SR-400-002-06 (4)
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CjED:CPD:DKW:klc
COUNCIL MEETING: July 7, 1987
santa Monica, California
TO: Mayor and City Council
FROM: city staff
SUBJECT: Ocean Park Zoning
INTRODUCTION
This report responds to a May 12, 1987 City Council request that
staff prepare background information for a hearing on Ocean Park
zoning issues.
staff has gathered a variety of data regarding
these issues from existing reports and available permit data.
Should the Council direct that further work on this proj ect
proceed, staff would prepare additional information on Ocean Park
zoning issues.
This report also includes a preliminary outline of the work pro-
gram for this project, should the Council direct that it proceed.
Substantial staff resources would be required; the project would
also require a significant time allocation from the Planning
Commission.
The purpose of the Council's hearing is to provide an opportunity
for public comment on the issue of Ocean Park rezoning both in
terms of substance and process.
The information presented in
this report should be regarded as a starting point for analysis
of this issue, and may help identify issues which should be the
subject of further study.
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JUL - 7 1987
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A draft interim ordinance has been prepared by the city Attorney
in response to Council direction to prepare an interim ordinance
to control development pending the results of further review of
the rezoning issue by the Planning Commission and Council. (See
Attachment C.)
BACKGROUND
At the May 5 and May 12 meetings (see attached minutes), the
Council discussed the downzoning issue and directed staff to
prepare background information for a pUblic hearing, and to
notify property owners and residents of the hearing. The Council
was in part responding to a letter from several Ocean Park
residents to the Planning Commission requesting the creation of a
special zoning district for Ocean Park (see attached February 9,
1987 letter).
At the May 12th meeting, the Council also instructed the City
Attorney to prepare an interim ordinance restricting new
development pending the outcome of further study of the issue.
The Attorney has prepared a draft ordinance for council
consideration which is the subject of a separate agenda item.
It is staff's understanding that the scope of the project at this
time includes all of the residential zones of Ocean Park except
the R2R (duplex) zone. Commercial areas of Ocean Park, including
Main street and Lincoln Boulevard, are not part of the study.
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The Ocean Park zoning issue is the sUbject of considerable inter-
est on the part of residents, property owners and developers in
the Ocean Park area. There is concern about increased traffic
and parking problems, loss of historical and architectural build-
ings, the ability of the infrastructure to support development,
and potential decline in the general quality of life. There is
also concern about the impact of rezoning on housing production
and on property values, and among those with projects either in
progress or planned, there is concern about the effect of both
potential interim and permanent zoning designations.
To provide background relating to the Ocean Park zoning issues,
this staff reports includes the following information:
Description of the area;
Demographic, housing and land use setting;
Parking and traffic information;
Existing zoning:
Architectural and historical resources information:
Development permit data:
Overview of potential development under existing zoning:
Listing of rezoning issues;
Outline of potential work program for rezoning project.
Description of Area
Maps 1 and 2 show that the Ocean Park area is bounded by Pico
Boulevard on the north, the City limits on the south, Lincoln
Boulevard on the east and the beach on the west. The area is
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notable for its proximi ty to the beach, as well as for the
revitalized pedestrian-oriented commercial district along Main
street and the strip commercial corridor along Lincoln Boulevard.
Several parks and schools are located in the area, including Mary
Hotchkiss, Joslyn and Los Amigos parks, and John Muir and
Washington schools.
Demographic, Housing and Land Use setting
The 1980 Census reveals that the Ocean Park area had 11,835
res idents, representing 13.4 % of the City's total population.
The district stands out as having some of the highest residential
densities in the City of Santa Monica. According to the 1981
Technical Report of the Housing Element, tracts 7020 and 7021
(see Map 3) have an average of 13.8 and 16.1 housing units per
acre, respectively, while the City overall averages 8.6 units per
acre. Of the 19 census tracts in the City, only five have higher
average housing densities than 16.1.
The Technical Report also gave housing unit data as of 1981.
