Loading...
HomeMy WebLinkAbout03 - Project 2000PROJECT2000 A Planning Vision for the Balboa Peninsula Newport Beach, California A Report Submitted to the City Council of The City of Newport Beach By the Balboa Peninsula Planning Advisory Committee ("BPPAC") January 20, 1997 Table of Contents Page ACKNOWLEDGMENTS 1 COMMITTEE MEMBERS AND CITY STAFF 2 THE COMMITTEE'S ASSIGNMENT 3 BPPAC WORK PROGRAM 4 BALBOA PENINSULA BACKGROUND 6 History 6 Marine Heritage 7 Current Conditions 8 CREATING A NEW BALBOA PENINSULA PLAN 10 Peninsula Demographics and Residential Transition 11 Building on Strengths - Catalysts for Change 12 COMMUNITY ACTION PLAN 16 Overall Theme 16 Establishing Objectives 16 Building on Residential Strengths 16 A New City Approach to Planning 17 Recognizing Transitional Changes 17 Realistic Expectations 18 Achieving a Balance 18 A COUNCIL COMMITMENT - PLANNING & POLICY OBJECTIVES 19 Recognition of Necessity 19 Geographic Constraints 19 Quality Street Network 20 Architectural Guidelines 20 User Friendly Changes 20 Parking Management 21 Bay Management 22 Alcohol and Security 25 Signage and Aesthetics 27 Hospitality 32 COMMITTEE COMPREHENSIVE PLANNING RECOMMENDATIONS 34 Page IMPLEMENTATION STRATEGIES 55 A. Establishing Priorities for Implementation 55 B. Financing the Vision - Cost of Status Quo and The Economics of Change 56 ABOUT THE COMMITTEE 59 Appendix A. Original Resolution - Formation of BPPAC B. BPPAC's 15 Point Plan C. Urban Design Camp Report and Workshop Results (under separate cover) Volume 1 - Study Volume 2 - Appendix Summary of Workshops Transportation study 15 Point Plan Volume 3 - Appendix Copies of District Workshop Exercise Sheets Cover Photo Courtesy of Newport Beach Conference & Visitors Bureau The Balboa Peninsula Objectives Revisited "The completion of these improvements should add impetus to the development of this community as a residential and yachting center. Ten years ago it was doubtful whether Newport Harbor was to become a second class commercial harbor featuring fish canneries and other allied industries which require access to the sea but do not need deep channels or extensive water ways, or whether the trend of affairs should lead it to become a Coney Island with concession zones and cheap amusements as its claim to fame, or whether it would take the course it has followed and become a high-class rendezvous of people who love the sea and like to live where they can breathe the ocean air and listen to the music of the pounding surf. The fact that there is no commerce in Newport Harbor, no fish canneries, no sewage running into the bay and no other source of contamination, adds to the attractiveness of the place and assures the yachtsman a pleasant environment. Local yachtsmen cherish the hope that others of the fraternity making their home port elsewhere will become more _frequent visitors in the fixture. The front door is going to be wide open and visitors will be always welcome. " From the Log of the Newport Harbor Yacht Club By Joseph A. Beek, Staff Commodore November, 1929 Printed by permission of Seymour Beek, son of Joseph A. Beek Acknowledgments All members of Balboa Peninsula Planning Advisory Committee (BPPAC) wish to thank Councilman John Hedges for his leadership in moving to form BPPAC in 1995 and Mayor Jan Debay and members of the Newport Beach City Council for recognizing the need to establish planning policies that will revitalize the Balboa Peninsula's economic climate and residential quality of life. Your leadership and encouragement for the District Workshop process has been met with an unprecedented coalition of resident and merchant involvement and the extended opportunity for all members of the -1- community to participate in this important and challenging assignment. In particular, the Committee would like to thank City Manager Kevin Murphy, Assistant City Manager Sharon Wood, Planners John Douglas and Patty Temple, and numerous City staff for their patience and assistance during this assignment, especially during the data collection phase of the project. Also, we would be remiss not to acknowledge the early guidance of Carol Hoffman who actively participated in the Committee's development of the 15 Point Plan in 1995. Balboa Peninsula Planning Advisory Committee Committee Members Fritz L. Duda Timothy C. Collins Committee Chairman Committee Co -Chairman Owner Owner/Principal Fritz Duda Company T.C. Collins & Associates Newport Beach, California Newport Beach, California Don Dabney Jim Dobrott Retired Retired Newport Beach, California Newport Beach, California Anne Gifford, Esq.* Rush Hill Mediator Owner and Chairman J -A -M -S ENDISPUTE The Hill Partnership, Inc. Orange, California Newport Beach, California Michael Kranzley* Tim Strader Vice President President Paine Webber The Legacy Group Newport Beach, California Newport Beach, California William Wren President William A. Wren Company Newport Beach, California Councilmembers Jan Debay, Mayor Dennis O'Neil, Councilmember John Hedges, Councilmember John Noyes, Councilmember (March, 1995 - Dec., 1996) (effective Dec., 1996) 1 City Staff Sharon Wood John Douglas Assistant City Manager Planning Department Patty Temple Planning Department Advisory Consultants William Blurock, FAIR Jack Camp Blurock Partnership Urban Design Camp *Also member of the Newport Beach Planning Commission -2- Balboa Peninsula Study Area The Committee's Assignment BPPAC (or the Corunittee) was commissioned by • the City of Newport Beach according to Resolution No. 95-32 dated March 13, 1995 (Appendix A) to advise City Council and make . recommendations to facilitate the revitalization of Balboa Peninsula's commercial land use element while enhancing the integrity of its residential community. The Committee was assigned to: • ' Develop a Stud} Scope: To investigate the general problem and to determine how best to address it in terms of the precise geographical boundaries, the A staffing and/or consultant requirements and a work program. The work program . would be designed to provide ample opportunities for public hearings and citizens' input. -J- Determine Funding Requirements: To determine what funds or other resources are necessary to complete the study outlined in the first task and shall seek to secure such funds by making recommendations to the City Council, seeking grants or other appropriate means.' Coordinate and Monitor Study Program: To direct and participate in the study process and ensure that periodic progress reports are trade to the City Council. Recommend Implementation Measures: To recommend to the Citv Council a plan, including priorities, of the ongoing organizational and financial commitments necessary to implement the preferred alternatives. On February 26. 1996, the City Council approved a Budget Amendment to cover an expenditure of 530.000.00 which was subsequently applied to the Urban Design Camp engagement. BPPA C Work Program Phase I - BPPAC 15 Point Plan The work of the Committee commenced on March 13, 1995. The initial work of the Conunittee consisted of review and information gathering whereby planning staff and department heads contributed both information and suggestions relative to the various planning issues to be addressed on the Balboa Peninsula. The Committee also took time to revisit prior studies and reports on planning matters, particularly the Regional Urban Design Assistance Team (RUDAT) reports from 1983 and 1993, Traflic Studies in 1968 and 1986, the current Specific Plans for the districts and the recent report by Linda S. Congleton & Associates on the retail/commercial land use element on the Peninsula. As the Committees preliminary recommendations took shape, a member- of the Committee met with every potentially affected Citi department head and solicited ongoing input and comments from the Economic Development Committee. As a result of these sessions, the Committee formulated a 15 Point Plan and presented a preliminary report to the joint City Council, Planning Commission and Economic Development Committee working session on July 11, 1995. The 15 Point Plan addressed the following issues: N Balboa Peninsula - Sense of Place: Differentiate the unique roles of the four principal commercial areas of the Peninsula. 2. Mission Statement: Adherence to the Mission Statement which will enhance and expand residential elements; consolidate and redevelop quality commercial; enhance landscape/ streetscape; consider establishment of a Redevelopment Area Plan; and, provide incentives to assure the accomplishment of both transitional and long term planned objectives. 3. Residential Compatibility 4. Strategy for Attracting Quality Visitors �. Crime and Security 6. Parking Management Plan 7. Open Bayfront to Visiting Boater Access 8. Quality Hospitality 9. Maintenance and Code Enforcement 10. New Sign Ordinance 11. Traffic Circulation 12 Major Site Opportunities (for Redevelopment) 13. Transfer Traffic and Parking Impacts 14. Community Issues Management 15. Transitional Interim Measures Phase II - The Workshop Process In order to facilitate a community based planning process, the Committee recommended that an outside consultant be retained in order to conduct community workshops in four key areas on the Peninsula. These areas were designated as: Lido Town Center (formerly referred to as Lido Village/Civic Center) 2. Cannery Village 3. McFadden Square 4. Balboa Village (formerly referred to as Central Balboa) Upon receipt of the 15 Point Plan by the City Council on February 26, 1996, the firm of Urban Design Camp was retained in order to facilitate a ,,vorkshop process, utilizing the Plan as a -5- guideline, and to return with a concept plan for the Peninsula. Individual representatives were appointed by the City Council to participate in the workshop sessions which were also open to and attended by other interested members of the community. Through the workshop process, each of the four key areas identified issues and provided suggestions that were incorporated into the Urban Design Camp Report (attached as Appendix Q. In order to ensure a comprehensive participatory process, the Committee also conducted Peninsula - wide workshops to review both the Urban Design Camp Report and discuss Peninsula -wide issues with the Committee. During these workshops, priorities were established with respect to each of the four key areas and subsequently in some instances, due to their identification in multiple districts or overlap or potential of certain recommendations to accomplish multiple objectives, such items evolved to a status of Peninsula -wide recommendations. The combined workshops and Peninsula -wide review process was completed on approximately December 11, 1996, when the Committee adopted the BPPAC Comprehensive Reconunendations which formulates the outline in the Committee Comprehensive Planning Recommendations section of this report to the City Council. In summar v, the Committee estimates that in excess of 535 volunteer hours were consumed by the workshop and Committee outreach phase of the project. Also, the Committee accepted both public and %Nritten continents, and suggestions from a total of 48 citizens. Balboa Peninsula Background History With Pacific Electric's extension of its Red Car rail lines from Huntington Beach to Newport in 1905, a new beach community, formerly only available to the adventurous, was opened to both Southern Californians and national visitors. Based on the suggestion of E.J. Louis, at the time vice- consul for Peru in Los Angeles, a portion of the Newport peninsula was named Balboa in honor of the 15th century Spanish explorer, Vasco Nunez De Balboa. The historic Balboa Pavilion was built in 1906 as a Victorian Bath house and served as the terminal for the Pacific Electric Red Car and has since been the most recognizable focal point and visitor attraction of the Balboa Peninsula. The Pavilion has since been designated a California point of Historic Interest. In 1936, the City built the Balboa Fun Zone along Abbott's Landing, providing residents and visitors with California's oldest coastal amusement center. With these two attractions as a mainstay, Balboa became a resort town relying heavily upon tourists to sustain economical needs and over the years Balboa was reported to "...live on drinking, gambling, and a dance hall. Balboa was a beach resort, plain and simple. It was hell on wheels from Memorial Day to Labor Day. Then it went into hibernation for the rest of the year." Since its hurried beginning, the Peninsula has slowly evolved through the maturation of four - District villages: Lido Town Center, McFadden Square, Canner- Village and Balboa Village. Historical growth and commercial development of the Peninsula have been shaped by its dependence on the coastal resources for its economic well being. As recently as the early 1950's, the area was principally a summer vacation resort. Balboa Village's historic roots were entertainment, with nationally known dance halls like the Rendezvous Ballroom and world renown music groups like the Stan Kenton Band. Today, the village emphasizes family entertainment and ocean recreation, and hosts a diverse blend of activities and places. These include boating, fishing, swimming, shopping, dining, and people 2from "Bawdy Balboa" by Judge Robert Gardner ®. watching. Village anchors include the historic Balboa Pavilion, the symbol of Balboa, Edgewater bayfront promenade, Main Street, Balboa Pier and beach, and the beachside boardwalk. McFadden Square is the heart and center of historic Newport Beach, noted primarily for its fishing fleet (the Dory Fleet), and pier fishing. Vacationers populated the area during the popular summer months and the area still serves as the primary destination for beach visitors. Cannery Village started out as a boat yard on the bay across from the active McFadden Pier area. With the commercial fishing industry booming on the Rhine channel, fish canneries began operating adjacent to the docks in the bay and it soon dominated the entire service industry. The narrow streets of Cannery Village still provide settings reminiscent of the renowned fishing fleet days and is filled with unique shops, galleries, restaurants, bars, boating services and other marine related establishments. Lido Town Center was a later development incorporated into the Peninsula but nevertheless an important step in the evolution of the Peninsula. It attracted retailers who focused more on the needs of permanent residents rather than merely summer and recreational needs. It also houses the Newport Beach City Hall administrative offices, serving the needs of the entire municipality. From the 1950's on, the Peninsula's year-round resident population increased creating negative impacts to traffic circulation and parking. Inadequate provisions were in place to provide a parking