SR-11-10-1987-11B
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II {J 1; .4 t)(JO
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NOV 101981
NOV 1 7 1987
Monlca, Cal1fornla
C/ED:CPD:DKW:JG:se
COUNCIL MEETING: November 10, 1987
Santa
TO:
Mayor and Clty Counc~l
FROM:
C1ty Staff
SUBJECT: Recommendat1on to Approve Land Use Plan of the Local
Coastal program As Amended by the Callfornla Coastal
Cornffilss1on Wlth ReV1S1ons ~
INTRODUCTION
On July 9, 1987, the Callfornla Coastal CommlSS1on adopted a
modlf~ed verSlon of the C1ty'S Land Use Plan (LUP) of the Local
Coastal Program (LCP).
In order for the LUP to become law, the
C1ty and the Coastal COm.mlss~on must adopt the same verSion of
the Plan.
ThlS report recommends that the Councll approve the LUP as
amended by the Coastal CommlSSlon with several changes.
Act~on on the LOP 15 critlcal, not only to complete the coastal
plannlng process mandated by State law (wh~ch wl11 eventually
allow the Clty to recover full permittlng authorlty ln the
Coastal Zone), but also because 5ubstantlal Coastal Conservancy
funds for restoratlon of Santa Monlca P1er are contlngent upon a
certlfled LUP.
BACKGROUND
A Local Coastal Program (LCP) 15 requ1red by State law. The
draft Land Use Plan (LUP) of the City's LCP was forwarded to the
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NOV 1 0 1987
NOv 1 7 1987
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P1ann~ng Comm1.ss1.on on September 18, 1985. The Plannlng
CommlSSlon conducted a Publ1C Hearlng on the matter and forwarded
~ts comments, together w~th a recommendat~on that the LUP be
adopted, to the CIty CounC11.
Coastal statf comments were recel ved on January 31, 1986. In
June 1986, after conducting a publ ~c Hear lng, the Cl ty Counc 11
adopted 1ts verSlon of the LUP.
In July 1987, the Coastal COffiffi1.SS10n conducted a PubllC Hear1ng
and adopted a modlf~ed verSlon of the LUP.
In September 1987, the Plannlng COmm1.SS10n conducted a publlC
hear1ng and recommended that the LUP be adopted as amended by the
Coastal CommlSSlon and Plannlng CommlSS10n.
SANTA MONICA'S LUP
State law reqUIres each coastal ]urlsdictlon to prepare a Local
Coastal Program (LCP) that addresses requ1.rements of the S,tate
Coastal Act. LCP's prepared by local jurlsdlct1.0nS are subJect
to reVlew and cert1.f1.Catlon by the Callfornla Coastal CommISSIon.
Once the LCP lS certlfled, responsibll1ty for l.mplementatlon of
State Coastal Act provis1ons reverts to the local government. A
local government may submlt ltS entlre Local Coastal program at
one tlme or in two separate components: the Land Use Plan (LUP),
show1ng the permltted uses and settlng out pollcles for carrYlng
out the goals of the Coastal Act; and the Implementing
Ordinances, WhlCh 1mplement the pollcies specified in the Land
Use Plan.
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Santa Monlca has chosen the optlon of submlttlng lts Local
Coastal Program in two stages. The fIrst component 15
preparatlon of the Land Use Plan. The LUP lS conSIstent WIth the
CIty'S General Plan and addresses the reqUirements of the
CalIfornla Coastal Act. The Implementlng Ordlnances WIll follow
Coastal Comm1ssion reVIew and approval of the Land Use Plan. The
CIty WIll Implement the LUP prImarily through adoption of the
rev~sed ZonIng Code, although development of some speclal
lmplementa tIon programs WIll also be necessary. Preparatlon of
the lmplementation program lS expected to take at least one year
following certIfIcatIon of the LUP.
The LUP includes many polICIes WhiCh WIll requlre elaboratlon ~n
the Implementatlon program. Development of the speCIfICS of the
~mplementatlon program is the C~ty's respons1b1l1ty and wll1
~nclude reVIew and hear Ings by the Planning Commisslon and _Cl ty
CounCll prlor to consideratIon by the Coastal ComffilSS10n.