According to this information, there were a total of 7,061 units
in the two census tracts comprising Ocean Park, which includes
units in commercial and residential zones, and units within the
Ocean Park Redevelopment proj ect. The Technical Report also
found 740 single family homes, 432 units in duplexes, 375 units
in triplexes, and the remaining units in larger buildings. The
Technical Report documented housing unit change from 1975 to
1981, finding that there was a net increase of 305 units during
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this period, more than 200 of which were condominiums or afford-
able senior housing associated within a single development -- the
City's Ocean Park Redevelopment project.
The Ocean Park area also has a relatively large percentage of
renters. According to the 1980 Census, tracts 7020 and 7021 have
an average of 89% and 88% renters, compared to the city average
of 77%.
Mean household incomes in the area tend to be somewhat lower than
in the city overall. In 1980, tracts 7020 and 7021 had mean
household incomes of $19,493 and $20,508, respectively, compared
to the City mean of $22,148.
Parking and Traffic Information
Much of Ocean Park was developed prior to existing city parking
requirements. Thus, many residential and commercial structures
in the area lack sufficient off-street parking. Additionally, a
number of Ocean Park neighborhoods are impacted by beach-related
parking demand from persons living outside the area, or by
overflow parking demand from the Main street shopping district.
In response to parking deficiencies related to these factors, the
city council has in five instances created preferential parking
zones in Ocean Park. The R2R area (WadsworthjHartjFraserjOcean
Park) was one of the first areas in the city to receive prefer-
ential parking protection. This zone was recently extended to
the north by Council action. other zones exist adjacent to Main
street both north and south of Ocean Park Boulevard, and adjacent
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to Lincoln Boulevard on Hill and Raymond. The creation of these
preferential zones indicates that Ocean Park has both problems of
parking deficiencies and parking intrusion from non-residential
uses.
Comprehensive traffic data for Ocean Park is not currently avail-
able, but several recent Environmental Impact Reports provide
some information on Levels of Service (LOS) for several intersec-
tions. LOS measures the condition of traffic flow, ranging from
LOS "A" (excellent) to LOS "F" (overloaded). The LOS measure
provides a useful technical tool for traffic analysis, but may
not always coincide with drivers' perceptions of traffic
conditions.
The 1985 EIR on the 4th Street Hotel found that the LOS at the
intersection of 4th street and pico Boulevard was at liB-II and the
LOS would remain at that level after the hotel was developed.
According to the LOS measure, typical conditions in the Main
Street area are relatively good. The 1986 Initial study on the
Scratch hotel project found LOS IIB+" at the intersection of Main
street and Ocean Park Boulevard, at Main Street and Marine
Street, and at Neilson and Barnard/Marine.
This data may not reflect increases in traffic volumes since the
preparation of these reports, and also may not account for lower
levels of service which may be encountered during heavy beach
days. Recent LOS data for Lincoln Boulevard in the Ocean Park
area is not available, but observation indicates that conditions
at Lincoln and Ocean Park Boulevards, and Lincoln and Pico
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Boulevards are often congested, as is Lincoln Boulevard at the
Santa Monica Freeway.
Existing zoning
The Ocean Park area contains the following multiple residential
districts: R2R, R2, R3, R3A, R4 and R4A: commercial zoning
includes C4-General Commercial, and CM-Main street Special
Commercial. Table 1 presents the current Zoning Ordinance and
Land Use Element mUlti-family development standards.
Background data for the 1976 City of Santa Monica Land Use Study
indicates that the Ocean Park area had a total of approximately 7
acres of R2R land, 77 acres of R2 land, 119 acres of R3 and R3A
land, and 30 acres of R4 and R4A land. These figures do not
include existing public parks and beaches, schools and a portion
of the Ocean Park Library site. See Map 4 for the location of
residential zoning in the Ocean Park area.
Architectural and Historical Information
The Ocean Park area contains some unique architectural and
historic structures. The area contains four commercial City-
designated landmarks, including the Ocean Park Library (2601 Main
Street), the Parkhurst Building (18S pier Avenue) and the First
Roy Jones House (2612 Main street). Residential designated land-
marks are the Horatio west Court (140 Hollister Avenue) and the
John W. & Anna George House (2424 4th street). (See Table 2.)
