19-1015_RIVER STREET SJC, LLC_Agenda Report_D1_Attachment_5_Part_1...
TO :
FROM :
DATE:
SUBJECT:
City of San Juan Capistrano
Agenda Report
Planning Commission
Development Services Department
Submitted by: Sergio Klotz, AICP, Assistant Dire_cto~r ~
Prepared by: David Contreras, Principal Planner
Reviewed by: Joel Rojas, Development Services Direc r
May 14, 2019
F1
Consideration of General Plan Amendment (GPA) 18-002, Code
Amendment (CA) 16-003, Architectural Control (AC) 16-029, Grading Plan
Modification (GPM) 16-014, Flood Plain Land Use Permit (FP) 16-003,
Tree Removal Permit (TRP) 16-047, Sign Program (SP) 16-007, and
Development Agreement (DA) 18-002; River Street Marketplace, a
request for approval of a new Commercial and Office Development
Project Located on the Ito Nursery Property at 31825 Los Rios Street
(Assessor Parcel Numbers 121-160-22, 28, 49) (Applicant: Dan Almquist,
River Street SJC, LLC) .
RECOMMENDATION:
1) Adopt a resolution recommending the City Council certify the Final Environmental
Impact Report and adopt the Mitigation Monitoring Reporting Program for the River
Street Marketplace project (SCH#2018011019), and approve GPA 18-002, CA 16-
003 and DA 18-002 (Attachment 1 ); and,
2) Adopt a resolution approving AC 16-029, GPM 16-014, FP 16-003, TRP 16-047,
and SP 16-007 (Attachment 2).
APPLICANT/OWNER:
Applicant:
Dan Almquist
River Street SJC, LLC
610 Newport Center Drive
Suite 410
Newport Beach, CA 92660
Property Owner:
Sheree & Doug Ito
31825 Los Rios Street
San Juan Capistrano, CA
92675
Architect:
Bickel Group Architecture
3600 Birch Street
Suite 120
Newport Beach, CA 92660
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EXECUTIVE SUMMARY:
Dan Almquist, River Street SJC, LLC (the "Applicant") is proposing the River Street
Marketplace Project, an approximately 5.86-acre mixed use project at 31825 Los Rios
Street. The project entitlements required include General Plan Amendment (GPA 18-
002) to ensure consistency of the proposed Amendments to the Los Rios Specific Plan
with the City's General Plan; Code Amendment (CA 16-003) to the Los Rios Specific
Plan (SP 78-01) to amend various sections of the Specific Plan to add the Commercial
Core Planning area and add Appendix A "River Street Marketplace Project, Amendment
to the Los Rios Specific Plan"; Architectural Control (AC 16-029) to review the site plan,
architectural design of the structures, lighting, site amenities and landscape; Grading
Plan Modification (GPM 16-014) for the review of onsite grading and elevations to
create building pads, a parking lot and pedestrian access; Flood Plain Land Use Permit
(FP 16-003) for the review and evaluation of potential impacts to Trabuco Creek; Tree
Removal Permit (TRP 16-047) for conformance with the City's Municipal Code Section
9-2.349 which establishes regulations for removal of trees in the City; Sign Program
(SP 16-037) for review of business signs and to establish signage and sign regulations
for the development; and Development Agreement (DA 18-002) between the project
applicant and the City of San Juan Capistrano pursuant to California Government Code
Sections 65864 et seq.
The applicant has provided the proposed development plans for consideration as
Enclosure 1 . Staff has analyzed the applicant's request and believes that all of the
findings of fact for the various entitlements necessary for approval can be made. As a
result, staff is recommending approval of all of the requested entitlements for the
proposed project.
BACKGROUND:
General Location : 31825 Los Rios Street, at the southeast corner of Paseo
Adelantq and River Street, just north of Del Obispo Street.