management program providing for both resident and commercial needs, nor did the planning process deal with the major transitions occurring both on and around the Peninsula. The influx of both visitors to these areas and the general population growth of Orange County resulted in a large number of residential properties being converted to year round rental properties. Orange County retail growth, in conjunction with this intensified housing use, also created adverse impacts to existing traffic circulation and parking. Expansion and changes in retail offerings, with the evolution of Fashion Island, South Coast Plaza, and Triangle Square, have created an abundance of 9 retail options and resulted in diminished services locally for year-round Peninsula residents. Balboa Peninsula retailers have become dependent upon visitors for their livelihood and many face difficulty in providing competitive goods and services. The Congleton study, commissioned by . the City and completed in July 1995, reported that "newly -introduced specialty retail and dining offerings located closer to regional Orange County residents' homes have negatively impacted Newport Beach's on -street shopping districts."' With minimal planning incorporated into the booming growth (in day visitors) along the Peninsula, the area has seen reactive spot commercial development tailored to meet the ® demands of visitors without much discretion or consideration for optimal residential -retail mix. ® The concentration of establishments selling alcoholic beverages on the Peninsula is a key testament. It has seemingly carried on the tradition ® of the "hell on wheels" Balboa rather than fostering a balanced year-round commercial ® growth and transition that responds to the year- round residential and seasonal visitor population. ® Marine Heritage ® From its early beginnings, the Balboa Peninsula has enjoyed a tradition which, not surprisingly, • centered around its port and the various marine uses and attractions. . During the first four decades of the 1900's, Balboa was known primarily to fishermen who used the upper channel for cannery purposes, and visiting recreational boaters and yachtsmen who developed ® summer cottages and yacht clubs to pursue an ® environment previously found only in Los Angeles ® or San Diego harbors. Despite the evolution of the Peninsula as a year- round residential community, its superior coastal attractions are preserved today in five distinct ® marine traditions: The Dory fishing fleet at McFadden Square, The harbor excursion and Catalina Island ferry transport and fishing fleet of Balboa Village, Newport Beach Retail Consultation, July 21, 1995, Linda S. Congleton & Associates The Peninsula -wide yachting and sailing fleet supported by seven yacht clubs, the world class Orange Coast College Sailing Center and the Newport Aquatics Center, The marine craftsmen, sail lofts, sales and service providers of the Cannery Village, and The 9,000 plus boats that line the piers, marina slips and anchorages along the Peninsula and the adjacent five islands which comprise Newport Harbor; all of these boaters rely upon the Peninsula for access to marine support services, visitor touring and hospitality attractions. These modern marine aspects of the Peninsula were and continue to be a tradition, a heritage, and an asset to be preserved for generations to come. Even the best example of beach/resort communities (i.e. Laguna Beach, Monterey and Carmel) cannot compete with the combined attractions of the Balboa Peninsula and strong historical significance of Newport Beach's marine heritage. There is no more relevant historical perspective on today's planning challenges for the Balboa Peninsula than that which can be found in the 1929 excerpt from the Newport Harbor Yacht Club member publication which is cited at the preface to this report, entitled "The Balboa Peninsula Objectives Revisited". -Dory Fleet at McFadden Square- Current Conditions The Balboa Peninsula presents a very complex web of planning opportunities and constraints. With its Bay/Harbor amenities, entertainment, dining and recreational features, it is an integral part of the Newport Beach community which has international name recognition and a reputation that exudes the California experience. The Peninsula is composed of four strongly established neighborhoods with its own unique characteristics and many overlapping concerns. All four Districts address the waterfront resource in different ways. Each receives different benefits and all experience similar frustrations. There is a clear need to link and coordinate the overlap activities and services provided by the Districts while continuing to improve and enhance the unique qualities of each. The four Districts should be seen as primary assets of the community, complementary to the whole and not as competitive components. The study found that the worst condition of one neighborhood negatively impacts the best conditions in adjacent areas (whether commercial or residential). There are assets and liabilities associated with the Peninsula which are summarized as follows: Assets: • Newport Bay and harbor • Beaches • Climate • Recreational activities • Proximity to other "destination points" • Cohesive quality neighborhood residential structure • Recognizable name • Traditions and historical site -Bay Wildlife - N Balboa Peninsula Prorde• Population: 12,995 Median Age: 34.5 years Median Household Income: $57,380 Average Household Income: $113,982 Total Number of Dwellings: 6,142 43% owner occupied 57% renter occupied Tourist Population: 20,000-100,000/day Number of Boats: 9,000 Residential Piers: 1,230 Commercial slips and side ties: 2,119 Bay Moorings: 1,221 *Source: City of Newport Beach and Linda Congleton Report •Life on the Bay• -Visitor Boating- Liabilities: • Reactionary vs. proactive planning policy • Poor traffic circulation • Inappropriate high concentration of ABC licenses • Higher crime rate and resulting higher municipal service costs • Lack of parking management plan • Shortage of quality hospitality housing • Blighted aesthetic appearances • Poor road conditions • Lack of signage programs and enforcement • Lack of balanced resident and visitor serving retail • Poor quality visitor serving retail -Examples of Peninsula Liabilities• M Creating a New Balboa Peninsula Plan In order to reverse historic trends, the community must make a long term commitment to creating a new plan and vision for the Peninsula. Notwithstanding community image, quality of life and environmental issues, the adverse economic and social costs to the City with respect to the Balboa Peninsula "Status Quo" should constitute a compelling issue that requires immediate and thoughtful action. Many community leaders have talked about their own vision for the Peninsula often citing other quality communities the City should seek to emulate. Most if not all of these communities are the products of disciplined village plans that were formulated decades ago and strictly nurtured and controlled by disciplined planning, land use, aesthetic and regulatory standards. Indeed, these communities have ranked the village planning and entitlement process (including in many cases Redevelopment initiatives) as a high priority and a function that cannot be left for market forces alone to dictate or determine. With respect to the Balboa Peninsula, Newport Beach has generally adhered to a laissez-faire or "complaint based" policy based upon theory that at the end of the day, market and economic forces would produce the desired result. During this extended period, an extensive framework of regulation and zoning ordinances were adopted in order to deal with issues or problems that rose to the necessity of Planning Commission or Council action. In effect, the regulatory scheme in the City principally addresses quantity (e.g. floor area ratios, height limitations, setback limitations, etc.) with little or no attention or devotion to qualitative considerations. While numerous studies (outlined elsewhere in this report) were undertaken and specific plans adopted, much of what has been studied (and in some cases adopted pursuant to specific plans) has not been implemented in terms of proposed infrastructure and capital improvement projects. The Committee submits that the following transitions and changes that have occurred over these many decades make it clear that continuation of the historic laissez-faire planning policy in the City will not cause positive change. While the following list is not all inclusive, and it is not the Committee's charge to cite blame, we submit that these issues must be acknowledged and understood in order to forge a new beginning and create meaningful and positive change. -New Peninsula Residential Element• -10- Peninsula Demographics and Residential Transition The Balboa Peninsula serves predominantly as a community of permanent year-round residents as opposed to a second home resort community. • Nationally recognized commercial and retail shopping, restaurant and cultural activities are available to residents and visitors at South Coast Plaza, Fashion Island and redeveloped portions of Costa Mesa. A significant portion of relatively small shop retail commercial properties is no longer attractive or competitive to residents or visitors on the Balboa Peninsula. Major freeway and highway vehicular access has been added and the volume of traffic has significantly increased which seasonally overburdens the inherent geographic limitations of the Peninsula. • Public works projects including street widening, adding parking for visitors and the expeditious movement of day visitor vehicles have predominated and contributed to a reduced quality of life for residents and long term seasonal visitors, and impaired the continued viability of commercial/retail areas. -New Peninsula Residential Element- -11- In effect, Planning Commissions and Councils have attempted to manage planning by permit and regulation as opposed to adhering to disciplined land use planning policy that has qualitative and long term objectives. It is clear from consulting with planning staff that both the granting and administration of conditional use and similar permits on the Balboa Peninsula is a major issue that can and should be addressed in connection with future planning policy. Most permit applications result in numerous conditions prescribed by staff or imposed by the Police Department, Planning Commissioner, or Council person in order to alleviate community concerns that the proposed use or operation will constitute a responsible and compatible use of the subject property. In most cases, conditions prescribed are numerous and require extraordinary staff time, departmental review and ultimately review and approval by both Planning Commission and Cit Council. Frequently, such conditions are so numerous that it is impractical to fully monitor the compliance of the permit holder. Based upon the Committee's discussions with planning staff, the City has no adequate system to account for the numerous use and similar permits granted over many decades. Moreover, there is no annual audit or other review process established to assure compliance. Due in part to recent annual budget crisis and resultant City staff reductions, compliance with conditions are only reviewed on a "complaint basis". In most instances, there is no -MEMKOO *s• revenue source assessed to cover the cost of annual compliance reviews, revocation proceedings or similar administrative and legal costs and expenses. Indeed, in one or more recent instances, the City has invested extraordinary legal and administrative costs in attempting to terminate uses that probably should have never been granted initially had adequate planning policies been in place. The Committee recognizes that certain State Court decisions have permitted use permits to, in effect, run with the land and succeed to new and different owners or operators. The Committee submits, however, that there are many adequate alternative legal mechanisms to deal with both existing conditional use permits as well as modifications that are in the process of being implemented by the City. More importantly, the Committee believes a positive planning process will reduce the need and expense associated with conditional use and other permit applications. When reasonable plans and rules are established, it becomes clear to developers, users and operators that the City is committed to redevelop and upgrade its commercial/residential interaction (and is not inclined to deviate from the established permitted ues). By the adoption of this Comprehensive Report and its recommendations, plus the supporting Stall Implementation Plan, the City \N III have achieved a first step towards a new beginning. Building on Strengths - Catalysts for Change A new planning approach can build on the recent efforts of the Cite Council in concert with residents, merchant associations and Business Improvements Districts (..B.l D. 