SR-09-27-1988-11A
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C/ED:CPDiDKW
COUNCIL MEETING: September 27, 1988
Santa Monica, California
TO: Mayor and City Council
FROM: City Staff
SUBJECT: Recommendation to Approve Sixth Draft of Hospital Area
Specific Plan
INTRODUCTION
The Hospital Area Specific Plan (HASP) was initiated in 1986 in
response to a Land Use Elem.ent policy objective which required
that a Specific Plan be prepared concerning the area around and
incl uding the two maj or Hospital campuses in the City:
saint
John1s Hospital and Health Center and Santa Monica Hospital and
Medical Center.
The hospital area has been without Land Use Elem.ent guidelines
since 1984. The draft HASP was issued nearly two years ago. The
Planning Commission had its first hearing on the HASP in January
1987. June 8, 1988 was the fifth hearing on this matter by the
Commission. Five drafts of the HASP have been considered by the
Planning Commission. The HASP document provided as an attachment
to this staff report incorporates all the changes approved by the
council and commission to date.
Action on the HASP has been
delayed due to the press of other projects, however, closure on
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HASP issues is important so that land use standards for the
hospital area can be established.
staff recommendations include adoption of a resolution approving
Draft 6 of the HASP, and council direction concerning the
Planning Commission's recommendations regarding rezoning of
properties in the HASP area. Subsequent hearings by the
Commission and the Council will be necessary before rezonings can
be adopted.
BACKGROUND
In October, 1984, the City of santa Monica adopted the Land Use
and Circulation Elements of the General Plan. A section of the
Element titled IIHospitals and Health Care Facilities" contains an
objective (1.13) and Policies (1.13.1 and 1.13.2) requiring that
two separate hospital Specific Plans be prepared. Subsequently,
a single specific Plan was determined to be more appropriate to
best accomplish the goals and objectives of the General Plan, and
to integrate the neighborhood planning process.
Another requirement of the Land Use Element is that prior to the
Specific Plan being written, Master Plans prepared by the two
hospitals in the area be submitted to the City. The Land Use
Element states that the Master Plans should describe "future
physical and organizational growth and change over the 10-15
years following adoption of the Land Use and Circulation
Elements" and that the Master Plans should be prepared with
community participation.
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Hospital Master Plans
Consistent with the Land Use Element's directive, both hospitals
prepared Master Plans addressinq site and facility needs for the
future, which included extensive outreach to neighboring
residents, property owners and business persons and special
involvement with representatives of the Mid-City Neighbors
community organization. The Mid-City Neighbors organization
endorsed each hospital's Master Plan. City Planning staff
moni tored the planning process. The Planning Commission held
workshops on both hospitals' Master Plans.
Development of the HASP
Prior to developing the HASP, Planning staff reviewed the two
master plans and met with representatives of both hospitals, the
Mid-City Neighbors organization and the Santa Monicans For
Reasonable Growth organization to understand the concerns of
those groups. In addition, staff conducted two community
meetings in August 1986, and October 1986, on potential
environmental impacts of the HASP.
The intent of the HASP as developed is to address issues of
neighborhood concern, to develop basic zoning and development
standards, to identify parcels for rezoning and to identify other
programs which should be implemented in the area. The Plan does
not propose standards for surrounding residential neighborhoods
or Santa Monica and Wilshire Boulevards because these districts
have already been addressed in the Land Use Element.
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The HASP zoning standards and related policies are geared toward
integrating development needs in the hospital area with the needs
of the surrounding neighborhood. Another purpose of the HASP is
to identify appropriate rezonings of Commercial-Administrative
(CA) properties in the hospital area, since the CA zone was
eliminated in conjunction with the adoption of the City's new
zoning Ordinance.
The Draft Hospital Area Specific Plan consists of a discussion of
the legal requirements for a specific plan, background informa-
tion concerning the study area and hospital Master Plans, an
analysis of projected development of the area, General Plan
consistency, and an implementation program designed to carry out
policies proposed by the Specific Plan.