PLANNING PROCESS
The orIginal verSIon of the Coastal Land Use Plan (LUP) was
approved by the Clty CounCIl on January 14, 1981, after
conductlng extens~ve local workshops, publlC hear~ngs and
draftIng of POllCY language. The process ~ncluded part~cIpatlon
of a Local Coastal program advisory committee, comprlsed of
members of the pUblic, PlannIng Commlss~on and Clty staff. In
February, 1981, the Reg lona1 Comm~ss lon staff re] ected the LUP
submIttal as beIng Incomplete prImarIly because the LUP d~d not
1nclude a Land Use Map. On Apr~l 12, 1981, the Santa MonIca Clty
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Councll resclnded the prevlously subm1tted LUP so that the
Hous1ng and Vlsual Qual~ty Components could be rev1sed to reflect
changes 1n local op1n~on on pollc1es formulated 1n each of these
components.
Subsequently, the C1ty began to re-examlne c1tywlde plann1ng and
development lssues, resulting 1n the eventual adoptl.on of new
Hous~ng, Land Use, and C1rculatlon Elements of the General Plan.
Because thlS broad plannlng effort would affect the Coastal Zone
as well as all other areas of the Clty, substantlal work on the
LUP was not begun untl1 overall land use and development
standards were determ~ned through the c1tyw1de plannlng process.
In 1982, as th1S comprehenslve c~tywlde plann10g process was
underway, the Cl ty reta1ned a consultant to prepare a rev1sed
draft LUP. In January, 1983, a revlsed prellffilnary draft LUP was
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submltted to the Coastal staff for reVlew. Coastal staff d~d not
respond W1 th comments unt~l September, 1983, when rev iSlons to
the January 1983 preliminary draft were suggested. At th1S same
tlme, lntenslve work on the cltywlde Land Use and Clrculat10n
Elements was reach1ng a key stage so further reV1S10ns to the LUP
were deferred untll after adoptlon of the revlsed General Plan
Elements.
The Current version of the LUP l.ncorporates much of the preceding
plannlng efforts, such as the 1981 LUP and the development
standards adopted ~n the City's Land Use Element. This LUP also
reflects current condlt1ons of and plann1ng for the Pier and the
Th1rd Street Mall.
The LUP lncludes standard Coastal Act
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pollc~es
that
have
been
tailored
to
the Clty'S
from the CIty'S
local
Land
characteristIcs,
Use Element.
and development pol~cles
ORGANIZATION OF THE LAND USE PLAN
The LUP ~s d~vIded lnto SlX chapters. Chapter I descr ibes the
background and purpose of the Local Coastal Plan. It provides a
br 1ef hlstory of the State' 5 mandate to protect the Callfornla
coastlIne for future generatIons by plannlng for the orderly
developmen t of th1S val uable resource. It al so descr lbes Santa
Monica's role ln that plann1ng effort.
Chapter II descrlbes 1n deta1l the Coastal Zone of Santa Monlca.
For ease of analysls and because of the var lety of land uses
wlthln the Coastal zone, the Coastal Zone has been dlv~ded lnto
eIght sub-areas. ThIS chapter descr ibes cur rent cond1 tlons and
the coastal ~ssues that arIse In each sub-area.
Chapter III dlscusses flve maJor POllCY tOpICS:
Access
Recreat~on and Vlsltor Serving Facilitles
Environmental Qual1ty
Scenlc and Visual Resources
Development
The dlScusslon of each tOplC includes the eXIstIng condItIons as
well as some of the opportunitIes, problems, or constralnts that
currently exist.
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Chapter IV 15 the p1votal component of the Land Use Plan. It
contalns the speclf1c pollc~es organlzed by Issue group, adopted
for the Coastal Zone in Santa MonIca.
Chapter V descrlbes the potentIal 1mpact of the plan on var10US
sub-areas of the Coastal Zone.
The entlre Land Use Plan 15
summarIzed ~n a ser1es of Lana Use Maps.
ADOPTION PROCESS
Adoptlon of an LUP by the Clty and certif~cat1on by the
Cal1forn~a Coastal CommlSS ~on 15 cr ~ tIcal for several reasons.
