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SR-06-23-2015-6A/7CCity of City Council Report Santa monies City Council Fleeting: June 23, 2015 Agenda Item: 6A 1 -7C- To: Mayor and City Council From: David Martin, Director, Planning and Community Development Subject: Appeal of Planning Commission Decision Rejecting Specified Land Use and Circulation Element ( "LUCE ") Amendments; Resolution to Approve LUCE Amendments and LUCE Land Use Designation Map Amendments; and Reconsideration Whether to Allow Tier 3 Development in an Area Designated Mixed Use Boulevard Low on Colorado Avenue East of 20th Street, on the South Side of Broadway East of 20th Street, and on 20th Street and Cloverfield Boulevard between Broadway and Colorado Avenue. Recommended Action Staff recommends that the City Council : 1) Grant the appeal and reverse the Planning Commission's decision to reject the proposed LUCE amendments to eliminate the Lincoln /Ocean Park and Broadway /Colorado Activity Center Low Overlays; and 2) Adopt the attached resolution approving LUCE Amendments to eliminate the Lincoln /Ocean Park and Broadway /Colorado Activity Center Low Overlays and LUCE Land Use Designation Map amendments for 1419 19th Street and portions of 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard; and 3) Reconsider Whether to Allow Tier 3 Development in an Area Designated Mixed Use Boulevard Low on Colorado Avenue East of 20th Street, on the South Side of Broadway East of 20th Street, and on 20th Street and Cloverfield Boulevard between Broadway and Colorado Avenue. Executive Summary During Council's study sessions and first reading of an ordinance to adopt a new Zoning Ordinance in April and May 2015, Council directed staff to begin the process to amend the LUCE eliminating the Lincoln /Ocean Park and Broadway /Colorado Activity Center Low Overlays. Council also directed staff to begin the process to amend the LUCE land use designations for 1419 19th Street and portions of 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard. The Planning Commission 1 subsequently adopted Resolutions of Intention to consider these LUCE and LUCE Map amendments on April 22, 2015 and May 20, 2015. On June 3, 2015, the Planning Commission recommended to Council the adoption of a resolution to amend the LUCE Land Use Designation Map for 1419 19th Street and portions of 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard. However, the Commission did not recommend the adoption of a resolution to amend the LUCE eliminating the Lincoln /Ocean Park and Broadway /Colorado Activity Center Low Overlays. The LUCE amendments rejected by the Planning Commission were subsequently appealed to Council by Councilmember Ted Winterer. This report recommends Council adopt a resolution approving the LUCE amendments and the LUCE Designation Map Amendments and to reconsider whether to allow Tier 3 development in the area encompassed by the Broadway /Colorado Activity Center, specifically the area bounded by the south side of Broadway, the north side of Colorado Avenue, 20th Street, and Cloverfield Boulevard. Background On April 14 -15, 2015, Council held a study session on the Draft Zoning Ordinance, Proposed Land Use and Circulation Element amendments, Draft LUCE Designation Map amendments, Land Use and Zoning related chapters, and the Initial Study /Negative Declaration. During this proceeding Council directed staff to prepare a Resolution of Intention for the Planning Commission's consideration that would state the Commission's intention to consider recommending a LUCE amendment to Council that would eliminate the activity center that would be located at the southeast corner of Ocean Park and Lincoln Boulevard ( "Lincoln /Ocean Park Activity Center "). The Planning Commission subsequently adopted a Resolution of Intention on April 22 2015 to consider this LUCE amendment. On May 5 2015, Council adopted resolutions approving LUCE and LUCE Land Use Designation Map amendments and reviewed for first reading an Ordinance to implement a new Zoning Ordinance among other actions. Council directed staff to F, prepare a Resolution of Intention for the Planning Commission's consideration that would state the Commission's intention to consider recommending a LUCE amendment to Council that would eliminate the activity center that would be located within the boundaries of Broadway, Colorado Avenue, 20th Street, and Cloverfield Boulevard ( "Broadway /Colorado Activity Center "). Council also directed staff to begin the process to amend the LUCE land use designations for portions of three properties: 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard. On May 12, 2015, Council introduced for first reading an ordinance to adopt a new Zoning Ordinance, new