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HomeMy WebLinkAbout2002-08-21 Packet - Special CITY OF UKIAH CITY COUNCIL- PLANNING COMMISSION SPECIAL JOINT MEETING WEDNESDAY, AUGUST 21, 2002 5:00 p.m. to 6:30 p.m. NEW BUSINESS 1. General Plan Implementation: Annual Report and 2002-03 Projects 2. Housing: Infill and taller buildings ! mixed-use ! annexation /infrastructure 3. Code Compliance: Developing a Philosophy 4. Discussion of ways to improve the City Council- Planning Commission working relationship 5. Adjournment to Regular City Council Meeting at 6:30 p.m. AGENDA SUMMARY ITEM NO. City Council-P%anoin~ Comm Me et in g DA/E: Auqust 21, 2002 REPORT SUBJECT: DISCUSS LAND USE AND ENVIRONMENTAL PLANNING ISSUES WITH THE PLANNING COMMISSION AND PROVIDE DIRECTION TO STAFF SUMMARY: The joint City Council-Planning Commission meetings are intended to get Staffand both bodies together to discuss the important land use planning issues facing our community. Typically, Staff begins the meeting with a status report concerning the implementation of the General Plan, and receives direction regarding priority projects. Additional topics for discussion, as recently identified by both the Council and Commission include housing issues, code compliance, and ways to improve the working relationship between both bodies. General Plan Implementation Status Report: Attached to this Agenda Summary Report is an update of the Status Report originally prepared in 1998, and last revised in late 1999. It details the current status of each City Department's progress in implementing the General Plan. Staff recommends that the Council and Commission review this document and formulate possible priority projects for discussion. Housing: Housing is one of the most pressing land use issues facing our community. Very little vacant residentially zoned land is left in the City limits, and constraints such as traffic, drainage, and neighborhood compatibility have intensified. Single-family residential home development has been sparse at best over the past five years, and small apartment infill development, while fairly consistent, has been controversial. As a result, home prices and rents have increased dramatically, which in turn have lead to a number of community problems. (continued on page 2) RECOMMENDED ACTION: Discuss implementation of the General Plan and broad planning issues with the Planning Commission, and provide direction to Staff. ALTERNATIVE COUNCIL POLICY ACTION: N/A Citizen Advised: Joint meeting publicly noticed in the Ukiah Daily Journal Requested by: Department of Planning and Community Development Prepared by: Charley Stump, Director of Planning and Community Development Coordinated with: Candace Horsley, City Manager Attachments: 1. 2002 General Plan Implementation Status Report Document 2. 1994 Gener. al.~an Steering Committee Recommended Annexation Policies Candace Horsley, City Manager Staff is preparing to embark on the process of updating our General Plan Housing Element, and it would be helpful to have the Council and Commission brainstorm in broad terms about housing issues, problems, and the possible paths to take towards developing a workable strategy for housing in our community. Discussion topics may include, but are not limited to infill/redevelopment, inclusionary housing tools, mixed-use with mandatory housing components, allowing taller buildings, annexing land for housing opportunities and land use control, and solving infrastructure deficiencies. Staff recommends the Council and Commission discuss broad housing issues, and provide preliminary direction to Staff for the purpose of developing a strategy for updating the General Plan Housing Element. Code Compliance: In the recent past, the City's policy concerning code compliance has been to have the program complaint driven rather than continually seeking out violations. The adoption of Citywide commercial development design guidelines, the expansion of the facade program boundaries, the possibility of a Nuisance Ordinance, the foresting of State Street, the increasing interest in design merit from the development community, the establishment of a Code Compliance Coordinator, and other factors, seem to be leading us to a more proactive approach to identifying and correcting code violations. Staff recommends that the Council and Commission discuss the topic of code compliance and work towards establishing a current philosophy/policy. Working Relationship: Every joint City Council- Planning Commission Agenda has included a discussion of how the two bodies can improve their working relationship. Staff recommends that the Council and Commission discuss and identify any problem areas, and strategize on how to resolve