W1thout a cert1f~ed LUP, the C1ty may not proceed wIth the LCP
lmplementatlon program, Wh1Ch w1Il allow the Clty to ~ssue
development perm1ts In the Coastal Zone Wh1Ch currently must be
~ssued by the Coastal Commlss~on.
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In add~t1on to prIvate developers, the C1ty Itself is also
subJect to Coastal perm~t requlrements.
One maJor Municipal
proJect WhlCh lS slgnlflcantly affected by the lack of a
certlf~ed LUP 15 PIer Restoratlon.
The Callfornla Coastal
Conservancy approved $l, 000,000 1n aSSIstance to the C1 ty for
development of the PIer Carousel Park.
However, by the terms of
agreement WIth the Conservancy, the CIty cannot dra\\I down on
$850,000 of these funds untll an LUP ~s certIf~ed.
This
sltuatlon creates a contlnulng negatlve balance in the P1er Fund,
and effectIvely results in s~gnlf~cant opportunIty costs fOr
Santa MonIca, SInce the Clty must utIlIze Its own funds for the
proJect. Other Conservancy funds WhlCh may be avaIlable for PIer
restoratlon also cannot be accessed unt~l the LUP 15 cert~fIed.
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MODIFICATIONS TO LUP
The Coastal CornmlSS1on has made numerous changes to the C~tyl s
LUP. However, most of these are techn~cal ln nature and result
ln an lmproved document. Clty staff supported the mod~flcatlons
at the July 9, 1987 Coastal CommiSSIon hear Ing. The Coastal
Cornmlss~on only made changes to the Pollcles sect~on of the LUP,
whleh beg1ns on page 60 of the revlsed document. Some of the
more substant~ve changes are dlscussed below.
Policy 12, page 64. As revlsed, thIS pol~cy would create a
speclal development fee for access Improvements to the beach area
north of the P~er along Paclflc Coast Highway. The
Implementat1.on program would establ~sh tne spec~flcs of the fee
program.
policy 16, page 64. ThlS POllCY requ~res that park1ng space? In
new developments be avallable for publIc use durlng non-busIness
hours. Again, the implementatlon program WIll need to establlsh
spec~flc standards for th1S POlICY to ensure that lt lS workable
and equltable. The policy would not preclude charges for use of
spaces, and the Implementation program is expected to address
securlty and other appropriate 1ssues.
policy 18b, page 65. ThIS POlICY discourages use of public beach
parkIng lots for non-beach use except dur~ng evenlng hours.
Policy l8c, page 65. ThIS is
revltallzatlon of Santa MonIca P~er.
requlrernents, allows phaslng-In of
a cr 1 tIcal POllCY for
It establIShes PIer parkIng
replacement parklng, and
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speclfles the absolute number of requ1red P1er parkIng spaces.
The polley establ~shes certa1nty for Coastal parklng
requlrements, WhICh w~ll allow plannlng for the Pler to proceed.
Policy 19, page 66. ThlS poll.cy would mandate a pl.lot coastal
area shuttle system, allowlng up to flve years for lmplementatlon
of a pl.lot program in consideratIon of the slgn~f~cant cap~ tal
and operat1ng costs assocIated with shuttle operatlon, as well as
to allow careful design of a shuttle program.
Policy 28c, page 68. ThIS polley would requ1re the development
of a north beach extenslon of the beach pedestr1an promenade.
Policy 38, page 70. ThlS POlICY would reqUIre mltlgatlon where a
new development removes lower-cost lodglng faCIlItIes.
M~tlgatlon may take the form of replacement of such facll1tles as
part of the new development, or payment of a fee to the C1 ty_ for
development of such faCIllt1es. The lmplementatlon program would
develop the speclf~cs of the m1tlgatlon POllCY.