General Plan Land
Use Designation: Specific Plan/Precise Plan (SP/PP)
Zoning Map Designation: Specific Plan/Precise Plan (SP/PP), Los Rios Specific Plan
(SP 78-01 ), Low Density Commercial (LDC) District
Current Use of Property: Undeveloped/Nursey
s d" G urroun mg enera I Pl D . f an es 1gna ions , z ornn q , an dE"f L dU XIS mq an ses :
Direction General Plan Land Use Zoning Use
North Specific Plan/Precise Specific Plan/Precise Petting Zoo Plan Plan (SP 78-01)
South Specific Plan/Precise Specific Plan/Precise Office Plan Plan (SP 78-01)
East Specific Plan/Precise Specific Plan/Precise Residential Plan Plan (SP 78-01)
West N.A. N.A. Alipaz Street
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PROJECT DESCRIPTION :
On October 4, 2016, the City Council initiated a study of a proposed amendment to the
Los Rios Specific Plan 78-01 by directing the Development Services Department to
conduct an appropriate study of a proposal to allow general retail, eating and drinking
establishments, office and wellness uses on the 5.86-acre Ito Nursery Property (31825
Los Rios Street, San Juan Capistrano). On April 3, 2018, the City Council initiated a
General Plan Amendment to conduct an appropriate study to update the description of
the Los Rios Specific Plan contained in the General Plan as a result of the proposed
Los Rios Specific Plan Amendment requested for the proposed commercial
development project referred to as "River Street Marketplace" on the Ito Nursery
property. The applicant proposes development/architectural plans for a new commercial
and office development project located on the Ito Nursery property (Enclosure 1 ).
The applicant proposes to develop the entire 5.86 acre site with commercial and office
space that combines restaurant, office, and artisan retail space within five unique
buildings totaling approximately 64,900 square feet, along with associated
improvements ("the River Street Marketplace Project") ("project"). The project is
designed to reflect the City's agrarian history and includes metal/wood barn themed
buildings, a courtyard designed and planted with California native plant landscaping,
and amenities designed to be consistent with the early San Juan Capistrano aesthetic.
The project would provide indoor and outdoor dining, farm fresh produce, unique retail
venues and a grassy common with varied seating options and communal tables for
outdoor dining. Consistent with the project theme, the proposal proposes to replace the
existing asphalt on River Street, adjacent to the project site, with decomposed granite
and install bollards east of River Street's intersection with Paseo Adelanto to prohibit
vehicle traffic on this private drive, as well as remove the existing property line dividing
fence along River Street, to enhance the pedestrian path. The project also includes a
parking area with an olive grove that would be accessed via Paseo Adelanto and Los
Rios Street.
River Street is the only historic resource located within the project site. River Street
originally initiated at Los Rios Street and ran approximately four miles west to Dana
Point, and was a common transportation route for area settlers, however over the past
several decades it has lost its coastal connection and has been reduced to a paved 600
foot private drive. Despite the historic integrity concerns associated with River Street, it
remains a contributor to the National Register of Historic Places (NRHP)-listed Los Rios
Historic District and is also listed on the City of San Juan Capistrano Inventory of
Historic and Cultural Landmarks (IHCL). No other historic-era buildings, structures, or
improvements are extant within the project site.
The Los Rios Street Historic District, which is listed on the IHCL, NRHP, and the
California Register of Historic Resources (CRHR) is adjacent to the eastern boundary of
the project site, and the portion of the Los Rios Historic District that includes River
Street forms the north edge of the project site. Excepting overlap with River Street, the
project will not take place within the Los Rios Historic District.
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Architecture/Site Des ign :
The project is designed to reflect the City's agrarian history and includes Craftsman
Bungalow and California Vernacular themed buildings. The articulation and details in
the architectural style are consistent with San Juan Capistrano history, character and
"sense of place"; and specifically with the Los Rios Street Historic District. Table 2-0
provides specific information on the architectural details.
Table 2-0, Architectural Details
Building Roof Material & Color Exterior Material & Color Building
Height
Standing Seam Metal -Corrugated Metal -Aged 35'-0" Top of Marketplace Cool Weathered Copper
& Cool Town Gray Vintage Ridge
Corrugated Metal -Board & Batten Vertical 35'-0" Top of Mercantile Siding -Grassland & Aged Vintage Whitetail Ridge
Green Standing Seam Metal -Board & Batten Vertical 25'-0" Top of Cool Weathered Copper Siding -Pussywillow & House & Cool Town Gray Whitetail Ridge
Standing Seam Metal -Wood Siding -Red Antique 30' -0" Top of Red Barn Cool Weathered Copper
& Cool Town Gray & Drift of Mist Ridge
Cedar Shake Shingles -Board & Batten Vertical 31 '-0" Top of Farmstead Siding -Sensible Hue & Brown Whitetail Ridge
As noted in Table 2-0, the proposed project's five buildings have been designed with
details, finishes and colors that reflect the agrarian history of the City, especially with an
agrarian architectural style that balances height and massing.
