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Home My WebLink About08222018 - packet CITY OF UKIAH PLANNING COMMISSION AGENDA Regular Meeting CIVIC CENTER COUNCIL CHAMBERS 300 Seminary Avenue Ukiah, CA 95482 August 22, 2018 6:00 p.m. 1. CALL TO ORDER 2. ROLL CALL 3. PLEDGE OF ALLEGIANCE 4. APPROVAL OF MINUTES a. The Minutes of August 8, 2018. 5. APPEALPROCESS All determinations of the Planning Commission regarding major discretionary planning permits are final unless a written appeal, stating the reasons for the appeal, is filed with the City Clerk within ten (10) days of the date the decision was made. An interested party may appeal only if he or she appeared and stated his or her position during the hearing on the decision from which the appeal is taken. 6. COMMENTS FROM AUDIENCE ON NON-AGENDA ITEMS The Planning Commission welcomes input from the audience. In order for everyone to be heard, please limit your comments to three (3) minutes per person and not more than ten (10) minutes per subject. The Brown Act regulations do not allow action to be taken on audience comments. 7. SITE VISIT VERIFICATION 8. VERIFICATION OF NOTICE 9. PLANNING COMMISSIONERS REPORT 10. DIRECTOR'S REPORT 11. CONSENT CALENDAR 12. NEW BUSINESS a. Review of Planning Commission's October 11, 2017, Decision to Approve a Major Site Development Permit to Allow the Construction of a 7,500 +/-sf Metal Building to House Support Services for Garton Tractor at 285 Talmage Rd, APN 003-230-34, Taking into Consideration the Consistency Determination made by the Mendocino County Airport Land Use Commission at their August 2, 2018 and August 16, 2018 Meetings and Pursuant to Staff Recommendation Number 3 in the June 6, 2018, Agenda Summary Report; and Recommendation to City Council to Approve or Disapprove the Application, After the Planning Commission Considers the Airport Land Use Commission Determination and any Additional Information from Staff. 13. UNFINISHED BUSINESS 14. ADJOURNMENT Page 1 of 2 ADA ACCOMODATION: If you plan on attending the public hearing and need a special accommodation because of a sensory or mobility impairment/disability, or have a need for an interpreter, please call Cathy Elawadly at the City of Ukiah at(707) 463-6752 to arrange for those accommodations to be made. Page 2 of 2 CITY OF UKIAH PLANNING COMMISSION MINUTES Regular Meeting CIVIC CENTER COUNCIL CHAMBERS 300 Seminary Avenue Ukiah, CA 95482 August 8, 2018 6:00 p.m. COMMISSIONERS PRESENT COMMISSIONERS ABSENT Mike Whetzel, Chair Christopher Watt Laura Christensen Linda Sanders Mark Hilliker STAFF PRESENT OTHERS PRESENT Craig Schlatter, Community Development Director Listed below, Respectively Cathy Elawadly, Recording Secretary 1. CALL TO ORDER The regular meeting of the City of Ukiah Planning Commission was called to order by Chair Whetzel at 6:00 p.m. in the Council Chambers of the Ukiah Civic Center, 300 Seminary Avenue, Ukiah, California. CHAIR WHETZEL PRESIDING. 2. ROLL CALL Roll call was taken with attendance as listed above. 3. PLEDGE OF ALLEGIANCE Everyone recited. 4. APPROVAL OF MINUTES a. The Minutes of July 25, 2018 Motion/Second Christensen/Sander to approve the Minutes of July 25, 2018, as submitted. Motion carried by the following roll call vote: AYES: Commissioners Sanders, Watt, Christensen, Hilliker, and Chair Whetzel. NOES: None. ABSENT: None. ABSTAIN: None. 5. APPEALPROCESS 6. COMMENTS FROM AUDIENCE ON NON-AGENDA ITEMS 7. SITE VISIT VERIFICATION 8. VERIFICATION OF NOTICE Confirmed by staff. Page 1 of 2 Minutes of the Planning Commission, August 8, 2018, Continued: 9. PLANNING COMMISSIONERS' REPORT None. 10. PLANNING DIRECTOR'S REPORT Presenter: Community Development Director Craig Schlatter. 11. CONSENT CALENDAR No items on consent. 12. NEW BUSINESS a. Review of Planning Commission's October 11, 2017 decision to Approve a Major Site Development Permit to allow the construction of a 5,700 +/- sf(as amended to be reduced in size from +/-7,500 sf) metal building to house support services for Garton Tractor at 285 Talmage Rd, APN 003-230-34, taking into consideration the consistency determination made by the Mendocino County Airport Land Use Commission at their August 2, 2018 meeting; and Recommendation to City Council on whether Planning Commission's October 11, 2017 decision to approve the project still stands in light of the Airport Land Use Commission's determination. Presenter: Community Development Director Craig Schlatter. Community Development Director Craig Schlatter discussed the project history in connection with the sequence of events related to the Mendocino County Airport Land Use Commission (ALUC) involvement concerning the project and made an alternative Staff recommendation to the Planning Commission as follows: • Delay the meeting regarding recommendation to the City Council regarding the Planning Commission's October 11, 2017 decision on the Garton Tractor project to the Planning Commission's next regular meeting, scheduled for August 22, 2018. Motion/Second Hilliker/Sanders to postpone tonight's hearing per Staff's recommendation. Motion Carried by the following roll call vote:AYES: Commissioner Hilliker, Watt, Christensen, Sanders, and Chair Whetzel. NOES: None. ABSENT: None ABSTAIN: None. 13. UNFINISHED BUSINESS 14. ADJOURNMENT There being no further business, the meeting adjourned at 6:13 p.m. Cathy Elawadly, Recording Secretary Page 2 of 2 ��y((��!/G/?r�ukrPW6�N ��;,,, ITEM NO.: 12a %� �`��, �, MEETING DATE: August 8, 2018 i'�� 1 �"��y� �� h ��, ... � 1�,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,, 4,()NIN1C1N1I�'1)�iVLl,()YCv1Bs1�Jll� "�C)t7S1sM;TNf`�1ZYt1V1CJC�l ll)F.d'Altl'Nt�i'YI'1' UK1A1➢,f A 2J;4t32 AGENDA SUMMARY REPORT Subject: Review of Planning Commission's October 11, 2017, Decision to Approve a Major Site Development Permit to Allow the Construction of a 7,500 +/- sf Metal Building to House Support Services for Garton Tractor at 285 Talmage Rd, APN 003-230-34, Taking into Consideration the Consistency Determination made by the Mendocino County Airport Land Use Commission at their August 2, 2018 and August 16, 2018 Meetings and Pursuant to Staff Recommendation Number 3 in the June 6, 2018, Agenda Summary Report; and Recommendation to City Council to Approve or Disapprove the Application, After the Planning Commission Considers the Airport Land Use Commission Determination and any Additional Information from Staff. Background: October 11, 2017 Planninq Commission Decision and Proiect Appeal On October 11, 2017, the Planning Commission considered and unanimously approved a Major Site Development Permit, as conditioned, to allow the construction of a new ±7,500 square foot building for Garton Tractor (the "Project"). Attachment 2 is the Staff Report for the October 11 meeting, Attachment 3 is the Final Findings, and Attachment 4 is the Final Conditions of Approval for the Project. An appeal of the Planning Commission's approval was received by the City on October 23, 2017 from Councilmember Crane (Attachment 5). Shortly after the appeal was filed, a representative (the "Applicant") of the Garton Tractor Project submitted a surveyor's map noting the location of the new 7,500± square foot building. Overlaid on the surveyor's map was the Runway Protection Zone (RPZ) from the Airport Layout Plan of the Ukiah Municipal Airport, and the map showed a corner of the proposed new building located within the RPZ (see Continued on Page 2 Recommended Action(s): 1) Review Planning Commission's October 11, 2017 decision to Approve a Major Site Development Permit to allow the construction of a 7,500 +/- sf inetal building to house support services for Garton Tractor at 285 Talmage Rd, APN 003-230-34, taking into consideration the consistency determination made by the Mendocino County Airport Land Use Commission at their August 2, 2018 and August 16, 2018 meetings; and 2) make recommendations to City Council as follows: 1- recommendation to City Council to adopt motion to amend the Final Conditions of Approval Project such that the proposed Garton Tractor building is reduced in size such that the entire building is located outside the Runway Protection Zone of the Ukiah Municipal Airport, 2- recommendation to City Council that since the City has not acquired title to the Garton Tractor property or acquired an avigation easement that prohibits development on the property outside the Runway Protection Zone, the City is not in a position to prohibit development as required in the A or A* Zones, and 3- recommendation to City Council to approve the Garton Tractor Project application, subject to the Findings in Attachment 1. Alternative Commission Option(s): N/A Citizens advised: N/A Requested by: Craig Schlatter, Community Development Director Prepared by: Craig Schlatter, Community Development Director Coordinated with: N/A Attachments: None the dashed box at the southerly portion of the map in Attachment 6). This was of concern to both the Applicant and Staff, and in response the Applicant submitted an amendment to its Project to reduce the size of the building such that it was located outside the RPZ of the Ukiah Municipal Airport (Attachment 7). The amended project would have the five tractor service bays as originally proposed but eliminate the bay for washing implements. June 6, 2018 Citv Council Appeal Public Hearinq The Ukiah City Council considered the appeal of the Planning Commission's October 11, 2017 decision to approve the Major Site Development for the Garton Tractor Project at their June 6, 2018 regular meeting. A copy of the staff report for the City Council appeal public hearing is included as Attachment 8, and materials for the meeting are located on the City's website, at ecitv�fuki�hec�rn/rn��tin�s (click on the June 6, 2018 Agenda). At their June 6 meeting, the City Council voted to continue the public hearing until the following two actions were accomplished: 1. The City is to receive a consistency determination from the Mendocino County Airport Land Use Commission (ALUC) pursuant to staff recommendation number 3 in the Agenda Summary Report; and 2. The Planning Commission is to make a recommendation to the City Council to approve or disapprove the application, after the Commission considers the ALUC determination and any additional information from staff. Staff recommendation number 3 (Attachment 8) reads as follows: "3. City Council directs Staff to first refer the Project to Mendocino County ALUC for review; and upon securing this determination from ALUC, Staff to schedule a second public hearing for City Council to uphold or overturn the Planning Commission's approval of the Garton Tractor Project." The Council further moved to direct and authorize the Mayor to send a letter to the ALUC requesting that it make the consistency determination as soon as possible. The letter (Attachment 9) was sent to the ALUC on June 7. Community Development Department staff also reached out informally to staff of the Mendocino County Department of Planning and Building Services to request an expedited review. The ALUC informed Mendocino County Planning and Building Services Staff, who in turn informed City Community Development Staff that the earliest a meeting could be scheduled was August 2, 2018 and that materials for that meeting would be due to the County by Friday, June 22. City Staff prepared a packet of materials for the ALUC's August 2 meeting that consisted of the following: • City Staff Report: Mendocino County Comprehensive Land Use Plan Consistency Determination for Garton Tractor- for the Commission's August 2, 2018 meeting • Attachments 1-4 to the Staff Report • PowerPoint presentation The City staff report and associated attachments 1-4 to the report are included as Attachment 10. The staff report includes analysis conducted by Mead & Hunt regarding the proposed project. Discussion: Auqust 2, 2018 ALUC Meetinq and Determination City Staff and Senior Aviation Planner Maranda Thompson from Mead & Hunt presented the Garton Tractor Project and associated analysis at the ALUC's August 2 meeting. Included was analysis on the project contained in a technical memorandum written by Mead & Hunt on June 19, 2018 (Attachment 10- included in the associated attachment 4), where Mead & Hunt concludes the Garton Tractor project should be considered acceptable with regard to FAA and CalTrans Handbook standards. Mead & Hunt also noted the Comprehensive Land Use Plan is out of date and amending the plan to remove existing conflicts is a possibility, though may not be achievable in a timely manner [(for this project)]. City Staff and Mead & Hunt reminded the ALUC that per the Mendocino County Comprehensive Land Use Plan ("CLUP" or"the Plan"), and based on the Plan no longer being up to date with current Ukiah Municipal Airport environs, Findings Page 2 of 5 could be made to support an exemption to an inconsistency determination. This exemption has been granted by the ALUC to projects in the past that otherwise would not have been found consistent. After receiving the presentation from City Staff and Mead & Hunt and considering public comment, the ALUC made a determination that the Garton Tractor project, as amended to be reduced in size such that the entire building would be located outside the Runway Protection Zone and Future Runway Protection Zone of the 2015 Airport Layout Map of the Ukiah Municipal Airport, was not consistent with the 1996 Mendocino County Comprehensive Land Use Plan. The ALUC further acknowledged that the current version of the Plan is out of date and should be updated. Citv Attornev Leqal Opinion A legal opinion issued by City Attorney David Rapport on August 3, 2018 (Attachment 11) determined that due to the ALUC finding the City's Airport Master Plan and Master Plan Map consistent with the County Airport Comprehensive Land Use Plan on June 6, 1996, referrals to the ALUC for consistency determinations are not required by the provisions of the Public Utilities Code requiring Airport Land Use Plans (see Attachment A of the Legal Opinion in Attachment 11 for a copy of the ALUC's 6-6-96 minutes). Written Comments Received- Auqust 6, 8, and 15- and Staff Response Written comments were received from the California Pilots Association ("CalPilots") on August 6, 2018 and August 8, 2018 (Attachment 12). Written comments were also received via email on August 15, 2018, from the California Department of Transportation Division of Aeronautics (Attachment 13). Staff working with the City Attorney's Office responded to all comments, a summary of which is provided below. 1. Comment that the Planning Commission review of the Project should be delayed until receiving the written statement of the decision [at the ALUC's August 16 meeting] and comment that the Project proponent is disadvantaged because the proponent cannot propose any changes that may mitigate the inconsistency finding. Staff response- Planning Commission Review: The City Council requested this item be scheduled for a recommendation by the Planning Commission as soon as possible after ALUC review. The soonest possible was August 8. In the ALUC's August 2 meeting, the ALUC determined the Garton Tractor Project to be inconsistent with the CLUP and directed County staff to draft Findings to support the inconsistency determination. Because there was no other stated intention for the August 16 meeting related to the Garton Tractor Project other than to formally adopt the determination made on August 2, Staff felt the Planning Commission meeting could be scheduled. Staff response- "disadvantaged Project proponent:" At the ALUC's August 2 meeting, City Staff requested findings on behalf of the Project proponent (the Applicant) that may have mitigated the inconsistency finding. The ALUC restated that per the CLUP, no structures are allowed in the A* compatibility zone. The ALUC additionally directed that County Counsel bring back formal language on August 16 stating that the project was inconsistent with the CLUP. No Findings that would have mitigated the inconsistency finding were recommended or discussed by the ALUC. After considering the comments further, Staff agreed it was possible that additional information may be shared at the ALUC's August 16 meeting and made an alternative recommendation at the August 8 Planning Commission meeting to delay the Planning Commission review until August 22. 2. Comment that the Proposed Use- the Garton Tractor Project- violates the Avigation Easement primarily due to the Project being located in the Runway Protection Zone. Staff response: The proposed Project, as amended, is not located in the Runway Protection Zone of the Ukiah Municipal Airport. It also falls below the height threshold for the approach surface slope criteria, as explained by Mead & Hunt at the ALUC's August 2 meeting. The amended project was the project reviewed by the ALUC. Page 3 of 5 3. Comment that if the ALUC determines that the project is inconsistent with the CLUP, the City must follow the Overrule process outlined in Section 5.5 of the California Land Use Planning Handbook. Staff response: This comment is mostly addressed in the City Attorney Legal Opinion (Attachment 11). As City staff reads Section 1.3.4 of the Handbook it is silent on overrule of specific projects, unless the City's general plan or specific zoning code provision affecting land use within an airport compatibility zone or the adoption of an airport master plan has not been found consistent with the Comprehensive Land Use Plan. Consistency between the two plans was achieved in 1996. 4. Comment that the City's application to the ALUC with payment was not complete until 6/28 and request that the Planning Commission delay its decision 60 days until 8/27. Staff response: In communicating with ALUC's County planning staff on June 12 City Staff was told the County had received the City's referral/Mayor's letter and the earliest a meeting could be scheduled with ALUC was August 2. Staff was also told that to make this meeting, the County staff must receive the full packet, including payment of the fee ($971), by June 22. City staff delivered the packet, with payment, on June 21 and requested a receipt. The request for a receipt was not granted until the following week. Section 1.4.4 of the Mendocino County CLUP notes that"The Airport Land Use Commission must respond to a local agency's [(the City of Ukiah)] request for a consistency determination on a project within 60 days of referral (Section 21676 (d))." The referral was accomplished on June 6 via public hearing and June 7 via the Mayor's letter. Auqust 8, 2018 Planninq Commission meetinq As stated above in Staff's response to comment#1, Staff made an alternative recommendation that Planning Commission delay their recommendation to City Council regarding the Garton Tractor Project until their next regular meeting of August 22, 2018. Planning Commission voted unanimously to approve this recommendation (see minutes for August 8, 2018). Auqust 16, 2018 ALUC meetinq The Mendocino County Airport Land Use Commission considered a Resolution (Attachment 14) of the ALUC making findings that the Garton Tractor project was inconsistent with the Airport Comprehensive Land Use Plan. By a unanimous 4-0 vote, the ALUC adopted the Resolution. The Applicant's agent commented that the location of the amended project was outside the Runway Protection Zone. The Applicant's agent also commented that they felt the requirements of the avigation easement were met. There was no additional discussion by the ALUC on the item. Staff Recommendation Based on the legal opinion issued by the City Attorney and analysis conducted by Mead & Hunt- specifically that the Project should be allowable per FAA and CalTrans standards- Staff recommends the following: 1. Recommendation to City Council to adopt motion to amend the Final Conditions of Approval (Attachment 4) to include the following: "25. Project will be amended to be reduced in size such that the entire building is located outside the Runway Protection Zone of the Ukiah Municipal Airport." 