Policy 59, page 74. As revlsed by the Coastal Comm~ss~on, thlS
poll.cy would effectlvely requlre the development and
lmplementatlon of a new zonlng class~flcatlon for the pr~vate
resldentlal area located north of Santa Monlca Pler along Paclflc
Coast Hlghway. Part of th1S area is currently zoned R4, allowl.ng
hlgh-denslty development. The new POllCY would speclfy new
development could not exceed ex lsting densl t1es on lnd 1 vldual
lots, that new resldentlal development on vacant lots could not
exceed one unlt, and that new development on any parcels
currently used for prlvate beach clubs must conslst of
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V lSl tor-serv ~ng, beach- rela ted uses. The Coastal Comm lSSlon 1S
recommendlng th~s pol~cy 1n response to traff1c cond~tl.ons on
Pac~fl.c Coast Hlghway, and to promote vlsltor-servlng development
at the beach, wh~ch is a reg10nal recreat~on resource.
Policy 64, page 75. Thl.s POllCY, whl.ch establl.shes development
standards for the south beach area, also ~ncludes speclal
standards for a Clty-owned lot Wh1Ch 1S currently zoned R4
adJacent to the Prltlkl.n bUl1dlng. The Clty requested these
standards to accommodate a potentlal development WhlCh would
replace rent-controlled un1ts currently located on Ocean Avenue
near the P~er. Removal of these unl ts from thelr present 51 te
may be necessary to pr OV lde a new par klng str ucture serv lng the
P~er and the Rent Control Board may reqUlre that the C~ty replace
the un1ts at a comparable locatlon.
The Coastal Comm1SSlon also recommended var lOllS changes to the
maps of the LUP~ these are summarized on page 36 of the Coastal
Commiss1on staff report. Changes to the maps wlll be made
conSlstent wl.th flnal Clty action on the LUP.
It is 1mportant to note that the LUP standards reflect eXlstlng
adopted City pOll.Cles. Should the C1ty adopt new standards (for
example as a result of tne Ocean Park rezonlng study or because
of changes to tne draft Zonlng Ordinance), revlsion of the LUP
would be necessary.
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PLANNING COMMISSION RECOMMENDATIONS
On September 14, 1987 the Plannlng Comm~SSlon recommended that
the LUP be adopted WI. th several amendments. The Commlss10n' S
rev~ew of the LUP focused on Chapter IV WhlCh conta lns POllCY
statements. The recommendatlons together wlth a staff response,
are dlscussed below.
1) POI1CY 12, l6, page 64 and POI1CY 59, page 74. The Plannlng
Commlss~on voted to recommend that the Clty Attorney evaluate
the "nexus" lssue regardlng fee and other exactlon type
pollcles prlor to Councll conslderatlon of the LUP.
Staff agrees wlth the Planning Commlssion's concern about
potential problems and llabllltles ~n relat~on to lmposlt~on of
development fees, access rlghts, change of zone or land use
proposed ~n the LUP. Staff belleves that thlS lssue should best
be addressed in the lrnplernentatlon phase of the LCP. Staff plans
to work closely wlth the Clty Attorney's off~ce to address the
Plannlng Comrnlss10n's concerns over th1S lssue in the Phase III
~mplementatlon of the LCP.
2) POllCY 59, page 74. The Commiss10n voted to recommend that
staff notlfy the owners of north beach property that the LUP
lS comlng before the Councll.
Staff has provlded malled notlce to property owners on north
beach.
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3) POlICY 59, page 74. The Commlss~on voted to recommend one
guest parklng space per slngle famIly house ln the north
beach area adJacent to Paclflc Coast Hlghway be requ1red.
Staff recommends that thlS POllCY not be changed at thls tlffie.
ThlS POlICY IS not unlque to Santa Monlca. The Coastal
COffiffilSS10n has required two guest parkIng spaces In other
Jurlsdlctlons, for example Ven~ce and San Dlego. The Commlsslon
Vlews the north beach area of Paciflc Coast HIghway as a hlgh
traff~c l.mpact area. Further, areas l.mmedlately adJacent to the
beach generally have hlgher parkIng demand. Tandem parklng for
these spaces ~s allowed, whlch may address concerns about the
provlslon of more parklng.
The Coastal CommlSSlon would v~ew a change to thlS parkIng
standard as substantlve and requlre a new hearIng before the
CommlSSlon. The tlme lImIt for LUP certlflcatlon expires ln
February 1988. After certIflcatlon the Clty has the right three
t~mes per year to brIng amendments before the Coastal CommlSSlon.
