended to assist cities in
cra.`tmg local policies and regulations that support boEi the t-.aruit system
and local development goals.
3. Principles a_ --id guidelines will not apply equally to all stat -on areas in every
jurisdiction. The term "where applicable" has been inserted into guidelines
to express the flexibility intended in the Handbook. However, it should be
understood that these guidelines must be implemented as aggressively as
possible if full advantage of this large public investment is to be achieved.
2 Policies for Transit Supportive Development
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Exhibit "A"
Resolution No. 99-64
Page 2 of 8
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Policies lop N0311 soppopilue oeuelopmeol
4. Many areas along the proposed Centerline routes are already developed or
are developing in a manner that would be supportive of rail transit. Others
are being planned with rail service in mind. The policies and major portions
of the guidelines are derived or adapted from direction already undertaken
by the cities. They are therefore a reflection, not just of local possibilities, but
local realities. These areas are now served primarily (or exclusively) by
automobiles and buses. The addition of the CenterLine system will offer
another mobility option for people to the degree that these policies and
guidelines are more fully implemented.
5. The focus of these guidelines is on the CenterLine system and its proposed
stations and station areas. Land use planning can support these centers and
can be particularly powerful in facilitating transit usage. We use the term
"station area" to describe the focus we seek. Federal Transit Authority
regulations distinguish between the uses and activities which can occur in
the band around the station extending to one eighth mile and those which
can occur in the one eighth to one quarter mile band. The outermost band
around the station area, from one quarter to one half mile from the station, is
a transition zone in which more compact development is likely to occur only
sporadically. Most development here will be of a less compact nature than
that within the one eighth and one quarter mile radius from the station, and
will generate relatively fewer pedestrians seeking transit service.
These distance bands around a station relate to generally experienced
patterns of pedestrian activity in transit oriented areas, but it is important to
acknowledge that they are approximations. We should think of these
distinctions as targets within which we generally try to concentrate
development, but they should not be interpreted precisely. Local
circumstances may suggest configuration or spacing considerations that vary
from these typical distances.
6. The development of Transportation Center stations (and certain others with
strong transportation linkages) will result in an interface between modes of
transportation other than the Centerline, including commuter rail service
and buses. Many of the guidelines presented here may be applicable to other
forms of transit, even where the Centerline is not involved (e.g, bus stations
or Metrolink Stations). Land use and development designs aimed at
compactness can reinforce t.5ese centers just as they do with the Centerline
system.
7. Phasing in the policy and regulations derived from these guidelines will
become critical in strengthening the rail/land use relationships. Timing, in
relation to market forces, cow muniry acceptability, and developer interest
must be carefully assessed to capitalize on development opportunities. In
other words, strategic thinki a is essential.
Nothing in these guidelines i; intended to dimi.-ush each city's options
regarding a preferred Centerline route. The guidelines are expected to
operate where there is mutual com=dtment by OCTA and each cit, to a
proposed station location.
Transit Supportive Development Guidelines
Exhibit "A"
Resolution No. 99-64
Page 3 of 8
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7heCenterLine
Advanced r -d awsrt n me heart o(Or-_nge G;L;r. /
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We wish to express appreciation for the special assistance provided by City
Technical Advisory Group in reviewing the original discussion draft. In a
workshop mode, senior land use planning and transportation staff participated
in a thoughtful and constructive dialogue that resulted in this draft. All
participating cities and the County of Orange -were represented. The corridor
cities' continued contribution in the form of constructive criticism and advice
will be essential to success in creating a tool useful in achieving the integration of
rail and community development throughout the length of the proposed 28 anile
Centeri_ine system. While the responsibility for this draft rests with its authors,
the contribution by the local government participants is gratefully
acknowledged.
4 Policies for Transit Supportive Development
Exhibit "A"
Resolution No. 99-64
Page 4 of 8
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Policies for IMPS11 Suppor0oe Molopmell
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POLICY GUIDELINES
GUIDING The Guiding Principles outlined below apply, in varying decrees, to all sections of
the Handbook. The Policies regarding land use, housing, urban design, parking,
PRINCIPLES economic development, and circulation also have application throughout the
Handbook, however the urban design policies apply particularly to Section 4,
Guidelines for Transit Supportive Project Design.
1. Development in proposed station areas will be located, designed, rec'., signed, or
maintained to contribute to the use and efficiency of the Centerline system.
2. Important concentratio.-ts of community development and redevelopment will be
encouraged and maintained in Centerline station areas and corridors.
3. Particular emphasis will be placed on achieving or maintaining compact
development patterns that facilitate direct, safe, and convenient pedestrian
connection to Centerline stations and other transportation modes, and provide a
critical mass of potential riders who will support the CenterLine system.
4. The unique cultural and physical identity of each co=un!—pity will be reflected in
nation area planning and design.
5. Maximum benefit from existing and future public investment in the CenterLine
system will be sought through pursuit of public and private development
opportunities.
6. Existing neighborhoods in proximity to Centerline stations and corridors will be
protected and preserved to the extent that this is a prioriry in local general plans.