zoning and land use related chapters, and a new final Official Districting Map. Council also directed staff to begin the process to amend the LUCE land use designation for an additional property at 1419 19th Street. The Planning Commission. subsequently adopted a resolution on May 20 2015 to consider these LUCE and LUCE Map amendments. On May 2a, 2015, the City Council voted to reconsider on June 23, 2015 whether to allow Tier 3 development in the area encompassed by the Broadway /Colorado Activity Center — the area bounded by the south side of Broadway, the north side of Colorado Avenue, 20th Street, and Cloverfield Boulevard. On June 3, 2015, the Planning Commission formally considered the proposed LUCE amendments to eliminate the Lincoln /Ocean Park and Broadway /Colorado Activity Center Low Overlays and the LUCE Map amendments. The Commission voted 4 -1 to recommend to Council the adoption of a resolution to amend the LUCE Land Use Designation Map for 1419 19th Street and portions of 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard, however, the Commission did not recommend Council adopt a resolution to amend the LUCE to eliminate Lincoln /Ocean Park and Broadway /Colorado Activity Center Low Overlays. Specifically, some Commissioners expressed concerns with the suburban, auto - oriented development pattern of the existing development at Lincoln /Ocean Park. Some 3 comments were also expressed indicating that this area represents the business anchor at the western edge of the Sunset Park Neighborhood and therefore allowing the Activity Center Overlay could allow development of a desirable space with uses where community members could gather. Comments were expressed about the proximity to the Expo Rail Stations at Bergamot and Memorial Park; that this area could become a strong pedestrian activity area thereby creating a connection between both stations. The LUCE amendments rejected by the Planning Commission were subsequently appealed to Council by Councilmember Ted Winterer. Discussion LUCE Amendments Appeal The Activity Center Overlay planning concept was developed during the preparation and approval of the LUCE on July 6, 2010. The establishment of an Activity Center Overlay involves a specific planning process to determine how and where mixed -use retail and housing could be developed around community open spaces and gathering places. Each activity center requires the preparation of an area plan that involves a process intended to provide for extensive community consultation and to provide the City broad discretion in determining development standards and defining appropriate types of projects instead of shaping an area through individual project review. Given this process, the Zoning Ordinance Update does not establish any standards governing activity centers. The LUCE originally envisioned activity centers in five areas of the City as identified in Figure 1 on the next page. 0 Activity Center Overlay Locations (� Activity Center Overlay Expo AMignmenL QD Expa Statiun Figure 1 3 { i f 111 Each Activity Center Overlay would include zoning incentives, including additional height and FAR, in order to encourage the assembly of parcels and cooperation of property owners to incentivize transformation of these areas through development of mixed -use buildings with ground level, publicly accessible open space. Council conducted study sessions to consider the Zoning Ordinance Update on April 14 -15, 2015. During these study sessions, Council considered the Planning Commission recommendations concerning the two Wilshire Activity Center Overlays and also directed staff to prepare a Resolution of Intention for the Planning Commission to consider whether to recommend to Council elimination of the Lincoln /Ocean Park Boulevard Activity Center Overlay from the LUCE. 61 t Y__.. i_._.... 1. Wilshire /Centinela 2. Wilshire /141h St 3. Broadway /Colorado 4. Memorial Park 5. Lincoln /Ocean Park Figure 1 3 { i f 111 Each Activity Center Overlay would include zoning incentives, including additional height and FAR, in order to encourage the assembly of parcels and cooperation of property owners to incentivize transformation of these areas through development of mixed -use buildings with ground level, publicly accessible open space. Council conducted study sessions to consider the Zoning Ordinance Update on April 14 -15, 2015. During these study sessions, Council considered the Planning Commission recommendations concerning the two Wilshire Activity Center Overlays and also directed staff to prepare a Resolution of Intention for the Planning Commission to consider whether to recommend to Council elimination of the Lincoln /Ocean Park Boulevard Activity Center Overlay from the LUCE. 61 On May 5, 