2. Recommendation to City Council that since the City has not acquired title to the Garton Tractor property or acquired an avigation easement that prohibits development on the property outside the Runway Protection Zone, the City is not in a position to prohibit development as required in the A or A* Zones. 3. Recommendation to approve the Garton Tractor Project application, subject to the following two findings and based on substantial evidence in the record: Page 4 of 5 • Finding #1: By reducing the Project's building size such that it is not in the Runway Protection Zone of the Ukiah Municipal Airport, the Project will not create undue hazards to flight as determined by the Federal Aviation Administration; and • Finding #2: The proposed Project will minimize the public's exposure to excessive noise and safety hazards associated with airport operations. Page 5 of 5 1 ATTACHMENT 1 2 3 4 FINDINGS TO APPROVE THE GARTON TRACTOR PROJECT APPLICATION 5 MAJOR SITE DEVELOPMENT PERMIT 6 285 TALMAGE ROAD; APN 003-230-34 7 FILE NO.: 2789 8 9 10 Recommendation to the City Council for the Approval of the Garton Tractor Project 11 Application (Major Site Development Permit). The Community Development Department and 12 Planning Commission's recommendation to the City Council of approval of the Garton Tractor 13 Project is based in part on the following findings. The findings are supported by and based on 14 information contained in the staff report, the application materials and documentation, and the 15 public record. 16 17 1. By reducing the Project's building size such that it is not in the Runway Protection Zone of 18 the Ukiah Municipal Airport, the Project will not create undue hazards to flight as determined 19 by the Federal Aviation Administration; and 20 21 2. The proposed Project will minimize the public's exposure to excessive noise and safety 22 hazards associated with airport operations. 23 Findings Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 1 ATTACHMENT 2 /''�� AGENDA ITEM NO. 6A � Department of Community Development and Planning %� 300 Seminary Ave. ; ; � Ukiah CA 95482 ;,,,� � � � planning@cityofukiah.com �,�� r.��` �� DATE: October 11, 2017 TO: Planning Commission FROM: Adele Phillips, Associate Planner SUBJECT: Request for Review and Recommendation regarding a Major Site Development Permit to allow the construction of a 7,500± sf inetal building to provide a tractor wash bay and 5 service bays. APN: 003-230-34. File No.: 2789 SUMMARY OWNERS: Pauline Ruddick 2201 Ruddick Cunningham Rd. Ukiah CA 95482 APPLICANT: Garton Tractor 285 Talmage Rd. Ukiah CA 95482 AGENT: L. S. Mitchell Architect, Inc. 135 W Gobbi St., Suite 203 Ukiah CA 95482 REQUEST: Major Site Development Permit to allow the construction of a 7,500± sf inetal building to provide a tractor wash bay and 5 service bays at an existing agricultural implement dealership. DATE DEEMED COMPLETE: September 14, 2017 LOCATION: ±800 ft east of the intersection of Talmage Road and South State Street, lying on the south side of Talmage Road. Address: APN: 003-230-34. TOTAL ACREAGE: ±2.3 A GENERAL PLAN: Industrial (I) ZONING DISTRICT: Manufacturing (M) ENVIRONMENTAL Exempt, pursuant to CEQA Guidelines §15303(c), Class 3, DETERMINATION: New Construction or Conversion of Small Structures RECOMMENDATION: Conditional Approval STAFF PLANNER: Adele Phillips PROJECT DESCRIPTION An application has been received from Garton Tractor--an agricultural implement sales, service, and repair business--for the construction of a new±7,500 sf inetal building to service equipment. The new building will comprise 5 service bays to support tractor finish assembly, service and repair, and detailing. A sixth bay will allow for the washing of the implements. The building will be a pale olive to match the existing structure. Two shipping containers and an existing ±800 sf inetal building will be removed. No new landscaping is proposed by the project, nor additional parking. No additional signage is proposed as part of this development. Nominal, dark-sky friendly lighting will be added above the service bay numbers, as depicted in building elevations. Setting. The subject property is on the south side of Talmage Road, 700±ft east of its intersection with South State Street. The site carries a General Plan Land Use designation of Industrial (I), is zoned Manufacturing (M), and comprises 2.36± A. A flag lot, the property also connects to and is visible from Hastings Avenue/Airport Road to the south, although access to Hastings Ave. is gated and used intermittently by Garton Tractor staff. Including the proposed structure, total lot coverage by structures is ±15%. Parking and storage of sales goods accounts for an additional ±84% of lot coverage. Figure 1. General Plan Land Use Category � ��o��w �� o �„ � � „ ,,, ,,;,,,,,,, ""'"""„'"."�."�"^,,, , �IIMIIAI�I�MM � , ,,, Y , i, ,i, II .. � I� .. � .... ...., ' � ,�� ,,,,;;; � „ „ � � � �E�I�ff�,AL PL��k� „, ;,,,, ,.,... ,�,,,,;.,- I.�IRu�h ,e�.��a� �„ „ �� _:;, ! ` 141�F!'��µ,�,�„�� , �� ,,, �. „ �/f61R a� ��.....�- �:� �r ,,,� ��:: ; � � 1�,�"�F�,� ,�� ' ? „ ,�a�.�W��, � � �� ,�a ��. „ — �fY�'IC��A��:�� . pp � ,,,,,,,,, ,,,,� „� ��IIII��IIII�I�IIIIIIIIIIIIIIIIIII�I�IIIIIIIIIII „ ��d1��0.�wu��.�,,��. Staff Report Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 2 Figure 2. Zoning Designation � �� ,w � �� r� r-w � .�.. �_ f�� z+aNUN� � ° ��u � � �v �� ac � uc; c�nu �� I�� . FF .... ......... F'�1��-I��.s1C�E°11tIL�9l� IFC}-C�oirm�rnerci�l �� R°� IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIII� ��H � �� ,�� ,w,w,w,w, � �� ,�, w �� ,� � �� . � � li�� Figure 3. Aerial View F, , .�� v �Y � � F du j�, � :�::.,,: �� , �l' � ! i " O � �... .,�i.� „ � r" y�', �� /%;, ��; ,,�� .i�r „r;f,. ��i O�, r , �� '"OWt;� � .� � ,... ,'lii�' � F Ip� e,,:�; ,� YIIQ I� I��i� ��ti r� ;�;,q 0 � � �;, �� ,� ��,� �� ,;, ��, ' � � , ��,� ��;`�' �„/,,, . , o �%/'��//' � � iii% .1 .. ., ; i///%%, ��.�v m,` �� i /", Staff Report Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 3 The following land use designations, zoning designations, and uses currently surround the subject property. The Ukiah Municipal Airport is located to the south and west, Mendocino County Farm Supply is located to the east, with a small engine repair and junk yard to the north. Adjoining parcels to the west are in the Runway Protection Zone (Zone A) of the Airport Master Plan and are vacant. ZONE: GENERAL PLAN: USE: NORTH Manufacturing (M) Industrial (I) Retail / Storage EAST Manufacturing (M) Industrial (I) Retail SOUTH Public Facility (PF) Public (P) Storage/Airport WEST Public Facility (PF) Public (P) Vacant - - - = Background. Current development on the subject property was constructed in 1987 and 1990, as allowed by Use Permit 87-70 for the construction of a 4,500 sf main structure for use as a tractor and implement dealership. Site Development Permit 90-34 allowed for a 1,400 sf addition to aforementioned structure. STAFF ANALYSIS Agency Comments. The proposed Site Development Permit has been reviewed by the Building Official, Public Works Division, Ukiah Valley Fire Department, and Ukiah Electric Utility. Comments received from agencies have been incorporated into the site design and the conditions of approval as appropriate. ; Agency Response Response Date Ukiah Valley Fire District No Comment June 2, 2017 � City of Ukiah Public Works Conditions June 12, 2017 August 17, 2017 � City of Ukiah Electrical Utility Conditions June 6, 2017 � City of Ukiah Building Official Conditions June 12, 2017 = - - General Plan Consistency. The General Plan Land Use designation of the subject property is Industrial (I). Industrial areas are intended to support manufacturing and major employment centers, and where public facilities and services exist. Per the General Plan requirements in Industrial areas, paved access to development is required, as is design review. The Design Review Board (DRB) reviewed the project on August 3, 2017, for compliance with the City of Ukiah's Design Guidelines and found the project to be appropriately designed for the proposed use and location. Zoning Consistency. The zoning of the subject property is Manufacturing (M). The current use was permitted under Use Permit 87-70, and the proposed development meets the criteria of the M zoning district. Parkinq. The project does not propose any changes to the current parking lot configuration, nor does the proposed project trigger an increase in required parking. However, the project does Staff Report Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 4 propose that 16 existing parking spaces be used for inventory storage. In order to assess the minimum number of parking spaces required for staff and customers, the following criteria from the Ukiah Municipal Code (UMC) Off-Street Parking and Loading Chapter were used. UMC §9198(G)(1) states: "Industrial Uses Of All Types Except A Building Used Exclusively For Warehouse Purposes: One parking space for each employee on the maximum shift, plus required space for any office area [see §9198(B)(1) below], plus a minimum of two (2) spaces for customer parking plus one space for each vehicle operated from or on the site. In no case shall the number of on site parking spaces be less than subsection G2 of this section." UMC §9198(B)(1) states: "Retail Stores, Offices, Commercial Banks, Savings And Loan Offices, Food Stores, Drugstores, Appliance Repair Shops, And Similar Uses: One parking space for each two hundred fifty(250) square feet of gross leasable space except within the city of Ukiah parking district no. 1 boundaries where the requirement is one parking space for each three hundred fifty(350) square feet of net leasable space..." The total site comprises ±1100 sf of office space, and 14 employees. Therefor a minimum of 21 parking spaces is required. The project designed demonstrates the ability of the property to provide 21 parking spaces for employees, customers, and vehicles operated from or on the site. These 21 spaces may not be used for inventory storage. Airport Compatibility. Per the Ukiah Municipal Airport Master Plan ("Airport Plan"), the subject property is in Airport Compatibility Zone A. This zone comprises land within the Runway Protection Zone (RPZ), or that is within the Building Restriction Line, or, is privately owned and exists under the approach slopes (as is the case with the subject property). Buildinq Heiqht and Sitinq. Height is limited by the Approach Surface, measured at a slope of 34:1, and which commences ±1000 ft south of the proposed building site. Per the Approach Surface criteria, the maximum allowable building height at the southern end of the proposed building site is 29.4 ft. The maximum height of the proposed structure is 21 ft 8 in, and meets the Approach Surface criteria. All other development on the site exists north of the proposed structure and conforms with the Approach Surface height criteria. Density. Zone A allows 10 persons per acre, and this density is intended as a general planning guideline to aid in determining the acceptability of a proposed land use. Per the land use compatibility plan, the project should not attract more than the indicated number of people per acre at any time. This figure should include all individuals who may be on the property, such as customers and employees. The ±2.3 A site can accommodate 23 persons on site per the Airport Plan criteria, and the business employs 14 currently, which leaves room for customers as well. Open Space. Open land requirements are intended to be applied with respect to the entire zone, and per the Airport Plan, "All Remaining [Open Land is] Required" in Zone A. A large portion of Zone A is owned by the City of Ukiah and is designated as permanent open land. The Project will replace 3 existing small structures and is within the existing pattern and bounds of Staff Report Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 5 development. For these reasons Staff interpret the building to have a less than significant impact on the Zone A open space. The aggregate amount of open land remaining in Zone A meets the intent of the Airport Plan. ENVIRONMENTAL REVIEW The proposed project is exempt from the provisions of the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines §15303(c) Class 3, New Construction or Conversion of Small Structures, which allows, "...commercial buildings not exceeding 10,000 square feet in floor area on sites zoned for such use, if not involving the use of significant amounts of hazardous substances where all necessary public services and facilities are available and the surrounding areas is not environmentally sensitive." REVIEW PROCESS Decision Timeline. The proposed project is subject to the requirements of the Permit Streamlining Act (PSA). The PSA requires that a decision be made on the project within 60 days of the application being deemed complete. This application was submitted to the Department of Planning and Community Development on May 30, 2017, and was deemed complete on September 14, 2017. As such, a decision must be made on the project no later than November 14, 2017. The applicant may request a onetime extension of the decision timeline. Public Notice. Notice of the Public Hearing was provided in the following manner: ■ published in the Ukiah Daily Journal October 1, 2017 ■ posted on the Project site October 2, 2017 ■ posted at the Civic Center (glass case) 72 hours prior to hearing ■ mailed to property owners within 300 feet of the parcels included in the Project on September 27, 2017 As of the writing of this staff report, no correspondence had been received as a result of the public notice. RECOMMENDATION Staff recommends Planning Commission 1) conduct a public hearing; 2) adopt the findings; and, 3) conditionally approve the Site Development Permit for the project, based on the facts and findings contained within the staff report and supporting documents. ATTACHMENTS 1. Application 2. Draft Findings of Approval 3. Draft Conditions of Approval 4. Ukiah Municipal Airport Master Plan Compatibility Zoning Map July 1996 Staff Report Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 6 ATTACHMENT 3 1 ATTACHMENT 1 2 3 4 FINDINGS TO ADOPT A MAJOR SITE DEVELOPMENT PERMIT 5 GARTON TRACTOR 6 285 TALMAGE ROAD; APN 003-230-34 7 FILE NO.: 2789 8 9 10 Recommendation for the Approval of the Major Site Development Permit. The Planning 11 Department's recommendation for conditional approval of Major Site Development Permit for 12 the construction of a 7,500± sf inetal building at an existing farm implement dealership 13 ("Project"), is based in part on the following findings. The findings are supported by and based 14 on information contained in the staff report, the application materials and documentation, and 15 the public record. 16 17 1. The Project, as conditioned, is consistent with the goals and policies of the General 18 Plan, as described in the staff report. 2. The location, size, and intensity of the proposed 19 project will not create a hazardous or inconvenient vehicular or pedestrian traffic pattern. 20 21 2. The accessibility of off-street parking areas and the relation of parking areas with respect 22 to traffic on adjacent streets will not create a hazardous or inconvenient condition to 23 adjacent or surrounding uses. 24 25 3. Sufficient landscaped areas have been reserved for purposes of separating or screening 26 the proposed structure(s) from the street and adjoining building sites, and breaking up 27 and screening large expanses of paved areas. 28 29 4. The Project will not restrict or cut out light and air on the property, or on the property in 3o the neighborhood; nor will it hinder the development or use of buildings in the 31 neighborhood, or impair the value thereof. 32 33 5. The Project will not have a substantial detrimental impact on the character or value of an 34 adjacent residential zoning district. 35 36 6. The Project will not excessively damage or destroy natural features, including trees, 37 shrubs, creeks, and the natural grade of the site. 38 39 7. There is sufficient variety, creativity, and articulation to the architecture and design of the 4o structure(s) and grounds to avoid monotony and/or a box-like uninteresting external 41 appearance, as determined by the Design Review Board. 42 43 Notice of the Public Hearing was provided in the following manner: 44 ■ published in the Ukiah Daily Journal October 1, 2017 45 ■ posted on the Project site October 2, 2017 46 ■ posted at the Civic Center (glass case) 72 hours prior to hearing 47 ■ mailed to property owners within 300 feet of the parcels included in the Project 48 on September 27, 2017. Findings Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 1 ATTACHMENT 4 1 ATTACHMENT 2 2 3 4 CONDITIONS OF APPROVAL 5 TO ADOPT A MAJOR SITE DEVELOPMENT PERMIT 6 GARTON TRACTOR 7 285 TALMAGE ROAD; APN 003-230-34 8 FILE NO.: 2789 9 10 11 The following Conditions of Approval shall be made a permanent part of Major Site 12 Development Permit No. 2789, shall remain in force regardless of property ownership, and shall 13 be implemented in order for this entitlement to remain valid. 14 15 Approved Project Description. The project comprises the construction of a 7,500± sf inetal 16 building to provide a tractor wash bay and 5 service bays at 285 Talmage Road. APN 003-230- 17 34. 18 19 STANDARD CONDITIONS OF APPROVAL 20 21 1. Approval is granted for the subject project as described in the project description and 22 associated materials submitted to the Community Development Department and site 23 plan date stamped September 14, 2017. 24 25 2. Plans submitted for building permit shall be in substantial conformance with the plans 26 conditionally approved by the Planning Commission. 27 28 3. Signs require application for and approval of a Sign Permit from the Planning and 29 Community Development Department. 30 31 4. Construction hours 7:00 a.m. to 7:00 p.m. Monday through Friday. Saturday 9:00 a.m. 32 to 4:00 p.m., unless specifically approved by the Public Works Director. Construction is 33 prohibited on Sundays and holidays recognized by the City of Ukiah, unless approved by 34 the Public Works Director. Interior construction is exempt from these hours provided 35 that construction noise is not audible at the project property lines. 36 37 5. On plans submitted for building permit these conditions of approval shall be included as 38 notes on the first sheet. 39 40 6. This Site Development Permit can be revoked through the City's revocation process if 41 the approved project related to this Permit is not being conducted in compliance with 42 these stipulations and conditions of approval; or if the project is not established within 43 two years of the effective date of this approval; or if the established use for which the 44 permit was granted has ceased or has been suspended for 24 consecutive months. 45 46 7. This approval is not effective until the 10-day appeal period applicable to this Site 47 Development Permit has expired without the filing of a timely appeal. If a timely appeal is 48 filed, the project is subject to the outcome of the appeal and shall be revised as 49 necessary to comply with any modifications, conditions, or requirements that were 5o imposed as part of the appeal. Conditions of Approval Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 1 1 2 8. No permit or entitlement shall be deemed effective unless and until all fees and charges 3 applicable to this application and these conditions of approval have been paid in full. 4 5 9. The property owner shall obtain and maintain any permit or approval required by law, 6 regulation, specification or ordinance of the City of Ukiah and other Local, State, or 7 Federal agencies as applicable. All construction shall comply with all fire, building, 8 electric, plumbing, occupancy, and structural laws, regulations, and ordinances in effect 9 at the time the Building Permit is approved and issued. 10 11 10. A copy of all conditions of this Site Development shall be provided to and be binding 12 upon any future purchaser, tenant, or other party of interest. 