The area contains many of the older residential structures in the
City.
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TABLE 2
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OCEAN PARK AREA DESIGNATED LANDMARKS
NAME AND ADDRESS
Methodist Episcopal Church
2621 2nd Street
Ocean Park Library
2601 Main street
Parkhurst Building
185 pier Avenue
First Roy Jones House
2612 Main street
Horatio West Court
140 Hollister Avenue
John W. & Anna George House
2424 4th Street
DATE
DESIGNATED
1/04/77
5/03/77
12/06/77
1/02/79
1/02/79
3/17/81
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DATE OF CONSTRUCTION;
ARCHITECT/BUILDER
1875-76; unknown
Ca. 1917-18; Kegley &
Garety funded by
carnegie Corporation
1927; Norman F. Marsh
and Company
1894; Sumner P. Hunt
Ca. 1921; Irving Gill
Ca. 1911; unknown
.
.
The Horatio West Court at 140 Hollister Avenue was designed by
Irving J. Gill and dates from the early 1920's. These geometric
structures are located in the South Beach district which consists
of three short streets, Wadsworth, Hart and Fraser Avenues
bounded by Hollister Avenue, Ocean Park Boulevard, the beach and
Neilson Way. According to the Santa Monica Historical Resources
Inventory Final Report (1985-1986), the South Beach district
presents "a unified appearance that results from the age, scale,
materials and architecture of the buildings and the character-
istics and patterns of the streets themselves."
The Ocean Park area also contains a cluster of fifteen bungalows
and apartment courts known for their building styles and proxim-
ity to one another. Craftsman bungalow courts and popular styles
of the 1920's, including American Colonial Revival and simplified
Mission Revival, are represented. A good example of a Craftsman
bungalow court is located next to Mary Hotchkiss Park at 2331 3rd
Street.
Development Permit Data
Table 3 shows the number of multi-family units that have been
constructed in the Ocean Park area between January 19821 and May
1987. Figures for 1987 also include single family dwellings (2)
and duplexes (2). Since 1982, 116 apartment units and 21 condo-
miniums have been built in Ocean Park. 61 of the apartment units
are in the Barnard Park Villas senior housing project at 3356
Barnard Way. The Sea Colony'S 340 total condominium units
received their initial building permits in 1979 and the 100 unit
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TABLE 3
.
OCEAN PARK RESIDENTIAL CONSTRUCTION ACTIVITY (1982-5/87).
TYPE OF
YEAR CONSTRUCTION # UNITS CONSTRUCTED # UNITS DEMOLISHED
1982 Condominium 3 N/A
1983 Apartment 85 1
Condominium 7
1984 ----------- 0 N/A
1985 Apartment 2 1
1986 Apartment 11 6
1987 Apartment 18 (permits issued) 3 (permits issued)
Condominium 11 " tI
Duplex 2 " "
Single-Family
Dwelling 2 " "
TOTALS: Apartments 116
Condominiums 21
Duplex 2
Single-Family
Dwelling (SFD) 2
141
TOTAL:
Demolished units
11
NOTES: Barnard Park Villast 3356 Barnard WaYt accounts for 61
of the 85 apartment units constructed in 1983.
SOURCE: City of Santa Monica Building Department
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Neilson Villas senior housing complex was completed in 1977; they
are not included in Table 3. Sea Colony III with 153 market rate
condominiums is currently nearing completion. Except for the Sea
Colony and senior housing complexes, relatively little new multi-
family residential construction has occurred in the Ocean Park
area.
Table 4 indicates the proposed private multi-family housing
development proj ects currently being processed by the Planning
Division. six of the project proposals (CUP Nos. 473-478) were
submitted just recently on June 25th by one applicant and include
a total of 96 condominiums, all in the R3 zone. If all the
listed projects are approved, 217 apartment and condominium units
could be constructed in the Ocean Park area.