2015, Council adopted Resolution No. 10874 (CCS) which, in part, amended the LUCE to eliminate activity centers located at Wilshire /Centinela and at Wilshire /14th Street, #1 and #2 in Figure 1. Council also directed staff to prepare a resolution for the Planning Commission to consider whether to recommend to Council the elimination of the Broadway /Colorado Activity Center, in addition to the Lincoln /Ocean Park Activity Center Overlay, #3 and #5 in Figure 1. The net effect of the May 5, 2015 adoption of Resolution No. 10874 and the directions to prepare resolutions for the Planning Commission to consider whether to recommend elimination of the Lincoln /Ocean Park and Broadway /Colorado Activity Center Overlays would result in the elimination of 4 out of the 5 Activity Centers originally envisioned in the LUCE, with the Memorial Park Activity Center Overlay remaining. Consideration to eliminate the LUCE Activity Centers is due, in part, to the public testimony and correspondence on April 14 -15, 2015 concerning the Lincoln /Ocean Park Activity Center. This testimony and correspondence addressed concerns that the Lincoln /Ocean Park Activity Center may allow development at a level that is significantly out -of -scale with the surrounding low- density residential neighborhood and /or may not be neighborhood - serving. Additional testimony and correspondence emphasized that the proposed site already provides a variety of commercial uses including a general market, pharmacy, cleaners, restaurants, optometrist, salons, and other retail establishments and that the intersection of Ocean Park and Lincoln Boulevard is already heavily traveled. Council also discussed the Broadway /Colorado Activity Center with similar concerns expressed that the Broadway /Colorado Activity Center may allow development at a level that is significantly out -of -scale with the surrounding commercial and low- density residential neighborhood and that the area is already heavily traveled. P9 LUCE Land Use Designation Map Amendments Council directed staff to begin the process to amend the LUCE land use designations for portions of three properties: 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard. Council directed staff to consider changing the LUCE land use designation of the portion of 820 Montana Avenue that is currently zoned R2A from a Neighborhood Commercial land use designation to Low Density Housing. This land use designation change would prevent the existing commercial use from redeveloping as another commercial use on this portion of the property and would provide a potential buffer for the adjacent residential uses to the south from the existing commercial use on site. The table and map in Figure 2 indicate the proposed LUCE map change and, as outlined in blue, the portion of the lot that could be amended. 820 Montana Ave R2A Neighborhood Commercial Change center portion of parcel to (NC) Low Density Housing Roosevelt Elementary ue w�i m Figure 2 Council also directed staff to consider changing the LUCE land use designations for the rear portions of 1613 and 1637 Lincoln Boulevard from Industrial Conservation to Mixed Use Boulevard to make them consistent with the front portions of these parcels, which are currently designated Mixed Use Boulevard. This change would allow for additional housing opportunities as housing is currently permitted on the front portions of the properties currently designated Mixed Use Boulevard. The table and map in Figure 3 indicate the proposed LUCE map changes and, as outlined in blue, the portions of the lots that could be amended. 1613 Lincoln Blvd MS Industrial Conservation (IC) Change rear portion of parcel to Mixed Use Boulevard (MUB) 1637 Lincoln Blvd M1 Industrial Conservation (IC) Change rear portion of parcel to Mixed Use Boulevard (MUB) Figure 3 On May 12, 2015, Council introduced for first reading an Ordinance to adopt a new Zoning Ordinance, new zoning and land use related chapters, and a new final Official Districting Map. Council also directed staff to commence the process to amend the LUCE land use designation for an additional property at 1419 19th Street, shown on the next page. Council directed staff to consider changing the LUCE land use designation j from a Low Density Housing land use designation to General Commercial. This land use designation change would be consistent with the existing commercial zoning of the parcel and allow for the continued commercial use of the property. The Planning Commission subsequently adopted a Resolution of Intention to consider these LUCE and LUCE Map amendments. The table and map in Figure 4 indicate the proposed LUCE map change and, as outlined in blue, the specific lot that could be amended. 