13 14 11. This approval is contingent upon agreement of the applicant and property owner and 15 their agents, successors and heirs to defend, indemnify, release and hold harmless the 16 City, its agents, officers, attorneys, employees, boards and commissions from any claim, 17 action or proceeding brought against any of the foregoing individuals or entities, the 18 purpose of which is to attack, set aside, void or annul the approval of this application. 19 This indemnification shall include, but not be limited to, damages, costs, expenses, 2o attorney fees or expert witness fees that may be asserted by any person or entity, 21 including the applicant, arising out of or in connection with the City's action on this 22 application, whether or not there is concurrent passive or active negligence on the part 23 of the City. If, for any reason any portion of this indemnification agreement is held to be 24 void or unenforceable by a court of competentjurisdiction, the remainder of the 25 agreement shall remain in full force and effect. 26 27 12. Use of the facility shall not commence until all permits required for the approved use, 28 including but not limited to business license, building permit, or other have been applied 29 for and issued/finaled. 30 31 13. In addition to any other condition imposed, any construction shall comply with all 32 building, fire, electric, plumbing, occupancy, and structural laws, regulations and 33 ordinances in effect at the time the Building Permit is approved and issued. 34 35 36 SPECIAL CONDITIONS OF APPROVAL 37 38 14. All exterior lighting shall be compliant with International Dark Sky standards: lighting 39 must be shielded and downcast, and not have a Correlated Color Temperature (CCT) 4o greater than 3000K. 41 42 15. Owner/Applicant shall maintain the 21 parking spaces identified on the site plan date 43 stamped September 14, 2017, for staff and customer parking only, and not for retail 44 display. No inventorv shall be allowed to encroach into the ADA parkinq spaces. 45 46 16. Existing sewer laterals planned to be utilized as part of this project shall be cleaned and 47 tested, and repaired or replaced if required. 48 17. Sewer connection shall be limited to domestic discharge. Sewer connection fees shall 49 be paid at the time of building permit issuance. Conditions of Approval Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 2 1 18. Applicant shall upgrade existing sidewalk along the subject property frontages (Talmage 2 Road and Hastings Road) to meet ADA requirements, including at all existing driveway 3 approaches and the curb ramp. The connection to Hastings Road shall include an ADA 4 driveway approach and be paved a minimum of 20 feet behind the driveway apron. 5 19. All work within the public right-of-way shall be performed by a licensed and properly 6 insured contractor. The contractor shall obtain an encroachment permit for work within 7 this area or otherwise affecting this area. Encroachment permit fee shall be $45 plus 3% 8 of estimated construction costs 9 20. All driveway and parking areas shall be paved with asphaltic concrete, concrete, or other 10 alternative surfacing, subject to approval by the City Engineer. Note that equipment 11 storage areas or secondary access will not require paving. 12 21. Should improvements exceed 10,000 square feet of new or replaced impervious surface, 13 post-construction storm water mitigation measures may be required. 14 22. Prior to issuance of building permit, all future site improvements shall be submitted to the 15 Electric Utility Department for review and comment. There is an existing 200A Service 16 Panel that feeds the existing shop. Applicant/Owner shall determine estimated power 17 demand load/kVA and load calculation information of the additional footage and/or 18 proposed service panel/project. 19 20 23. Any fees associated with the addition or replacement of any existing or upgraded 21 electrical facilities (such as transformers or secondary conductors) to the proposed 22 building site at 285 Talmage Road will be the responsibility of the Applicant/Owner. 23 24 24. Prior to Final of building permit, an a Avigation Easement shall be recorded per the 25 requirements of the Mendocino County Airport Comprehensive Land Use Master Plan, 26 and copy of this recorded easement provided to the Community Development and 27 Planning Department. Conditions of Approval Major Site Development Permit Garton Tractor File No: 2789-SDP-PC 3 ATTACHMENT 5 Douglas F. Crane 1295 Yokayo Court Ukiah, CA 95482 October 23, 2017 �, � �� , �� ,,N � � f` ��r=E t;,'r��d�� f � `°5 Mr. Sage Sangiacomo, City Manager ; �� City of Ukiah � ;� / ,� ,,� 300 Seminary Ave '�� , ,�, y.��,' "�� k�ah, CA 95482 � Dear Mr. Sangiacomo: Questions have arisen concerrung the substance of the decision and the process used to reach the decision by the Planning Comrnission to issue a Majar Site Development Permit for the Graton Tractor project. I am filing tYus appeal af the Planning Comrnission decision to give the City Council, as the City's elected representatives, the opportunity to review these matters and make the final decision. �N� Respectfully submitted, �� Douglas F. 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I � �a + g$ `�i � gE �s � � ` X�w $ � �� 1 y E� �� A $ � � w��-' #� ffi � �� B� 4� , �-� V� a ` � � � � ¢ SP � 9 ¢ g< m +' a � � , � _ �° �� v� � ,� � �O � � _ �s �,� e`a a �,< s e� `� �� ol gi Z � :a g }'' 2 e w 2 � a� � � " � � �u'. �� I N Q H I � •o �� g � .' p'Q � € C1 ^� F a £&' W F '� � W � w r �j �d10 a . �� 8 Z z �t I � 1* �aI@4y{1I - E Y Ji g .: ��.`�y ��. � ........ t r�' � 1x H O. 1 ss �LLJ � \ €e -- �o ln' ¢a g , � �� g ��, � . & a �1�` 8 � � � � � �'""�„e�,,� I �. �� ,�� € � , . , sss .� �< .� 1.1�1dSI4 .a � a�,�w� � � �,� - � . te - 1N3Wdif1b343S(1 sa, �' aa �,�` Y ..�ooi —,�, ��, �• — �ov ie�6va �.. ° eai. - ��o . ��N�i^"� � � —�i €� '.��' $�� ro'�, �E�� "a �ti� a� $, � s� ��'s , P ar[e7 srma7 v ° �� °„�O � � ��y^ 3oi� b � 0. �g a� .4 Mt� ATTACHMENT 8 Agenda Item No.: 11a M EETI NG DATE/TI M E: 6/6/2018 ,�� ,u»� �� i �� PEAK ITEM NO: COU-391-2017 ,, / ,/�l I . ); ,�°��,,,,��,,,,�,�,��;,� AGENDA SUMMARY REPORT SUBJECT:Appeal of Planning Commission Decision to Approve a Major Site Development Permit for the Construction of a 7,500± Square Foot Metal Building to House Support Services for Garton Tractor at 285 Talmage Road. DEPARTMENT: Community De�,elopment PREPARED BY: Craig Schlatter ATTACHM ENTS: Att�chrra�nt 1- 10-11-17 St�ff R�pr�rt-��rtc�n Tr�ctc�r Att�chrra�nt 2- Fin�l Findin�s-��rtc�n Tr�ctc�r Prc�j��t Att�chrra�nt 3- Fin�l COAs-��rtc�n Tr�ctc�r Prc�j��t Att�chrra�nt 4- 10-23-17 Appe�l -��rtc�n Tr�ctc�r Prc�j��t Att�chrra�nt 5- 1996 �ndc�cinc� Cc�unty Airpr�rt CL9JP Att�chrra�nt 6- 1996 9Jki�h uni�ip�l Airpr�rt �st�r Pl�n Att�chrra�nt 7- 1996 Airpr�rt �st�r PI�n Cc�rrap�tibility Zc�nin� �p Att�chrra�nt�- 1996 Airpr�rt Cc�rrap�tibilityT�bl� 7A Att�chrra�nt 9-5-21-1�C�ITr�ns I�tt�r-��rtc�n Tr�ctc�r Prc�j��t Att�chrra�nt 10- �p wr,RPZ-Ori�an�l �Id�-��rtc�n Tr�ctc�r Prc�j��t Att�chrra�nt 11-Arra�nd�d ��rtc�n Tr�ctc�r Prc�j��t Sit� Pl�n RECOMMENDED ACTION: Staff recommends the City Council uphold the Planning Commission's approval of a Major Site Development Permit for the construction of a 7,500± Square Foot Metal Building to House Support Services for Garton Tractor at 285 Talmage Road, as amended by the applicant to be reduced in size such that the entire building is located outside the Runway Protection Zone of the Ukiah Municipal Airport. Alternate actions are included for review in the Discussion Section of the Agenda Summary Report. BUDGET AMENDMENT REQUIRED: No CURRENTBUDGETAMOUNT: N/A PROPOSED BUDGET AMOUNT: N/A FINANCING SOURCE: N/A PREVIOUS CONTRACT/PURCHASE ORDER NO.: N/A COORDINATED WITH: Greg Owen, Airport Manager ��pr��. �.,, � � � �� mr�„ �u�� iN�M�m��g�r Att�chrra�nt 12- FAP, C�et�rrrain�tic�n-Arra�nd�d ��rtc�n Tr�ctc�r Prc�j��t 11�Cc�rr�spr�nd�n�� R��iv�d -Ad�rra illi�rras-AOPA 11�Cc�rr�spr�nd�n�� R��iv�d -Airpr�rt Cc�rrarraisisc�n I�tt�r Cc�un�il ��rtc�n Prc�j��t Summary: The Council will consider an appeal of the October 11, 2017, Planning Commission's approval of a Major Site Development Permit for the construction of a 7,500± Square Foot Metal Building to house support services for Garton Tractor at 285 Talmage Road. An appeal was filed October 23, 2017. Background: Garton Tractor proposes to construct a ±7,500 square foot building, with a maximum height of 21 feet 8 inches, at 285 Talmage Road to house support services for its agricultural implement sales, service, and repair business. As originally proposed, the new building would house five tractor service bays- for tractor finish assembly, service and repair, and detailing- and one wash bay for washing of the implements. The new building would be located directly to the south of its existing main building. The main building was constructed in 1987 and an addition to that building completed in 1990. On October 11, 2017, the Planning Commission considered and unanimously approved a Major Site Development Permit, as conditioned, to allow the construction of the new ±7,500 square foot building for Garton Tractor (the "Project"). Attachment 1 is the Staff Report, Attachment 2 is the Final Findings, and Attachment 3 is the Final Conditions of Approval for the Project. An appeal of the Planning Commission's approval was received by the City on October 23, 2017, from Councilmember Crane (Attachment 4). The appeal was filed due to questions concerning the substance and the process used to reach the decision by the Planning Commission to issue a Major Site Development Permit for the Garton Tractor Project. Staff had a series of ineetings with the Appellant to understand his concerns. The major issues identified were as follows: 1) questions and concerns about the process by which Staff refers projects to the Mendocino County Airport Land Use Commission (ALUC); 2) concern about the proximity of the Project in relation to to the Runway Protection Zone of the Ukiah Municipal Airport; and 3) concern that a Federal Aviation Administration (FAA) Air Navigation Hazard Determination had not been completed by Staff for the Project. Discussion: Items 1-3 are discussed/reviewed below, and the appeal is forwarded for consideration by the City Council. #1- Project Referral Process to Mendocino County ALUC. Preparing a Major Use Permit or Site Development Permit application for discretionary review by the Planning Commission is an extensive process, requiring research into City codes and regulations including the General Plan and zoning code, as well as making calculations and conducting analysis utilizing codes and regulations of applicable State and local agencies. After conducting a preliminary completeness analysis, the planner will refer a project out to local and State agencies and other City departments for review. A Major Site Development Permit will normally be reviewed by the City's Building Official, Public Works Department, Fire Marshall, Police Department, Electric Utility, Mendocino County Air Quality Management District, Mendocino County Airport Land Use Commission, and Regional Water Quality Control Board- and in certain situations may be referred to the Mendocino County Public Health and Planning Departments, California Department of Fish and Wildlife, and other State and local agencies. Identification of which state and local agencies to refer the project to relies on the planner's knowledge of the codes and regulations of those agencies and how they may apply to the project. Under the Perm it Stream lining Act (PSA), the City has 30 days to deem the application "com plete" and another 30 days to make a decision on the project. A project may be automatically approved under the PSA if the agency fails to make a decision within the time limit and the developer takes certain actions to provide public notice. One of the reviewing agencies is the Mendocino County ALUC. ALUCs, although usually supported by county 2 planning departments, are formed through Public Utilities Code and the CalTrans Division of Aeronautics and have autonomous decision-making authority separate from other actions of the county and board of supervisors. The purpose of an ALUC is to conduct airport land use compatibility planning, but the ALUC has no directjurisdiction over operation of any airport. To conduct land use compatibility planning, the ALUC must adopt an Airport Comprehensive Land Use Plan (CLUP), and per Government Code 65302.3(a) a county's or city's general plan, as well as any applicable specific plans, "shall be consistent." The City Council conceptually approved the Ukiah Municipal Airport Master Plan ("Airport Master Plan") on January 17, 1996, through the adoption of Resolution No. 96-37, which was necessary for referring the document to Mendocino County ALUC for a consistency determination. The Mendocino County ALUC adopted a revised CLUP on June 6, 1996 (Attachment 5), and subsequent to that action determined the Airport Municipal Airport Master Plan was consistent with the CLUP. The final Ukiah Municipal Airport Master Plan was adopted by City Council July 3, 1996, through Resolution No. 97-3 (Attachment 6). The Ukiah Municipal Airport Master Plan contains, among other items, a compatibility zoning map (Attachment 7) and table (Attachment 8) to be used as a guide for determining if projects proposed in certain zones would be consistent with airport land use policies adopted in the ALUC's CLUP. Because the CLUP has not been updated since 1996, these compatibility tools are still used by the ALUC- and by extension Staff planners- in determining compatibility of proposed projects with the CLUP. For projects proposed in approximately 60% of Ukiah city limits, this review should be conducted. When a question exists over compatibility, City Staff should refer projects to Mendocino County ALUC for a compatibility determination. This referral was not completed by Staff for the Garton Tractor Project. In reviewing the Garton Tractor Project a second time, Staff has determined the Project should have been referred to ALUC for a compatibility determination given the Project's location in Zone A of the Airport Master Plan Compatibility Zoning Map. As an interim measure to avoid issues of incompatibility and until such time as the Mendocino County Comprehensive Land Use Plan is updated and a permanent and more transparent process adopted, the Community Development Department has been referring all projects in Zones A, A*, B1, B1*, and B2 (the "A and B Zones") to the ALUC. This interim referral process was instituted by Staff in January 2018 and is still in effect. Ultimately, however, the Mendocino County Comprehensive Land Use Plan (CLUP) is long overdue for an update and its continued utilization may have the unintended consequences of damaging the rights of private property owners and jeopardizing future airport operations. As the CalTrans Aeronautics Division states in their May 21, 2018 letter (Attachment 9), "the [CalTrans Aeronautics] Handbook recommends a comprehensive review and update of ALUCPs [(ALUC plans)] at least every five years. The Division strongly recommends that the ALUC [Plan] undergo a comprehensive review, and if deemed necessary, an update of the ALUCP." Staff agrees with statements made in this letter and would encourage ALUC to update the Plan. An agenda item elsewhere in this June 6 regular meeting requests such a recommendation be made formally from Council to the Mendocino County ALUC. #2- Proximity of the Garton Tractor Project in relation to the Runway Protection Zone (RP� of the Ukiah Municipal Airport. Shortly after the appeal was filed, a representative (the "Applicant") of the Garton Tractor Project submitted a surveyor's map noting the location of the new 7,500± square foot building. Overlaid on the surveyor's map was the RPZ, and the map showed a corner of the new building located within the RPZ(see the dashed box at the southerly portion of the map in Attachment 10). Given the potential for hazards to flight, the FAA does not allow buildings or objects over a certain height to be located in an airport's RPZ. Note: The project as originally submitted should not have been approved with the infringement into the RPZ. This was of concern to both the Applicant and Staff, and in response the Applicant submitted an amendment to its Project to reduce the size of the building such that it was located outside the RPZ of the Ukiah Municipal Airport (Attachment 11). The amended project would have the five tractor service bays as originally proposed 3 but eliminate the bay for washing implements. Because the intensity of use had been lessened (due to elimination of the wash bay) and the Project had not substantially changed since it was first proposed, Staff sought a legal opinion as to whether the Project should be treated as a new application, and if so, if the Project should be reviewed by Planning Commission for approval. The City Attorney issued an opinion that the amended Project had not substantially changed since first proposed and consequently the Project would not be considered a new application. Given the amount of time that has passed since the appeal was first filed, the City Attorney further recommended the item be scheduled immediately for City Council consideration. The Project can still be reviewed by the ALUC at Council's direction, and this alternative is listed under City Council Options below. #3- FAA Air Navigation Hazard Determ ination. Staff requested an Air Navigation Hazard Determination from the FAA utilizing the amended Project coordinates provided by the Applicant's surveyor. This determination was issued by the FAA on April 12, 2018 (see Attachment 12). The aeronautical study determined the structure would not be a hazard to air navigation. Although the FAA Determination was requested for this particular Project by the Appellant, Staff feels seeking future FAA determ inations is good practice for projects located in the A zones (and otherwise as required by law) and has incorporated this practice into its interim process. Staff further recommends this practice be adopted as part of a more permanent process in the future. Below, Staff has listed a set of options for Council consideration: 1. The City Council upholds the October 11, 2017, Planning Commission approval of a Major Site Development Permit, as conditioned, for the the construction of a 7,500± Square Foot Metal Building to house support services for Garton Tractor at 285 Talmage Road, and as amended by the Applicant to reduce the size of the building such that it is outside the RPZ of the Ukiah Municipal Airport; or 2. The City Council overturns the Planning Commission's approval of the Major Site Development Permit and denies approval of the Project; or 3. City Council directs Staff to first refer the Project to Mendocino County ALUC for review; and upon securing this determination from ALUC, Staff to schedule a second public hearing for City Council to uphold or overturn the Planning Commission's approval of the Garton Tractor Project. 4 ATTACHMENT 9 �„ /%�� <,,,. � /'%°� i ; � , J � � � r � � � t , ;,,,,, l ,,,,, .;, ,, ,,,,,, ,,,,,,, June 7, 201$ Mendocino County Airport Land Use Commission CIO Robert Dostakek, Planner III Mendocino County Planning and Building Services 860 North Bush St. Ukiah, CA 954$2 Re: Garton Tractor Project, 285 Talmage Road, Ukiah Members of the Airport Land Use Commissian: On June 6, 2018 the Ukiah City Council moved to refer the praposed Garton Tractor Project, located at 285 Talmage Road, Ukiah, to the Mendocino County Airport Land Use Commission for a compatibility review. This project was appra�ed by the Ukiah Planning Cammission an Ockober 11, 2017 but later appealed. The City Council determin�d that this Project should have been referred to t�e Airport Land Use Commission prior to the Planning Commission hearing the item. We understand that per the Mendocino County Comprehensive Land Use Plan, the Airpart Land Use Commission has up to 60 days to review the project. �n behalf of the Ukiah City Council, I would request that the Airport Land Use Commission review this project as saon as possible so the City can secure a recommendation from khe Ukiah Planning Commission and the City Council make a final decision on the Project appeal. The City's Community Development Department will be referring the project#a the Airport Land Use Commission within fhe next few days. Please contact Craig Schlatter, Community Development Director, at cschlatter@cityofukiah.com or(707) 463-6219 with any questions or if City Council or Staff of khe City can be of assistance in expediting the ALUC re�iew. Sincerely, �� , �� .s. ��e�il�� Ma�r CC: Ukiah City Councilmembers Sage Sangiacomo, City Manager City of Ukiah Planning Commission Greg Owen, Airpo�t Manager Craig Schlatter, Community Development Director ,,.,a, „<,,,,,,,,,,,�,,,,,,,,,, ,�,. ,,,,,,,, .,,,,,, . ��,. ,,,,,,,,. .,,,,,,,,, ,,,,,,,,, ,,� ,,,,,,.