those problems. ~ MendOCino County, California General Plan and Growth ~lanagement Program /October 10, 1994 ,/ Preliminar~ Plan and Draft Environmental Im,pact Re~ort Pa{:e Vl.4-7  4. Land Use Implementation Measure LU-2.2(a): City and County zoning codes sections addressing non-conforming uses or structures may, at the option of the agency, include a threshold date -- based on agency building or planning records -- to be used to define that a structure built or use established prior to the date is pre- sumed to be valid. The property owner of a use or structure believed to be illegally 'existing shall provide tangible proof that the use or siructure predates the cut-off date in order for the City or County to make the appropriate finding that the use is valid. [Timeframe for completion: Short- termSplanning period ,;o Measure applies to: City and County .:o Agency/Department respon- sible: Planning Departments] 4.03 Annexation 4.03.01 -Summary of major findings Annexation is the.process by which land within the unincorporated County is brought under the jurisdiction and...control of the incorporated City of Ukiah. Historically, the City has acdom- plished much of its 'growth through annexation. Traditionally in California, when a landowner wanted to develop property with urban scale land uses, the property owner sought to be annexed into a City in order to obtain City services, such as police protection, fire protection, water supplies, and sewage disposal. In California, many of the "urban" services that only cities would provide are now provided by special districts. A special district is a governmental entity formed for the purpose of ivroviding a limited scope of public services. Many of the same urban services provided by the City to its residents are provided to some property owners in the Ukiah Valley by the County or SPecial districts. Sewage disposal service outside of the City is available in certain areas. Special districts also may have policies related to annexing unincorporated land into a District for purposes of providing services. Each District in the Valley also has its own Sphere of Influence within which annexations may be considered. In 1991, the City and various special districts created a Valley-wide Task Force to look at services and make recommendations. The Valley-wide Task Force recommendations may result in changes in boundaries or services of some districts in the Ukiah Valley. These recommendations, if implemented, may have a future bearing on the General Plan. It is not appropriate, however, to address annexation policies related to the special districts in the City or County General Plan. Annexations can be initiated by the City, its voters, individual property owners, or the Mendocino County Local Agency Formation Commission. In order to be considered for annexation, the "territory" -- as the land prolvosed for annexation is called -- must be situated within the City's adopted Sphere of Influence/It is not uncommon in California for a jurisdiction to'increase its population base or economic base by annexing unincorporated lands. The Ukiah 6/Although this is assigned to the short-term planning period, the City or County may implement it at any point in time that the agency updates its zoning code or finds it appropriate to add an amendment for this measure. ?/The role of the Sphere of Influence is discussed in greater detail in Chapter II.A.2.d of the Introduction to the General Plan on page II-6. A map of the Sphere of Influence is shown in Figure 1.1-1. I General Plan prepared by The Company of Eric Jay Toll ,*,Icr, Inc.,l, 1050 East William' Suite 407 4, Canon City, Nevada 59701 4' 702 · 883' ~5987- City of Ukiah · Mendocino County, California General Plan and Growth ~[anagement Progrmn 4. Land Use City Council has traditionally taken a position o£ considering annexations only when proposed by a property owner. .. The City has a need for 775 new housing units over the short-term planning period? There are 262 acres of undeveloped residentially-zoned land potentially available for residential develop- ment within the City, including approximately 120 acres of undeveloped hillside property and 38 acres of commercially zoned lands that may be suitable for residential use. The short-term need for housing requires 178 acres of land. The distribution of land needs and housing requirements is discussed in the Housing Element. Housing Element Tables VI.l-5, Vi.l'-6, and VI.l-20 demonstrates that there is adequate land area available within the City for meeting the City's short-term housing needs. It is possible that there is even adequate land area available to meet most housing needs through the intermediate-term planning period. In