The project site would be developed with 64,900 square feet of commercial and office
space in five Agrarian themed buildings: Marketplace, Mercantile, Greenhouse, Red
Barn, and Farmstead. Table 1-0 provides a summary of the square footage of the
proposed commercial and office uses that would occupy these buildings. The overall
design concept for the project depicts a pedestrian-oriented development, with outdoor
seating and dining areas that incorporate a California-native landscape palette. The
center would provide indoor and outdoor dining, farm fresh produce, and unique retail
venues. A grassy common setting provides varied seating options and communal tables
for outdoor dining. Consistent with the project theme, the proposal proposes to replace
the existing asphalt on River Street with decomposed granite to enhance the pedestrian
path. The project also includes a parking area with an olive grove that would be
accessed via Paseo Adelanto and Los Rios Street. The proposed buildings are
described below.
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Table 1-0, Land Use Summary
Land Use Square FootaQe
Marketplace 23,100
Mercantile 18,800
Greenhouse 10,900
Red Barn 7,500
Farmstead 4,600
Total 64,900
• Marketplace. The Marketplace building is the largest of the proposed buildings with
a 20,200-square-foot main floor and a 2,900-square-foot basement, totaling 23, 100
square feet. The Marketplace, at a height of 35 feet, would be sited at the southern
end of the commons area, which provides communal dining, activities, and
amenities. The Marketplace is intended to provide patrons with a variety of unique
boutique retail shopping opportunities, such as a juice bar, artisanal baked goods,
farm fresh produce, gourmet cheeses, and specialty meats. Onsite dining options
may include specialty deli and sandwich shops, specialty food stalls, and craft beer
and wine.
• Mercantile. The two-story Mercantile building would provide retail, restaurant, and
fitness uses on the ground floor (10,800 square feet), and office space on the
second floor (8,000 square feet), totaling 18,800 square feet. The building is the
second largest of the proposed buildings, 35-feet in height, and would be situated at
the west side of the site.
• Greenhouse. The single-story, 10,900 square foot Greenhouse building would
house restaurant and retail uses along the east side of the site.
• Red Barn. The single-story, 7 ,500-square-foot Red Barn would house restaurant
and/or brewery/winery uses in the northeast corner of the site.
• Farmstead. The single-story, 4,600-square-foot Farmstead would house restaurant
uses at the northwest corner of the common fronting the south side of River Street.
Parking I Access :
The Los Rios Specific Plan Amendment establishes stand-alone parking standards for
the Commercial Core planning area, including the River Street Marketplace project site
that will govern parking requirements for the River Street Marketplace project. Parking
shall be provided consistent with Section 2.2.5 of the Specific Plan Amendment, which
requires the project to be developed with 290 parking spaces. A common parking lot is
proposed around the western and southern periphery of the buildings and the common
area. Main access to the parking lot would be provided via Paseo Adelanto. To
accommodate the proposed land uses, 292 parking spaces (including 7 ADA spaces)
would be provided in the designated parking lot. Additionally, depending on the ultimate
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design of off-site circulation improvements, the project would include 23 angled or 15
parallel on-street parking spaces adjacent to the project site along Paseo Adelanto.
Landscape:
The River Street Marketplace project's landscape scheme would feature a California
native plant palette. The comprehensive landscape plan for the proposed project would
include a variety of new trees, shrubs, and groundcover along the building perimeters,
within the parking and common areas, and along the project perimeter. Proposed tree
types would include but not be limited to oak, sycamore, olive, and citrus trees. In order
to develop the site, the applicant is proposing the removal of 34 of the 41 trees and
replacing with 158 new trees, including 39 specimen trees (minimum 72-inch box), 83
olive trees (48-inch box minimum), 20 site trees (36-inch box minimum), and 16 citrus
trees (24-inch box). Plantings include two species of oaks: Coast live oak and
Pasadena oak. The project would add approximately 124 more trees than currently
exist, as well as a greater number of shrubs and groundcover. The landscape plan is
designed with a low water-use palette of shrubs and groundcover. The implemented
landscape concept would enhance the appearance of the project site and its
surroundings, provide shade and visual interest, define entry/access points,
accentuate site and architectural features, and provide screening .