In addition to private housing developments in Ocean Park, there
are several government-sponsored family and senior housing proj-
ects that are completed or approved for the area (see Table 5).
Forty units of family housing and 12 units of senior housing have
been constructed in Ocean Park. Forty-nine family units and 22
senior units are under construction. Included in these figures
are five limited-equity cooperatives totaling 43 family and
senior units that will begin construction in October of this year
and should be completed by OctoberJ 1988.
Building Department records for January, 1982, to May, 1987,
indicate demolition of 11 residential units in the Ocean Park
area. According to the Rent Control Administration, from 1980 to
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- 19 -
.
.
the present, 18 Ocean Park multi-family unit properties have been
granted permanent exemptions from the Rent control restrictions
and one application is pending. since 1980, 17 mUlti-family unit
property owners have applied for "5017" removal permits that
allow owner-occupied properties with 3 or less units to be
vacated and demolished. These permits must be used within 180
dayst 14 applications have been granted and have either been used
or expired, 2 are still valid and 1 is pending. From 1985 to the
present, 45 owner-occupied exemptions have been granted and one
is pending. These figures are for multi-unit properties only,
and do not include single-family dwellings in multi-family zoning
districts, not under rent control, that could be demolished and
re-built with more units.
Potential Development
This section analyzes
scenarios. The first
standards would remain.
potential new development under two
scenario assumes that existing zoning
These standards provide the following:
R2: 1 unit/1500 sq. ft. lot area; 2 story, 30-foot height limit
R3: 1 unit/1250 sq. ft. lot area; 3 story, 40-foot height limit
R4: 1 unit/900 sq. ft. lot areat 4-story, 50-foot height limit
The second scenario assumes that all areas would be re-zoned at a
density of one dwelling unit per 2000 square feet ("R-2000")
which is the standard proposed by a group of Ocean Park
residents. Existing development was compared to new development
under these two scenarios.
- 20 -
.
.
Methodology
In order to determine the number of existing dwelling units in
Ocean Park, the 1975 Existing Land Use Maps prepared by City
Planning staff were used. These maps provide detailed informa-
tion on lot size, zoning and land use. Since, as indicated in a
preceding section, there has been relatively little new develop-
ment in the area since 1975, the maps are considered reasonably
current for purposes of this analysis, which is intended to pro-
vide an order-of-magnitude indication of potential development.
The methodology employed for this analysis assumes that where the
existing number of units on a lot exceeded that allowed by cur-
rent zoning, those units would remain instead of recycling to the
lower densities currently required, or even lower densities which
might be required under new zoning. For example, some lots might
have 10 units on them which were developed prior to existing
zoning allowing a maximum of 6 units. The analysis assumes that
the 10 units on such a lot would remain. Given existing Rent
Control removal restrictions, this is an appropriate assumption.
The analysis does not include land currently in use for public
parking lots, schools, churches, or the Ocean Park Redevelopment
project site. It also excludes the R2R area of Ocean Park. The
analysis also does not account for any density bonuses which are
available under provisions of State law for the provision of low-
and moderate-income housing, since it is difficult to predict the
frequency at which density bonuses will be utilized.
- 21 -
.
.
The School District is considering redevelopment of several of
its properties in Ocean Park: these could result in a number of
additional units. For example, the 2. 8-acre washington School
site could accommodate approximately 98 units under its existing
R3 zoning, and 61 units under the R-2000 zoning, and the
residentially-zoned portion of the Muir School site could include
up to 105 units under its existing R2 zoning, and 79 units under
the R-2000 zoning.
To simplify the calculations involved with the two scenarios, the
analysis did not include the allowance under existing zoning
regulations for one additional dwelling unit on parcels where
there is an excess of at least 750 square feet in R2 and R3 zones
after performance of the density calculation of units per lot
area, and 500 square feet in R4 zoned land. Thus, the models
used for these build-out calculations understate potential
development, since there are a number of lots which, under these
existing provisions, could accommodate an additional unit beyond
that indicated for the two scenarios. If half the parcels which
are at 75 percent of their capacity or less under existing zoning
qualified for an additional unit, 268 more units could be
developed. Under the proposed R-2000 zoning, 215 additional
units could be developed. Again, the basic intent of this
analysis was to provide a broad indication of potential
development.