's"). Several specific projects are cited as good catalysts for change and brought a focus to the need 1Or more comprehensive plans and programs to achieve a competitive strength, heightened attraction Value. and resident serving compatibility for the commercial element. The Committee cites the ing projects \yhcre positive examples provide the opportunity to build or, strongths -12- Lido Town Center The soon to be constructed Citizens Park on the abandoned gas station sites at the Arches Bridge, a good example of partnership potential between the resident community and the City. • The renovation of St. James Church and the Vons Pavilion center with its enhanced architecture and parking management. The closure of the Thunderbird Club and Atlantis as a result of City enforcement procedures. -13- McFadden Square • The renovation and historic architectural preservation of the old Forgit Hardware building and its conversion to first floor office plus Cafe Carluccio with quality residential on the second floor. • The utilization of the City's outside dining ordinance and added attraction for the cafe suited restaurants. The addition of a mid -week Outdoor Farmers Market to attract off-season utilization of the parking facilities and a unique service to the residents. Growth in the bed and breakfast offering (Portofino and The Doryman Inn). Cannery Village • The formation of a resident and restaurant operators task force to address the negative influence of over - concentration of liquor licenses. • The opening of restaurants like Aubergine which provide gourmet quality dining options for residents and visitors. • The first phase of new modular home Redevelopment of the Lido Peninsula Trailer Park. Balboa Village Widening of the sidewalks and building facade and landscape improvements on north Main Street. Conversion of the former Wells Fargo Bank parcel to a short term parking lot with landscaping provided by community volunteers. The pending restoration of the Balboa Theatre and efforts of the theatre association to deliver a legitimate community theatre arts attraction. • Balboa Boat Rentals addition of the classic Phoenix motor yacht, an historical vessel unprecedented in our tour boat fleets. Peninsula Wide Street improvements associated with a four block section of Balboa Boulevard from 12th Street to 16th Street which offers enhanced streetscape along with roadway surface and subsurface improvements. -15- Community Action Plan Overall Theme The committee received comments and discussed view's from numerous residents and business owners on the Peninsula. Not surprisingly, there were mane different views with respect to what was "wrong" as well as various suggested solutions. While most of the suggestions were constructive, it became apparent that a consensus of comment centered around the fact the Peninsula had developed a negative rather than a positive image over the past several decades. Typical comments were to the effect that "it doesn't stand for anything anymore," "the commercial retail has deteriorated," "a conglomeration of tattoo parlors, T-shirt shops, fast food joints and cheap bars," "a place to drink and party." Clearly, if the Balboa Peninsula is to redevelop and revitalize in a quality fashion, an overall theme or niche must be developed that will cast the commercial and retail elements in a positive light and at the same time provide residential compatibility. Many members of the community cited similarly situated coastal beach communities that had quality, images. Laguna Beach, with its annual Festival of Arts, was often cited as a community that had developed a theme that attracts quality retail, artisans and craftsman along with high quality visitors. Laguna enjoys a more balanced commercial and retail element. The committee believes there is a substantial heritage and foundation that can and must form the basis for an overall cultural theme for the Balboa Peninsula that will reverse current trends and provide a positive transition. The following steps should be followed: Establishing Residential Objecth,es Establishing long term objectives is the basis for any meaningful community action plan. If real change is to be implemented on the Balboa Peninsula, objectives must he articulated that form the basis for a disciplined Redevelopment. The beach and bay amenities along with a rich history of water sports and beach oriented recreational activities form the obvious basis for clearly defining schematic objectives. Those communities that were often cited by residents as being representative of what the Peninsula `should aspire to be" typically had long standing village or town plans that had been established generations ago with a qualitative planning and regulatory environment that assured strict adherence to an oNerall theme and qualitative ot�jectiyes. The Committee has proffered herein a set of planning policy statements and objectives which we respectfully offer the Council for their consideration. Building on Strengths O%-er recent decade;, the residential element on the Balboa Peninsula has enjoyed a positi�-e transition. The im-entory of single familt- residential has improN ed in quality as the Peninsula has become a tear -round residential community. As the retail and commercial elements hay e experienced a negati%*e transition, it is incumbent on Cite planners and decision makers to recognize the risks inherent in lurther deferring a comprchensiv-e planning ,41-ategy. A declining amumcreial clement will ultimately adv-crseIY impact the value of residential. Conyer.sely, the strength of the Balboa Peninsula's residential transition affords an opportunity fin- the Citv to provide positi%c impacts bN- encouraeing and expanding the residential element with zoning and planning incentives that encourage consolidation of small lots and afford additional quality residential development opportunities with respect to both detached single family residences and attached product. The Committee recommends that overall objectives recognize the aj strength and opportunity with respect to the residential element, and b) the consolidation and Redevelopment necessity with respect to the commercial retail element. -16- BALBOA PENINSULA LAND USE ECONOMIC PROFILE Residential (950 Parcels) • Contributes 66% of City revenue • Property Tax revenue to City - $485,000 (Valuation $282 million; tax $2.8 million) • Rising valuation, last 3 years, due to new construction/remodel • Offers greatest potential for growth and increased revenue Commercial (150 Parcels) • Contributes 34% of City revenue • Property Tax revenue to City - $254,000 (Valuation $151 million; tax $1.5 million) • Other City revenue (Sales Tax, Business License, Bed Tax, & Misc.) $1.2 million • Poses greatest risk of declining valuations and blighted conditions Source: City Revenue Department (Excludes: Building Permits, Parking and Mooring Fee income) A New City Approach to Planning Newport's history and policy with respect to planning has been influenced by numerous extemal circumstances. The Irvine Company, as the City's largest property owner, established comprehensive master plans for the development of its properties. The City has benefitted from these foundations which were largely dictated and implemented by third parties with the City reacting to plans as opposed to promulgating its own. Consequently, while these various developments provide outstanding examples of quality planning and development, the City has not heretofore applied similar expertise to establish progressive village or town plans for the Balboa Peninsula. Although the 1983 RUDAT studies and previous specific plans for McFadden Square/Cannery Village (1986) and Central Balboa (1994) were adopted in prior failed efforts to force change, none of the plans were ever fully implemented. As the City of Newport Beach approaches full build out, it is indeed fitting that the City Council has recognized that it is time to get back to Old Newport, the once sleepy peninsula, to devote the same attention and City resources for Redevelopment that our major land owners have enjoyed over the last three decades of new development. -17- The Committee recommends that the City dedicate staff priority and utilize outside consultant resources in order to foster this comprehensive new City approach to planning on the Balboa Peninsula, which approach will take into consideration the following: Recognize Transitional Changes New City planning should recognize the quality transitional changes and opportunities that have occurred in the residential sector as well as the wider area commercial retail developments at South Coast Plaza, Fashion Island and a redeveloped Costa Mesa that effectively render much of the Balboa Peninsula commercial retail sector less competitive and attractive. City planners must also recognize that seasonal commercial businesses appealing solely to summer visitors cannot compete on a qualitative year-round basis. Realistic Expectations New City planning should recognize that a potentially smaller and consolidated (but quality) commercial retail element may be more appropriate than alternatives that contemplate maintaining or expanding the current inventory of the commercial retail development on the Peninsula. According to the Congleton report, when measured by resident supportable standards, there would appear an excess of commercial space, by as much as 13,000 square feet in the Balboa Village alone. This condition has necessitated a significant merchant dependence upon seasonal visitors. Conversion of excess, marginally performing commercial to a greater hospitality purpose must be explored. M Achieving a Balance New City planning should take inventory of current uses and recognize that a qualitative approach to both commercial retail mixes and uses is fundamental to any well planned commercial element with balanced tenant mix. Many mechanisms are available to meet these goals. Laguna Beach controls its tenant mix with what it calls a "resident serving ordinance" while other communities have strict controls on signage, design review and limitation of specific uses. A Council Commitment - Planning and Policy Objectives To generate a new planning culture, the City Council must provide the support mechanisms necessary to and for City management and staff to move ahead. The Committee submits that adoption of the following key Council planning and policy objectives by a unified Council is a necessary step and a preferable alternative to the past practices cited elsewhere in this Report. 1. Recognition of NecessitN A new planning, Redevelopment and regulatory policy must be implemented now for the following reasons. A. Continued deterioration of the Peninsula's commercial elements will produce higher enforcement costs and lower economic returns to the City, and will ultimately adversely impact residential values. B. City-wide taxpayers cannot be expected to continue paying extraordinary costs associated with high liability and maintenance expense without achieving corresponding economic benefits, paid for in part by area visitors. -19- C. Residents are entitled to a professional standard of planning, infrastructure and commercial compatibility consistent with the established quality residential element. D. Newport's reputation for quality and environmental commitment is principally measured by the impressions and experiences of visitors to the Balboa Peninsula. E. Expected benefits include increased property values, year- round business vitality and resulting growth in sales tax, reduced City expense in control of negative influences, and other fiscal benefits which flow from a quality and balanced commercial element. Geographic Constraints The Balboa Peninsula consists of a limited area in a narTow configuration that has inherent constraints in terms of the movement of vehicles, people and ultimate capacity considering both residential need and enjoyment, visitor burden, and reasonable environmental considerations. A new plan and policy must respect these limitations. 3. Quality Street Network Historically, the City planning has prioritized public works that favored the movement of traffic. One way streets, right turn only lanes and related traffic engineering schemes are not consistent with developing quality village cores that provide convenience for both residents and visitors. In order to develop quality town and village cores, a street network must be redesigned that responds to the village resident needs as opposed to simply moving people and vehicles at peak periods. 4. Architectural Guidelines A new planning policy must establish architectural guidelines that will provide an impetus for the use of materials and color pallets that reflect the character and tradition of the Peninsula. 5. User Friendly Changes User friendly changes must be considered in order to provide greater ease of travel by bicyclists and pedestrians. Again, wider streets, added parking and narrow sidewalks do not produce reasonable or user friendly access for pedestrians and bicyclists. These conditions have displaced more pedestrian and bike traffic to the Oceanfront boardwalk. The inherent vehicular traffic and parking limitations on the Peninsula must be confronted in order to provide pedestrians and bicyclists reasonable means of access to both the beach and bay as well as a connection between the commercial retail elements. -20- 6. Parking Management The action plan must include a well designed parking management program. Due to the competing uses for parking on the Peninsula, a parking management plan must take into consideration seasonal requirements, respond to the consolidated village theme and provide residents with preferred parking zones. The plan must take into consideration the potential for upgrading the quality of visitors to the Peninsula by recognizing that residents themselves attract quality visitors to the Peninsula. Reasonable preferences to accommodate this resident visiting population has the potential for enhancing a redeveloped retail commercial element. Of equal importance are the placement of visitor parking near key commercial village cores as opposed to residential streets where access to businesses is difficult, PARKING REVENUE BY DISTRICT: (Does not include median parking revenue) and the use of off-site or dedicated parking facilities, including bus loading and staging areas, by high traffic generators. Beyond the operational benefits to be derived from a Parking Management Program, there is a proven opportunity and source for the City to finance needed visitor infrastructure and improvements via a fair application of parking revenues, whether by meter collections or in -lieu fees. Few such mechanisms are available to assess the fair and full burden of visitor impacts. The Committee strongly advocates a review and realignment of the existing parking districts and meter zones to ensure maximum funding of the Parking Management Program and proposed new parking facilities. The table below shows the 1995 City revenue generated from parking sources. MEDIAN PARKING REVENUE: Area (# of meters) Revenue Area (# of meters) Revenue Cannery Village (333) S75,859 McFadden to 15th St. (I 11) S57,086 Lido Shopping Area (228) 83,953 15th St. to 10th St. (147) 36,021 McFadden Area (269) 319,371 10th St. to Alvarado (168) 35,064 Balboa Village (465) 35.1,059 Ocean Front Lot (219) 319,458 1295 meters Total 5833,242 5519,632 BALBOA PIER LOT (611) 51,100,000 TOTAL - ALL DISTRICTS, ALL METERS Source: City of Newport Beach, Revenue Dept. -21- 645 meters Total S2,453,000 7. Bay Management Each of the four Peninsula districts shares a unique resource, the Newport Bay. It is the consensus of the Committee, and the many workshop participants, that the Bay and Beach are our major tourist attractions. Given the public, non-commercial character of the beach amenity, the Bay becomes the common asset to be more commercially showcased in creating a unique sense of place. Due to the recovering local economy and growth in recreational boating, coupled with the City's expanded emphasis on tourism, especially Conference and Visitors Bureau promotion of the harbor as an entertainment venue, the growth in competing use of a limited marine resource has placed unprecedented pressure on the Bay. Evidence of such pressure is seen in the growth of tour/charter boat operations. These boat trips range from one time charters for private party use to major operators that use the Bay on a weekly, if not daily, basis for scheduled and charter cruises. In some instances, this has resulted in certain negative impacts on the harbor and its adjacent residents. These