�,,,,�,,,,,,,,,,,,,,,,,,,,,,,,, ,,, ,,,,,,,,,,,,,,,,; ,,,,,,, „�,,,,,� 300 Seminary Avenue• Ukiah•CA • 95482-540{� Photte� (707)463-6200 ° F�x: (70�}463-6244 � www.cityofukiah.com ATTACHMENT 10 /''�� Community Development Department �' Planning Services Division % 300 Seminary Ave. ; % ' � ' Ukiah CA 95482 , , , , , ,,,,,, . planning@cityofukiah.com �� DATE: June 21, 2018 TO: Mendocino County Airport Land Use Commission FROM: Craig Schlatter, Community Development Director SUBJECT: Mendocino County Comprehensive Land Use Plan Consistency Determination for Garton Tractor—for the Commission's August 2, 2018 meeting PROJECT OVERVIEW OWNERS: Pauline Ruddick 2201 Ruddick Cunningham Rd. Ukiah CA 95482 APPLICANT: Garton Tractor 285 Talmage Rd. Ukiah CA 95482 AGENT: L.S. Mitchell Architect, Inc. 135 W Gobbi St., Suite 203 Ukiah, CA 95482 REQUEST: Mendocino County Comprehensive Land Use Plan Consistency Determination for Garton Tractor LOCATION: ±800 ft east of the intersection of Talmage Road and South State Street, lying on the south side of Talmage Road. Address: APN: 003-230-34. TOTAL ACREAGE: ±2.36 A GENERAL PLAN: Industrial (I) ZONING DISTRICT: Manufacturing (M) ENVIRONMENTAL Exempt, pursuant to CEQA Guidelines §15303(c), Class 3, DETERMINATION: New Construction or Conversion of Small Structures SUMMARY Garton Tractor, an agricultural implement sales, service, and repair business located at 285 Talmage Road, proposes to construct a new±5,770 sf inetal building for the servicing of equipment. The new building will comprise 5 service bays to support tractor finish assembly, service and repair, and detailing. Two shipping containers and an existing ±800 sf inetal building will be removed. No new landscaping is proposed by the project, nor additional parking. No additional signage is proposed as part of this development. PURPOSE OF AGENDA ITEM The purpose of this agenda item is to request the Mendocino County Airport Land Use Commission (the "Commission" or the "ALUC") review the Garton Tractor new building construction project (the "Project") proposal and determine its consistency with the Mendocino County Airport Comprehensive Land Use Plan ("CLUP"). According to Section 1.3.4(e) of the CLUP, any proposed land use action, as determined by the local planning agency, involving a question of compatibility with airport activities will refer individual actions/projects located in the A and B zones to the ALUC. The Ukiah City Council in its June 6, 2018 meeting determined the Project should be referred to the ALUC. Per this direction, City staff is requesting a consistency determination for the proposed Project from the Commission. PROJECT LOCATION AND SETTING The subject property is on the south side of Talmage Road, 800±ft east of its intersection with South State Street. The site comprises 2.36± acres. A flag lot, the property also connects to and is visible from Hastings Avenue /Airport Road to the south, although access to Hastings Ave. is gated and used intermittently by Garton Tractor staff. Including the proposed structure, total lot coverage by structures is ±13%. Parking and warehouse lots account for an additional ±87% of lot coverage. Current development on the subject property was constructed in 1987 and 1990, as allowed by Use Permit 87-70 for the construction of a 4,500 sf main structure for use as a tractor and implement dealership. Site Development Permit 90-34 allowed for a 1,400 sf addition to the aforementioned structure. Figure 1. Aerial View r,� ,,, , �� ,; i �+ , ;� , ,� �� e ,�;� %i '� �,:. f „�� 6� , p ��{ nr �4( �" pF,f� 41 i ' �I�� 'I''� w i V �� 4�, o p� � ,;i i , � �I� * �; �a �� j�j//� ,,�% � i � �� CITY OF UKIAH ZONING ORDINANCE ALUC Consistency Determination Major Site Development Permit Garton Tractor 2 The City of Ukiah Zoning Ordinance regulates development and use of the subject property with specific development standards. The zoning of the subject property is Manufacturing (M). The current use was permitted under Use Permit 87-70, and the proposed development meets the criteria of the M zoning district. The General Plan Land Use designation of the subject property is Industrial (I). Industrial areas are intended to support manufacturing and major employment centers, and where public facilities and services exist. Figure 2. Genera/Plan Land Use Category Figure 3. Zoning Designation ��I � �uuu�iuiuuuumuuu� IU,..' II� I IIIIIIIII�lyllllllll ��: ,,, .._�� .u�. ..,,� ..,�' �� .�.� I *.,� �._ � ��ha�� v�� "�� .��.��r�:��.� ��,,,�a - �. � � �� ' �� ' � �u��.;� �� „ u�,:>� ,,,,,,,,,,,,,,,,,i�, I GEMlE��tC @0.A....,.. ,. �... r�, . d�CN ,.��.�,.a�, ,q ,��„� d@R , ... �..,.��,-,,...a.�.,� ii, .I � ..,,. fJ�i n , ;,, � �n�i�, � .. I�I�I�I�I�I�I�Iu'� "'� I�I�I��Mi ^I '„ I ,. ��7��II�'Yr�li��mJ�ll rei..rq IIIIIIIIIIIII�II��'�,,, ;;i, .., u�� , li ��. ,. III�� 5 ��............ . �Sfi�S�' < , ` � The following land use designations, zoning designations, and uses currently surround the subject property. The Ukiah Municipal Airport is located to the south and west, Mendocino County Farm Supply is located to the east, with a small engine repair and junk yard to the north. Adjoining parcels to the west are in Zone A of the July 1996 Ukiah Municipal Airport Master Plan Compatibility Zoning Map. ZONE: GENERAL PLAN: USE: NORTH Manufacturing (M) Industrial (I) Retail / Storage EAST Manufacturing (M) Industrial (I) Retail SOUTH Public Facility (PF) Public (P) Storage/Airport WEST Public Facility (PF) Public (P) Vacant - - - = Parkinq. The project does not propose any changes to the current parking lot configuration, nor does the proposed project trigger an increase in required parking. However, the project does propose that 16 existing parking spaces be used for inventory storage. In order to assess the minimum number of parking spaces required for staff and customers, the following criteria from the Ukiah Municipal Code (UMC) Off-Street Parking and Loading Chapter were used. UMC §9198(G)(1) states: "Industrial Uses Of All Types Except A Building Used Exclusively For Warehouse Purposes: One parking space for each employee on the maximum shift, plus required space for any office area [see §9198(B)(1) below], plus a minimum of two (2) spaces for customer parking plus one space for each vehicle operated from or on the site. In no case shall the number of on-site parking spaces be less than subsection G2 of this section." Ukiah City Code §9198(B)(1) states: ALUC Consistency Determination Major Site Development Permit Garton Tractor 3 "Retail Stores, Offices, Commercial Banks, Savings And Loan Offices, Food Stores, Drugstores, Appliance Repair Shops, And Similar Uses: One parking space for each two hundred fifty(250) square feet of gross leasable space except within the city of Ukiah parking district no. 1 boundaries where the requirement is one parking space for each three hundred fifty(350) square feet of net leasable space..." The total site comprises ±1,100 sf of office space, and 14 employees. Therefore a minimum of 21 parking spaces is required. The project designed demonstrates the ability of the property to provide 21 parking spaces for employees, customers, and vehicles operated from or on the site. These 21 spaces may not be used for inventory storage. MENDOCINO COUNTY AIRPORT COMPREHENSIVE LAND USE PLAN Per the Ukiah Municipal Airport Master Plan ("Ukiah Master Plan"), the subject property is located in Airport Compatibility Zone "A*". No definition of the A* Zone is present in the Ukiah Master Plan or CLUP, so City Staff sought a professional opinion from consultants Mead & Hunt. In a technical memorandum dated December 13, 2017 (Attachment 1), Mead & Hunt state "ALUCP Policy 6.1 recognizes the private ownership of land in Compatibility Zone A*, by stating that `it is the intention of the City of Ukiah to provide long-term control of the land uses within these areas by either acquiring the property in fee or obtaining approach protection easements restricting the type and density of land uses permitted.' Unfortunately, the ALUCP does not indicate what criteria should apply within Compatibility Zone A* in the meantime, although presumably the criteria would be those of Zone A." Figure 4. Ukiah Municipal Airport Master Plan Compatibility Zoning Map July 1996 f�� `��C.+d� 1�.1,I liu,,i 1 i»p�„�,�� 1 t1111 ��Ill� �' - G iLJ.a r ° 'I r�' `� - , 1�T � r � /_ ;�,, I y` I r Y��r � I � � � � � a � ;�s ��` � • � � �_ � � �.��,�v '� ' ;�( "�� r ` �."��` �� 1�� F.. - .. . . �. f, �� Project �� ,� � i� � - Location � �ti �`I - -- - w_ " ' _. ..�. � �,j �.- .... f� �� r� �-° _ � .. ; � �... �•� , . ... �. � - �� . �� w _ �W _, -�— . �� I ,. � �a� �.�� , i '��t ��. � :.rrj� r. ._..._ �� .e.,e.,e e.e.e. .� " � ��.. ` �.�, n nv . °"""ti �:`^^`�- - � � .. . ; , . r ... - �� ry P �� ;�.....�. �`� �.� C'Cl� .. � .c ! � � �3 ^,,n> _ r','��„'�i,y�'fYn /k, '� ,� �lAfry�t�rak'�ww�St�rE,Y e 1 t r JiY �ry� __ jr �,ar; ;'�,� [ . 1 ��,�_a.�. .�` .r p�� I f Zerioe�.. , � b, � � �r� i �� ,�z r� �� i�v� � � '�� ._._. ,_�'� ��„��„��,��?row�„ . � - "�-, � � -,.,"T,r�� `� tiar�€�'li .. f ,�7`-� 1 f � ,$,,, �� ""„ ^^yy ^� �I Zcrree E G" -_L�� f -`=-�" i�..1�.� ""�.... I, �,t� �r7»✓� "�--��.�.�._-+" 4��4��u�IJ�,��r,ma 14:� - , � " + S ' 1 �,/ ��y �, � �� : �ar�� .. � ��_ i �� ,,,,� `........ , _,_ �, .. � , . . '., � ��:uide Cu ��.�' ��,. f ,� ,.._ , �.T'_ ��9.Ilrml (�PyO.zNc _ ��m __ � mu� `." / � ��'�'"��'�� '� ��,�u�� , �� ,� ��i� � �.;�u� u�u�;� ,, Heiqht Limits ALUC Consistency Determination Major Site Development Permit Garton Tractor 4 According to the 2011 CalTrans Division of Aeronautics Airport Land Use Planning Handbook, "the planned height of buildings, antennas, and other objects should be checked with respect to Federal Aviation Regulations Part 77 criteria if the development is close to the airport, situation with the runway approach corridors, or on land higher more than 150 feet above the airport elevation." Given the proposed Project's proximity to the airport, as well as its location within Zone A*, City Staff conducted a height analysis and sent a request for a determination of the potential of hazards to air navigation was to the Federal Aviation Administration. The FAA issued its determination on April 12, 2018 (Attachment 2). The aeronautical study determined the proposed structure would not be a hazard to air navigation. The study also determined that marking and lighting are not necessary for aviation safety. Height is limited by the Approach Surface, measured at a slope of 34:1 (see Ukiah Master Plan and avigation easement 704-06) and which commences ±1000 ft south of the proposed building site. Per the Approach Surface criteria, the maximum allowable building height at the southern end of the proposed building site is 29.4 ft. The maximum height of the proposed structure is 21 ft 8 in, and meets the Approach Surface criteria. All other development on the site exists north of the proposed structure and conforms to the Approach Surface height criteria. Figure 5. Elevations of Proposed Structure < ; � � � � � �..�...� .�..; �... l �� .�........ ! �� .., �� y .;,.. � � ��; ,, � � , � ;" � �. ' e .� o.,..�... ..,�,.m .. e ,; �- �r��--�-� �� Aviqation Easement Dedication ALUC Consistency Determination Major Site Development Permit Garton Tractor 5 Per 3.3.2 of the CLUP, "the owner of any property proposed for development within Compatibility Zones A and B may be required to dedicate an avigation easement to the jurisdiction owning the airport." Avigation Easement 704-06 was recorded on the subject property on April 21, 1988 (Attachment 3). The easement states "the said Northerly clear zone approach area shall remain free and clear of any structure, tree or other object which is or would constitute an obstruction or hazard to the flight of aircraft in landing and taking off at the said Ukiah Municipal Airport." As stated above, the FAA determined the proposed structure posed no hazard to air navigation. Because the structure does not pose a hazard to air navigation and will replace existing small structures, City staff believes the terms of the avigation easement will still be fulfilled with the construction of the proposed structure. Density. Density in the Ukiah Airport Plan Compatibility "A" Zones, which includes both the Runway Protection Zone as Zone "A" and the "A*" Zone, allows a maximum of 10 persons per acre. This figure should include all individuals who may be on the property, such as customers and employees. Utilizing this density requirement, the ±2.3 acre site can accommodate 23 persons on site per the Ukiah Municipal Airport Plan criteria. The business employs 14 persons currently, which leaves room for 9 customers. Open Space. Open land requirements are intended to be applied with respect to the entire zone, and per the Ukiah Master Plan, "All remaining [open land is] required" in Zone A. A large portion of Zone A is owned by the City of Ukiah and is designated as permanent open land. The Project will replace 3 existing small structures and is within the existing pattern and bounds of development. For these reasons Staff interpret the building to have a less than significant impact on the Zone A* open space. The aggregate amount of open land remaining in Zone A* meets the intent of the Ukiah Master Plan. ANALYSIS The 2011 California Airport Land Use Planning Handbook recommends Airport Comprehensive Land Use Plans be reviewed and updated at least every 5 years. The existing Mendocino County CLUP does not appear to have been updated since it was first adopted in 1996, whereas the Airport Layout Plan of the Ukiah Municipal Airport was updated as recently as 2015. Per Mead & Hunt's 12/13/17 memo, "The entire ALUCP really needs updating as it is over 20 years old and does not adhere to current Caltrans Airport Land Use Planning Handbook guidance or the procedures and criteria adopted by other ALUCs in recent years." Where this creates particular conflict is in analysis of the Runway Protection Zones as pertaining to this project. According to Table 7A of the CLUP (Table 2A of the Ukiah Master Plan), the A Zone denotes the Runway Protection Zone or within Building Restriction Line. However, the current RPZ of the Ukiah Municipal Airport-Airport Layout Plan ("ALP") comprises an area different from Compatibility Zone A. Because the current RPZ was developed in accordance with FAA requirements and standards, and future funding of the Ukiah Municipal Airport is dependent on an RPZ in conformance with these standards, the RPZ of both the CLUP and the ALP should be identical. Per Mead & Hunt, "...the ALUCP should have been updated as necessary at the time the new ALP was approved by the City and the FAA." Figure 6. The building as proposed is located entirely outside the RPZ of the ALP but within Compatibility Zone A of the CLUP and Ukiah Master Plan. ALUC Consistency Determination Major Site Development Permit Garton Tractor 6 �� .�... rG�r ��, �� xr��uM�u �-"7 e;m f i�' � �, � .... � ,... � �� .�..,a.,�� „..:.�� a �..�.. � .J � � � i , � .,. �. ....W _. , , . � � � � mo � a .. w,z� • '� w,, iz X � ' � .w�' �P ' _ � •- i .� � ,� ; a��' �, � _ , ,� ,.F. � . �� ....�ww .. .. uv . � � ,� � "w �,w � . � , �i ... r... � :,� `� � , z � � � ��, N�, , � .:_ _� �j r�q, i �a� y "-. .m � -� � � �� i � . ..r N �.��._ �^' ` � ��.. w � ° ., r _ �. � v.� . ^ ,.._... � � �.Hk �p swosu d Nu� ,:,, :: h, �. , _.. Y �,� :��R 7'Y ,��R �I A&�db .•,"% "" sU uu�.��rt�e .... 6 i ..vurf� � X�•� �, .r� � . .�x .n '; �) T^^^�A^^P9 ,u.. �i�i ' . r�� ' . a-��r�w�w�s a.m.r. Due to these conflicts, City Staff sought a professional opinion from Mead & Hunt regarding the Garton Tractor project. In a technical memorandum dated June 19, 2018 (Attachment 4) Mr. Ken Brody, Senior Airport Planner, concludes the project should be considered acceptable with regard to FAA and CalTrans Handbook standards. Mr. Brody also notes the CLUP is out of date and amending the plan to remove existing conflicts is a possibility, though may not be achievable in a timely manner [(for this project)]. City Staff also sought input on the Project from the City of Ukiah Airport Manager, Mr. Greg Owen, who provided comments that have been incorporated into this analysis. CONCLUSION City Staff recommends the Commission take all factors stated above into their consideration of a consistency determination for the proposed Project. Additionally, for future projects, City staff recommends the Commission follow Mead & Hunt's advice to either update the CLUP or, as stated in the 12/13/17 memo, "simply update the Ukiah Municipal Airport Compatibility Map found on page 3-15 of the ALUCP." Updating the compatibility zones to be reflective of the current Airport Layout Plan of the Ukiah Municipal Airport should correct these prevailing conflicts of consistency, until such time that a full update to the CLUP can be completed. ALUC Consistency Determination Major Site Development Permit Garton Tractor 7 ATTACHMENT 1 Technical Memorandum I Y 1 L U� ,�r s!;,,,,,��,,,�`,,,,,,,I � �� - ''lc/' ��ir��d�rf,,,; To: Craig Schlatter, Community Development Director City of Ukiah CC: Greg Owen, Airport Manager City of Ukiah From: Ken Brody, Senior Project Manager Corbett Smith, Airport Planner Date: December 13, 2017 Subject: Issues Concerning Garton Tractor Building Proposal and ALUCP Policies * * * * * * * In the telephone conversations that we have had with you and Greg Owen,you asked us to address several airport land use compatibility issues concerning the proposed Garton Tractor building to be situated near the Ukiah Municipal Airport.This memo discusses the following questions: 1. What types of should projects go to the ALUC for review? 2. Should this project go to the ALUC? 3. What criteria should apply regarding development in the airport influence area given that the ALUC's compatibility plan for the airport is outdated? 4. What development, if any, is allowed inside of an RPZ? 5. Is there rationale for the City to allow the project if it is redesigned to remain outside of the RPZ but still in Compatibility Zone A*? 