Potential new development under the two scenarios developed by
staff was determined by calculating the size of each parcel and
using the density limits under each zoning scenario to determine
- 22 -
.
.
the maximum allowable number of dwelling units per parcel. The
percentage build-out of existing development relative to current
and proposed zoning was then determined by calculating the number
of existing units on each parcel as a proportion of potential
dwelling units under each scenario. For example, if a parcel had
two existing dwelling units, and under the existing zoning was
allowed up to eight, the parcel was determined to be 25% built-
out. Percentage build-out was calculated for each parcel and
block, and for the area as a whole. The number of units which
could be developed was also calculated.
It is important to note that none of the scenarios takes into
account possible combinations of parcels. Combining parcels
would result in more new dwelling units than either scenario
suggests, since greater land utilization efficiencies can be
achieved.
Summary of Results
Table 6 shows the number of existing dwelling units as well as
the number of potential units under the two development
scenarios. The number of existing dwelling units in all R2, R3
and R4 zones totals 5,568. This figure does not include units
located in the R2R zone, the Redevelopment project, or units
located on commercially-zoned land in Ocean Park. Under the
existing zoning scenario, the number of units in all residential
z ones could increase to 7, 130. This a net increase of 1,462
units, and represents a 25.7 percent increase over what already
exists.
- 23 -
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- 24 -
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Under this scenario, the greatest net increase in units occurs in
the R3 zone, which the greatest percentage increase occurs in the
R2 zone.
The proposed zoning scenario presents a significantly smaller net
increase in dwelling units. Table 6 shows that under this
scenario the total dwelling units could increase to 6,235. This
would be a net increase of 567 units, or a 10% increase over
existing dwelling units.
Tables 7 and 8 show the build-out of parcels in R2, R3, R4 and
all zones combined under the two development scenarios. Under
the first scenario (existing zoning, Table 7), about 29% of all
parcels are built-out at 100% or more of allowable density, while
about another 32% are built-out at 75% of their capacity. Under
the second scenario (proposed zoning, Table 8), about 42% of all
parcels exceed 100% of allowable capacity, while another 27%
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of their allowable capacity under the proposed zoning.
Similarly, tables 7 and 8 reveal that while under existing zoning
12.5% of all parcels are developed at less than 25% of their
capacity, under the proposed zoning, the percentage of parcels
developed at less than 25% capacity is only 2%.
- 25 -
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- 27 -
.
.
As one might expect, the proposed zoning restricts potential
development in the current R4 zones the most.
Under existing
zoning, 42.5% of the R4 areas are developed to capacity, while
under the proposed zoning, 62.5% of these areas are developed to
capacity.
What this analysis does not show is the wide fluctuation in
build-out on a block-by-block basis.
Some blocks are developed
completely to capacity and can see no increase in density at all,
while others have only minimal development and are capable of
seeing significant new development.
Rezoning Issues
The Ocean Park zoning and development standards issue raises a
number of important procedural and substantive concerns. These
include:
tVhether interim development standards or restrictions should
be created pending additional study and adoption of new
standards, and the nature of such standards;
The appropriate roles of the City Council and Planning
commission in this matter;
Public participation in the process and in formulation of
standards;
Identification of information needed to address the zoning
issues, and of staffing and financial resources necessary to
obtain such information;
Whether a new zoning classification should be created, or
existing zones should be utilized for any changes to the
existing zoning of residential property in Ocean Park, or
whether some combination of existing zoning and new zoning
should be employed;
The specific parameters of any new zoning standards regarding
height, number of stories, setbacks, lot coverage, density and
other development requirements;
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priority of the project in relation to other projects and
responsibilities of the planning Commission and Planning
Division staff.