Planning Commission Action
The most recent action on the HASP occurred on June 8, 1988, when
the Commission reconsidered various aspects of the HASP it had
adopted on March 2, 1987. At that time, the Planning commission
approved the draft HASP and forwarded it to the City council for
final action. In 1987, the Commission endorsed staff
recommendations in most policy areas, but left several key issues
to be resolved by the Council, since successive motions regarding
these issues failed to obtain a majority vote of Commissioners
present.
On June 8, 1988, the Commission adopted a new version of the HASP
which is now before the Council for final approval.
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~ity Council Action
On July 14, 1987, the city Council reviewed the HASP and returned
it to the Planning commission for further recommendations. The
Council endorsed, with some amendments, the Planning Commission1s
changes to the HASP.
The City Council endorsed R2 zoning for the property currently
zoned CP (Which is the zoning category for medical uses) on the
east side of 20th street between wilshire and Arizona, and
retained the proposed CP-3 designation on the properties
currently zoned CP on the west side of 20th between Wilshire and
Santa Monica Blvd.
In addition to takinq these actions, the Council directed staff
to investigate provisions which would encourage development of
congregate senior housing in the HASP area. The council asked
the staff and the Commission to evaluate whether this housing
should be allowed with density bonuses under site review, by
conditional use, or by some type of zoning overlay. Staff was
also asked to explore the issue of whether some affordable senior
housing should be mandated.
Staff and the Planning commission were requested to explore the
concept of relating hospi tal expansion to the maintenance of
access to medical care. The City Attorney was directed to
prepare an opinion on the legal feasibility of such a program.
The Planning Commission accepted a staff recommendation that,
given the complexity of the affordable health care issue, should
the Attorney indicate that it is legally feasible, and should the
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Commission and Council wish to explore the concept, it be dealt
with separate from the HASP.
staff and the Commission were asked to study rezoning of the
II CAli area south of Santa Monica Blvd., potentially rezoning CA
land west of 21st street to CP, and rezoning CA land east of 21st
Street to Cloverfield Blvd. to R3. Staff's recommendation had
been that the entire CA area be zoned CP given the historical
zoning of the area, its location relative to other commercial
areas, and the mix of commercial and residential uses. A number
of Planning Commissioners and Councilmembers suggested that a
combination of R3 and CP zoning might be appropriate. At the
most recent Planning Commission meeting, the Commission
recommended such a mix of zoning, basically reflecting the
pattern of existing land uses.
DISCUSSION
Rezoning Issues
To remain viable, both hospitals need areas in which to expand
and develop new facilities. Santa Monica Hospital will grow in a
southerly direction, as will Saint John's. A key area for Saint
John's in this regard is the area currently zoned "CA" south of
Santa Monica Boulevard. Mid-City Neighbors, as part of the Saint
John 1 s Master Plan process, expressed a preference that parcel
rezonings focus Saint John's Hospital development south of Santa
Monica Boulevard. This concept was made part of saint John IS
Master Plan.
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This area south of Santa Monica Blvd. is presently a mix of CP,
CA and C4 zoning. This area has fairly diverse land uses,
including a number of residential units. The area includes the
former General Telephone property, located east of 21st street
between Santa Monica Blvd. and Broadway, a block which is
entirely in non-residential use.
The following tables provide more specific land use information
for Cloverfield Boulevard to 20th street and Santa Monica
Boulevard to Broadway:
Residential units (with Underlying Zone in parenthesis)
14 Single Family Dwellings
(6 in CA, 7 in C4,
1 in CP)
(CA)
(CA)
(CA)
(CA)
(CA wlone parcel in C4)
Two 5 unit Complexes
One 10 unit Complex
One 42 unit Complex
One 69 unit Complex
One 100 unit Senior
Housing Complex
Total of 245 units
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Acreage by Land Use
Acreage by Zone
Commercial 3.2 acres
Hospital 0.5 acres
Medical Office 2.2 acres
Residential 3.4 acres
parking 5.2 acres
Total 14.5 acres
CA
C4
CP
8.3 acres
3.5 acres
2.7 acres
Total
14.5 acres
In recognition of the existing historical CA commercial zoning
and the diverse pattern of land uses in the area, as well as the
the fact that under the proposed CP zoning ordinance, residential
uses would be generally permitted, staff had recommended that
the entire CA area be zoned CPo
At the various Planning commission and city council hearings,
several commissioners and councilmembers expressed support for
the concept of zoning CA properties east of 21st street R3, and
CA properties west of 21st street CP, while others supported a CP
designation for the entire area. The R3 designation was advanced
because of the existing residential units in the area, and an
expressed desire to preserve and protect housing in the city.