6. How should the ALUC and City proceed to update the compatibility plan? 1. Projects Needing ALUC Review The requirements for ALUC review of individual development projects are primarily spelled out in California state airport land use planning statutes (Public Utilities Code Sections 21676 and 21676.5). Language in the June 1996 Airport Comprehensive Land Use Plan adopted by the Mendocino County ALUC echoes these requirements. Certain types of land use actions always are to be referred to the ALUC.These are ones involving adoption or amendment of a general plan, specific plan, zoning ordinance, or building regulations affecting land within an airport influence area. Zoning ordinance and building regulations variances are also normally considered as actions requiring referral if any airport land use compatibility factor is involved. Other actions may or may not need to be referred depending on the circumstances. State law requires each local agency having territory within an airport influence area to amend its general plan and applicable specific plans to be consistent with the ALUC's plan or to take steps to overrule the ALUC. Until these plans have been referred to the ALUC and deemed consistent with the compatibility plan, or the local agency has overruled the ALUC with respect to these actions, the ALUC can require all individual development actions within the airport influence area be referred for review (PUC Section Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter December 13, 2017 Page 2 21676.5(a)). Few ALUCs are this rigorous. In Policy 1.3.3, the Mendocino County ALUC narrows the list of actions required to be referred to just a few: (a) Any proposed expansion of a city's sphere of influence. (b) Proposed land use project by a government entity which exceeds 10,000 square feet. (c) Proposed storage of more than 2,000 gallons of fuel or flammables per parcel in portions of the B Zone not lateral to the runway. (d) Reconstruction of existing incompatible development with Compatibility Zone A. (e) Any proposed land use action, as determined by the local planning agency, involving a question of compatibility with airport activities. The Compatibility Plan's list of actions that "local agencies will continue to refer" once the local plans are made consistent is identical (Policy 1.3.4). Based on state law, however, such referral is optional unless agreed upon by the local agency. Another exception to the Compatibility Plan's referral requirements in provided in Policy 2.1.8. For nonresidential uses,this policy states that "expansion of non-conforming uses up to 20%of the existing structure floor area or 1,000 square feet, whichever is greater, is exempt from ALUC formal consistency review and findings." 2.ALUC Review of Current Project Our understanding is that the City's action to approve the proposed Garton Tractor building does not require a general plan, specific plan, zoning ordinance, or building regulations amendment or variance. That being the case, the referral is only required for actions in the above list.The proposed project does not explicitly fit into any of these categories. However, it is a new building, not an expansion of less than 1,000 square feet to an existing building, and thus does not qualify for the exemption under Policy 2.1.8. Further, it is an action affecting Compatibility Zone A that can be construed as expansion within Zone A in accordance with Policy 1.3.3(d), even if not technically "reconstruction." When there is any doubt, Mead & Hunt encourages the local agency to refer the project to the ALUC. 3. Basis for Compatibility Review This is a topic about which the City Attorney should be asked. We can say, though, that in working with ALUCs in other counties,their legal counsel has typically advised that the ALUC's consistency determinations be based upon the adopted compatibility plan that is in place even when the plan is known to be outdated. Sometimes in their determination, though, an ALUC will make note of these circumstances. So doing can help the local agency in making the findings necessary to overrule the ALUC. Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter December 13, 2017 Page 3 4.Allowable Development in RPZs The Runway Protection Zone (RPZ) is a ground level, trapezoidal area at the end of the runway.This area is designated to enhance the protection of people and property on the ground.The FAA recommends that incompatible land uses, objects, and activities not be located inside of an RPZ.The FAA also recommends that an airport operator maintain full control of an RPZ, ideally through fee simple property acquisition. If this is not feasible, land use control may be achieved through the use of easements. FAA Advisory Circular 150/5300-13A Airport Design, states the following land uses are generally permissible: ■ Farming that meets specific requirements ■ Irrigation channels that meet specific requirements ■ Airport service roads, as long as they are not public roads. ■ Underground facilities ■ Unstaffed navigational aids that are considered fixed-by-function. The FAAs Memorandum, Interim Guidance on Land Uses Within a Runway Protection Zone, dated 9/27/2012, contains additional guidance on land uses that require coordination with the FAA.Table 1 of the memo lists land uses that require coordination with FAA headquarters in Washington D.C. if the proposed land use is to enter the limits of the RPZ. Buildings and structures are one of the listed land uses. If the City wishes to pursue this coordination with FAA headquarters for the placement of a building in the RPZ,there is a specific alternatives analysis that must be documented and presented to the FAA.The alternatives analysis should include: ■ A description of each alternative including a narrative discussion and exhibits or figures depicting the alternative. ■ Full cost estimates associated with each alternative regardless of potential funding sources. ■ A practicability assessment based on the feasibility of the alternative in terms of cost, constructability and other factors. ■ Identification of the preferred alternative that would meet the project purpose and need while minimizing risk associated with the location within the RPZ. ■ Identification of all Federal, State and local transportation agencies involved or interested in the issue. ■ Analysis of the specific portion and percentages of the RPZ affected, drawing a clear distinction between the Central Portion of the RPZ versus the Controlled Activity Area, and clearly delineating the distance from the runway end and runway landing threshold. ■ Analysis of(and issues affecting) sponsor control of the land with the RPZ. Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter December 13, 2017 Page 4 ■ Any other relevant factors for headquarters considerations. It is Mead & Hunt's opinion that this effort would be costly, time consuming, and would likely not result in a favorable finding for the project in question. These standards notwithstanding, the federal government, including the FAA, has no direct authority over local land uses and consequentlythere isn't an outright prohibition on what land uses can occupy an RPZ. Instead,the FAA uses the grant assurances, which the City agreed to when accepting past FAA grants, as a mechanism for compliance. If the City were to proceed with an action that the FAA determined to violate these grant assurances, there is the potential for the City to be unable to obtain future FAA grants and also the potential requirement to repay past grants. Table 2A of the ALUCP reflects the FAA standards.The criteria for Compatibility Zone A explicitly prohibits: ■ All structures except ones with location set by aeronautical function ■ Assemblages of people ■ Objects exceeding FAR Part 77 height limits ■ Hazards to flight. Importantly,though,the boundary of Compatibility Zone A does not directly match the limits of the either the present or future RPZ as described below. Instead, it follows the airport property line in the area. Additionally, an A* zone is created to encompass the remainder of the RPZ at this end of the runway.This zone boundary also mostly follows property lines rather than the RPZ boundaries. ALUCP Policy 6.1 recognizes the private ownership of land in Compatibility Zone A*, by stating that"it is the intention of the City of Ukiah to provide long-term control of the land uses within these areas by either acquiring the property in fee or obtaining approach protection easements restricting the type and density of land uses permitted." Unfortunately,the ALUCP does not indicate what criteria should apply within Compatibility Zone A* in the meantime, although presumably the criteria would be those of Zone A. 5.Acceptability of this Project if Not in RPZ As currently proposed, a small portion (approximately 1,000 square feet) of the Garton Tractor building would fall within the outermost, northeast corner of the present Ukiah Municipal Airport RPZ.The FAA RPZ standards as well as the ALUC's policies regarding Compatibility Zone A would apply. Complicating the situation, however, is that the 2016 Airport Layout Plan (ALP)that both the City and the FAA have approved proposes a future 465-foot northern extension of the runway.The RPZ would shift a corresponding distance, with the result being that, because of the RPZ's trapezoidal shape, the proposed building would fall just outside the edge of the future RPZ. However, the change to the future RPZ as depicted on the ALP would only occur after the runway end is physically shifted north. Before that can happen,justification must be presented to the FAA that the Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter December 13, 2017 Page 5 runway should be extended to the north to better suit the aviation users, the environmental review process must be completed, and funding must be approved. Accomplishment of the project is thus undoubtedly many years away.The City therefore needs to continue protecting the present RPZ for the foreseeable future and also to protect the future RPZ in order to preserve the prospects for accomplishing the extension. Unless the City wishes to go through the process of seeking FAA acceptance of the proposed building or to simply ignore the FAA standards on the basis that the City does not own the property, the primary remaining option is for the building's design to be modified so it falls entirely outside of both RPZs.The modified building would probably still be in Compatibility Zone A* and remain in conflict with the ALUCP criteria for this zone, but it would likely be acceptable in terms of FAA standards. From an FAA perspective,the remaining concern likely would be to ensure that the building is not an airspace obstruction. Another option, as discussed below, is to update the ALUCP. However, even if the A* zone boundary were to be adjusted to match FAA criteria, a corner of the building would or should be in this zone. Until the proposed runway extension is implemented, the ALUCP should protect for both configurations. Also, any changes to the zone boundaries would still place the building in Compatibility Zone B1 and the criteria for that zone would apply. While our understanding of the proposed use of the new building is that it would be low-intensity, we have not done an evaluation of its consistency with the Compatibility Zone B1 intensity criteria.The project's compliance with one other criterion for this zone—"locate structures maximum distance from extended runway centerline"—could also be debated. 6. Updating the ALUCP In theory, the ALUCP should have been updated as necessary at the time the new ALP was approved by City and the FAA. As is the case with ALUCs in many counties, however, funding for this task was undoubtedly lacking.The entire ALUCP really needs updating as it is over 20 years old and does not adhere to current Caltrans Airport Land Use Planning Handbook guidance or the procedures and criteria adopted by other ALUCs in recent years. We recognize, however, that such an endeavor is well beyond anything being contemplated by the County. What could be done fairly economically, however, is to simply update the Ukiah Municipal Airport Compatibility Map found on page 3-15 of the ALUCP. If the focus of the update were to be limited just to the areas affected by the runway and RPZ changes and not get into issues of the criteria applied in the zones, this task should involve minimal effort. Some CEQA documentation would nonetheless be necessary, particularly if any locations would be affected by greater restrictions. If you would like, Mead & Hunt would be happy to work with you to define a scope and budget for an update of this type. Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com ATTACHMENT 2 Mail Processing Center Aeronautical Study No. h� �r' � Federal Aviation Administration 2018-AWP-6784-OE , �� Southwest Regional Office , Obstruction Evaluation Group 10101 Hillwood Parkway Fort Worth, TX 76177 Issued Date: 04/12/2018 Lawrence Mitchell LS Mitchell Architect, Inc. 135 W Gobbi St Ste. 201 Ukiah, CA 95482 �� DETERMINATION OF NO HAZARD TO AIR NAVIGATION �� The Federal Aviation Administration has conducted an aeronautical study under the provisions of 49 U.S.C., Section 44718 and if applicable Title 14 of the Code of Federal Regulations,part 77, concerning: Structure: Building Garton Tractor New Shop Building Location: Ukiah, CA Latitude: 39-08-07.15N NAD 83 Longitude: 123-12-07.SOW Heights: 610 feet site elevation (SE) 22 feet above ground level (AGL) 632 feet above mean sea level (AMSL) This aeronautical study revealed that the structure does not exceed obstruction standards and would not be a hazard to air navigation provided the following condition(s), if any, is(are) met: It is required that FAA Form 7460-2, Notice of Actual Construction or Alteration, be e-filed any time the project is abandoned or: At least 10 days prior to start of construction (7460-2, Part 1) X_Within 5 days after the construction reaches its greatest height (7460-2, Part 2) Based on this evaluation, marking and lighting are not necessary for aviation safety. However, if marking/ lighting are accomplished on a voluntary basis, we recommend it be installed in accordance with FAA Advisory circular 70/7460-1 L Change 1. This determination expires on 10/12/2019 unless: (a) the construction is started (not necessarily completed) and FAA Form 7460-2, Notice of Actual Construction or Alteration, is received by this office. (b) extended, revised, or terminated by the issuing office. (c) the construction is subject to the licensing authority of the Federal Communications Commission (FCC) and an application for a construction permit has been filed, as required by the FCC, within 6 months of the date of this determination. In such case, the determination expires on the date prescribed by the FCC for completion of construction, or the date the FCC denies the application. Page 1 of 3 NOTE: REQUEST FOR EXTENSION OF THE EFFECTNE PERIOD OF THIS DETERMINATION MUST BE E-FILED AT LEAST 15 DAYS PRIOR TO THE EXPIRATION DATE. AFTER RE-EVALUATION OF CURRENT OPERATIONS IN THE AREA OF THE STRUCTURE TO DETERMINE THAT NO SIGNIFICANT AERONAUTICAL CHANGES HAVE OCCURRED, YOUR DETERMINATION MAY BE ELIGIBLE FOR ONE EXTENSION OF THE EFFECTNE PERIOD. This determination is based, in part, on the foregoing description which includes specific coordinates, heights, frequency(ies) and power. Any changes in coordinates, heights, and frequencies or use of greater power, except those frequencies specified in the Colo Void Clause Coalition; Antenna System Co-Location; Voluntary Best Practices, effective 21 Nov 2007, will void this determination. Any future construction or alteration, including increase to heights,power, or the addition of other transmitters, requires separate notice to the FAA.This determination includes all previously filed frequencies and power for this structure. If construction or alteration is dismantled or destroyed, you must submit notice to the FAA within 5 days after the construction or alteration is dismantled or destroyed. This determination does include temporary construction equipment such as cranes, derricks, etc., which may be used during actual construction of the structure. However, this equipment shall not exceed the overall heights as indicated above. Equipment which has a height greater than the studied structure requires separate notice to the FAA. This determination concerns the effect of this structure on the safe and efficient use of navigable airspace by aircraft and does not relieve the sponsor of compliance responsibilities relating to any law, ordinance, or regulation of any Federal, State, or local government body. If we can be of further assistance,please contact our office at(310) 725-6558, or ladonna.james@faa.gov. 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I�.� �:�::�m�: k�',��r�� ....��. � �"��:�t�r��r�'�._._..�.,�,M�._�_..�w. �:�� ".�d �E �,"w;�� r=�i.?f�k:: �}�i � .�^� �� G �.�r �.�if'�^ th,;�1: th-iu :.� f�t,,..:i_�r �:�nt �� ,��-��n�:�.c� r��, r��r4:��m�S,ar ��;�r� tr�y� �;µ�r� �ba,y� c�iW �.JI��,;,c� ��s �rst ��a .�b;��y,t�:�c� r.,1rJ? �� k�� (:��r��r�°r'�,r°��u�� >��:�„ ,�_ .� r ( �' , �" � � � ��. i ��µ� � � �� .�.�� , �± . y �v.�.. � _.�_�,..�.J � �. �._�. q M1d�a��:'�L �" �'A �.«�ll.��p� . �:p I �..s.n.,.,...._ ( f � i�� (��rk ��, ��A � � �+,,nf ,�r" �,.1�.��au �' � �,,��^,a,� ��",k�.W�� ,,:� �� ,� 9��M�� .�� .a..,��u � ATTACHMENT 4 Technical Memorandum I Y 1 L U� ,�r s!;,,,,,��,,,�`,,,,,,,I � �� - ''lc/' ��ir��d�rf,,,; To: Craig Schlatter, Community Development Director City of Ukiah From: Ken Brody, Senior Airport Planner Date: June 19, 2018 Subject: Airport Compatibility of Garton Tractor Building Proposal Consistency * * * * * * * As you have requested,this Technical Memorandum follows up on Mead & Hunt's December 13, 2017, memo that addressed a variety of issues concerning the Garton Tractor Building Proposal and Mendocino County Airport Land Use Compatibility Plan (ALUCP) policies. Here we focus more specifically on the proposal's compatibility with the Ukiah Municipal Airport using three sources as the analytical basis: policies and criteria set forth in the 1996 ALUCP adopted by the Mendocino County Airport Land Use Commission; Federal Aviation Administration (FAA) standards; and the Caltrans Division of Aeronautics 2011 California Airport Land Use Planning Handbook(Handbook). We have also considered that changes have been made to the proposed Garton Tractor site plan since our December 2017 memo was written. Our understanding of the proposed project is that it will result in construction of a new 5,770-square- foot shop building that will replace an existing approximately 800-square-foot building and two shipping containers.A separate existing building will remain. Current use of the 2.3-acre site is low intensity and expected to remain so with the new construction. Mendocino County Airport Land Use Compatibility Plan Having been adopted more than 20 years ago, the 1996 ALUCP is antiquated in many respects.This is particularly true with respect to criteria and maps pertaining to Ukiah Municipal Airport in that the airport layout plan that the ALUCP uses as the basis for its mapping was updated and modified in 2016. The modifications include a proposed northerly extension of the runway and a corresponding shift in the location of the runway protection zone (RPZ).The size of the existing and future RPZs has also changed. These changes affect the Garton Tractor property. The 1996 ALUCP encompassed the Runway 15 (north) RPZ within two zones: Compatibility Zones A and A*.The Zone A boundary reflects the airport property line that existed at the time and has not changed since then. Zone A* takes in private properties that fall at least partly within the remainder of the RPZ. The RPZ dimensions used were based on the FAA standards applicable to this runway end at the time. As the 2016 ALP shows, however,the currently applicable RPZ dimensions are smaller and fall mostly within Compatibility Zone A.The proposed runway extension,though, shifts the RPZ 465 feet northward, resulting in the bulk of the Garton Tractor property being within the future RPZ. Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter June 19, 2018 Page 2 Two conditions thus are worth examining. First, if the ALUC consistency determination relies upon the currently adopted ALUCP, all the Garton Tractor property would be within Compatibility Zone A*. All of the property also would be within the RPZ established at that time. Alternatively, if the ALUC can take into account the current ALP despite not having updated its ALUCP to reflect this ALP, then the size of Compatibility Zone A* conceivably could be reduced in a manner that would have less impact on the Garton Tractor property.a Importantly,the future building as now proposed in the amended site plan falls completely outside both the existing and future RPZs. The ALUCP criteria for Compatibility Zone A, and presumably applicable to A* as well, indicate that all new structures are prohibited. Further, occupancy of the property is limited to an average of no more than 10 people per acre.To comply with this latter criterion, usage of the 2.3-acre property will need to be limited to no more than 23 people. Given the nature of the current use,we understand that this criterion can be met with the new development.The major question thus becomes one of whether a new structure is allowable under the ALUCP policies. Federal Aviation Administration Standards Another set of criteria important to this project is that of the FAA. ALUCP policies should, at a minimum, adhere to FAA criteria with respect to RPZs.The FAA strongly encourages airports to own the land within their RPZs or otherwise ensure that incompatible uses are avoided. Buildings are one such incompatible use. Mead & Hunt's December 2017 memo covered this topic in detail. Now that the proposed building falls outside of both the existing and future RPZs, much of our earlier discussion no longer applies. Further, City staff requested the FAA to conduct an aeronautical study of the proposed building. As documented in its April 12, 2018, letter, the FAA concluded that the height of the building would not be a hazard to the airport's airspace. Important to note regarding the FAA's analysis, however, is that it only looks at the building height and whether it would be an obstruction to the airport airspace. Even the matter of whether the building would be in the RPZ is not explicitly addressed. Other compatibility issues such as the intensity of the use and the non-building uses within the RPZ are also not addressed. These limitations notwithstanding, the FAA's determination can reasonably be relied up to conclude that the project will not conflict with the ALUCP's airspace protection policies. a Whether the ALUC can base a consistency determination on other than its adopted, although outdated, plan is a legal question regarding which the ALUC should consult its legal counsel. Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter June 19, 2018 Page 3 California Airport Land Use Planning Handbook Given the outdated status of the ALUCP, an examination of the proposed project with respect to criteria in the California Airport Land Use Planning Handbook is worthwhile.ALUCs are required to be guided by the Handbook when preparing compatibility plans for airports within their individual jurisdictions. The Handbook defines a set of safety zones that should be established around airports.Two of these zones are of interest with respect to the Garton Tractor project. Safety Zone 1 corresponds to the FAA- delineated RPZs plus areas adjacent to runways. Safety Zone 2 is the Inner Approach/Departure Zone that extends beyond and along the edges of RPZs. The Handbook criteria for Safety Zone 1 closely match the FAA's RPZ standards. All new structures should be prohibited and any other uses should be "very low intensity in character and confined to the outer sides." Even parking lots, a use that the Mendocino County ALUCP considers "normally acceptable" are to be avoided. The Handbook says that"avoid" should be interpreted as meaning that the"use generally should be permitted only if an alternative site outside the zone would not serve intended public function." In suburban locationsb such as Ukiah, Safety Zone 2 allows nonresidential intensities of 10 to 40 people per acre.This range is lower than the ALUCP Compatibility Zone B1 criterion of no more than 60 people per acre, but higher than the 10 people per acre limit in Compatibility Zone A*. Using Handbook criteria, the proposed Garton Tractor building would be situated in Safety Zone 2. Its type and intensity of use presumably would comply with the criteria for this zone.The portion of the property that falls within Safety Zone 1 is another matter. This area is used for parking of tractors and other storage. Even if the usage is equivalent to a parking lot, the Handbook suggests it should be avoided.This usage is already on-going, however, and as long as it doesn't change significantly after the new building is constructed, can be considered an existing use which state law exempts from Handbook restrictions. Conclusions The project should be considered acceptable with regard to ALUCP airspace protection policies in that the FAA has determined it to be no hazard to air navigation. The amended site plan, which moves the proposed building location outside of both the existing and future RPZs, eliminates conflict with FAA standards for these areas.The remaining uses within the RPZs can be judged acceptable as long as they are primarily storage related. Using the safety zone boundaries delineated in the Caltrans Handbook, the project also appears to comply with Handbook safety compatibility criteria.To ensure compliance, uses within the Safety Zone 1 b"Areas characterized by low-rise(1-2 story)development and surface parking lots." Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com Technical Memorandum Craig Schlatter June 19, 2018 Page 4 (RPZ) part of the property would need to be limited to storage and other very-low-intensity activities similar to the current uses. Uses within the Safety Zone 2 area, including both the proposed and existing buildings, would need to be limited to a maximum of 40 people per acre. About one-third of the property (0.75± acres) is estimated to be in Zone 2, thus its total occupancy should be limited to a maximum of 30 people. With regard to the 1996 ALUCP, the proposed project is not consistent. Amending the plan to remove the conflict is a possibility,though may not be achievable in a timely manner. To make a finding of consistency at the present time, the ALUC would need to take into account the potential zone boundary changes that could come from an ALUCP update and/or rely upon the FAA's airspace determination along with the applicable criteria from the Caltrans Handbook. Mead&Hunt,Inc. 1360 19th Hole Drive,Suite 200 Windsor,California 95492 ....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... 707 526 5010 fax 707 526 9721 www.meadhunt.com ATTACHMENT 11 Law Offices Of RAPPORT AND MARSTON An Association of Sole Practitioners 405 W. Perkins Street P.O. Box 488 Ukiah, California 95482 e-mail: drapport@pacbell.net David J. Rapport (707)462-6846 Lester J. Marston FAX 462-4235 Scott Johnson Darcy Vaughn Mary Jane Sheppard MEMORANDUM TO: Craig Schlatter, Director of Community Development FROM: David J. Rapport, City Attorney DATE: August 3, 2018 SUBJECT: Compatibility Determinations under Airport Planning Law During its hearing the appeal from the Planning Commission decision approving a site development permit to construct a facility in the Airport Land Use Master Plan zone "A*", the City Council continued the hearing to request a compatibility determination by the Mendocino County Airport Land Use Commission ("ALUC"). Having received that determination, the Planning Commission has been requested by the City Council to make a recommendation after considering the ALUC's determination This memorandum addresses the legal requirements for responding to a compatibility determination by the "ALUC." CONCLUSION In my opinion,the City is not required to deny a permit for the Garten Tractor proj ect,based on the ALUC's determination that the Project is not compatible with the Mendocino County Airport Land Use Plan ("County Plan"). The City Council has discretion to approve or overturn the Planning Commission decision. It is not required to give notice of its meeting to the ALUC,to take action approving the project by a 2/3 vote or to make specific findings required by Public Utilities Code Section 21676. Those requirements only apply to the approval or amendment of a General Plan or a zoning code provision that is incompatible with the County Plan. If the project approval is upheld,I would recommend additional findings,based on substantial evidence in the record,that the proj ect will not increase the public's exposure to noise or safety hazards associated with airport operations. ANALYSIS On June 6, 1996, the ALUC found the City's Airport Master Plan and Master Plan Map consistent with the County Airport Land Use Plan ("County Plan"). (See Attachment A, minutes of that meeting.) The City's General Plan incorporates the Airport Master Plan by reference. (Airport Element(Section V.l.).) As a result,referrals to the ALUC for consistency determinations are not required by the provisions of the Public Utilities Code requiring Airport Land Use Plans. (Pub. U. Code Sec. 21670 et sq.). (See CA airport handbook attached as Attachment B.) The County Plan allows, but does not require, the City to refer projects for a consistency determination. (See Section 13.4(e): Once the City plan is found consistent, a local agency may submit for a consistency determination". . . any proposed land use action determined by local planning agency to involve a question of compatibility.") Consequently, a review by the ALUC for compatibility is at the discretion of the City and a determination that the proj ect is inconsistent is advisory and does not require the City to rej ect the proj ect. The procedures in Pub. Util. Code Section 21676 requiring referral to the ALUC and allowing the local jurisdiction to overrule the Commission by a 2/3 vote based on specific findings only applies to the adoption or amendment of a general plan or zoning code provision affecting land use within an airport compatibility zone or the adoption of an airport master plan. These procedures and requirements do not apply to a decision to grant or deny a land use permit for a specific project. The ALUC has no jurisdiction over individual land use decisions in the City. Accordingly, the City Council is not required to deny a permit based on a determination by the ALUC that the project is inconsistent with the County Plan. It is not required to adopt specific findings. It is not required to act by a 2/3 vote. It is not required to give the ALUC 45 days' notice of its hearing on the proj ect. The adopted County Plan and the City's Airport Master Plan provide that: Lands within the A* and B 1* zones are currently not under airport ownership. However,it is the intention of the City of Ukiah to provide long-term control of the land uses within these areas by either acquiring the property in fee or obtaining approach protection easements restricting the type and density of land uses permitted. (See Attachment A,p. 3.) Despite its incompatibility, the Commission and/or the City Council could find that since the City has not acquired title to the Garton Tractor property or acquired an avigation easement that prohibits development on the property, it is not in a position to prohibit development as required in the A* zone. If that were a decision that the Planning Commission would recommend or that staff would recommend to the City Council, then findings should be made based on substantial evidence in the record that the proposed project will minimize the public's exposure to excessive noise and safety hazards associated with airport operations. ATTACHMENT A MENDOCINO COUNTY AIRPORT LAND USE COMMISSION MINUTES -REGULAR JLTNE 6, 1996 LOCATION: Board of Supervisors Chambers, 301 South State Street,Ukiah, California COMMISSIONERS PRESENT: Wood, Calvert, Shelton, Simon, Harris COMMISSIONERS ABSENT: Ruffing PLANNING&BLDG SVC STAFF PRESENT: Debra White, Administrative Aide Alan Falleri, Chief Planner Gary Pedroni,Planner II OTHERS PRESENT: Frank Zotter, County Counsel Ken Brody, Shutt, Moen &Associates Charlie Stump, City of Ukiah The meeting was called to order at 2:30 p.m. ROLL CALL All members were present with the exception of Commissioner Ruffing. APPROVAL OF MINUTES Upon motion by Commissioner Wood, seconded by Commissioner Harris and unanimously carried (5-0; Ruffing absent), IT IS ORDERED that the Airport Land Use Commission Minutes of May 16, 1996 are approved as submitted. PUBLIC HEARING AND ADOPTION OF THE COMPREHENSIVE LAND USE PORTION OF THE UKIAH MUNICIPAL AIRPORT DRAFT MASTER PLAN REPORT B-2 Zone North of the Air�ort-InfilL Mr. Charlie Stump, City of Ukiah briefly reviewed his Field Notes dated May 24, 1996,in which he surveyed the existing land uses within the B-2 Zone North of the airport. It was his conclusion that types and intensities of the existing land uses support the recommended Infill policy. Discussion followed by the Commission regarding the County-wide Infill policy,percentage developed, survey conducted by the City and how new development will be reviewed based on the Infill policy. Mr. Brody, Mr.Pedroni and Mr. Stump also discussed the above issues and responded to questions from Commissioners. Mr. Brody explained that,provided the proposed development is consistent with the Plan,it will not be reviewed by the Airport Land Use Commission. Mr. Stump clarified that,in preparing the survey,he did not determine percentage of development. Mr.Pedroni discussed the methods used by County staff in determining "percentage developed"information for the other airports. MENDOCIINO COUNTY AIRPORT LAND USE COMMISSION JUNE 6, 1996 MINUTES PAGE 2 The percentage developed criteria used for the other airports was based on potential density,not types of development. The criteria used for the other airports considered density not intensity of use. Mr. Brody read Policy 2.1.6 from the Comprehensive Land Use Plan adopted for other airports in the County which addresses infilL Mr. Brody explained that development in this B-2 Zone will be allowed as long as it is not more intensive than what presently exists. The Commission discussed in detail proposed modifications to the first paragraph on Page 7-33. Several modifications were considered. The multifamily residential development limit of 30 dwelling units per acres should be changed to 28 using that standard multiplier of 1.92 people per multifamily residence as prescribed by the California Housing and Community Development Department. Also, the 28 dwelling units per acre density equates to a maximum of 54 people per acre,not 58. Mr. Falleri noted that the language finding high density residential development normally acceptable is only looking at noise issues and is not considering the safety issue. Discussion continued by the Commission regarding safety issues in the B-2 Zone. The Commission reviewed Table 2A found on Page 2-6 of the Comprehensive Land Use Plan. Mr. Falleri pointed out that this compatibility chart provides some flexibility for multifamily residential development. The Commission discussed specific parcels that could be impacted from language that precludes mutlifamily residential development. The vacant lot behind the Yokayo shopping center was specifically discussed. Several Commissioners felt that new multifamily development should be precluded due to safety concerns. The Commission considered Policy 13.4 of the Comprehensive Land Use Plan which details specific developments which must be reviewed by the Airport Commission within A and B Zones. The Commission considered adding language to the proposed modification of the first paragraph on Page 7-33 which would require a percentage of open space lands for any proposed multifamily development. During discussion of two story structures,it was clarified that exempt"equipment rooms," are attic areas that would include storage of air and heating equipment. It was the consensus of the Commission to recess to provide staff an opportunity to develop modified language to address concerns regarding multifamily residential development. RECESS: 3:16 - 3:30 p.m. Mr. Brody reviewed proposed modified language to the first paragraph on Page 7-33 to address Commissioners' concerns. The final proposed modification to the first paragraph on Page 7-33 follows: "The B2 zone north of the Airport largely encompasses existing development. Some vacant land remains,however, and redevelopment of other parcels is anticipated. The Infill policy(Policy 2.1.6) of the County-wide Compatibility Plan is applicable to the entirety of this B2 zone. This policy allows new development of a similar intensity to that of surrounding, already existing, uses. A survey of the area has been conducted to determine the current types and intensity of uses. The following limits on future development of this zone are set accordingly: (1) New residential development is discouraged in this zone. However,where such development is considered the best land use for a particular parcel with regard to general city planning factors,high-density,multifamily residential development shall—because of its lower sensitivity to noise compared to single-family residential uses—be deemed normally acceptable. Any new multifamily residential development shall not exceed 28 dwelling units per acre. Any proposed multifamily residential development greater than MENDOCIINO COUNTY AIRPORT LAND USE COMMISSION JUNE 6, 1996 MINUTES PAGE 3 four acres shall maintain a minimum of 30 percent open lands including non enclosed automobile parking lots,maj or landscaping areas and a share of adj acent roads. New single-family residential uses shall continue to be regarded as normally unacceptable. (2) Non-residential uses shall not exceed 90 people per acre. (3) Routinely occupied portions of buildings shall not exceed two stories in height (equipment rooms, etc., are exempt). (4) Restaurants and motels are acceptable uses in the B2 infill zone provided that they do not exceed the above two criteria. (5) An existing school or hospital located within the B2 infill zone may be expanded provided that the buildings are single story and the use does not exceed an intensity of 60 people per acre." Commissioners supported the proposed language and agreed that it is the intent of the Commission that the added language applies to the property south of Gobbi Street, east of the Yokayo Shopping Center, west of the railroad tracks and north of the terminus of Apple Street. It was further agreed that,if this land is slightly smaller than 4 acres, after its exact size is confirmed, the Airport Commission will decrease the 4 acre size limit within the policy to insure that this parcel is addressed,however, the size limit shall be no more than four acres. The public hearing was declared open and subsequently closed on the Comprehensive Land Use portion of the Ukiah Municipal Airport Draft Master Plan Report when no one was present to address the matter. Upon motion by Commissioner Shelton, seconded by Commissioner Calvert and unanimously carried (5-0; Ruffing absent), IT IS ORDERED that the Airport Land Use Commission adopts the Ukiah Municipal Airport Comprehensive Land Use Plan, subj ect to the amendments as agreed to by the Airport Land Use Commission on May 16 and June 6, 1996, for incorporation into the County-wide Comprehensive Land Use Plan(adopted October 21, 1993), as follows, finding that this action will not have the potential for any significant environmental impact based upon the previous Negative Declaration adopted by the Ukiah City Council associated with the overall Ukiah Municipal Airport Master Plan Figure 7J(following Page 7-32 of the Ukiah Municipla Airport Master Plan Report, July, 1995) is adopted as the "Compatibility Map" for the Ukiah Municipal Airport changing the B2 Zone east of the airport which is adj acent to the A Zone (airport industrial park) to a B 1 Zone. The following individual airport policies are adopted for the Ukiah Municipal Airport. These policies modify the criteria set forth in the ALUC's "Compatibility Criteria"table. The following policies to be added to Chapter 3 of the County-wide Comprehensive Land Use Plan: • Lands within the A* and B1* zones are currently not under airport ownership. However, it is the intention of the City of Ukiah to provide long-term control of the land uses within these areas by either acquiring the property in fee or obtaining approach protection easements restricting the type and density of land uses permitted. • The B2 zone north of the Airport largely encompasses existing development. Some vacant land remains,however, and redevelopment of other parcels is anticipated. The Infill policy(Policy 2.1.6) of the County-wide Compatibility Plan is