Direction on these and other issues of concern to the council
would be appropriate.
Outline of Preliminary Work Program
Should the Council direct staff to proceed with this project, it
would require a significant commitment of Planning Commission and
staff resources.
The Commission is currently required to deal
with a large number of development project reviews and appeals of
Zoning Administrator and Architectural Review Board actions. In
addition, over the last year, the Commission conducted an intense
and time-consuming review of the draft Zoning Ordinance, necessi-
tating numerous special meetings. Further Commission work on the
draft Ordinance may be needed as a result of council action.
Hearings on theaters, art galleries, and special amendments to
the zoning Ordinance and General Plan have also been considered
by the Commission. Commissioners have volunteered a large amount
of their time, beyond the normal two meetings per month, to deal
with this workload.
In Fiscal Year 1987-88, the Commission and staff will be occupied
with the initiation of City-wide rezonings, the preparation of
the LCP Implementation Plan, the preliminary phase of a three-
year General Plan update program, consideration of a draft
Transportation Systems Management Plan, and numerous other
special projects. Staff will be working on an automated permit
tracking and land use data bank system, adoption of the Hospital
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.
Area Specific Plan, certification of the City's LUP, neighborhood
planning improvements, city-wide architectural guidelines, en-
hancement of the Landmarks ordinance, and other special projects,
in addition to the routine responsibilities of the Planning
Division in permit processing, preparation of environmental
documents, monitoring projects in other jurisdictions, and other
activities.
The Ocean Park rezoning project is a major undertaking which will
affect the Planning Division's and Planning commission's ability
to address other proj ects .
It will also require significant
financial resources. staff envisions the following major steps
in the process, and believes that the proj ect will require at
least one year to complete. The EIR process alone will take at
least five months from signing of a consultant contract to
completion of a Final EIR.
Initial public hearing before City council (July 7) .
Adoption of interim standards and direction to Planning
Commission (July 28).
Planning Commission public hearing on rezoning issues.
Preparation of study data and other information as directed by
Council and Planning Commission (may require consultant) .
Planning Commission public hearing on
alternative development standards, and
preferred standards.
study results,
identification of
Preparation of Environmental Impact Report (three month
preparation time).
Public review period on EIR (minimum 45 day comment period,
one month to prepare Final EIR).
Planning Commission public hearings on Final EIR and rezoning
proposal, formulation of necessary Zoning Ordinance and
Districting Map amendments, and forwarding of recommendations
to City Council.
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.
city council public hearing(s)
proposals, and adoption of
ordinances.
on Final
necessary
EIR and rezoning
resolutions and
The cost of this project will depend on the scope of any studies
required by the Councilor Commission, the number of public
hearings, the type of notice provided as the project progresses,
and the scope of environmental review. Notice to all property
owners and tenants for the July 7, 1987 hearing as directed by
Council has cost in excess of $3,500. This notice exceeded that
required by the Municipal Code.
staff estimates that the EIR for the rezoning project would cost
at least $50,000 (no funds are currently budgeted for the EIR at
this time).
The cost of special studies cannot be determined
until their scope is set. The Ocean Park project would require
special allocations to the Planning Division budget for
consultant services and notification expenses once the costs of
various project components have been determined.
BUDGET/FINANCIAL IMPACT
The recommendations of this staff report would not result in
budget/financial impacts.
Should the Council direct that this
project proceed, special allocations would be required, which
would be identified as part of a subsequent staff report.
RECOMMENDATION
It is respectfully recommended that the City Council Conduct a
public hearing on the this matter, affording interested persons
an opportunity to comment.
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e
.
Prepared by: D. Kenyon Webster, Senior Planner
Nancy Ross Madnick, Assistant Planner
John W. Read, Assistant Planner
Kathy R. Wasung, Planning Intern
Attachments: A. May 5 and May 12, 1987 Excerpts of Council
Minutes
B. February 9, 1987 letter from Ocean Park
residents
c. Draft Interim Ordinance
w/opccl
07/02/87
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