Hardscape & Furnishings:
Decorative pavers (e.g., creek-bed cobble, flagstone paving) would be placed to
highlight key areas of the River Street Marketplace project site, such as in common
areas and along trails. Additionally, the onsite parking areas would be paved with
decorative aggregate of a sand/limestone color. The site furnishings would include
cedar railroad tracks, a cattle guard, a creek bridge, shade structures, bollards, and
custom benches. River Street would be transitioned from the existing asphalt paved
street to a decomposed granite path with bollards used east of its intersection with
Paseo Adelanto to prohibit vehicular traffic.
Lighting:
Lighting is proposed within the River Street Marketplace project site would be designed
and implemented in a manner that precludes potential adverse effects of light overspill.
Exterior lighting is required to be shielded and directed away from adjacent land uses.
The lighting plan identifies six types of lighting fixtures that would be used on the project
site.
• Parking pole/pedestrian pole lighting. Parking and pedestrian pole lighting
fixtures would be located in parking areas, along River Street and Paseo
Adelanto, and along the gated drive aisle at the eastern edge of the project site.
They would be styled to match the architecture of the project's buildings and
would face downward.
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• Building sconces. Downward-facing sconces would match pole lighting (see
above) and would be attached to the wall planes of four of the five buildings.
• Canopy and trellis lighting. Canopy and trellis lights would be attached to the
underside of canopies and trellises. They would generally be located around the
proposed project's central courtyard.
• Tree lantern lighting. Tree lantern lighting would be small lights in trees adjacent
to the central courtyard and along the pedestrian connection to Los Rios Street.
• Tree uplighting. These light fixtures would uplight four specimen trees, including
the cluster of torch cacti.
• Festoon lighting. Festoon lighting would consist of overhead strings or rows of
small lights connecting the proposed project's buildings.
Fencing :
Fencing and gates would provide aesthetic appeal and security, as well as privacy for
abutting land uses. The majority of the project perimeter would include split-rail cedar
fencing (3 feet, 6 inches in height) with the eastern boundary featuring 6-foot-high cedar
fencing for the privacy of the adjacent residents. Split-rail gates would be provided
along River Street and the internal emergency/fire access drive. Retractable bollards
would also be placed at the northeastern pedestrian path entry into the project site.
Sign age :
The proposed Specific Plan Amendment-Commercial Core Planning Area includes a
sign program that regulates all signage throughout the commercial center. The sign
program includes internally illuminated wall (fascia) signs, blade signs, window
graphics, and directional signs.
DISCUSSION/ANALYSIS :
The following analysis describes the General Plan Amendment, Code Amendment,
Architectural Control, Grading Plan Modification, Flood Plain Land Use Permit, Tree
Removal Permit, Sign Program, and Development Agreement.
General Plan Amendment (GPA):
The applicant proposes to amend various sections of the General Plan to ensure
consistency of the proposed Amendments to the Los Rios Specific Plan.
As demonstrated below, development of the proposed project would not result in a
conflict with the City's General Plan. A general plan amendment (Attachment 3) being
processed to ensure consistency of the proposed project with both the City's General
Plan and the Los Rios Specific Plan, as amended. Proposed General Plan text
amendments include:
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• Cleaning up references to the Los Rios Specific Plan and the proposed
Commercial Core Planning Area.
• Revising Table LU-4, Development Capacity, to include the 5.86 acre
Commercial Core Planning Area, with a floor area ratio of 0.25 and 64,900
square feet.
• Adding policies to General Plan Circulation Goal 4 to allow on-street parking
along Paseo Adelanto and to transition River Street from an existing asphalt
street to a decomposed granite pedestrian access only.
Land Use Element
The Land Use Element is a key feature of the General Plan and its purpose is to
describe present and planned land use activity which has been designed to achieve the
community's long-range goals for the future. The Land Use Element identifies the
proposed general distribution, location, and extent of land uses such as open space
and recreation, residential, commercial, industrial, public/ institutional, special, and
specifically describes the Los Rios Precise Plan which is currently identified as the Los
Rios Specific Plan. According to the City's current General Plan Land Use Map, the
land use designation of the project site is Specific Plan/Precise Plan (SP/PP), which are
areas governed by the Los Rios Specific Plan.