As approved by the Planning Commission and ci ty Council, and
consistent with staff's recommendations, all of the CA area west
of 21st street would be zoned CPo The rezoning recommended by
the Commission would involve zoning CA parcels east of 21st
street which are currently in non-residential use to CP, and
zoning CA parcels in that area which are currently in residential
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use to R3. This would provide a measure of protection to
existing residential uses. The Commission's recommendations,
which represent a compromise zoning plan, are presented for
adoption.
staff is concerned that while the Commission I s rezoning
recommendations have merit, the entire CA area east of 21st
street may be appropriate for CP zoning because of the historical
commercial zoning, the large extent of commercial land uses, and
the proximity of high-traffic volume commercial streets (Santa
Monica Blvd., Cloverfield and Broadway). It is important to note
that existing and new residential uses would be allowed with CP
zoning.
The maps attached to the staff report show the Commission IS
rezoning plan and that recommended by staff to the Commission.
senior Housing Issues
As indicated above, the City council asked that the Planning
commission explore the concept of providing special development
standards for senior congregate housing.
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A. Definitions
The newly-adopted Zoning Ordinance contains a number of
definitions and standards pertinent to this issue. Attachment C
provides the definitions for community Care Facility (including
sub-definitions for "residential facility" and "adult day care
facilitylt), Boarding House, Nursing Home, Residential Care
Facility, Rest Home, and Senior Group Housing. Attachment C also
provides the Zoning Ordinance's Performance Standards for Senior
Group Housing.
Staff believes that these definitions provide a comprehensive set
of standards for a range of development types that serve seniors,
and that the HASP need not create new definitions. The Planning
Commission accepted these definitions.
B. Bonus provisions for Senior Group Housing
The new City-wide Zoning Ordinance allows senior group housing in
the R2, R3, R4, BCD, CP and C2 districts--a wide range of zoning
classifications which encompass much of the city's land area.
Under the Performance Standards of the Ordinance, unlike most
other types of residential development, senior group housing
developments may exceed the dwelling unit density limitations (if
any) of the underlying zoning, but must meet other development
standards of the zone such as setbacks and height. Thus, senior
group housing is already provided with a significant "bonus"
provision in the Zoning Ordinance.
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The City Council expressed some interest in bonus provisions for
senior housing developments which included affordable units.
The implementing ordinance for the City I S inclusionary housing
program (Program 12 of the Housing Element) requires senior
housing developments that include individual dwelling units (with
bathrooms and kitchens) to deed-restrict for affordable occupancy
at least 15% of the units in projects of five or more units, or
to pay an in-lieu fee to the City for development of affordable
housing.
Given the bonus already provided by exempting senior housing from
typical density limits, and the existing inclusionary housing
requirement of Program 12, additional provisions regarding senior
housing do not appear necessary at this time.
BUDGET/FINANCIAL IMPACT
No budget/financial impacts are anticipated.
RECOMMENDATION
The staff recommends that the city Council:
1) Approve the resolution (Attachment B) adopting Draft 6 of the
Hospital Area Specific Plan.
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2) Adopt the resolution of intention (Attachment D) accepting
the Planning Commission's recommendations to rezone properties
and direct the Planning commission to conduct a public hearing on
the rezonings in conjunction with pending City-wide rezonings.
Prepared by:
Attachments: A)
B)
C)
D)
E)
F)
DKW:se
hasp17
09/21/88
D. Kenyon Webster, Senior Planner
Draft 6 of HASP
Resolution Adopting HASP
Zoning Ordinance senior housing
definitions and Performance Standards
Resolution of Intention regarding rezonings
Maps showing rezoning areas
Planning Commission minutes
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