impacts include the following: Bay Pollution. Residents have expressed their concern related to the potential for the pollution and contamination of both water and air as a result of the operation of large diesel boats in the Bay. Litter. There is an impact with regard to the disposal of cigarettes and other similar small items that are jettisoned. Noise and Invasion of Privacy. Residents have complained that noise emanating from these vessels disturbs residents in close proximity to the Bay, especially during the evening hours when these cruise vessels idle in close proximity to living areas often with passengers at advantaged heights peering into their private living areas. Safety. Newport Bay does not have the size inherent in larger cruising waters (San Diego and Los Angeles Harbors). Accordingly, there are limitations as to the size and number of tour boats that can be accommodated in the Bav without interfering %�,ith the fi-ee use and safety of the Bay by smaller craft. Also, tour boat operators mav, in effect, -22- compound the alcohol and security problem by providing numerous floating bars and restaurants that are not subject to comprehensive City entitlement process and regulations as are land based establishments. Recreational Interference. Newport Bay hosts many small craft sailing events, kayakers, rowers and other recreational users. The City of Newport Beach Parks and Recreation Programs, Orange Coast College and numerous yachting and sailing clubs use the Bay for sailing instruction and junior sailing events. The charter/tour boat industry has grown to the point that many of these events are routinely interrupted. All such competing uses must be better coordinated so that neither activity is adversely impacted. Participants and their families who visit Newport Beach in connection with these events provide a substantial positive economic contribution to the City. Losing junior, collegiate and other sailing events would create a negative economic impact on the City, especially its summer youth recreation programs. Bay Management -23- • Parking. Visitors patronizing cruise boats utilize a substantial amount of available public parking facilities which in many cases negatively impacts private parking facilities dedicated to specific use permits. The City of Newport Beach has largely unenforced regulations requiring tour boat operators to provide parking. Current regulations require that the operator apply to the City Revenue Department for approval stating the point of disembarkation and providing written evidence from the property owner who will provide appropriate parking, that permission is granted and that such parking does not infringe upon any dedicated parking required for another use permit. Without a comprehensive permitting system, the current regulation does not adequately protect Peninsula parking availability. Any form of over utilization, be it private or charter, threatens the harbor quality and overburdens limited financial resources. Despite public charter boat regulation by Federal (Coast Guard, FCC), State (ABC, Water Quality Board, AQMD, EMA) and County (Harbor Department/Sheriff), the City has exerted limited permit regulation and enforcement. Despite growing public use and the generation of just under $200,000 in fees from harbor related rentals and taxes as shown in the following table, the City incurs a net annual deficit from the operation of its tidelands. BAY MANAGEMENT FEE INCOME - 1995 Mooring Rental S 15,000 • Approximately 1,200 moorings • 850 Off -shore, 350 On -shore • 20-30 available for rent on any given day • $5/day - 20 day maximum Slip Rental S7,000 • 5 Slips available for rent • $10/day plus $.40/foot for any boats over 25 feet • No limit on length of stay Charter Permit Fee 1,2 S46,000 • Total number of charters 1,516 • Average number of trips per day 4.15 • Total number of passengers 89,925 Charter Passenger Tax" 5123,000 • Passenger Tax is charged as follows: $0 if cost is less than $25 $.50 if cost is between $26 - $50 $1.00 if cost is greater than $50 TOTAL - All Sources 5191,000 Period 7-1-95 to 6-30-96 Does not include Catalina Flyer Source: City of Ne%%port Beach, Revenue Dept.'Fire and Marine No commercial waterfront (or harbor/tideland) use or project on the Peninsula, whether private or public, should be allowed to proceed without sufficient Civy fee assessment and monitoring of its full impact upon the Bay asset and, where warranted, mitigation program for negative influences (pollution, noise and traffic, both vehicular and vessel, etc.). For these reasons, the Committee recommends the development of a Bay Management Plan to incorporate the recommendations contained in Part VI of the Committee Comprehensive Planning Recommendations of this Report. -24- Bay Management 8. Alcohol and Security The end goal of any prudent community planning process is the ability to achieve a balance or mix of commercial uses that serve both residents and visitors to the community. While achieving a commercially viable balance, the community and its residents benefit from both convenience and positive economic contributions emanating from the commercial sector. The greatest imbalance existing on the Balboa Peninsula with respect to specific use types is the over abundance of alcohol serving and dispensing businesses. According to the State of California Alcoholic Beverage Control Board, the City of Newport Beach has permitted some 104 commercial uses which permit the sale of alcohol or so-called "liquor licenses". These establishments consist of restaurants, bars, nightclubs, package stores and charter boats. Some are included in the category of "off -sale licenses" since they dispense package goods for off -premises consumption. The charter boat category has experienced dramatic growth in recent years due in part to the ease in securing City permits and the absence of regulatory and approval standards which are typically attached to such comparable land based use permits (e.g. parking, entertainment, business hours). For example, certain boats operating from private landings are currently impacting parking spaces that are also concurrently required for or utilized by the adjacent commercial uses. Historically, no inventory of uses (including alcohol serving businesses) was maintained by the City Planning Department. While various data was and is available from City departments and public data bases, it is not provided to the Planning Commission for their consideration in discretionary use permit and related proceedings. The new planning process must first consider data relative to the existing balance of alcohol related commercial uses located on the Peninsula before granting more use permits. Due to the extraordinary police enforcement and securit}' issues on the Peninsula, the Committee assembled data from both City staff, the County of Orange, and the State Alcoholic Beverage Control Board in order to better understand the nature and extent of the problem as well as the Peninsula's standing with respect to similarly situated beach communities in the area. The number of licenses on the Peninsula along with City wide statistics and other beach communities are represented in the chart below. ABC LICENSES PER 1,000 PER SQUARE O.C. CITIES RESIDENTS MILE Huntington Beach 1.72 11.5 Seal Beach 2.07 3.0 Laguna Beach 4.10 12.7 Newport Beach 4.70* 23.3* Balboa Peninsula** 8.10 64.1 * Highest among all Orange County Cities ** Based on following Peninsula assumptions: Licenses: 109 Population: 13,537 (including West Newport and Lido Isle) Square Miles: 1.7 (including beaches, excluding Bav area) Source: O.C. Economic Development Consortium; Communities in Prevention, Census 1995 -25- In order to assess the impact on the community, the Committee was able to secure a March, 1995 research study by the University of Southern California Office of Health Science. This report is the result of a several year study of several communities in California. The USC study makes it clear that there is a direct correlation between violent crime and the density of alcohol outlets allowed or permitted in any community. It comes as no surprise that the Balboa Peninsula experiences a high rate of crime when compared to the remainder of the City. The Committee secured crime and enforcement data from the City Police Department which is summarized in the chart below. CRIMINAL STATISTICS - 1995 Peninsula as a Entire City Percent of Total Peninsula Only of Newport Beach (vs. 24% of population) Criminal Arrest 2,081 3,717 55.99% Alcohol Related Arrests 890 1,552 57.35% Note: Based upon typical patrol force manning, and excluding seasonal or night shift adjustments, 3 of the 8 City wide patrol cars are dedicated specifically to the Peninsula. Source: Newport Beach Police Department As the data suggests, the Peninsula experiences an extraordinarily high crime rate with an estimated 56% of the total criminal arrests in the Cih' (and corresponding dedication of 37% of the annual police budget) attributable to the geographic area comprising the Peninsula. Since prior City planning and policy has not taken into consideration this large imbalance, the Committee believes it is incumbent upon the Cite to address this issue with both interim and long term strategies. In addition to both the quality of life and economic objectives articulated with respect to this issue, the Committee believes that the existing imbalance contributes to negative image and potential City liability issues. 1-1 In order to mitigate this imbalance, the Committee has recommended a number of both interim and Iong term solutions outlined in Part VII of the Committee Comprehensive Planning Recommendations of this Report. With respect to interim solutions, there is an urgent need to develop a comprehensive policy that will initiate a positive transitional change. Curfews and other interim measures were discussed by the Committee along with preliminan, responses from the Cite Attorney's office. While the City Attorney has noted some state lacy limitations with respect to curfews, the Committee believes there are other ample mechanisms available to the City in order to assess these high enforcement costs and regulate the alcohol sen'ing and dispensing element of uses on the Peninsula in order to achieve both transitional and long term objectives. For example, a recent California Appellate Court case involving Oakland upheld the City's imposition of impact fees on licensees who were found to negatively impact community health and welfare. While the Committee commends recent efforts by residents and license holders in Cannery Village to � provide better private security and related initiatives for patrons and residents, the Committee submits that the established data is compelling and should motivate an immediate change in City policy in order to realize a reasoned quantitative and qualitative improvement over future years. In that regard, . the Committee supports an early conclusion to the Cite stafl's effort to propose a City-wide Alcohol Control Poliev. -26- w 9. Signage and Aesthetics The Committee strongly encourages the City to give early project implementation priority to developing both Peninsula -wide and village themes which present a strong historical sense while maximizing the unique marine aspects of each village (e.g. shipbuilding, marine recreation, fishing, etc.) plus all of the positive destination attractions which the bay, ocean and yachting traditions have to offer. Three prior RUDAT studies have addressed all or a portion of Balboa Peninsula's urban design issues. The first two studies, done in 1983, considered the Peninsula as a whole; the second study, done in 1993, considered the commercial segment of Balboa Peninsula commonly known as Downtown Balboa. These two studies, some ten years apart, both emphasized the need for improved streetscape, referring to landscape design, street lights, removal of overhead utility lines, improved pedestrian corridors, view enhancement and signage. The subject of signage was not treated separately in either study, but the 1993 study addressed certain specific themes such as gateway signage and festive banners. The 1996 Urban Design Camp workshop study project issued a report making a recommendation to establish an overall Peninsula signage theme with different, but compatible, themes for each District. In addition, the report recommended modifications to the City-wide sign code to incorporate the following specific provisions: 1. Prohibit free standing signs except monument signs. 2. Prohibit rooftop signs. 3. Limit the amount of window display signs. 4. Encourage flags, banners and other festive signage for special events. I -27- The report also recommended unique regulations in each District addressing sign colors, illumination and materials. The report included a model titled "Sign Standards for Commercial Uses". The current City of Newport Beach Municipal Code contains a sign ordinance which is uniformly applicable (with the exception of Planned Developments and Specific Plan areas) to all commercial areas in the City. Title 20 of the Municipal Code was comprehensively reviewed and revised in 1996 based on recommendations of City staff, a subcommittee of the Planning Commission, input from the Economic Development Committee and from public hearings conducted by the Planning Commission. Public hearings by the City, and its vote on the recommended text forwarded by the Planning Commission, are currently planned to be scheduled for implementation the first part of 1997. The sign ordinance was not comprehensively reviewed as to substantive matters as part of that process. The existing sign ordinance provides certain standards for signs in commercial districts and generally permits and regulates the following aspects of ground signs, pole signs, wall signs, and projecting signs: • Size/Height/Scale • Illumination (brightness) • Animation • Projection -28- Signage and Aesthetics 1. p-r�, . 