GOAL 1: Develop a balanced land use pattern to ensure that revenue generation
matches the City's responsibility for provision and maintenance of public services and
facilities.
Amending the Los Rios Specific Plan to include the Commercial Core Planning Area
would allow for the River Street Marketplace project. The Commercial Core Planning
Area would provide additional retail uses to serve the community. Additionally, the
amendment would contribute to an increase in property taxes, due to the improvement
of an undeveloped and underutilized property. This increase in property tax revenue
would assist the City to maintain and improve public services and facilities. Property
improvement and development of the project would help to facilitate Land Use Goal 1.
Policy 1. 1: Encourage a land use composition in San Juan Capistrano that provides a
balance or surplus between the generation of public revenues and the cost of providing
public facilities and services.
The proposed project would contribute to the project's fair share of public facility and
utility costs through payment of Development Impact Fees. Additionally, property taxes
generated as a result of project implementation would go to the City's General Fund,
from which the City utilizes revenue to fund public services and utilities.
Policy 1.2: Encourage commercial, tourist-oriented, and industrial development that is
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compatible with existing land uses within the City to improve the generation of sales tax,
property tax, and hotel occupancy tax.
The Commercial Core Planning Area is envisioned as a commercial, tourist-oriented
development that has been designed to be compatible with existing land uses. The
Specific Plan Amendment would improve the generation of sales tax and property tax
within the City.
GOAL 2: Control and direct future growth within the City to preserve the rural village-like
character of the community.
The proposed project would develop the site with a commercial center at a maximum
Floor Area Ratio (FAR) of 0.25:1 and at a maximum height of two stories. The proposed
project is a designed development that highlights the agrarian history of the area, with
themed buildings and an earth-toned color palette. The development concept fosters
interaction and mutual support between the project's various land uses. Visiting patrons
are provided retail and dining opportunities without the need for multiple vehicular trips.
The Project is envisioned as a pedestrian-oriented development, offering communal
tables for outdoor dining, a vegetable garden for farm-to-table inspired dining, and other
amenities. A portion of the site is also envisioned as an area for community gatherings
and activities that foster public involvement.
Policy 2.2: Assure that new development is consistent and compatible with the existing
character of the City.
The proposed project would allow for the development of a commercial center that
would be consistent in use and character with surrounding development in the Los
Rios Street Historic District, including surrounding buildings and retail uses. The
proposed development plan includes an Agrarian influence design that ensures
consistency in visual character between the proposed project and surrounding
architecture. The proposed architectural style is consistent with the Los Rios Street
Historic District's heritage containing significant amounts of Agrarian, Craftsman
Bungalow and California vernacular board-and-batten styles currently represented
along Los Rios Street.
Policy 2.3: Ensure that development corresponds to the provision of public facilities and
services.
The proposed project would be served by existing infrastructure and utilities. The EIR
includes a detailed analysis of all potential environmental impacts of the Specific Plan
Amendment.
GOAL 3: Distribute additional population within the City based on risk factors. Policy
3. 1: Confine higher density land uses to the valley areas outside of the floodplain.
Development of the proposed Commercial Core Planning Area would not cause a
population increase within the City. Residential uses are not a permitted use within the
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Commercial Core Planning Area and the General Plan recognizes that future densities
of population could be allocated to the valley areas of the City outside of the floodplain.
Policy 3.2: Limit density of development in the hillsides, floodplains, and other high risk
areas.
Open space and natural features provide visual quality in San Juan Capistrano. Open
spaces also can protect community safety by limiting development in, high risk areas
such as hillsides and floodplains. The quality of life can also be maintained by
preserving areas which contribute to the community in an open space capacity, such as
groundwater recharge and recreational areas.
The proposed uses within the Commercial Core Planning Area are not considered high-
density land uses. As part of the proposed development, the elevation of a portion of
the site will be raised to remove that portion from the floodplain consistent with local,
state, and federal requirements. In addition, no open spaces or natural features are
located on the site.
GOAL 4: Preserve major areas of open space and natural features .