1419 19th St C4 Low Density Housing Change entire parcel to General , Commercial (GC) unmcne 4zna aznawaxr ur n5.�znaosa5i uv.aoeoiisaot8 .e. su unao5ax5 aznoosazE �x]Sm4000 �x15-0Oia50 y Figure 4 Designation Map approved on May 5, 2015 Resolution No. 10874 with an amended LUCE Designation Map reflective of these LUCE designation changes. Planning Commission Resolution No. 15 -13 (PCS) is also attached. Environmental Analysis The proposed amendments would eliminate an Activity Center Low overlay designation at Lincoln /Ocean Park Boulevards and Broadway /Colorado. The elimination of these 01 from a Low Density Housing land use designation to General Commercial. This land use designation change would be consistent with the existing commercial zoning of the parcel and allow for the continued commercial use of the property. The Planning Commission subsequently adopted a Resolution of Intention to consider these LUCE and LUCE Map amendments. The table and map in Figure 4 indicate the proposed LUCE map change and, as outlined in blue, the specific lot that could be amended. m Change entire parcel to General 1419 19 St C4 Low Density Housing Commercial (GC) Figure 4 Designation Map approved on May 5, 2015 Resolution No. 10874 with an amended LUCE Designation Map reflective of these LUCE designation changes. Planning Commission Resolution No. 15 -13 (PCS) is also attached. Environmental Analysis The proposed amendments would eliminate an Activity Center Low overlay designation at Lincoln /Ocean Park Boulevards and Broadway /Colorado. The elimination of these 2 activity centers would result in reduced development potential for properties within these areas. Therefore, compared to the LUCE EIR, potential impacts on the environment as a result of land use changes within these areas would decrease. Additionally, because of neighborhood conservation policies adopted in the LUCE and in existing zoning, the proposed amendments would not cause future land uses to be spread out geographically to other areas of the City including residential neighborhood includes such that more or new significant environmental impacts would be identified. This amendment does not affect areas of the City that are within the boundaries of Area or Specific Plans (e.g. Downtown, Memorial Park, Bergamot), which have or will have their own environmental analyses. With the elimination of the Lincoln /Ocean Park and Broadway /Colorado Activity Centers, it will be more likely that new land uses will be concentrated around major transit stations, therefore reducing potential environmental impacts including traffic. This land use scenario was similar to one analyzed in Section 6.6 of the LUCE EIR as Alternative 3: Condensed Nodal Development (Page 6 -23 to 6 -30 of LUCE EIR) where it was assumed that there would be a similar volume of land use change as the LUCE but that it would be concentrated in the Downtown /Civic Center, two major hospital areas in the City, Bergamot, and Pico /Lincoln Blvd, an intersection with a number of bus routes that carry the highest volume of passengers in the Big Blue Bus system. The LUCE EIR analyzed Alternative 3 and concluded that with future land uses concentrated onto fewer parcels, the trip- making characteristics in the City are improved compared to the LUCE including lower net new evening peak period trips, lower VMT, lower GHG per capita, and improved east -west corridor travel times. It was also expected that higher concentrations of land use changes in and around transit hubs would result in higher levels of transit use because residents and employees would have shorter distances to available transit. Therefore, these amendments, would not create significant new impacts that were not previously analyzed in the LUCE EIR. HE Financial Impacts & Budget Actions There is no immediate financial impact or budget action necessary as a result of the recommended action. Prepared by: Amanda Schachter, Planning Manager Barry A. Rosenbaum, Senior Land Use Attorney Bradley J. Misner, AICP, Principal Planner Tony Kim, Acting Special Projects Manager Approved: Forwarded to Council: L , P'� David Martin Elaine Polachek Director, Planning & Community Interim City Manager Development Attachments A. Resolution Approving LUCE and LUCE Land Use Designation Map Amendments — with the following Exhibits: 1. LUCE Amendments 2. LUCE Map Amendments 3. Santa Monica General Plan Land Use Designation Map B. Planning Commission Resolution No. 15 -13 (PCS) 11 ATTACHMENT A RESOLUTION APPROVING LUCE AND LUCE LAND USE DESIGNATION MAP AMENDMENTS —WITH THE FOLLOWING EXHIBITS: 1. LUCE Amendments 2. LUCE Map Amendments 3. Santa Monica General Plan Land Use Designation Map ATTACHMENT B PLANNING COMMISSION RESOLUTION NO. 15 -13 (PCS) f: \atty \muni \laws \barry\LUCEResolution 6 -3 -15 (Final) RESOLUTION NO. 15 -13 (PCS) (Planning Commission Series) A RESOLUTION OF THE PLANNING COMMISSION OF THE CITY OF SANTA MONICA RECOMMENDING TO THE CITY COUNCIL THAT THE CITY COUNCIL AMEND THE CITY OF SANTA MONICA'S GENERAL PLAN LAND USE MAP WHEREAS, on July 6, 2010, the City. adopted a new Land Use and Circulation Element of the General Plan ( "LUCE "); and WHEREAS, the LUCE differs from prior Land Use and Circulation elements, in part, by establishing a direct link between land use and transportation policies and programs and the establishment of new development policies and standards which ensure that quality development contributes to the character of the City; and WHEREAS, the LUCE establishes a base height for each land use as a baseline and proposed development which seeks additional height above the base is subject to discretionary review and must meet additional requirements consistent with the community's broader social, environmental, and circulation goals —an approach defined in three tiers; and WHEREAS, this tiered structure provides that projects above the first tier must include certain preferred uses, beneficial design features, or comply with specific development standards that serve the community's core needs; and WHEREAS, a central focus of the LUCE is to protect and conserve existing neighborhoods which make up the majority of the City's land area with neighborhood- 1 specific and city -wide goals and policies designed to preserve the scale, character, and quality of life in the neighborhoods; and WHEREAS, in public hearings, residents have testified that new development should be regulated strategically to perfect the balance between the impacts of this development and the community's insistence upon preserving quality of life and the environment; and WHEREAS, this input has demonstrated significant interest in preserving the scale and character of existing neighborhoods and in reducing development standards in some parts of the City to ensure that the height and scale of new buildings is consistent with the existing context; and and WHEREAS, the LUCE also established designated Activity Center Overlay Districts; WHEREAS, the Activity Center Overlay Districts were identified in the LUCE as strategic opportunities for property owners and /or the City to foster dynamic spaces by enabling the creation of mixed -use development at transportation crossroads on parcels of sufficient size to support creative design and to provide active and passive open space, affordable and market -rate housing, and shared parking facilities; and WHEREAS, one of the activity centers that the LUCE proposes would be located at the southeast corner of Ocean Park and Lincoln Boulevard ( "Lincoln /Ocean Park Activity Center "); and 2 WHEREAS, this activity center may allow development at a level that is significantly out -of -scale with the surrounding low- density residential neighborhood and /or may not be neighborhood - serving; and WHEREAS, the proposed site already provides a variety of commercial uses including a general market, pharmacy, cleaners, optometrist, restaurants, salons, and other retail establishments; and WHEREAS, the intersection of Ocean Park and Lincoln Boulevard is already heavily traveled; and WHEREAS, in light of these circumstances, and concerns about preserving quality of life, it is appropriate to consider eliminating this proposed activity center; and WHEREAS, on April 15, 2015, based on the concerns expressed above, the City Council directed staff to prepare a resolution of intention for the Planning Commission's consideration; and WHEREAS, staff prepared a Resolution of Intention as directed; and WHEREAS, on April 22, 2015, the Planning Commission adopted Resolution of Intent, Resolution No. 15 -010 (PCS), declaring its intent to consider recommending to the City Council that the City Council amend the LUCE pursuant to Santa Monica Municipal Code Section 9.04.20.18.060 to eliminate the Lincoln /Ocean Park Activity Center Low Overlay; and WHEREAS, on May 5, 2015, the City Council adopted a resolution approving LUCE and LUCE Land Use Designation Map amendments and reviewed for first reading an Ordinance to implement a new Zoning Ordinance among other actions; and 3 WHEREAS, on May 12, 2015, the City Council introduced for first reading an ordinance to adopt a new Zoning Ordinance, new zoning and land use related chapters, and a new final official districting map; and WHEREAS, during the May 5 I hearing, the Council discussed the activity center proposed to be located within the boundaries of Broadway, Colorado Avenue, 20th Street, and Cloverfield Boulevard ( "Broadway /Colorado Activity Center "); and WHEREAS, concerns were expressed that the