1, 9 Analysis: Conflicts in Standards - Insufficient Design Guidelines Streetscape has consistently been identified as a major element through which the image of the Peninsula business districts can be upgraded, and the residential quality of life improved. A comprehensive sign program is a significant component in reducing visual clutter, projecting a high quality image, thematic design, and establishing visual boundaries between commercial and residential areas. Three of the four Peninsula business districts are presently each governed by all or portions of different sign standards: Lido Town Center area by the sign ordinance, and Balboa Village area and Cannery Village/McFadden Square each by its own specific area plan (to the extent sign standards are set forth in that particular plan), and otherwise, by default to the provisions of the sign ordinance. Mechanisms and resources for sign standards and maintenance enforcement have been inadequate. The same mechanism applies to all violation of the standards, whether of significant economic consequence or minor in nature. There are no design guidelines or standards, including within the specific area plans, except those related to public safety, brightness, and the prohibition of animated or inflated signs. Recommendations Provide for the creation of a single overlay zone for signage for Balboa Peninsula. Prohibit painting of commercial structures that, in effect, constitute constructive sign treatments or business identity. Implement signage themes which unify rather than separate the three physically adjacent business Districts: Lido Town Center, Cannery Village and McFadden Square. Each is a small District, distinct only in the microcosm of the Peninsula. Develop a distinct pattern of commercial and residential signage to create visual boundaries for the visitor \N•hich promote greater consciousness and respectful behavior in residential areas. Build in strong enforcement measures, and obtain commitments from the Business Improvement Districts to allow for an initial pre -enforcement step of referral of the complaint by the City to the B.I.D., and encourage B.I.D. efforts to promote voluntary compliance. -30- As per State planning and zoning law, provide for categories of legal non- conforming status based on economic investment in the non -conforming signage, and whether conformance involves additional investment or removal expense. A mandate from the City Council to identify staff plus an external consultant to develop a one -text proposal for signage for a Balboa Peninsula overlay district. The input group should include certain City staff, specific Council appointed committees representing a cross section of the commercial/retail/ residential elements. Such groups would then forward its recommendation for a language - specific Balboa Peninsula overlay district sign ordinance to the Planning Commission, then on to the City Council for adoption. An expedited review and recommendation for public/directional/and highway entry signs. 10. Hospitality The Committee considered and reviewed both the capacity and quality of existing Peninsula lodging and hospitality components. These components fall into three general categories: 1. Hotel and Motel Facilities 2. Multi Unit Residential Properties 3. Privately Owned Detached Residential Properties While the Peninsula boasts extensive beach and bay recreational opportunities, the hotel -motel lodging and hospitality component represents only 95 rooms. The largest number of rooms is represented at the Balboa Inn. There is no high quality resort oriented facility available to provide visiting tourists with accommodations comparable to lodging and hospitality provided by similarly situated beach communities (e.g., Carmel, Laguna Beach, Del Mar, Mission Bay, Coronado). Accordingly, the Peninsula is unable to compete with these communities for regional, national and international tourists. These visitors typically opt for communities where quality lodging and hospitality are available in facilities that are of high quality and provide convenient proximity to bay and beach recreational amenities. The City of Newport Beach has numerous high quality hotel and lodging facilities at Fashion Island and the airport area; however, these facilities are not in close proximity to the beach recreational areas on the Balboa Peninsula. Indeed, numerous first time visitors from outside the area are dismayed to find that the major hotel and motel accommodations in the City of Newport Beach are not located at or within walking distance of the beach itself. Also in limited supply are the bed and breakfast inns which have proven so successful in other coastal resort communities. The Committee believes that the lack of quality hospitality and lodging facilities will continue to penalize the Peninsula and the City in its efforts to attract quality visitors to the area. City shuttle buses or similar public transportation between the Peninsula and Fashion Island are potential mitigation measures; however, they alone cannot solve the visitors' negative perception. While many residents on the Peninsula may be opposed to the concept of a resort hotel, it is clear that initial reactions are principally motivated by initial perceptions of the type of facilities contemplated. For example, when facilities are identified with well-known resort facilities in other communities such as the Hotel Del Coronado, Shelter Island's Beach Club, and similar facilities in Laguna Beach, Del Mar, Carmel, Monterey, etc., the receptivity of this type of lodging -hospitality element evokes far different and positive responses. Also, the Committee cites the existing Best Western Motel at 18th Street, which has long served as a good neighbor as an example of suitable hospitality. As suggested in the recent study by Keyser Marston of the alternative uses for the Marina Park site, the Committee strongly supports further study of candidate sites for hospitality purposes. -31- Over several decades of transition, the Committee believes there has been a deterioration with respect to the quality of short term and weekly residential properties. In many instances, both multi -unit residential and detached single family residences do not meet reasonable or minimum hospitality standards. In other instances, such uses are conducted in primarily single family neighborhoods attracting potential nuisance to the Peninsula residents, especially when offered without proper standards and protections for security, noise control, etc. Pricing is a major issue as weekly rentals on the Peninsula range from approximately $1,000 per week for units off of the beach or bay, generally shared by a number of individuals, to a rate of $5,000 per week for an upscale single family residence on the beach or bay servicing a single family of four to six during the summer rental season. Due to the limited availability and pricing considerations, many of these units are no longer rented for family vacations; rather, they are rented for multiple occupancy or assemblages that far exceed reasonable occupancy limits otherwise permitted by conventional lodging and hospitality facilities. In some instances, non -discriminating agents and owners pen -nit higher or multiple occupancy in order to extract high rental rates. In effect, the Peninsula affords a large supply of party house rentals that all too often represent noise and nuisance elements that are not compatible or consistent with residential enjoyment by permanent residents nor a positive vacation experience by other short term visitors who are occupying properties that adhere to quality hospitality standards and strict occupancy limits. The Committee believes that adoption and enforcement of hospitality standards for the Peninsula could have a positive impact equal to that resulting from the City ordinance to control "party rentals" in West Newport. In the final analysis, the vacationing public have many options available. The Balboa Peninsula has acquired a reputation for attracting short term visitors that are not compatible (both economically and in quality) with the expectation and needs of residents, families and other vacationers who are capable of making more positive contributions to the area. It should be noted that this issue impacts all of the various interests, both residential and commercial on the Peninsula. For example, so called "crash pad or party rentals" interfere not only with residential owners but have an equally negative impact on long term renters as well as short term vacationers. On the commercial side, these elements generally do not make a positive contribution with respect to patronizing retail shops and quality restaurant facilities. Also, these elements often bring an unacceptable level of crime and other nuisances which burden the City resources. -32- The remaining two existing lodging and hospitality components available on the Peninsula consist of mill" i` }` . " ff multi family residential, primarily duplex units, and detached single family residences. These 9 II components are typically rented on a short term or ?f weekly basis during the summer season. These rental opportunities are scattered widely throughout the Peninsula and are principally administered by real estate rental agents along with some , } owner/operators. Again, with the exception of area ! residents who are familiar with the "ins and outs" of securing a Peninsula rental, this lodging and hospitality element does not have the same public convenience or identity that can be attributed to a - ` lodging and hospitality facilities available in other "y" J � high quality beach communities. Perhaps more importantly, these components generally do not have a quality reputation or any consistency associated with them. At the upper end, they represent a small element of high quality personal residences that are rented on a very limited and selected basis. At the less desirable end of the spectrum are a wide array of weekly beach rentals that have little or no qualitative assurance for the visiting public and in many cases cast a negative taint on the positive hospitality elements and the immediately adjacent permanent residents. Over several decades of transition, the Committee believes there has been a deterioration with respect to the quality of short term and weekly residential properties. In many instances, both multi -unit residential and detached single family residences do not meet reasonable or minimum hospitality standards. In other instances, such uses are conducted in primarily single family neighborhoods attracting potential nuisance to the Peninsula residents, especially when offered without proper standards and protections for security, noise control, etc. Pricing is a major issue as weekly rentals on the Peninsula range from approximately $1,000 per week for units off of the beach or bay, generally shared by a number of individuals, to a rate of $5,000 per week for an upscale single family residence on the beach or bay servicing a single family of four to six during the summer rental season. Due to the limited availability and pricing considerations, many of these units are no longer rented for family vacations; rather, they are rented for multiple occupancy or assemblages that far exceed reasonable occupancy limits otherwise permitted by conventional lodging and hospitality facilities. In some instances, non -discriminating agents and owners pen -nit higher or multiple occupancy in order to extract high rental rates. In effect, the Peninsula affords a large supply of party house rentals that all too often represent noise and nuisance elements that are not compatible or consistent with residential enjoyment by permanent residents nor a positive vacation experience by other short term visitors who are occupying properties that adhere to quality hospitality standards and strict occupancy limits. The Committee believes that adoption and enforcement of hospitality standards for the Peninsula could have a positive impact equal to that resulting from the City ordinance to control "party rentals" in West Newport. In the final analysis, the vacationing public have many options available. The Balboa Peninsula has acquired a reputation for attracting short term visitors that are not compatible (both economically and in quality) with the expectation and needs of residents, families and other vacationers who are capable of making more positive contributions to the area. It should be noted that this issue impacts all of the various interests, both residential and commercial on the Peninsula. For example, so called "crash pad or party rentals" interfere not only with residential owners but have an equally negative impact on long term renters as well as short term vacationers. On the commercial side, these elements generally do not make a positive contribution with respect to patronizing retail shops and quality restaurant facilities. Also, these elements often bring an unacceptable level of crime and other nuisances which burden the City resources. -32- The Committee believes the City must upgrade and expand its lodging and hospitality facilities on the Peninsula by taking the following actions: Regulate short term and weekly rentals. A firm but not intrusive hospitality ordinance should be enacted that provides the following: a. Limits weekly and short term rentals to prescribed hospitality zones. b. Requires annual inspections for minimum hospitality standards to be administered as a self funding measure by either City personnel or a third party contract service provider. C. Requires of all rental agents to enforce hospitality standards in dealing in weekly and short tern rentals with appropriate revocation and penalty provisions for both agents and owners who violate standards prescribed by the ordinance. 2. Bed and Breakfast. Establish bed and breakfast zones in the selected areas, consistent with the model ordinance established by the American Bed and Breakfast Association. Meaningful economic incentives should be provided in selected commercial areas in order to encourage owners to transition their properties from uneconomic or blighted commercial to quality inns and/or owner occupied bed and breakfast hospitality use, especially when such uses serve as a natural buffer between commercial and residential uses. 3. Peninsula Resort Lodging. Select key Redevelopment sites under a comprehensive Redevelopment Plan that will assist in consolidating and assembling sufficient key locations that will serve as resort lodging sites. The Committee proposes that the following sites be considered for these key hospitality amenities: a. Lido Marina Village, as a component of a mixed-use Redevelopment Plan. b. Southcoast Shipyard property. It should be noted that both of the above locations are adjacent to high or medium intensity commercial uses and afford the opportunity to integrate marine recreation and both permanent and visiting boater marina facilities. District traffic, parking, and pedestrian circulation objectives may be best accelerated and maximized within such Redevelopment designs. The Committee believes that these facilities should be considered only after third party professional planning consultants assist in establishing Redevelopment Project Areas and strict criteria are formulated that Nvill lead to competitive requests for proposals from highly qualified resort hotel developers and operators. 