applicable to the entirety of this B2 zone. This policy allows new development of a similar intensity to that of surrounding, already existing,uses. MENDOCIINO COUNTY AIRPORT LAND USE COMMISSION JUNE 6, 1996 MINUTES PAGE 4 A survey of the area has been conducted to determine the current types and intensity of uses. The following limits on future development of this zone are set accordingly: (1) New residential development is discouraged in this zone. However,where such development is considered the best land use for a particular parcel with regard to general city planning factors,high-density,multifamily residential development shall—because of its lower sensitivity to noise compared to single-family residential uses—be deemed normally acceptable. Any new multifamily residential development shall not exceed 28 dwelling units per acre. Any proposed multifamily residential development greater than four acres shall maintain a minimum of 30 percent open lands including non enclosed automobile parking lots,major landscaping areas and a share of adjacent roads. New single-family residential uses shall continue to be regarded as normally unacceptable. (2) Non-residential uses shall not exceed 90 people per acre. (3) Routinely occupied portions of buildings shall not exceed two stories in height (equipment rooms, etc., are exempt). (4) Restaurants and motels are acceptable uses in the B2 infill zone provided that they do not exceed the above two criteria. (5) An existing school or hospital located within the B2 infill zone may be expanded provided that the buildings are single story and the use does not exceed an intensity of 60 people per acre. • Recording of a Deed Notice is considered an acceptable alternative to dedication of an a�igation or overflight easement in the B2 and C zones. • Establishment of a Real Estate Noise Disclosure requirement shall be considered an acceptable alternative to a Deed Notice requirement in the D zone. With regard to the "Compatibility Criteria"table in general, the reference to "significant risk" under the impact elements for the B2 zone shall be changed to "Moderate risk." PUBLIC HEARING AND RECOMMENDATION TO THE CITY OF UKIAH REGARDING UKIAH MUNICIPAL AIRPORT DRAFT MASTER PLAN REPORT CONSISTENCY WITH ADOPTED COMPREHENSIVE LAND USE PLAN Staff briefly discussed the Airport Mater Plan and consistency with the Comprehensive Land Use Plan. The Airport planning consultant, Ken Brody, as well as planning staff from both the City and County, commented that they were unaware of any inconsistencies between the two documents. The public hearing was declared open and subsequently closed when no one was present to address this matter. Upon motion by Commissioner Wood, seconded by Commissioner Shelton and unanimously carried (5- 0; Ruffing absent), IT IS ODERED that the Airport Land Use Commission finds the Airport Master Plan is consistent with the Ukiah Comprehensive Land Use Plan as amended by the Airport Land Use Commission on May 15 and June 6, 1996 as follows: Page 2-7: Delete heading and paragraph relating to Runway Width. MENDOCIINO COUNTY AIRPORT LAND USE COMMISSION JUNE 6, 1996 MINUTES PAGE 5 Page 5-11: Replace the last paragraph"Accordingly... is next reconstructed."With the following: "Airport user and City input strongly supports the maintenance of the runway at its existing 150-foot width. Accordingly, the Airport Layout Plan depicts the existing and future width of Runway 15-33 at 150 feet." Page 7-9: Replace second and third paragraphs with the following, and delete adjacent sidebar: "the City of Ukiah adopted a new General Plan on December 6, 1995. Work on the Airport Master Plan has been accomplished simultaneously with preparation of the new General Plan. Coordination was maintained during the two planning efforts and the two documents are,with minor exceptions, consistent. The following paragraphs highlight portions of the General Plan which address airport-related concerns. Airport-related matters for which amendment of the General Plan is recommended are listed on Page 7-28. Page 7-9: Fourth paragraph,modify as follows: Delete fifth and sixth sentences, "...The plan calls... and industrial uses..." Modify seventh sentence to begin: "Most expansion o£.." Add sidebar entitled"Ukiah General Plan Residential Land Use Densities" and listing the following" Rural Residential <1 du/ac Low Density 1-6 du/ac Medium Density 1-14 du/ac High Density 1-28 du/ac Page 7-9: Fifth paragraph,replace with the following. "Airport Element—This element of the General Plan focuses on the role of the Ukiah Municipal Airport and the land usse compatibility issues associated with the airport's operations. No specific recommendations regarding future development of the airport are made. Land use compatibility policies are also kept in general terms,with the emphasis instead being placed on future adoption of an Airport Overlay Zone which would set forth detailed compatibilitiy criteria. Page 7-12: Table 7A,modify as follows: Change subtitle from "Ukiah Municipal Airport"to "Mendocino County ALUC." Below"Source" on second page of table, add: "Note: The criteria listed in this table are the Countywide policies adopted by the Mendocino County Airport Land Use Commission. Recommended modifications specifically applicable to Ukiah Municipal Airport are discussed on Page 7-32." Page 7-21: Paragraph beginning "Although these...", fifth line should read: "...change to the extent that it unnecessarily creates..." Page 7-24: First full paragraph,replace second sentence with the following. "...city limits. The new Ukiah General Plan does not propose annexation in this area. City acquisition of approach protection easements on this property, as proposed in this Master Plan,would not necessitate annexation. However, MENDOCIINO COUNTY AIRPORT LAND USE COMMISSION JUNE 6, 1996 MINUTES PAGE 6 if negotiations with property owners results fee title rather than easement acquisition of any of the parcels, then city annexation of those parcels would be appropriate." Page 7-28: "Land Use Designation" section, add third paragraph as follows: "...uses to the south. The adoption of an Airport Overlay Zone as proposed in the new Ukiah General Plan is capable of largely eliminating this latter concern. The underlying land use designations should nevertheless be modified in the area bordering the north end of the Runway 15 runway Protection Zone. A commercial or industrial designation should be shown on the General Plan Land Use Map in place of the present medium- and high-density residential designations. The General Plan also should reflect the proposed City acquisition of approach protection easements within and adj acent to both RPZs. Page 7-32, Figure 7J and Page 7-33: Amended as noted above under motion for adoption of the Ukiah Municipal Airport Comprehensive Land Use Plan. Chairman Simon commended staff inembers from the City and County and the consultant for the excellent j ob in preparing the plans and modifications which help to expedite the hearing process. MATTERS FROM STAFF/COMMISSION Review of Comnosition of Airnort Land Use Commission and Stinulation with the Citv of Wiliits Mr. Frank Zotter discussed the Stipulation with the City of Willits which designates the make up of the Commission. He also discussed State laws which provide to proxies. A modification proposed to the stipulation would change the make up of the Commission so that three Planning Commissioners would be appointed by the Board of Supervisors, three Commissioners appointed by the City Select Committee, and the seventh member appointed by the Airport Land Use Commission. Two members appointed to the Commission shall have a�iation expertise. The modification would allow the Airport Commission to appoint anyone to the Commission rather than limiting to a current Planning Commission member. Chairman Simon reported that the City of Willits has approved the proposed modification to the stipulation. The Commission discussed the use of proxies on the Commission with several Commissioners expressing concern with this procedure. Mr. Zotter discussed State law which provides for use of proxies. He stated that,in fact, all Commissioners are required to select a proxy and submit that selection to the Secretary of the Commission. Ms. White reported in response to Mr. Zotter that the only Commissioner with a proxy on file with the Department is Commissioner Ruffing. The Commission discussed possibilities for controlling use of proxies by adopting rules which would restrict their use. It was the general consensus of Commissioners that they do not support the use of proxies,however, given Counsel's advice that they do not have the authority to eliminate use of proxies given the State law, then their second choice was to develop some rules which would regulate use of proxies. The Commission also discussed the possibility of eliminating use of proxies through a modification of the stipulation. The Commission also discussed the term "a�iation expertise" and felt that the term should be more clearly defined. The Commission also briefly discussed whether proxies are required to file conflict of interest statements with the County Clerk and Commissioner Calvert recommended that staff check into this matter and,if conflict of interest statements are required, that staff contact the proxies to notify them of MENDOCIINO COUNTY AIRPORT LAND USE COMMISSION JUNE 6, 1996 MINUTES PAGE 7 this requirement. By Order of the Chair, staff was requested to discuss the issue of use of proxies and definition of a�iation expertise with the City of Willits to determine if a modification to the stipulation can be developed or if rules of the Commission can be developed to limit the use of proxies. ADJOURNMENT Upon motion by Commissioner Harris, seconded by Commissioner Wood and unanimously carried(5-0; Ruffing absent), IT IS ORDERED that the Airport Land Use Commission hearing is adj ourned at 4:39 p.m. ATTACHMENT B ALUC REVIEW OF LOCAL ACTIONS G ....._ ......... ......... .........._ _ .. ,,,, ............ �eyond these two circumstances, th� need for submi�tal of individual development proposals (assuming they do not involve a �ndment ta loc�l pl s, or zoning changes) is subject to tnutual agr�ement b�tween Yhe AL,LJC and the affect�d jurisdiction (PUC Section 21676.5(b)). Niany ALUCs request that cer�ain major land use actions continue to be submiited for revi�w. Such actions might include very larg� developm�nts wher� site desi (the distribution and density of dwellings, areas of intensive use, open lands, etc.) and other factors, such as building hei�ht, have potential campatibili9.y implicaYions ev�n�vhen the overall developm�nY is basically acceptable. A fiill list of thes�types of development actions should be included in the UC�, local plans, or in some oth�r policy document agreed upon by both entities. ven when a loc�l/urlsdlctlon agrees ta contlnue to submlt major land use actions to the ALUC, pr�ject revlew is narmafly not necessary if related loca! plan amendmenfs or zoning changes previously were r�viewed. Exceptlons to thls Ilmffatfon on subsequent revfews mlght apply if su�cient detafls regarding the projecf were not avaitable when the first consfst�ncy determination was rend�red, or ff the project changes slgnlficantty. Three very important points need ta be emphasized `vith regard to the revie�v of individual land us�development praposals whether by th�ALUC or the local jurisdiction. ALUC reviews are voluntary only if the applicabl� local planning polici�s ar•e firlly consistent witlr the ALUCP—The local plan or other supparting policies (e.g., zoning ordinance; development regulations), therefore, must contain sufficient detail regarding compatibility criteria and review pracedures to ass�ire compliance with policies set forth in the ALLJC's compatibility plan. If this is not done, th�n the lacal planning policies are nat fully consistent with the UC� and submittal of individual developm�nt projects for AL,UC review would continue ta be mandatory. In addition, if an individual developmen� project requires a zoning variance or g�neral pl�n�specific plan amendment, the revie�v is not valuntary as chang�s in local plans and regulations require ALUC revievv. • Local Jurisdiction 12eviews Must Be Based on AL,UCP Crit�ria--The failur� of a local jurisdiction"s local planning policies to r�stat� or incorporate by refer�nc� ALLJC;P criteria and standards—�ven if that plan has been found consistent with the ALUCP--c�oes not relieve the jurisdiction of the obligation to r�quire indiv►dual development proposals to me�t the ALUCP standards. Any exceptions require thaY the local jurisdiction take the special steps necessary to overr�tle the UC. A lacal jt,risdiction's silenc�an�hese matters can be taken to indicate its acquiescence to the standards s�t by the AL,UCP. If a fand use develop►nent project �vere to be challenged L`nder these circutnstances, a co urt could be expected to hold the project to the ALUC's standard�. � Non-Mandato�y ALL1C Project EZeviews Are Advisory—When local planning policies have be�n made fully consistent �vi�h the ALUCP, not only is submittal of most land use d�velopm�nt proposals for ALUC revi�w voluntary, but, when submitted, the reviews become advisory. oreover, vvhen ALUC revi�w is advisory,the local jurisdiction does not ne�d to take the special sY�ps necessary to ov�rrule Yhe commission if it disagrees with the outcorne af a revie�v. ( hile the advisory natur� of AL,UC revie�vs under these circumstances is not sp�ll�d ou� in the SAA, it is clear that, if this wer� not the case, then the local jurisdiction could si ply cancel the revievv agreement and proce�d without any ALUC involvement.) C�fife�rnia Airp�rt Land _ ..................._�� ...._ ..,_ _.,,. . ........ � .. .........,, ......._......_�... ....... lJse Planning Handbook 6-5 ATTACHMENT 12 GALIFORI�IIA PILOTS ASSOClAT10N 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 August 6, 2018 VIA EMAIL (Pla�z�zi�z�(a�,cit�o�'ukialz>co'n & csclzlatt��(a�,cit�o�'ukialz>co'n) City of Ukiah Planning Commission 300 Seminary Avenue Ukiah, California 95482 Re: August 8, 2018-Agenda Item 12a. Garton Tractor Dear Commissioners: The California Pilots Association ("CalPilots") submits this comment letter in response to agenda item 12a on your August 8, 2018 agenda. Pianning Commission Review Shouid Be Delayed As an initial matter, CalPilots objects to the presentation of this matter to the planning commission without waiting for the written statement of decision to be issued by the Airport Land Use Commission ("ALUC") who voted 6-0 to find the project inconsistent. The result is to deny the public the ability to properly comment on this project in light of that public meeting. As an initial matter, CalPilots requests the Planning Commission hold this matter over until after the ALUC report has been written to allow for public review. Additionally, the proponent of the project is disadvantaged because the proponent cannot propose any changes that may mitigate the inconsistency finding. Although the City of Ukiah ("City") Attorney has submitted a memorandum asserting the City may disregard the inconsistency determination. The attorney states it was optional to submit the matter to the ALUC. CalPilots believes the decision to ignore an avigation easement that is part of the Airport Land Use Plan renders the project a modification of the zoning requiring review. However, the dispute is moot. The City did invoke Section 1.3.4(e) and sought ALUC review. Having done so, the City must now comply with the ALUC process. A failure to present the written ruling of the ALUC violates that process and harms the public. Presuming the City disagrees and will move forward without the ALUC report, CalPilots seeks to ensure a clear administrative record. CalPilots opposes the expansion of buildings within the Runway Protection Zone for the reasons contained in our letter to the Airport Land Use Commission ("ALUC"). (See Exhibit A.) www.G�.�..Pi LOTs.o R� GALIF�RNIA P[LOVS ASP's�C1ATIQN 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 Avigation Easement An avigation easement placed on the land prohibits the construction of new or expanded obstacles on the ground. Ignoring the plain language of the avigation easement, the City appears to rely on the fact that flying aircraft would not hit the building to expand a building already located in the clear zone near the runway. This clear zone is something near all airports and why the passengers on Aeromexico flight 2431 survived, because it crashed on takeoff into clear land without buildings. The Proposed Use Violates The Avigation Easement It is important to note that the current land use plan for the City was found compatible with the Airport Land Use Plan back in 1996. In doing so, the City and the ALUC in 1996 relied upon the avigation easements on the land, especially on the property Garton Tractor now wishes to expand their facilities on. (A copy of the Avigation Easement is attached as Exhibit B.) That easement has been in place for 30 years, since April 18, 1988. The owners agreed that they: "...shall not erect, or permit the erection or growth of, any structure, tree or other object within that portion of Parcel 1 lying within the said Northerly clear zone approach area..." (emphasis added) No requirement a building or tree be an air navigation hazard. Expansion of any structure in the runway protection zone (aka the clear zone) is prohibited. (See graphic on page 10 of Exhibit B.) On page 2, the City is granted the power to: "3. The right to remove, raze or destroy those portions of buildings, or other structures and land infringing upon or extending into said Northerly approach surface, together with the right to prohibit future erection of buildings or other structures which would infringe upon or extend into said surface, and the right to control the maintenance of any structure which would cause temporary interference with said surface." The easement is granted to benefit the Ukiah Airport. Granting this expansion of the building explicitly prohibited by the easement constitutes waste of airport resources and violates the ALUC approval of the general plan that included the avigation easement on this property. Similar to an easement prohibiting the building of structures on an irrigation canal, this prohibits the expansion or building of buildings in the clear area. Just as this commission would reject a project that violates an irrigation easement it should reject this project as violating the avigation easement. WWW.GALPILOTS.ORG GALIF�RNIA P[LOVS ASP's�C1ATIQN 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 Airport Land Use Commission (ALUC) Review The City's decision to submit the project to the ALUC for review renders the City Attorney's opinion irrelevant. Having elected under Section 1.3.4(e) to seek a consistency determination from the ALUC, the City may not now disregard the determination by indicating it was not required. The City invoked the ALUC's power and received a negative determination. If it wishes to approve the construction despite the finding, it must now override the ALUC inconsistency determination utilizing the 2/3rds vote method and comply with the notice requirements. Once Submitted To The Airport Land Use Commission, The City Must Override CalPilots believes the violation of the avigation easement acts as a de facto modification to the general plan requiring ALUC review. However, which opinion is correct was rendered moot by the City's decision at the City Council level to seek ALUC review. Contrary to the City Attorney's memorandum limiting ALUC power, the ALUC is authorized "[t]o review the plans, regulations, and other actions of local agencies and airport operators pursuant to Section 21676." (Pub. Util. Code, § 21674, subd. (d).) The City has chosen under the County Airport Land Use Plan Section 13.4(e) to invoke ALUC review for this project because a question of compatibility has arisen. Having invoked the power of review, the ALUC determined this