Broadway /Colorado Activity Center may allow development at a level that is significantly out -of -scale with the surrounding commercial and low- density residential neighborhood and that the area is already heavily traveled; and WHEREAS, based on these concerns, the City Council directed staff to prepare a resolution of intention for the Planning Commission's consideration that would state the Commission's intention to consider recommending a LUCE amendment to the Council that would eliminate the Broadway /Colorado Activity Center; and WHEREAS, as part of the LUCE adoption, the City adopted the LUCE Land Use Designation Map; and WHEREAS, since the adoption of the LUCE, the City has engaged in an extensive process of preparing the Zoning Ordinance Update; and WHEREAS, the Zoning Ordinance Update process has provided an opportunity to reassess the appropriateness of the land use designation changes that were approved as part of the LUCE; and WHEREAS, as part of this extensive review process, the Council directed staff to commence the process to amend the LUCE land use designations for portions of 820 0 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard, and for 141919x" Street; and WHEREAS, the Council directed staff to consider changing the LUCE land use designation of the portion of 820 Montana Avenue that is currently zoned R2A from a Neighborhood Commercial land use designation to Low Density Housing; and WHEREAS, this land use designation change would prevent the existing commercial use from redeveloping as another commercial use on this portion of the property and would provide a potential buffer for the adjacent residential uses to the south from the existing commercial use on site; and WHEREAS, the Council also directed staff to consider changing the LUCE land use designations for the rear portions of 1613 and 1637 Lincoln Boulevard from Industrial Conservation to Mixed Use Boulevard to make them consistent with the front portions of these parcels which are currently designated Mixed Use Boulevard; and WHEREAS, this change would also allow for additional housing opportunities as housing is currently permitted on the portion of the property designated Mixed Use Boulevard; and WHEREAS, the Council also directed staff to consider changing the LUCE land use designations for 1419 19th Street from Low Density Housing to General Commercial; and WHEREAS, this change would be consistent with the existing commercial zoning of the parcel and allow for the continued commercial use of the property; and WHEREAS, staff prepared a Resolution of Intent as directed; and WHEREAS, on May 20, 2015, the Planning Commission adopted Resolution of Intent, Resolution No. 15 -012 (PCS), declaring its intent to consider recommending to the 5 City Council that the City Council amend the LUCE pursuant to Santa Monica Municipal Code Section 9.04.20.18.060 to eliminate the Lincoln /Ocean Park Activity Center Low Overlay and amend the LUCE Land Use Designation Map for 1419 19th Street and portions of 820 Montana Avenue, 1613 Lincoln Boulevard, and 1637 Lincoln Boulevard; and WHEREAS, at its meeting of June 3, 2015, the Planning Commission decided not to recommend that the City Council eliminate the Lincoln /Ocean Park Activity Center Low Overlay and the Broadway /Colorado Activity Center; and WHEREAS, pursuant to Santa Monica Municipal Code Section 9.04.20.18,090, the Planning Commission desires to recommend to the City Council that the City Council amend the General Plan Land Use Map and hereby adopts this resolution pursuant to Santa Monica Municipal Code Section 9.04.20.18.080, NOW, THEREFORE, THE PLANNING COMMISSION OF THE CITY OF SANTA MONICA DOES RESOLVE AS FOLLOWS: SECTION 1. Pursuant to Santa Monica Municipal Code Section 9.04.20.18.090, the Planning Commission does hereby recommend to the City Council that the City Council amend the Santa Monica General Plan Land Use Designation Map as set forth in Exhibit 1, attached to this Resolution and incorporated herein by reference. 6 SECTION 2. The Director of Planning and Community Development shall certify to the adoption of this Resolution, and thenceforth and thereafter the same shall be in full force and effect. APPROVED AS TO FORM: MRSHHA JO ES MOI.l RIE C ty /Attor ey� Ado ted this 6T day of JUNE 2015. Pl Chair anni g Commission I hereby certify that the foregoing Resolution of Intention was duly and regularly introduced and approved at a meeting of the Planning Commission on the 6TH day of JUNE , 2015 by the following vote: Ayes: ANDERSON, NEWBOLD, PARRY, RUBIN Noes: MCKINNON Abstain: Absent: KENNEDY, RIES Attest: 0 Director of Planning and Community Development IMUMM H O N M N C N v W C N .0 u n w V d '4 N O A O ` o Reference: Resolution No. 10885 (CCS)