4. Prohibit party rentals. The Cite hospitality ordinance should include an ordinance prohibiting one night or similar party rentals of multi unit residential or single family private residences. The ordinance should be designed to eliminate cur7ent practices whereby "prom night" or other party type arrangements are provided by rental agents under the guise of a "weekly rental". Such new ordinance should complement the existing City ordinance which has been successfully applied in West Newport to curtail "party rentals". -33- t,''%,. � Committee Comprehensive Planning Recommendations Balboa Peninsula Planning Advisory Committee's intent is to provide specific plans that will create a mission and sense of place for the Peninsula and to differentiate unique roles of four principal areas: Lido Town Center, McFadden Square, Cannery Village and Balboa Village. The primary objective of the Committee's recommendations is to design and maintain a strategic plan with planning disciplines which will continually strive to improve the entire Peninsula while maintaining a sense of community between and uniqueness for each of the four Districts. The overall objective is to re-establish Balboa Peninsula as a more economically viable waterfront community in terms of quality of life, image, and property values. The following is a summary of the Committee's recommendations: Peninsula Wide Recommendations Community Image - Commit to City planning and enforcement policies that stand for these objectives: A. A quality community where D. A place where quality hospitality is residents can depend on the assured in a variety of accommodations quiet and secure enjoyment of that encourage family vacations, their homes and dwelling visiting boaters and day users to enjoy units. and have convenient access to our recreational elements. B. A quality destination to visit and enjoy the natural resources E. A community where there is zero provided by Newport's beach tolerance for pollution, litter and all and bay. forms of conduct or activities that adversely impact the environment, C. A place where business owners especially our ocean and bay, and provide quality goods and reputation as a quality place to live and services serving both the needs visit. of residents and visitors that are respectful of the character F. A place that takes pride in and protects and integrity of the area. its heritage and traditions of sailing, boating and water sports recreation. -34- II. Revise and Beautify Newport and Balboa Boulevards - Realign and design attractive median landscaping for both Newport and Balboa Boulevards following these guidelines: A. Eliminate the "one way" only lanes on Newport Boulevard from 30th Street to 26th Street in favor of a two-way configuration pursuant to the Urban Design Camp concept plan. Reclaimed right-of-way should be converted to parking, hospitality and/or residential use. B. Provide an attractive realignment and merger of Balboa and Newport Boulevards. Create plan that includes fountain or monument art work that gives character and tradition to key area. C. Reduce center divider parking spaces in residential blocks from McFadden Square to Alvarado Street and replace with an expanded raised tree planter median. Transfer parking to proposed and expanded McFadden Square and Lido -Cannery Village parking centers. D. Initiate an underground conversion plan of overhead utilities to enhance visual aesthetics throughout the Peninsula area. This program would be instituted as both stand alone district projects and as complementary to other major street improvement projects. E. Provide widened sidewalks and bicycle lanes on Balboa Boulevard (space permitting) to allow more convenient resident and visitor access by bicyclists and pedestrians from McFadden Square to Balboa Village. Recognize that boardwalk congestion will be reduced by providing reasonable and continuous bicycle and pedestrian ways on Balboa Boulevard. A balance should be given to aesthetics plus pedestrian and bicycle flows in assessing vehicular traffic engineering issues. F. Create "Balboa Peninsula" entrance monuments at Pacific Coast Highway, Balboa Boulevard, and Newport Boulevard key ports of entry with coordinated direction signage to four key villages. Newport Boulevard/Balboa Boulevard -35- Newport Boulevard/Balboa Boulevard lli e Newport Boulevard/Balboa Boulevard L Q W ce C� t k m Mill G W O. mol M W W M W • X W III. Parking and Transportation Management - Adopt a parking and transportation management plan that includes: A. Inventory of current capacity and identify utilization by user groups. B. Resident preferred zones and stickers for residents and authorized visitors. C. Time and cost management programs to ensure constant rotation and availability in the four principal business areas. D. Strict enforcement to assure that time limits and related features of the plan are carried out. E. Consider off Peninsula parking solutions with shuttle services during summer season. F. Recast regulations, realign and consolidate parking districts, meter zones, and funds flow to have a program that assigns collected revenue to better finance needed infrastructure improvements while assessing a fair burden on visitor impacts. G. Seek a trolley shuttle (land and water) connection to other Districts on and off the Peninsula to reduce auto traffic and serve as more of an "Outing/Destination" attraction. -36- IV. Recreation and Hospitality - Designate the following key sites and locations as special study areas that afford opportunities to provide quality residential, recreational and hospitality improvements. A. Las Arenas and Marina Park Site Opportunity: Community Recreation Center - Water sports and junior sailing center, visiting boaters facility and marina, and appropriate marine recreational amenities. (Note: According to outside consultant/legal counsel, current mobile home park use may be in conflict with permitted use under State tidelands regulations; extension of leases is thus assumed to be an unacceptable land use.) B. McFadden Square Site Opportunity (Southcoast property): Hotel and marina with visiting boaters facilities. C. Lido Town Center Site Opportunity: Encourage continued Redevelopment of the area with high quality residential and resident and visitor serving commercial uses; opening bay front to visiting boaters. D. Visitor Hospitality: Establish the following visitor hospitality measures: Require annual inspections and hospitality permits for short term (less than 30 days) residential rentals. 2. Monitor standards to assure visitors that minimum quality hospitality accommodations are met. Display "approved" signage that confirms minimum standards are met. r 4W Las Arenas 38 _49i I V. Planning and Economic Policy For the Peninsula - Initiate a comprehensive review and revise as appropriate the existing ordinances to provide both interim and long term incentives and disciplines to achieve the following objectives: A r Planning Policy: Physical and Environmental Limits. Recognize inherent physical and environmental constraints that exist on the Balboa Peninsula and in the Bay. Take into consideration itsgeographic configuration, traffic circulation limitation, parking and ultimate visitor and vehicular capacity limitations. Carefully consider cumulative Peninsula -wide environmental and economic impacts before limits are exceeded. 2. Redevelop Blighted Commercial. Recognize the inability of current blighted and under -performing commercial uses to compete or meet qualitative criteria. Consider use of Redevelopment process to consolidate, concentrate and redevelop four quality commercial villages: a. Lido Town Center b. Cannery Village C. McFadden Square d. Balboa Village 3. Establish Redevelopment Area. Consider establishment of both Redevelopment Project Areas and assessment districts as mechanisms to achieve revised plans for implementing a viable and quality commercial core for each of the key commercial villages. 4. Update Local Coastal Plan ("LCP"). Incorporate adopted BPPAC recommendations in the City's LCP certification process. 5. Conform Specific Plans. Direct staff to immediately screen and modify specific plans to conform with planning objectives of this report. Establish Redevelopment Project Areas and key study areas to assure positive transitions and provide control mechanisms. Adopt incentives, such as modified parking and/or FAR regulations, to accommodate desired high quality uses and tenants that will contribute to the upgrading of the area. -39- 6. Respect Permanent Residential Uses. Establish zones and adopt standards for weekly and shorter term rentals in selected areas that are not principally owned or occupied by full time single family residential users. 7. Hospitality Zones. Provide entitlement incentives to foster development of quality hospitality and bed and breakfast zones in key areas near piers, Balboa Village, McFadden Square, Cannery Village, Lido Town Center and areas proximate to more intensive uses. 8. Land Use Regulations. Adopt balanced planning regulations that encourage quality retail and resident compatible uses, services and tenant mix. The goal is to displace blighted and low quality commercial establishments. 9. Improve Quality and Tenant Mix. Enhance quality and attractiveness of retail tenant mix to residents and visitors. Prepare Peninsula -wide and District specific tenant mix and Village management plans and recruitment programs. Identify all marketing and promotional programs with name and logos to clarify the distinct Districts. 10. Bed and Breakfast Incentive Zone. Establish bed and breakfast and quality inn zoning on periphery of each Village core in lieu of blighted or non-competitive commercial elements. Zoning should contain development regulations which respect the historic small lot pattern of the Peninsula. B. Economic Policy: Increase Revenues - Allocate Costs. Allocate economic costs and expenses associated with non-resident and visitor burdens directly to these sectors. Initiate funding alternatives and increase fair share revenue contributions, and, where practical, transfer costs from local taxpayers to third party users. Key examples include but are not limited to: a. parking management plan revenues b. imposition of extra police enforcement and maintenance costs on special burden generators, C. charter/fishing/rental boat permit fees and passenger taxes, d. market rate mooring and docking fees and other appropriate taxes, fees and assessments. -40- V1. Bay Planning - Improve the regulatory process and institute practice consistent with City wide hospitality role while preserving environmental quality and resident use of our greatest natural assets. A. City Harbor Commission. Constitute a single City Harbor Commission with full responsibility for harbor and tidelands policy, ■ entitlement, permitting, management and maintenance of the harbor and control of its users. Support and expand efforts to monitor environmental impacts of commercial uses and improve water quality . of the bay. Consolidate the current multi -agency harbor control and enforcement. Approach the County and explore transfer of Orange ■ County Sheriff's functions for harbor patrol and mooring administration ■ to City departments. B. Marine Service Industry. Preserve marine industry sales and service, firms (i.e. shipyards, marine hardware, fuel docks, etc.) to preserve heritage and ensure ample services to residents and visiting boaters. C. Hospitality for Visiting Yachtsmen. Promote harbor to visiting yachtsmen and open access to villages from bay by installing short term bay boat and dinghy docks at strategic locations. Improve the visitor service and hospitality role of the Harbor Department staff; improve communications between residents, users, and the Harbor Department by instituting a "ride along" program. D. Charter/Fishing/Rental Boat Regulations. Ensure resident respectful conditions on charter/fishing/rental boats, particularly to control noise, route of travel, and conflict with recreational boat activities. For operators using City owned dock facilities, competitive bidding for commercial license permits with specifications that prescribe reasonable limits on the size of vessel, number, and frequency of charters. 2. For operators using private dock facilities, the City should modify permit policy to prescribe stricter requirements and conditions for adequate parking, security, trash containment and other lawful mechanisms to mitigate user impact on such facilities and adjacent business and resident uses. 3. Expanded interaction of the newly constituted Marine Operators Alliance with local Yacht Club Sailing Program directors to continue the effort to reduce seasonal regatta conflicts. E. Improve Bay Circulation. Remove/relocate moorings which impose on major traffic corridors; relocate existing visitor anchorage from turning basin to an area in closer proximity to services and hospitality (e.g. Marina Park facility). -41- F. Improve Transient Access and Moorings. Convert certain moorings from long term to transient use; cluster them near key village attractions (i.e. recreation, dining, hospitality and marine services) and near to dinghy docks. Discourage continued mooring control by owners of derelict boats. VII. Security and Alcohol - Provide on an urgency basis, strict control measures that are designed to: A. Adopt Alcohol Serving Limits. Establish Peninsula -wide policies and specific criteria that requires on and off -premises sale of alcoholic beverages to be compatible with adjacent land uses. B. Balance Alcohol Serving Uses. Establish target ratios that are consistent with similarly situated beach communities (e.g. Huntington Beach, Seal Beach, Laguna Beach). Limit all new bars until reasonable ratios are achieved. Control and reduce adverse community impacts resulting from the existing high concentration of on and off -sale liquor licenses on the Peninsula. C. Increase Police and Security. Establish zero tolerance police and security measures on the Peninsula; maximize visibility of police personnel and consider a substation by joint use with fire station, library or other public facilities. D. Enforce and Audit Conditional Use Permits. Inventory and audit all existing establishment conditional use permits. Enforce, revoke or amend those that are not in compliance. Increase City enforcement staff to assure compliance with existing ordinances and previously issued conditional use permits. Scrutinize applications for permit modifications where intensification of use may be involved. -42- VIII. Aesthetics, Signage and Infrastructure - Adopt design standards and criteria for commercial signage and infrastructure planning and modify specific area plans to include the following: A. Mandatory Design Standards. Mandatory design standards and reviews that are compatible with established and developed quality commercial areas in each of the four villages. B. Underground Utilities. Prioritize under grounding of utilities and provide oversight relative to electrical, telephone