POLICIES The following policy guidelines seek to foes development within station areas to
achieve compact development, as discussed in the Background section, above. These
relatively small but critical islands of development reinforce and, in turn, are
supported by the Centerline system. Policies are further de`aled in the form of
guidelines in Sections 3, = and 5 of the handbook.
Land Use The intent of the Land Use policy is to concentrate compact development around
Centerline stations. That concentration may include any one or a combination of
employment, commercial, multi -family residential, mixed commercial/residential, or
public/quasi-public uses, deper►ding on the local situation.
1. emphasize a range Df development densities and intensities that facilitate
compact development according to station types, and within station types, tailor
development to each station.
2. Emphasize land uses that stimulate pedestrian activity (and ultimately transit
ridership), and proportionately reduce exclusive auto dependent uses (e.g., drive-
tiuu restaurants, motels, gas stations and auto sales lots or rental services).
3. Concentrate relatively higher densities and intensities of land use in station areas,
applying incentives judiciously where useful in achieving community benefits.
Transit Supportive Developmer.: Guidelines
Exhibit "A"
Resolution No. 99-64
Page 5 of 8
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7heI%-,'enterMne
Ao,vcnced rcI =rp( ,n me necr, of Orenge Co.-rq
Lang Use 4. Give highest priority in achieving compact development to the area closest to the
(CI1(100110 proposed station.
5. Seek a transition in scale, height, and intensity beyond the compact development
in the station area to surrounding areas of lower density development.
6. Facilitate the development of a mix of uses directly related to the needs of the
surrounding community, such as convenient neighborhood oriented retail and
personal services where such uses reinforce pedestrian activity in the station area.
7. Permit a variety of uses within walking distances of Centerline stations,
including single use and mixed use designations where they achieve compact
development and stimulate transit ridership.
8. Take into consideration supporting infrastructure conditions and needs in
determining the nature and extent of intensification potential in each station area.
Housing The intent of the Housing policy is to provide a mix of housing types and prices
within walking distance of CenterLine stations.
1. Accommodate residential development in and around CenterLine station areas,
providing for phasing of density increases as stations come on line through
locallv selected mechanisms such as transit combining districts, overlay zones,
specific plans, mixed use districts, or similar devices acceptabie to each city.
2. Stimulate and preserve a broad range of housing choices in station areas through
such mechanisms as redevelopment, rehabilitation, special g:arlt programs,
mixed use projects and locally designated incentives.
3. Encourage residential development to be built to the highest allowable density in
the station areas, subject to special consideration in neighborhood station areas.
Urban Design The intent of the Urban Design policy is to create pedestrian oriented neighborhoods,
and improve the overall quality of the environment of the CenterLine station areas
and surroundings so that the CenterLine related development will be able to function
effectively as an asset to the community.
1. Locate and orient buildings in a manner that accommodates-3ltemative modes of
travel in addition to the automobile and that contributes to an active street scene.
2. Pay attention to the impact of building facades at the street level and focus design
on features that are human in scale and comprehensible to pedestrians.
3. Encourage public art designed to be compatible with the character and the
context of existing communities.
4. Design comfortable. securz and active pedestrian -oriented environments in
CenterLine stations and surrounding areas, including such features as: direct
functional and physical connection to the station; efficiently designed, well
lighted, and strategically located public open/gathering spaces; walkways that
readily accommodate pedestrian movement; carefully sited outdoor seating and
displays; and well lighted, clearly signed pathways.
5. Preserve the historic character and structures that help provide unique identity
for the station area.
6. Design convenient bicycle facilities in the station area, connected to bicycle routes
s Policies for Trans:'! Supportive Development
U
Exhibit "A"
Resolution No. 99-64
Page 6 of 8
Policies W IMS11 supporUue oeogiop®eol
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ser; ng the surrounding areas.
ParRln9 The intent of the Parking policy is to encourage parking Enation and design within
the station area that provides for shared or joint -use park.-.�L
, aows for the
produce" e reuse of land, integrates parking in an unobtru:i:a manner, and provides
for a phasing process that achieves a gradual reduction in. space devoted to parking
in proportion to increases in transit ridership.
1. Promote parking supplies in station areas that consume the least land area
possible, while balancing the needs of vehicle users with transit users.
2. Evaluate parking policies and standards once station locations are established to
facilitate compact development in the station areas and phase in parking
management programs and parking reduction strategies as studies are able to
document their workability.
3. Design parking areas to accommodate effective and ef:icie-nt pedestrian
connections between different transportation modes.
4. As a first step toward parking management, define provisional parking
reductions for development within CenterLine station areas, contingent upon
demonstrated reductions in demand as transit use increases.
5. Encourage existing and new development to move toward parking structures by
designing parking lots that can be converted or redeveloped into other uses as
the Centerline develops.
6. Encourage shared -use parking as part of an overall parking management
program.
7. Encourage ground floor commercial use of parking st-1ctures to contribute to a
more pedestrian friendly and economically valuable s~eet level environment.