project was not compatible. The City must now overrule the ALUC using a 2/3rds majority. Traditionally, a comment letter would address the findings of the ALUC associated with incompatibility. The City has denied the public that ability by moving this project forward without regard for the ALUC ruling. As noted above, the City invoked the ALUC power and now is prohibited from saying it didn't mean to. Perhaps begging forgiveness would have been an option, but they asked permission and were denied. They cannot now turn a blind eye to that denial, especially after having chosen to invoke ALUC review. At the planning commission level, CalPilots requests the commission reject the proposal as incompatible with the airport and a runway protection zone designed to save people when problems occur on takeoff or landing. In the alternative, CalPilots renews its request this matter be tabled until after the ALUC issues its report. WWW.GALPILOTS.ORG GALIF�RNIA P[LOVS ASP's�C1ATIQN 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 Conciusion The proposed project causes the growth of a structure within the clear area as prohibited by the Avigation Easement placed on the property. As a result, this commission should reject the plan as violating an easement on the property. Additionally, this commission should concur with the ALUC and reject the proposed project. Regards, /s/Karl Schweikert Karl Schweikert General Counsel California Pilots Association Via Email (C"c�uilsel�C"�1Pilc�ts.c�r�;) Exhibits: A—CalPilots Comment Letter to ALUC B —Avigation Easement on the Property (recorded April 18, 1988) CC: CalTrans Division of Aeronautics City of Ukiah City Council via City Manager WWW.GALPILOTS.ORG Exhibit A CalPilots Comment Letter to Mendocino County Airport Land Use Commission August 1, 2018 GALIF�RNIA P[LOVS ASP's�C1ATIQN 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 August 1, 2018 VIA EMAIL (Planning@cityofukiah.com) Mendocino County Airport Land Use Commission 501 Low Gap Road, Room 1070 Ukiah, California 95482 Re: Agenda Item Sa. Garton Tractor,AL UC 2018-0002 Dear Commissioners: The California Pilots Association ("CalPilots") submits this comment letter in response to agenda item Sa on your August 2, 2018 agenda, Garton Tractor, ALUC_2018-0002. We appreciate the work of the Airport Land Use Commission ("ALUC") in ensuring projects located within the airport influence area are compliant with the California Airport Land Use Planning Handbook issued by Caltrans. As will be discussed below, CalPilots urges the ALUC to find this project not compatible with not only the current Airport Land Use Plan ("ALUP"), but clearly in violation of the avigation easement applicable to the parcel. Height Determination —No Hazard to Air Navigation Is Irrelevant Due To Location As the commissioners are likely aware, for the purpose of"Air Navigation," the FAA begins at 50' above ground level. The FAA does not, and cannot, control land use near the airport. Thus all FAA assumptions begin at 50' presuming compatible land use exists. CalPilots concurs this single story structure would not present an air-obstacle, even though it may constitute a land-use obstacle. The expansion of buildings within the Runway Protection Zone ("RPZ") is an obstruction within what is intended to be a clear area. Mead& Hunt's December 20171etter identifies FAA guidance limiting the RPZ to farming, irrigation channels, non-public airport service roads, underground facilities, and air navigational aids (e.g. ILS equipment). The area is intended to be clear of obstacles. Unfortunately the buildings were already located in the RPZ, but their expansion causes problems. WWW.GALPILOTS.ORG GALIF�RNIA P[LOVS ASP's�C1ATIQN 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 Avigation Easement—The Proposal Conflicts With The Easement CalPilots disputes the staff reports finding that the FAA finding of no hazard to air navigation means it complies with the avigation easement. CalPilots notes this is not a legal opinion issued by the City Attorney. A brief digression into terminology. The FAA used to refer to these areas at the end of runways designed to be clear as clear areas. About the mid-90's it changed the term to Runway Protection Zones ("RPZ"). The avigation easement's reference to "Clear Areas" are references to this protection zone. An RPZ is what allowed the passengers on Aeromexico flight 2431 to survive their failed takeoff yesterday. They are critical to the safety of pilots and their passengers. The easement requires the owner to keep the clear zone "free and clear of any structure... which is or would constitute an obstruction or hazard to the flight of aircraft..." (Staff Report, Attachment 3.) The use of"or" in the language of the easement means the building cannot constitute either an obstruction or a hazard to the flight of aircraft. Since the FAA must rely upon local zoning to protect the RPZ, hazards to air navigation are only evaluated if they exceed 50 feet above the runway. The FAA relies upon avigation easements, like the one present on Garton Tractor's land to protect the RPZ. The City's staff report suggests improperly ignoring the clear area easement. The existing buildings are already obstructions, but they pre-exist the easement. An expansion of one of those buildings would violate the easement. Requirement to Appiy Current ALUP Although Mead & Hunt declined to provide a legal opinion, in its December 13, 2017 letter (Staff Memorandum, Attachement 1, pg. 2) indicated ALUC determinations are typically made based on the current adopted ALUP. CalPilots concurs. Consistency determinations must be based on the then adopted ALUP. That such a plan may negatively impact development near the airport provides an impetus for undertaking a plan update. Additionally, without an actual change in the location of the runway, no update to the ALUP would eliminate the conflict with the RPZ. Application to a Runway Protection Zone ("RPZ") Again, Mead& Hunt identified the permitted uses of RPZ land. Although additional guidance does allow for the possibility of buildings in the RPZ, unstated in their letter is that those buildings that do receive approval are typically for aeronautical use. WWW.GALPILOTS.ORG GALIF�RNIA P[LOVS ASP's�C1ATIQN 1414 K ST., 3RD FLOOR, SACRAMENTo, CA 95814 Proposal to Shift Runway and Ultimately RPZ Although future changes to the runway are planned, until funding and construction actually occur, the implementation of a project impeding on the RPZ may cause a further reduction in the length of the Ukiah runway reducing its viability as a fire bomber base during wildfire season, a matter presumably of critical importance to Ukiah. Conciusion Garton Tractor's business is located on property subject to an avigation easement. Like all easements, they limit what you can do. This easement prohibits new buildings, trees, or other things that would be an obstacle in the object free area of a runway protection zone. Thus, an expansion of buildings or the construction of new buildings conflict with this easement. Development in an RPZ clearly conflicts with the Airport Land Use Planning Handbook. Also, new construction in the RPZ raises concerns the FAA may further reduce the runway length to accommodate the blocked RPZ, which could potentially limit the airport's usefulness to CalFire in defending Mendocino and Lake counties from wildfires. CalPilots urges the ALUC to find the project not compatible with the ALUP. Regards, /s/Karl Schweikert Karl Schweikert General Counsel California Pilots Association Via Email (Counsel@CalPilots.org) WWW.GALPILOTS.ORG Exhibit B Avigation Easement On Land Now Occupied By Garton Tractor Recorded April 18, 1988 , ��, w� �� 'r��ld��"w��+�" r„,�� ,,�,w.��r�.�� ,, ! �"�� 8 X�" ',��'�� r ae . . ` �:..k. ' . � A .�} ��i.. Y,`P'G1�� 1 �.:}� �y � �y, f)� f�.~` �.oMf � 1P'� 4 . 1..C�1� ('`e. d,.� :]'r ,.�..+.7 t.'. "f � � r 7� G�f.,�.��. � . � }'�� (7�0 p k 1',`i 4�'? , , ��t.� " �'I.�a��r �{B, ��.� .,,"f� t'"�t"4" ,">." t'�;1 ;�, ��,(; ��,..�16F<?1 , .n"'�'�-'V4[��, �.'r:1�3..�1 , (...e�'. 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M ..,__.,_ A ._,_......_. ._...� . .._,.,. __._,. ,. . ..,,,......._.. .F. ;�,r;rl. � ....... . .,..,,,,., . ....,.. _... _.'.____— ,.�.�.. ro�1�'....... ... . . .. . _....w._. . . ..,.. _._...,,,.,._......... . .,.,.. ,.r,,, NaiTf S ;�d:..F F#C,11�'.(C;�TA(. � :C7C}�: "iEFNTvC�L lH;E'J��T'�.�'r,Y'1 I�� , aC1, �.� IPpN.:E.f. FdC'�4.fp�if3,�'..�Rf f_€hiE� _ � .... ---.�,. � S f�GPk�TIOr� r.:F 4�At'+CFE. W FHO�++ C".E�;fr :�^��E y F avin"�.1;•z .Srar�l .�. n+(�.%'NPP A.M �..,� :Xi .,, "df,�r. , �+� , a:_ � i. !�4 t �� Y �� p-+.,�.� {I�xN ��1 �.a . , ,�_�1�4�� li��.. �� P`��f� ., s11i7, ..�3Y�„% � From: Karl Schweikert <karl@av8lawgroup.com> Sent: Wednesday,August 08, 2018 5:46 PM To: Craig Schlatter Cc: Planning Department; Sage Sangiacomo; ron.bolyard@dot.ca.gov; president@calpilots.org; andy_psi@sbcglobal.net Subject: Re: Comment Letter- KUKI - Planning Commission #12a, 8/8/2018 Hi Craig, I just received a call letting me know the City's application to the ALUC with payment was not complete until 6/28. I would request this matter be shelved until after 8/27 (60 days). I haven't fully reviewed the response below because Pm out of town, but it looked like postponing was one of the options. Thank you, -Karl. Sent from my iPhone On Aug 8, 2018, at 11:40 AM, Craig Schlatter<cschla��er�,ci�vc�ful�iah.cc�in>wrote: f�r. Schw�ik�rt, Th�r� is ran�rath�r praint I want tra b�sur�yrau ar�awar�raf, as it app�ars th�Airprart Land Us� �rammissiran has�ith�r frargratt�n abraut this s�ctiran raf th� f��ndracinra �raunty�rampr�h�nsiv� Land Us� Plan (�LUP) rar is unawar�and it is alsra anrath�r r�asran that Staff f�lt it apprrapriat�tra r�f�r this imm�diat�ly tra Planning�rammissiran. P�r S�ctiran 1.4.4 raf th� f��ndracinra�raunty�LUP R�sprans�Tim�—°'Th�Airprart Land Us��rammissiran must r�sprand tra a Iracal ag�ncy's r�qu�st frar a cransist�ncy d�t�rminatiran ran a prraj�ct within 60 days raf r�f�rral (S�ctiran 21676 (d)). If th��rammissiran fails tra mak�th�d�t�rminatiran within that p�rirad,th� prrapras�d actiran shall b� d��m�d cransist�nt with th�Airprart Land Us��rampatibility Plan [(th��LUP�). R�gardl�ss raf�rammissiran actiran rar failur�tra act,th� prrapras�d actiran must alsra cramply with rath�r applicabl� Iracal, stat�, and f�d�ral r�gulatirans and laws." Th��ity�rauncil r�f�rr�d this prraj�ct tra th�ALU�frar r�vi�w at th�ir Jun� 6 m��ting. Th��hair raf th� ALU�and ran� raf th�ALU��rammissiran�rs att�nd�d this m��ting and w�r� in th� audi�nc�wh�n th� dir�ctiran tra r�f�r th� prraj�ct tra ALU�was mad� by�rauncil. A I�tt�r frram th� �ity raf Ukiah f�ayrar dat�d Jun� 7 was s�nt tra ALU�.Th� �ity's Planning f�anag�r crantact�d th�ALU�staff plann�r ran Jun� 11, and I alsra �mail�d th� f��ndracinra�raunty Planning and �uilding S�rvic�s Dir�ctrar ran Jun� 12. In raur crammunicatirans w� r�qu�st�d at th�dir�ctiran raf�rauncil that an ALU� m��ting b� imm�diat�ly sch�dul�d. 60 days frram Jun� 6 is August 6. Th� d�t�rminatiran by ALU�was mad�ran August 2,just within th� tim�fram�allraw�d in th� �LUP frar th�ALU�tra mak�a d�cisiran. Adrapting anything additiranal r�lat�d tra th�d�cisiran mad� ran August 2 is rautsid�th�tim�fram�allrawabl�in th� �LUP frar th�ALU�tra mak�a d�cisiran. R�ga rds, 1 ATTACHMENT 13 From: Lee, Lori R@DOT <lori.lee@dot.ca.gov> Sent: Wednesday,August 15, 2018 1:58 PM To: karl@av8lawgroup.com; Craig Schlatter; Sage Sangiacomo; president@calpilots.org; andy_psi @sbcg lobal.net Cc: Bolyard, Ron D@DOT; Herritt, Mary Beth E@DOT; dostalekr@mendocinocounty.org Subject: FYI: Mendocino County- Garton Tractor Good afternoon, First we'd like to thank you for keeping the Division of Aeronautics informed of the recent activity regarding the Garton Tractor project located adjacent to the Ukiah Municipal Airport, in Mendocino County. We are pleased to know that the City of Ukiah and your respective agencies have been working cooperatively with the Airport Land Use Commission (ALUC) in referring projects that may affect the airport. In the event the ALUC finds the project consistent with the Mendocino County Airport Land Use Compatibility Plan, the City may choose to move forward with the project at that time. As stated in the California Airport Land Use Handbook (Handbook), an ALUC's consistency determination should be given substantial consideration by their local agency as their determinations stand on their own. Further, when review by the ALUC is required under the Public Utilities Code (PUC), the determination of the ALUC is binding unless overruled by the local agency. If the ALUC determines that the project is inconsistent with the ALUCP, the project cannot be moved forward without the City going through the process to overrule the ALUC. The Overrule process is outlined in the California Airport land Use Planning Handbook page 5-15, Section 5.5 Overruling ALUC Decisions, and is provided here for your reference: ALUC consistency determination for local agency plans and projects (described in the Handbook, Section 1.3.4), are subject to overrule by the local agency.The overrule process preserves local government's constitutional land use authority and local government's ability to implement its plans and projects. When a plan or project is found inconsistent by the ALUC, the local agency has a choice to stop or amend the plan or project, and thereby accept the ALUC's inconsistency determination, or to overrule the ALUC with a two-thirds "supermajority" vote of the local agency's governing body. The overrule process, described in PUC Sections 21675.1(d), 21676, and 21676.5 requires the local agency's governing body to make specific findings that show the project is consistent with the purpose of Article 3.5 of the State Aeronautics Act (SAA).A requirement for a local agency to make specific findings in conjunction with a decision to overrule an airport land use commission determination is included in several sections of the ALUC statutes. In each case, the law provides that the findings must show that the proposed local agency action "is consistent with the purposes of this article stated in Section 21670."A local agency cannot simply overrule an ALUC determination without first documenting the basis for the overruling action and relating that basis directly to the purposes for which the ALUC statutes were adopted.The purpose of findings is to assure compliance with state law. When a public agency overrules an ALUC's action or recommendation, pursuant to PUC Sections 21676, 21675.5 and 21677, a non-public operator of a publicly owned airport shall be immune from liability from damages resulting directly or indirectly from the override decision. At least 45 days prior to the decision to overrule the ALUC,the local agency shall provide the ALUC and the Department of Transportation, Division of Aeronautics with a copy of the proposed overrule decision and accompanying specific findings.The ALUC and the Division may provide comments to the local agency's governing body within 30 days of receiving the proposed decision and findings. While the ALUC and Division comments are advisory,they must be included in the public record of any decision to overrule the ALUC. i When the ALUC makes its determination, we request that you keep us advised of your intended actions regarding the proposed Garton Tractor project. Thank you, Lori Lee CALTRANS Division of Aeronautics Office of Aviation Planning (916) 654-5346 .I�..�.�..irii..:.I�.�..�..��:�..�.�::�:�::.:..�.�...:.�N.�� MS 40 P.O. Box 942874 Sacramento, CA 94274-0001 z ATTACHMENT 14 Resolution Number County of Mendocino Ukiah, California August 16, 2018 ALUC 2018-0002 —GARTON TRACTOR ACLUP CONSISTENCY DETERMINATION RESOLUTION OF THE AIRPORT LAND USE COMMISSION, COUNTY OF MENDOCINO, STATE OF CALIFORNIA, FOR AIRPORT COMPREHENSIVE LAND USE PLAN CONSISTENCY DETERMINATION TO CONSTRUCT A NEW 5,770± SQ. FT. EQUIPMENT SERVICE AND REPAIR BUILDING WITH A MAXIMUM HEIGHT OF 21 FEET, 8 INCHES. WHEREAS, the applicant, Garton Tractor, filed an application on June 28, 2018 for an Airport Comprehensive Land Use Plan Consistency Determination with the Mendocino County Department of Planning and Building Services to construct a new 5,770± sq. ft. equipment service and repair building with a maximum height of 21 ft. 8 in., in the City of Ukiah, 1± mile southeast of the Ukiah town center, lying on the south side of Talmage Road, 800± feet east of its intersection with South State Street, located at 285 Talmage Road (APN: 003-230-34) (the "Project"); and WHEREAS, in accordance with applicable provisions of law at a duly noticed public hearing on August 2, 2018, the Mendocino County Airport Land Use Commission reviewed Case ALUC 2018-0002 for consistency with the Mendocino County Airport Comprehensive Land Use Plan (the "ACLUP") at which time the Airport Land Use Commission heard and received all relevant testimony and evidence presented orally or in writing regarding the Project. All interested persons were given an opportunity to hear and be heard regarding the Project; and WHEREAS, on August 2, 2018, the Airport Land Use Commission, approved a motion of intent finding the Project to be inconsistent with the ACLUP and directed staff to prepare written findings; and WHEREAS, the Airport Land Use Commission has had an opportunity to review this Resolution and finds that it accurately sets forth the intentions of the Airport Land Use Commission regarding the Project. NOW, THEREFORE, BE IT RESOLVED, that based on the evidence in the record, the Airport Land Use Commission makes the following findings and determinations: 1. Findings of Inconsistency with the Airport Comprehensive Land Use Plan (ACLUP): The proposed Project is not consistent with the ACLUP. The Project site is located in Airport Compatibility Zone A* of the Mendocino County Airport Comprehensive Land Use Plan, which is the zone most restrictive of new structural development. The asterisk in "Zone A" indicates those properties are intended to be acquired by the City of Ukiah either in fee or controlled by obtaining approach protection easements. Overall, Zone A is intended to be restricted to uses which promote the most unobstructed, open land (e.g. pastures, field crops, automobile parking, as shown in Appendix D). Pursuant to Table 2A of the ACLUP, properties within Zone A are to preserve all remaining open land, and the only permissible structures are those with a location set by their aeronautical function. The proposed Project, which includes the erection of a new structure in Zone A*, is inconsistent with that requirement. 2. Additional Findings Regarding the ACLUP: In support of the Project, the applicant has noted that the ACLUP has not been updated since 1996 and contends that because of changes in the configuration of the Runway Protection Zone ("RPZ")for the Ukiah Municipal Airport, the Zone A* designation for this parcel is no longer appropriate. Although the applicant provided documentation to show that the Project does not encroach within the RPZ, it remains within Zone � A* of the ACLUP. The Commission's sole function in this proceeding is to determine whether the proposed Project is consistent with the property's Zone A* designation under the ACLUP. Based on the information presented, the Commission finds that the Project is not consistent. BE IT FURTHER RESOLVED that the Airport Land Use Commission designates the Commissions Services Supervisor as the custodian of the document and other material which constitutes the record of proceedings upon which the Airport Land Use Commission determination herein is based. These documents may be found at the office of the County of Mendocino Planning and Building Services, 860 North Bush Street, Ukiah, CA 95482. 1 hereby certify that according to the Provisions of Government Code Section 25103 delivery of this document has been made. ATTEST: VICTORIA DAVIS Commission Services Supervisor By: BY: IGNACIO GONZALEZ ERIC CRANE, Chair Interim Director Airport Land Use Commission ;