and cable service maintenance cost allocations and service capability to accommodate long term Peninsula utility requirements. C. New Sign Ordinance. Adopt a new signage ordinance that provides for an amortization period of not more than five years with respect to existing non -conforming commercial signs, building painting and similar displays in order to implement and phase in a new sign ordinance and design criteria specifically designated for the Balboa Peninsula and its principal commercial elements. Provide City budget for amortization costs from Years 6 through 15. D. Aesthetic and Maintenance Standards. Prohibit painting of commercial structures that, in effect, constitute constructive sign treatments or business identity treatments that are not compatible with quality commercial areas. Provide regulatory maintenance standards to respond to future deterioration or neglect after initial sign or graphic installations. E. Business Improvement Districts. Permit and encourage business improvement districts to provide seasonal lamppost banners that identify Village events, seasonal activities and other non -product sponsored community activities. F. Public Signage. Design and articulate public directional, street and related signage that is thematically compatible and projects a quality community appearance. G. Project Green. Enhance the landscaping of all public areas including establishment of a "PENINSULA PROJECT GREEN PLAN". Initiate resident volunteer seasonal planting programs in public areas and an annual spring flower fair festival at McFadden Square to highlight the Peninsula's dedication to attractive street and residential plantings. -43- Lido Town Center �A 91-2.0-mv Fzzqn-r--T rm f Turning Baisn • Lido Town Center The Lido Town Center District (referred to in the workshops as Lido -Civic Center) is a multi -urban use village located in a triangular area east of Newport Boulevard, north of 32nd Street and Newport Bay. The District developed over many economic cycles and many legislative changes that have left varied influences on land use and architecture. The multiple uses include a variety of urban elements such as medium rise office buildings, one and two story office and commercial buildings, governmental and commercial plazas, a parking structure, churches, restaurants, clubs, marinas, a theater and several types of residential dwellings. The principle problem in the District is that a majority of these urban elements are distributed along or adjacent to the several blocks of Via Lido which should be a village business street. In actuality, Via Lido is a major thoroughfare to and from Newport Boulevard, the 55 Freeway, the Pacific Coast Highway and local shopping on 17th Street in Costa Mesa, for the 870 households on Lido Isle, the many condominiums and mobile home parks located on the Lido Peninsula and the trades people serving these residents. Lido Town Center Turning Boisn Although the District functions, to some degree, for the people who work, trade, recreate, or dwell within the locale, substantial benefits would be derived from comprehensive planning for street usage, automobile and boat parking, and City ordinances that encourage greater private investments in quality facilities. District Recommendations are: A. Town Square. Consolidate the areas bounded by Via Lido, Newport Boulevard and 32nd Street by abandoning Via Oporto and Via Malaga thereby creating a village triangle for the mix of commercial uses. Provide attractive landscape and seating areas linking City Hall, shopping, office and church uses with convenient pedestrian walkways. The Committee recommends identifying the District as Lido Town Center or a similar reference as a means to distinguish the area. -44- B. Via Lido Shopping Street. Establish Via Lido as the Village shopping street with diagonal parking to accommodate additional parking for store -front business. C. Reconfigure and Improve 32nd Street. Reconfigure 32nd Street to serve as a convenient alternative route for residents and visitors. D. Town Square - Cannery Parking Center. Establish a parking district within the block bounded by 32nd Street, Villa Way and Lafayette Avenue. Construct a parking structure with 32nd Street ingress/egress attractive landscaping to serve (a) currently inadequate City Hall requirements and (b) visitors to Lido Town Center and Cannery Village. This parking structure would also accommodate overflow beach parking and replace street parking which would be lost to other District improvements. E. Relocate Fire and Marine Department. Consider relocation of existing Fire and Marine buildings as adjunct to new 32nd Street parking facility. F. Redevelop Lido Marina Village. Initiate the formation of a Redevelopment Area at Lido Village to assist conversion of blighted and uneconomic commercial to quality medium density residential, bed and breakfast, hotel, and including improved restaurant and retail elements; require Redevelopment Plan that opens bay views and provides convenient. pedestrian and visitor access to docks and bay. Link Mariners Mile pedestrian access with Via Oporto through park triangle. G. Provide Bay Boat Access. Establish short term visiting dinghy docking facility for convenient access by small craft to Via Lido and Town Square commercial and retail establishments. -45- Lido Town Center -46- ��3e� +� �rIA"- �"f M-- M- -JT,kllt6 _pF -to NPJ� �fZu�cl P<W4---A� CF f O urir( titl� ��rscr i A', PSD Sf 101.x- BvpGr ctll �1 OUO-T "jdR'I lJ�I�IL IDIAqoN4U Pt�Kltlri WITF4 d f I O ko Ir � n ice+-�a, rzr I � 11 �� �J Vt114'l E-cT Of •1 _ � ItC Tom• � I: � L16-1 1-4j A vh W= ��Klrbi• 4 u�116 Co��yv(o Irtj�i�1� Cannery Village Cannery Village As referenced in the introduction, Cannery Village's genesis was the fishing industry of the 1930's. It developed in a manner that provided narrow streets with a multitude of mixed uses. It is important to recognize the diverse nature of this uniquely developed District and maintain the quaintness of the area. While certain commercial industrial uses complement the area needs relating to the boating and marine element, other uses are not necessarily compatible with the District. At the same time, current traffic circulation must be addressed in order to more effectively service the District both from a vehicle and pedestrian standpoint. In preserving the yachting/boating, service business, it is desirable to discourage certain industrial uses. With its disproportionate share of bars and nightclubs, certain restrictions must be put in place which will reduce the number of these uses and develop much more compatible uses such as quality restaurants. The District recommendations are: A. Recognize Mixed Use Tradition. Recognize the diverse and mixed use nature of this important traditional area which combines small art oriented specialty retail, residential, resident serving and related eclectic assemblage of related uses. B. Preserve Yachting Service Business. Encourage the preservation of boater serving commercial uses such as sail making, marine craftsmen, small craft sales, accessory shops and related established boating service uses that rely on proximity and convenient access to the bay. Give incentives for businesses to create visitor attraction and observation areas to see the trade or specialty (i.e. Mystic Seaport Village). C. Discourage Incompatible Industrial Users. Discourage industrial users and -47- Cannery Village long term dry boat storage that are not compatible with established pedestrian orientation and diversity of uses comprising the Village core. D. Restrict Bars and Nightclubs. Reduce the number of nightclubs and bars (both existing and new) that are not compatible with quiet enjoyment of the neighborhood and replace them with quality restaurants or other appropriate uses. E. Circulation Improvement. Reconfigure 32nd Street as the major access from Newport Boulevard to the Village. Improve vehicular circulation and reestablish traditional pedestrian circulation patterns with priority over vehicular traffic circulation. a F. Public Signage. Provide clear directional signage to encourage parking at the 32nd Street parking district block which is recommended to service Lido Town Center and Cannery Village Districts. Reassess role of 30th Street public parking lot with design of Town Square structure. 1, r R �• :Ai -t,,% ,Q8-, McFadden Square 00, 00, 00 00, V `a 00, 00, 00 00, V McFadden Square McFadden Square represents the historical center of Newport Beach. Its mix of restaurants, small retail stores, fast food outlets, offices, bed and breakfast, tackle shops, the Dory Fleet, the pier and the beach has always been and will continue to be a recognizable feature of McFadden Square. In order to preserve and upgrade this most valuable area, specific steps must be taken. These include: renovation and refurbishment of existing architecture, vehicular access and circulation, parking, pedestrian circulation, improvement of public transportation, development of hospitality related uses to address both local and visitor needs. The District recommendations are: A. Redesign Circulation and Access. Redesign the traffic circulation element at McFadden Square consistent with the conceptual design as presented in the Urban Design Camp Report that provides for combining Newport and Balboa Boulevards through McFadden Square. B. Improve Parking. Reconfigure existing parking areas to provide better access and circulation. Dedicate parking management plan provisions that respond to commercial and residential elements. C. Establish Redevelopment Area. Establish a Redevelopment Area that will facilitate Redevelopment of the blighted commercial elements and provide incentives for quality historic building renovations. The theme of the area should respond to and enhance the old town character of the Square and provide incentives to allow traditional McFadden Square -49- s:v{ floor area ratios that are consistent with the historical entitlements. D. Designate Key Hospitality Site. Designate a key site for a hospitality facility that will accommodate between 100 and 150 rooms to serve visitors including special facilities to accommodate visiting boaters, e.g., the Southcoast property. E. Improve Visitor Serving Commercial. Encourage quality visitor serving uses and reduce the number of bar and nightclub establishments. Replace with quality restaurants and maximize ambiance of outside dining adjacent to pedestrian areas. F. Provide Public Transportation Alternatives. Improve bus access, both tour and OCTA, and remote, off Peninsula parking opportunities for high traffic generation users. lIA -.ti-,,,� tib, ..,., � . � � 3,• ��, , � �; .;Sr:i�, . � '1,; r.:�`�• ,•;; age Ro •I `�% \ / .' � � � � f t � .� .. ill. � �:�., fill '+• 1 F ' , • �'. .n d f 1 � \� , ♦� !j t y� �Jcl itif�. ' 1 ','.c ��• •rte ,,' 11ft�� �U��. �c, SI ` y • � � • 1. .�� ` a • �_ �A or Mb 0`11 ooh I p Z97, r-� �40 McFadden Square -50- Balboa Village Newport Bay ♦ Pacific Ocean Balboa Pier Park Park M ft IIB Me.verl into Iters SraNm ?rr,tep 12/+6 Balboa Village Balboa Village revitalization will include a series of orchestrated improvement projects which will widen sidewalks, enhance streetscape aesthetics with street trees and landscaping, provide more convenient parking and traffic circulation, creative signage and enhance architectural character. The revitalization will recognize Balboa Village's uniqueness: a place of character between beach and bay. Balboa's assets need to be linked together by pleasant tree -lined walkways that allow people to easily enjoy the diverseVillage resources, from Balboa Pier to the bayfront promenade. Eliminating vehicular traffic on some streets, redesigning the main parking lot, implementing a user friendly parking management system, and improving walkways will enhance the Village. Balboa Village F Aesthetically, improvements will include landscaping; street furniture; entry artwork; clear and attractive signage; undergrounding overhead utility lines; establishing a local design review process; upgrading the Fun Zone area by opening up the Edgewater promenade to the bay and creating additional space for outdoor dining and social gathering; and providing local residents and visiting boaters with short-term docking facilities. The historical Balboa Pavilion has been selected as the symbol for theVillage. The District recommendations are: A. Improve Aesthetics and Pedestrian Walkways. Develop a Streetscape Implementation Master Plan for all Village streets and walks, to be implemented via a combination of Cit\ public works funds and an assessment district, and provide wider sidewalks and landscaping on Balboa Boulevard as Phase I. Other priority improvements include: Improve City Parking Facility. As part of a comprehensive parking management plan, redesign the main City parking lot to increase parking and replace spaces lost by widening sidewalks throughout the -�1- Village.. increase convenience of parking to serve Village businesses by incorporating pedestrian walks connecting parking to Village and bav, and improve landscaping. Redirect lot egress via Washington Street and create a central turn- around near Balboa Inn. ?. Provide Public Transportation Alternatives. Improve bus access, both tour and OCTD, and off- Peninsula parking opportunities for high traffic generation users. 3. Main Street Pedestrian Walk. Reconstruct Main Street south of Balboa Boulevard for pedestrian use only. 4. Bay Avenue Improvements. Seek expanded parking close to resident serving businesses by consolidating parking areas along Bay Avenue and enhance street aesthetics. B. Family Marine Recreation Theme. Establish a Family Marine Recreation theme to encourage preservation and enhancement of historic structures. C. Open Bay Front - Upgrade Fun Zone. Upgrade the Fun Zone area by opening bay front walkways, eliminating kiosks and other vendor obstructions along the sea wall. Provide bay boat and dinghy docks for local residents and visiting boater short term docking facilities. Establish a new Central Balboa Visitors/Ticket Sales/Reservations Center with visibility from Balboa Boulevard. Consider relocation of commercial vessels to offshore moorings during non-use. Add waterfront dock area suitable for attractive quality yachts and historical vessels. D. Improve Quality and Tenant Mix. Enhance quality and attractiveness of retail tenant mix to residents and visitors. Prepare tenant mix and Village management plan and recruitment program. Identify program with name and logo to clarify Balboa as a distinct destination. E. Design Review. Implement an advisory project design and architectural review program to allow an opportunity for members of the community to provide input and comment on proposed development and Redevelopment Projects prior to approvals. -52- /�� IA �� .