The project site is a commercial plant nursery and is designated by the Los Rios
Specific Plan for commercial uses (not open space or agricultural uses). The project
site does not contain natural topography or natural features that have functioned as
public open space or would represent a natural hazard. Although the project site is
within a 100-year flood plain, specific plan amendment includes a Water Quality
Management Plan specifying that proposed buildings would be elevated above flood
depths anticipated for the site. The project site consists of a commercial nursery
operation and would not affect ridgelines or its immediate adjacent area. Therefore, the
proposed project would be consistent with Goal 4 of the Land Use Element.
GOAL 5: Encourage commercial development which serves community needs and is
located in the existing central business district.
The proposed project has been designed to serve the community with retail,
restaurants, and office and community gatherings. The Commercial Core Planning Area
has been specifically designed to complete the buildout of the Los Rios Specific Plan.
The site has been designated for low density commercial uses since at least the 1970's
and its location acts as an extension of the City's downtown area.
GOAL 6: Enhance or redevelop underperforming commercial centers. Policy 6. 1: Allow
for the transition of the oversupply of commercial land use to other economically viable
revenue producing land uses.
Although the site is not considered an underperforming commercial center, the existing
nursery could be considered an underperforming commercial use that would be
redeveloped as part of the Commercial Core Planning Area. No transition of land uses
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are proposed as part of the Specific Plan Amendment.
GOAL 7: Enhance and maintain the character of neighborhoods.
The proposed project has been design as a neighborhood-scale commercial and office
development that highlights the agrarian history of the area. The project site would be
developed with 64,900 square feet of commercial and office space in five buildings:
Marketplace, Mercantile, Greenhouse, Red Barn, and Farmstead. The overall design
concept for the project depicts a pedestrian-oriented development, with outdoor seating
and dining areas that incorporate a California-native landscape palette. The center
would provide indoor and outdoor dining, farm fresh produce, and unique retail venues.
A grassy common setting provides varied seating options and communal tables for
outdoor dining. Consistent with the project theme, the proposal proposes to replace the
existing asphalt on River Street with decomposed granite to enhance the pedestrian
path. The project also includes a parking area with an olive grove that would be
accessed via Paseo Adelanto and Los Rios Street.
Policy 7. 1: Preserve and enhance the quality of San Juan Capistrano neighborhoods by
avoiding or abating the intrusion of non-conforming buildings and uses.
The project site has been designated and used for commercial uses for over 40 years.
The proposed uses within the Commercial Core Planning Area are not considered to be
non-conforming buildings or uses. The Commercial Core Planning Area includes new
uses that have been specifically designed to minimize impacts to the adjacent
residential uses within the Los Rios Street Historic District.
Policy 7.2: Ensure that new development is compatible with the physical characteristics
of its site, surrounding land uses, and available public infrastructure.
There are no physical characteristics of the site that would preclude development of the
Commercial Core Planning Area. The project has been specifically designed to
minimize impacts to the adjacent residential uses within the Los Rios Street Historic
District. The available and required public infrastructure to serve the Commercial Core
Planning Area was assessed as part of the EIR process.
Policy 7.4: Protect the existing population and social character of older areas subject to
rehabilitation and redevelopment.
The proposed project with five uniquely crafted buildings to reflect the existing character
of the community has been designed and will be accessible to pedestrians via River
Street, a rehabilitated pedestrian pathway with decomposed granite to enhance the
pedestrian path, edge landscaping and a historic depiction program.
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Circulation Element
The proposed project is consistent with the goals and policies discussed in the City of
San Juan Capistrano Circulation Element and the Los Rios Specific Plan Circulation
Element. The Circulation Elements are the guiding documents for planning the
circulation and mobility for the proposed project. For the reasons stated above, the
project is consistent with Circulation Goal #1 of the Los Rios Specific Plan Circulation
Element, by providing safe and convenient pedestrian access to both area residents
and visitors:
GOAL 1: Provide a system of roadways that meets the needs of the community. Policy
1.4: Improve the San Juan Capistrano circulation system roadways in concert with land
development to ensure sufficient levels of service.
The proposed project includes the following roadway improvements:
• The addition of a 2nd left turn lanes eastbound Del Obispo to northbound Paseo
Adelanto.