8. Devise parking strategies that do not result in overflow parking on surrounding
residential neighborhood streets.
9. ivianage the parking supply so that the needs of transi: supporting uses and
neighborhood supporting uses remain in balance.
10. Strategically locate park -n -ride facilities in commute_ -oriented station areas.
ECenOmiC The intent of the Economic Development policy is to support and encourage
Deeetopment economic development opportunities in areas surrounding Centerline stations.
1..- Reinforce community revitalization programs, such as redevelopment project
area plans and enterprise zones, with policies established for CenterLine station
areas.
2. Seek planning funds, including special grant funds, and allocate them to the
development of CenterLine station and corridor area plans that encourage
transit -supportive development or redevelopment.
3. Encourage the use of development incentives available to each city in CenterLine
station areas as a means of achieving compact development that also reinforces
economic development goals.
Promote joint development techniques in station areas that facilitate the
formation of partnerships involving various combinations of city agencies, The
Orange County Transportation Authority, and the private sector.
Utilize city powers in combination with public/private partnerships to
accomplish such measures as land assembly in station areas to assist transit
Transit Supportive Develop7rert Guidelines
Exhibit "A"
Resolution No. 99-64
Page 7 of 8
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7heCenterLine
Adwonced rod oorns,t on rhe heart o(0ronge County
54 supportive development projects.
Clpmatlon The intent of the Circulation policy is to recognize the evolution of a multi -modal
transportation system serving central Orange County, and enable the Centerline
system to make an optimum contribution to mobility choices when it is developed.
1. Promote linkages between the CenterLine stations and other modes of
transportation, including pedestrian, bicycle, automobile, bus, Metrolink
commuter rail, and airport facilities.
2. Seek to create balanced station area circulation concepts that provide equitable
access to all forms of transportation in these focused station areas and corridors.
3. Design roadways, pedestrian walkways, bikeways, and transit routes, as well as
the chosen Centerline system, to minimize conflicts between different modes of
transportation that occupy the same or proximate rights-of-way.
4. When modifying the existing. street network, encourage creation of walkable
blocks and an overall system which pedestrians can perceive and understand.
Policies for Transit Supportive Development
Exhibit "A"
Resolution No. 99-64
Page 8 of 8
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EXHIBIT B
CITY OF COSTA MESA
CENTERLINE LOCAL ACTION PLAN
Incorporate Transit Supportive Development Guidelines and Policies into General
Plan.
• The City will incorporate the Centerline Transit Supportive Development
Guidelines and Policies into the General Plan.
• This task shall be incorporated into the General Plan2000 Update and will be
completed by June, 2000.
Prepare Station Area Concept Plans/Sketch Plans
• The City will define station planning areas ('/e to '/4 mile radius of station
platform) and identify opportunities and constraints to creating transit -oriented
developments within the station planning areas.
• The City will undertake public and developer workshops to create a vision for
each of the station areas based on the categorization of station (neighborhood,
activity center, town center, transportation center) and the guidance provided in
Transit Supportive Development Guidelines: A Handbook of CenterLine
Communities.
• The City will translate the preferred vision into a set of Station Area Concept
Plans/Sketch Plans.
• This task will be completed as a part of the General Plan 2000 Implementation
Program.
Determine Type of Plan -to be Prepared
• The City will review the Station Area Concept Plan/Sketch Plans in terms of
how they might be implemented within the existing regulatory framework in the
City.
• The City will identify where deviations occur between the Station Area concept
Plans and the existing zoning and/or General Plan designations.
• The City will determine the type of plan (i.e. comprehensive rezoning, overlay or
combining district, planned development district or specific plan) to be
undertaken in order to implement the Station Area Concept Plans.
Exhibit "B"
Resolution No. 99-64
Page 1 of 2
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• This task will be completed as a part of the General Plan 2000 Implementation
Program.
Develop Outline of Station Area Planning Regulations
• Using the Transit Supportive Development Guidelines: A Handbook for
CenterLine Communities, the City will develop an outline of station area plan
regulations and standards. It is also helpful to use elements and structure from
the existing zoning code, unless major changes are required. The City will
determine whether or not it is necessary to amend the code to establish station
planning areas.
• The City will consider the creation of a set of urban design guidelines in the
creation of the station area plan regulations to be used in evaluation of
development projects within station areas.
• This task will be completed as a part of the General Plan 2000 Implementation
Program.
Define Implementation Strategy
• The City will identify the process for implementation of station area planning
regulations including process and schedule, public participation, interim
provisions for public and private development projects, financing and capital
improvement program.
• The process for implementation will consider the range of planning regulations
that are to be amended or created including General Plan, zoning code, specific
plans, planned development districts, overlay or combining districts and identify
a schedule for each.
• This task will be completed as a part of the General Plan 2000 Implementation
Program.
Implement Station Area Planning Regulations
• The City will implement station area planning regulations in accordance with the
defined implementation strategy.
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Exhibit "B"
Resolution No. 99-64
Page 2 of 2