ThlS ~ssue could be addressed after certlflcatlon, or as part of
the LCP l.mplementatlon program.
4) POlICY 84, page 78. The Comm~sslon voted to request reVISlon
of thl.s POlICY as follows:
84. The Rand area and adJacent parcels shall .attJZSJrlJrlJZS~.at~
include VIsltor-servlng uses, lncludlng hotel accommodatlons,
commercIal recreatIonal, cultural and publlC recreatIonal
facll1tles .an~ JZSttit~ ~$i. Existing and new off~ce use shall
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also be permltted except along the ground floor street
frontage of Ocean Avenue south of Parcel l3.
Staff be11eves that thlS recommended language
clarlfying ln nature and recommends It be accepted.
change
lS
OCEAN PARK INTERIM ORDINANCE
The CIty Councll adopted an lnter~m ordInance for the Ocean Park
area in August 1987. ThIS ordlnance 15 lnconslstent WIth the
Ocean Par k resldentlal development standards of the LUP, which
reflect exist1ng zonlng. The lnterlm ordlnance requlres that new
development 10 eX1stlng R2, R3 and R4 areas of Ocean Park conform
to R2 development standards, except that bUl1dlng heIght 15
llffilted to two storles and 27 feet.
Staff IS recommendlng that POI1CY 96 of the LOP be amended to
reflect the adoptlon of the lnterim Ocean Park development
standards by add1ng a reference to the lnterlffi ordlnance. Once
permanent standards are developed, the LUP wIll agaln be amended.
BUDGET/FINANCIAL IMPACT
A one mlll~on dollar Coastal Conservancy grant for restoratlon of
the Santa Monlca Plee IS contlngent upon a certlfled LUP.
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RECOMMENDATION
Staff respectfully recommends that the Cl ty Councl1 conduct a
publ~c hearlng on tnls matter and adopt the attached resolutlon
approving the LUP as amended by the Coastal Commlssion wlth the
folloWlng changes:
A. ReVlse Pol~cy 84 to read as follows:
84. The Rand area and adJacent parcels shall lnclude
vlsltor-servlng uses, lncludlng hotel accommodatlons,
commerclal recreatlonal, cultural and publlc recreatlonal
facll~tles. Ex~st~ng and new offlce use shall also be
perrnltted except along the ground floor street frontage of
Ocean Avenue south of Parcel 13.2.
B. Revlsed POllCY 96 to read as follows:
Pending the development of permanent revised development
standards for the Ocean Park resldent1al neighborhood, new
residential development shall be governed by Ordinance Number
1416 (CCS), which 1S attached hereto and 1ncorporated by
reference. itYi.e f6t~.an ,~tJ< t~"t./J.Jifttj.j.J. 1i~t9:1Yi~~t}1~~/J. ,S}1.aJ.J.
t~t.atn t~Ji ~tt$ttng ~tt ~t ~~PJ..etj X~~, ~.e~t~~ ~n~ ~j.9:1}1
~~ft$tti t.e$t~.enti~X ~.e1~J.~pm.efttj p~~Xtt p.atX$ ~n~ ~'s.e$
~~t~.aJ.J.i .a,S,S~tt.at.e~ ~j.tYi t.e$j~.e1itt.aJ. 1i.ej9:1Yi~~tYip~~,Sj EXlstlng
ne ighborhood par k acreage shall be mal.n talned.
becomes bUllt out, the Clty shall assure
recreational needs of the new res1dents do nOr:
coastal resources by provlding an adequate
nelghborhood recreat~onal facllltles.
As the area
tha t the
overburden
level of
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Exhlblt
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A: Resolut~on adoptlng LUP
B: LUP as adopted by Coastal Commlss1on
C: Coastal CO~~isslon Staff Report
D: Ocean Park Interlffi Ordlnance
Prepared by: D. Kenyon Webster, Sen10r Planner
Johanna Marle GulliCk, Ass~stant Planner
DKW:JG:se
w/ccdlup2
lO/21/87
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