• The widening of the west side of Paseo Adelanto from the southern property line
to the intersection with River Street.
• The installation of a traffic circle at the intersection of Paseo Adelanto and River
Street.
The roadway improvements implemented by the proposed project will implement this
Goal. Therefore, the proposed project would be consistent with Goal 1 of the Circulation
Element.
GOAL 2: Promote and advanced local transportation network. Policy 2. 1: Encourage
the increased use and expansion of public transportation opportunities.
The proposed Commercial Core Planning Area is situated near major public
transportation facilities (the San Juan Capistrano train station and OCTA Route 91 ).
The projects location is ideal for visitors to utilize the use of such facilities.
GOAL 4: Minimize the conflict between the automobile, commercial, vehicles,
pedestrians, horses, and bicycles.
The proposed project is designed to prohibit vehicular traffic along River Street. River
Street will be transitioned from the existing asphalt paved street to a pedestrian
pathway with a decomposed granite surface that is reminiscent of the historic use.
Vehicular gates and bollards will be installed on the pathway to strictly limit access to
emergency vehicles.
Conservation and Open Space Element
GOAL 4: Prevent incompatible development in areas which should be preserved for
scenic, historic, conservation, or public safety purposes.
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Although the project site does not have historic structures, a portion of the property is
' located within the Los Rios Street Historic District. Specifically the project includes
improvements to River Street and Los Rios Street. The proposed enhancements to
River Street include the removal of asphalt and replacing with decomposed granite
results in re-establishing a more natural character to the street and the removal of the
property line dividing fence results in re-establishing the view corridor on the entire
length of the street. Further, the project includes the installation of a Historic Depiction
Program (HOP) adjacent to the street , which will be designed with high-quality materials
and will complement the character of the Los Rios Street Historic District. In addition,
the nearest proposed building adjacent to River Street is the Farmstead Building which
has a height of 31 feet and has a setback of 8 feet from the edge of River Street and is
designed to maintain the character of the Los Rios Street Historic District -with an
Agrarian architectural style, cedar shake shingles and board and batten vertical siding.
The landscape plan includes trees and shrubs along the entire length of River Street.
The proposed driveway on Los Rios Street is located in proximity to the existing Ito
Nursery access driveway and will include a new sidewalk and landscaping. Additionally,
the location of the proposed emergency access road combined with the strategic
placement of buildings acts to shield adjacent residential uses from operational activity
associated with proposed land uses. Additionally, primary vehicular access to the site
would be provided by Paseo Adelanto, which encourages traffic away from the center of
the District.
GOAL 5: Shape and guide development in order to achieve efficient growth and
maintain community scale and identity.
The proposed project would allow for the development of a 64,900 square feet of retail
and office uses on the project site. The proposed building on the site would be
developed in a manner that would be consistent with the character and scale of
adjacent commercial developments surrounding the site, be constructed in the Agrarian
influenced architectural style, and consistent with the proposed amendments to the Los
Rios Specific Plan development standards and design guidelines.
Policy 5. 1: Encourage high-quality design in new development and redevelopment to
maintain the low-density character of the City.
The proposed Specific Plan Amendment includes the Commercial Core Planning Area
which has been designed as a low density specialty retail and office center. The project
has been designed to maintain the character of the Los Rios Street Historic District -
with an Agrarian architectural style, cedar shake shingles, an earth-toned color palette
and board and batten vertical siding. The landscape plan includes trees and shrubs
along the entire length of River Street.
Policy 5.2: Ensure that new development integrates and preserves areas designated for
scenic, historic, conservation, or public safety reasons.
The proposed Commercial Core Planning Area has been designed to enhance the Los
Rios Street Historic District via sensitive site planning, architecture and landscaping
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May 14, 2019
Page 14 of 30
treatments. The proposed project will preserve historic areas (resources) as provided in
Conservation and Open Space Element Goal 4, presented previously.
Public Services and Utilities Element
GOAL 6: Provide sufficient levels of water and sewer service.