order for the City to meet its long-term fair-share housing responsibilities, however, land annexation will be required. The City of Ukiah does not desire to annex territory solely for the purpose of meeting housing goals. Annexation i..s:,a, planning tool to be used sensibly in concert with a comprehensive effort by the City to maintain or improve its service delivery. A key aspect of the vision on which the General Plan is based is its focus on maintaining the City's quality of life. An important part of the quality of life is the ability of the City to provide services to its residents in a fiscally responsible manner. Annexation of territory must be reviewed to ensure that it fits as a part of maintaining or improving, rather than diluting, the quality of life in the City o£ Ukiah. An important role of an annexation policy is to assist in the management of the City's growth. Annexation is a long-range planning tool. The City, through identification of its Sphere of Influ- ence, has potential to work with the County to direct urban-scale growth into areas which wilt'ulti- mately be. included in the City limits. The City's Sphere of Influence is subject to approval by the Local Agency Formation Commission (LAFCo). A map of the Sphere is shown on Figure II.3-1 in the Plan's Introduction. A discussion of the role of the Sphere of Influence is in Chapter II.2-2. The Sphere of Influence shows the ultirnate City limits as envisioned at the time the General Plan was written in 1994:. The Sphere of Influence reflects strong General Plan policies conserving agricultural lands. As a result, no territory is proposed for inclusion in the Sphere of Influence east o£ US 101. The already developed commerdal and industrial lands north of the City limits and north and east of US 101, are proposed for inclusion. West of US 101 and north of the City, the Sphere extends to the north boundary of the Lovers Lane Specific Plan area, including private lands within existing industrial zoning districts on the south side of Pinoleville Road. The Pinoleville Indian Rancheria and Mendocino Community College are not proposed for inclusion in the Sphere of Influence. Between US 101 and the railroad tracks and north of the existing City limits, the Sphere of Influence includes the Masonite lands and the commercial and industrial lands north to Ackerman Creek. West of the City, the Sphere proposes to include the steep hillside areas as future low density and visually-appearing open space. Although most lands proposed within the Sphere are designated for future urban develop- S/Refer to the Housing Element. 1he Preliminary Plan represenls the recommendation of the Ukiah General Plan Growth Management Steering Committee to the Planning Commission City of Uki:~h · Mendocino County, C:diforni:, October 10, 1994 General Plan and Growth ~lanagement P~'ogram Land Use ment, the western ridgetops are proposed for inclusion to prevent urban-scale development and maintain a sense of open space. ~ The Sphere of Influence proposes to include the already urbanized areas surrounding the Ukiah Airport and the area between the Freeway and the hills on a line that approximately extends from Plant Road at the City's wastewater treatment plant to the ridgeline of the western hills. There are a number of cost sharing methods to upgrade facilities to City levels when annexation occurs. For property owners seeking annexation in order to develbp property, much of the cost can be made a condition of development approvals. The City may also form an area of benefit assessment (sometimes called a Benefit Assessment District) to apportion the costs of improvements among all the property owners in the annexation area. Other methods of funding improvements include Municipal Improvement Districts and Bonding Districts. Although a territory9 must be within the Sphere of Influence order to be aIlnexed, merely including land within.. ;the Sphere does not mean that it will necessarily be annexed during th~ life of the General Plan. The General Plan proposes specific land areas within the Sphere of Influence as targets for annexation during the short-term planning period (within five years of adoption). The areas of primary, interest for annexation (Shown on Figure VI.4--2 the map on the next page) are North Ukiah, the Airport Area (incOrporating the areas identified in the Airport Element), and the Br. ush Street Triangle. The North Ukiah Area, bordered by the City Limits on the south, US 101 on the east, the toe of the Coastal Range on the west, and Orr-Springs Road on the north includes the already-developed Vineyard View subdivision, the North State-Ford Road commercial area centering around Raley's Market and Discovery Inn, and the proposed Lovers Lane Specific Plan area. The Airport Area encompasses the territory south of the City limits at the airport, including unincorporated territory on both sides of Norgard Lane, and the area bordered by South State Street on the west and either the railroad tracks or US 101 on the east, whichever is closest to State Street. The Brush Street Triangle is an island of unincorporated lands surrounded by the City Limits on the west and south, and US 101 on the north and east. The General Plan proposes that this territory be annexed for management of the potential land development. 