As a part of the environmental review, Environmental Impact Report (EIR) considered
the project's impacts to utility services, and referenced the City's 2015 Urban Water
Management Plan (UWMP), which indicates that there are sufficient water resources to
meet full service demands through the year 2040. Specifically, the project-related
demand for water would represent a small percentage (0.1 percent) of the City's water
supply in 2020. The City has water capacity to serve the proposed 64,900 square foot
retail and office development project. Additionally, wastewater generated as a result of
project implementation would represent less than one percent of the remaining
treatment capacity of the J.B. Latham Wastewater Treatment Plant. Therefore, the
proposed project would be consistent with Goal 6.
The proposed General Plan Amendment is consistent with the applicable Goals and
Policies of the General Plan, and a resolution has been prepared for the Planning
Commission's consideration recommending that the City Council approve of the.
proposed amendment.
Code Amendment (CA):
The City's Zoning Ordinance (Title 9 of the City's Municipal Code) is the primary
implementation tool for the General Plan Land Use Element. Together, the City's
Zoning Ordinance and zoning map identify specific types of land use, intensity of uses,
and development and performance standards applicable to specific areas and parcels
of land within the City. Per the City's zoning map, the zoning district of the project site is
Specific Plan/Precise Plan. As described below, the project site lies within the
boundaries of and is governed by the Los Rios Specific Plan, which outlines the zoning
regulations (e.g., permitted land uses, development standards, design guidelines)
applicable to development within the Specific Plan area.
The project site lies within the southern portion of the 40-acre area within the Los Rios
Specific Plan ("Specific Plan"). The Specific Plan which encompasses the Los Rios
Street Historic District and surrounding area was originally adopted by the San Juan
Capistrano City Council on February 15, 1978, (City Council Resolution No. Resolution
No. 78-2-15-6) and has been amended several times since. Per the Specific Plan, the
project site is currently designated as Low Density Commercial (LDC), which allows
land uses such as nurseries, open markets, and arts and crafts workshops, display and
retail.
The applicant proposes to amend various sections of the Specific Plan to add the
Commercial Core Planning area and add Appendix A "River Street Marketplace Project,
Amendment to the Los Rios Specific Plan."
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May 14, 2019
Page 15 of 30
Section 9-2.309 of the San Juan Capistrano Municipal Code sets forth the following
findings required to approve an Amendment to the Land Use Code :
1. The proposed Land Use Code amendment conforms with the goals and policies of
the General Plan;
2. The proposed Land Use Code amendment is necessary to implement the General
Plan and to provide for public safety, convenience and/or general welfare;
3. The proposed Land Use Code amendment conforms with the intent of the
Development Code and is consistent with all other related provisions thereof;
4. The proposed Land Use Code amendment is reasonable and beneficial at this
time.
If these findings can be made, then it is appropriate to grant the Land Use Code
Amendment. Conversely, the inability to make even one of these findings would result
in a denial. Using this information, staff has prepared the following analysis, which, in
turn forms the basis for' the recommendation contained in this report and attached
resolution. In analyzing the proposed Land Use Code Amendment request, staff
believes the following findings of fact warrant approval of the Land Use Code
Amendment:
1 . The proposed Land Use Code Amendment conforms with the goals and policies of
the General Plan because it provides for the fulfilment of the General Plan's goals
and policies, including, Land Use Goal 7, which provides, "Enhance and maintain
the character of neighborhoods," and Land Use Policy 7.2, which provides, "Ensure
that new development is compatible with the physical characteristics of its site,
surrounding land uses, and available public infrastructure." The proposed code
amendment will allow for an amendment to the Los Rios Specific Plan to the
Commercial Core Planning Area; and which would allow for the development of the
proposed project; and because the project is compatible with the physical
characteristics of the site and is served by public infrastructure.
2. The proposed Land Use Code amendment is necessary to implement the General
Plan and to provide for public safety, convenience and/or general welfare because
the proposed amendment achieves the goals and policies of the General Plan for
the reasons listed above. Moreover, the proposed Land Use Code Amendment
provides for the public safety, convenience, and general welfare because, among
other things, it will provide for additional commercial and office uses that can serve
the adjacent and surrounding community; and is adjacent to a the San Juan
Capistrano train station.
3. The proposed Land Use Code amendment conforms with the intent of the
Development Code and is consistent with all other related provisions thereof
because it provides, specifically, that the proposed commercial center must conform
to the project established development standards and conforms with the Los Rios
Specific Plan 78-01 -Commercial Core Planning Area.