4.03.02 G0al LU-3: Policy LU-3.1: General Plan goals, policies, and implementing programs Annex territory when the new land will fit into the City's quality of life.' Utilize annexation as a planning tool rather than a method of growth control. 9~Territory is the term used by the Local Agency Formation Commission (LAFCo) for the property proposed for annexation. General Plan prepared by The Company of Eric Jay Toll AICP, Inc.4, 1050 East William. Suite 407 ~' Canon City, Nevada 89701,1, ?02' 883- 8987 - Ci~ of Uki:~h · Mendocino County, C~liforni~ October 10, 1[}94 General Plnn nnd Growtla ~lnnngement Program 4. Land Use Implementation Measure LU-3.1(a): Consider annexation opportu~ties when the propos- al for annexation of new territory will result irt a logical extension of City services and will not result irt a reduction irt the level of City services delivered to current residents. [Timeframe for completion: Ongoing planning period · *,° Measure applies to: City °,% Agency/Departmentresponsible: City Council] Implementation Measure LU-3.1(b): When reviewing annexation requests from individual property owners, assess the proposal as part of the overall expansion of the City's limits and not as just a single project request. [~'in~eframe for completion: Ongoing planning period o,% Measure applies to:' City o,% Agency/Department responsible:' City Council] Policy LU-3.2: Ensure that the City can adequately serve annexed territory. · . .. ImplementatiOn Measure LU-'3.2(a): All annexation requests and proposals must be re- viewed to ensure that the City can maintain its service levels to existing ":q~:esidents as well as deliver equivalent service levels to new residents. [rime- flame £or completion: Ongoingplanning period ,.% Measure applies to: City ..*o Agency/Depart- ment responsible: City Council] x Implementation Measure LU-3.2(b): If as a condition of annexation of developed lands, in- frastructure is required to meet City standards, the cost of upgrading -infrastruct:tre to meet City standards may be achieved through benefit assessment districts or other fair and long-term methods of distributing costs. [Yime£rame for completion: Ongoing planning period °,% Measure applies to: City o:o Agen- cy/Department responsible: City Council] Polity LU-3.3: Pre-plan annexations by ensuring development in the Sphere meets City standards. Goal LU-4: Implementation Measure LU-3.3(a): Work with the County to utilize City development standards for projects the County approves within the Sphere of Influence. [Yime£rame for completion: Ongoing planning period °,% Measure appiies to: City and County o*,° Agency/Department responsible: City Planning Department and County Department of Planning and Building] Seek out annexation of urbanized areas close to the City limits. Policy LU-4.1: Target existing urbanized areas for annexation into the City. Implementation Measure LU-4.1(a): During the short-term planning period, the City shall petition the Local Agency Formation Commission to annex existing urb,'m areas identified in the "Areas Proposed for Annexation." 4.04 Land use poficies 4.04.01 Summary. of major findings When it comes to land use policies, there are two significant competing sets of interest. One is the objectives of a property owner to maximize the financial value or equity of property. The General Plan prepared by The Company of Eric Jay Toll AICP, Inc.4, 1050 East William- Suite 407 4' Cat, on City. Nevada 89701 4' 702' &S3' 8952 Cily of Ukiah il~ Mendocino County Uklnh Valley Genernl Plnn and Growth Management l)nq~rnm VI.4. Land Use · Page 11 H H i RPORT A Figure VI.4-1: Areas Proposed for annexation during the short-term planning period April 12, 1995 California State Clearinghouse No. 940103048 Draft Plan and Final Environmental Impact Report Ukiah Valley General Plan and Growth Management Program I1.1. What is a General Plan? 4, Page 6 City of Ukiah il]l, Mendocino County, Califomi; Planning Area City Lhnits PROPOSEI SPHERE OF INFLUENCE ! ! ! ! I Figure II. l-D: Sphere of Influence proposed by the General Plan for LAFCo approval Adopted by the City Council: December 6, 1995