� ..Y ..0 V RS C0 V .Q O. cCS O ..Q c�S OCA c� i �+ C V Cup M : " 11 j I �jl ME . 4w. rN�..i����n W' � = ,tom : •�+, rY-_ to .•� '' alp �r rrn t ~ 7 IMPLEMENTATION STRATEGIES A. Establishing Priorities for Implementation At the conclusion of the Community District Workshops in October, 1996, the Committee Members were asked, by written questionnaire, to list their personal opinions of the priorities for implementation of the myriad of issues and recommendations discussed. Subsequently, when the final draft of recommendations was agreed to, further consensus was reached to include the top three planning objectives. Also, it was the Committee's final position that each of the first three recommendations, as listed below, were of sufficient importance and urgency that they should all be considered of equal priority in the preparation of an implementation program. Highest Priority Balboa Boulevard beautification - aesthetic upgrades (including District themes and signage supported by private sign ordinance and a public signage program). 2. Parking management plan and parking block between Lido Town Center, Cannery Village and improved access via 32nd Street. 3. Traffic improvement in core retail especially the mix -master reconstruction and consolidation of Balboa,'Newport Boulevard. Next Highest Priority Improve tenant mix; control alcohol licenses/crime. 2. Comprehensive special study to consider marine hospitality/ recreational/ cultural amenity at Marina Park site. 3. More quality hospitality lodging capability - upgrade visitor (emphasis on bed and breakfast and short term/rental property standards); special study to consider resorthnarine hospitality of SOnthcoast site. 4. Manage bay asset; improve boating attraction and visitor access while maintaining harbor quality. 5. Strenuthen B.I.D.'s - consolidate for ongoiria financial support purposes. The Committee respectfully requests that the Council and staff consider such consensus priorities as they develop the process for implementation. Also, as many of the specific priorities contained in the Committee Comprehensive Planning Recommendations section not listed above are of relative ease to implement, or of nominal cost, they should be given early attention in the overall scheme which the Committee appreciates will take several years to fully accomplish "Project 2000, a Planning Vision for the Balboa Peninsula". -54- i 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 A 0 0 0 B. Financing the Vision - Cost of Status Quo and the Economics of Change The Committee well appreciates the financial implications of its recommendations. However, before the question is asked "How are we going to pay for the Vision?", consider first the past and continuing costs of the "Status Quo". Local taxpayers are writing checks to subsidize negative influences and will continue to do so until a new approach is taken to City planning. The present conditions and negative economic impacts are summarized as follows: 1. Lower assessed valuation on commercial properties means declining tax revenue. 2. Diminished City reserves have resulted in shrinking City budgets; most capital budget expenditures go to replace/restore aging infrastructure or to maintain visitor facilities. 3. Decline in Peninsula commercial element promotes a lower quality visitor and lower sales tax contribution to City. 4. Dependence upon day and short term visitors increases City burdens (parking, trash, maintenance, crime control) and provides only seasonal short term benefits. This condition has been exacerbated by the loss of approximately $100,000 of Orange County funding. Growth in bars and nightclubs has resulted in over -concentration and year -round negative influences. Prior planning studies by RUDAT have been ignored so the blighted and deteriorating conditions continue and worsen. -55- Reversing Negative Economics Before meaningful financial plans can be developed which address the negative economic factors, several fundamental changes in City economic patterns should be acknowledged. These changes are mostly demographic and most are beyond the control of the City. We cite the following: More year-round residential base and expectation of quality environment; no longer a community of beach houses; continuous residential remodeling and additions of high quality homes. Change in retail merchandising (new regional power centers and malls, e.g. South Coast Plaza, Fashion Island, Triangle Square, plus big box discount stores, e.g. Home Depot, Price Club, etc.) have shifted resident serving uses off the Peninsula and provided visitors with many selections that make the Peninsula commercial element less viable. Replacing departed tenants with nightclubs, bars, and low quality shops has produced negative impacts. Mixed use land use has brou-ht unforeseen conflicts (especially in small lot environment of the Peninsula). 4. Demographics - Unique to the Peninsula' a. Median Age - 34 (vs. 40 City wide) b. Median Income - $57,380 (vs $64,417 City wide) C. Multi -family housing serves students and young professionals (approximately 48% of households are apartment/duplex) d. Lack of growing families which are prime retail consumers (only 16% of households) e. Upscale, executive, and retired comprise approximately 34% of households Reversing the Trend - Taking the Next Steps The Committee's scope of work did not include definitive implementation plans, particularly the source of funding. However, at each juncture, there has been a conscious effort to quantify, define, prioritize and balance the needs. By doing so, we have been able to input to the City Manager and the staff a set of recommendations that are more readily submitted to analysis and more rapidly advanced to the City Council for debate and the political process which will produce a plan of action. The main focus of the City staff has been to study the Committee's preliminary recommendations based upon past practice, prior and current budget expenditures and, generally, the perspective of past attempts or studies of similar purpose. In virtually every department input, either the incomplete understanding of the recommendation, lack of staff time to further study the issue, some past policy constraint, or a need for consultant input has caused the staff to stop short of full support. However, our differences are being constructively debated and an implementation plan is taking shape. The Committee appreciates the dynamic process of evaluating change, especially when major systems and new policy thinking are advocated. Source: Linda S. Congleton R Assoc. Report dated 7-21-95 -56- The Committee foresees the need for high level interaction with the City Council, City Manager, City financial officer and City Attorney to explore alternate funding mechanisms. However, such contact has been deferred until the Council receives this report and further budget estimates can be generated by the affected department heads. Accordingly, we are able to offer only the following concepts which will require another round of staff and consultant input before the implementation plan can begin to evolve. Immediate professional planning intervention to "jump start" staff response and implementation schedule for report recommendations. Integrate community based needs and Village infrastructure improvements in City-wide capital budget/planning. Re - prioritize as appropriate. Piggyback planned public works projects as opportunities to incorporate related recommendations. 3. Strengthen and expand the role of B.I.D.s to prioritize and partially fund Village improvements and destination attractions, and monitor tenant behavior, deliver image, etc. 4. Create zoning and improvement incentives for property owners and developers to attract property conversion and upgraded land use. 5. Cooperate with both EDC and VCB efforts to attract quality tenants and visitors, extend visitors' length of stay and thus maximize their contribution to local economy and tax base. 6. Convert strategic sites to higher and better use with resulting financial returns. 7. Form Special Assessment Districts to finance resident serving infi•astructure and public improvements that maintain or increase property values and enhance general ambiance of the Villages and Peninsula. Ensure that visitor burdens are financed through appropriate user fees (i.e. parking management, charter boat franchise fees, etc.) and State funding sources (gasoline tax, etc.): plus Federal grants (UDAG, etc.). Assess extra enforcement costs to high rate violators and special burden contributors (bars, etc.) Judicious use of municipal bonding capacity for public improvements plus revenue bonds to be debt serviced by income from Redevelopment and increased sales or property taxes (i.e., leverage parking district funds). 10. Continued assessment of fair share Traffic Impact and other mitigation fees to owner/developers of Redevelopment Projects. The City Manager will be delivering a Staff Report to the City Council concurrent with this Committee report. The Staff Report will include certain budget projections for future capital projects which, in substance, attempt to show the potential funding of our recommendations. We caution the Council that, except for the early budgeted fees for needed consultant work, such projection for final planning, engineering and construction costs are at best of rough order and magnitude. These are projected numbers and should not be considered as all inclusive or indicative of the action plans and priorities which may evolve when a more thorough financial feasibility review is undertaken and alternative funding sources are identified. A subcommitte of BPPAC members has been formed to work with staff to advance a financing plan for your later consideration. We expect to conclude this final phase of our Committe's assignment prior to the scheduled sunset of our Committee on June 30, 1997. We look forward to working with the staff to advance a financing plan for your later consideration. Your attention is also directed to Volume 1, Implementation Strate-ies of the Urban Design Camp Report for various funding options to be investigated. -57- About the Committee Fritz L. Duda, Chairman Bay Island, Newport Beach Mr. Duda is the President and Owner of the Fritz Duda Company, a privately held real estate investment building and development company. He is a member of the Board of Directors of The Vons Companies, Inc. (NYSE), is a sustaining member of the Urban Land Institute and has served on numerous ULI panel study groups. He is a member of the University of Notre Dame's College of Architecture and Engineering Advisory Council. Timothy C. Collins, Co -Chairman Peninsula Point, Newport Beach Mr. Collins is the Owner and Principal of T.C. Collins & Associates, a firm specializing in real estate development consulting with emphasis in entitlement processing, financing and project construction and property management; he was previously an executive and Co-founder of Jet America Airlines and MGM Grand Air. He received his Bachelor of Science in Commerce from the University of Santa Clara and is a licensed CPA. Don Dabney Lido Island, Newport Beach Mr. Dabney retired in 1989 from a career in Human Resources with Hughes Aircraft where his emphasis was in engineering recruiting and employment. Don served two terms as President of the Board of Lido Isle Community Association. He is an alumnus of USC where he earned his degree in Geography. Jim Dobrott Lido Isle, Newport Beach Mr. Dobrott is a resident of Lido Isle and is presently retired. He served as President of W. R. Grace Development corporation and previously was employed by Rinker Development and Shell Oil Co. He received his bachelor degree from Loyola University. -58- Anne Gifford Central Balboa, Newport Beach Ms. Gifford is an attorney with J -A -M -S Endispute, an arbitration/mediation firm, and over the past 20 years has both legal experience and hands-on business experience, including The Wickes Companies and Dayton -Hudson Corporation. She received her law degree from San Diego Western State University. She is currently the Chair of the Newport Beach Planning Commission. Rush N. Hill, II Newport Heights, Newport Beach Mr. Hill is the Chairman and Founding Partner of the Hill Services Companies; and previously worked as Education Advisor in Governor Reagan's administration. He has a business administration degree and an architecture degree from Cal Poly in San Luis Obispo, and is a registered architect in California and seven other states. He is a member of the Board of Directors of Orange Coast College Foundation, Chairman of the Newport Beach City Council Ad Hoc Economic Development Committee, and Chairman of the Board of Directors of the Newport Harbor Area Chamber of Commerce. Michael Kranzley Balboa Village, Newport Beach William Wren Peninsula Point, Newport Beach Mr. Kranzley is a Vice President at Paine Webber in Newport Beach, Former President of the Lido Sands Homeowners Association and member of the Bicycle Trails Committee, Mike is currently serving as Vice Chair of the Newport Beach Planning Commission. He also served on the Planning Commission Steering Committee for the Comprehensive Review of Title XX Zoning Code. Timothy L. Strader Corona Del Mar Mr. Strader is a 26 year resident of Corona Del Mar and is President of The Legacy Company. He was a partner with Don Koll in the development of Koll Center Newport and Lido Village. He received his law degree from UCLA. He is a member of the Board of Directors and Executive Committee of the Orange County Performing Arts Center. He is a member of The State Contractors License Board and remains active in real estate development and management. -59- Mr. Wren is the President of William A. Wren Company, a real estate consulting firm. Previously he spent 20 years with Chevron Land and Development Company as a Senior Project Manager and has also participated in several different Urban Land Institute projects. He has an economics degree and an MBA from Stanford University. He is a Director for the Orange County Chamber of Commerce and is a member of numerous community committees and charitable groups. Community Representatives - District Planning Workshops - Facilitators: Urban Design Camp Jack Camp - President, Urban Design Camp Mike Adams - Urban Design Camp William Blurock, FAIA - Blurock Partnership, Advisor to Jack Camp and BPPAC Cannery Village Balboa Village Lido Town Center McFadden Square John Bary Ron Baers John Cotton John Curci Bob Black Bill Dunlap Gary Disano Don Donaldson Jerry King Jane Elliott Bill Ficker Tod Ridgeway Russ Fluter Ray Handy John Sipple Bill Hamilton Chan LeFebevre Clarence Turner Steve Lewis Dan Thompson Buzz Person John Wortmann Michael Porter - Gary Adams Marcia Dossey Henry Johnson George McGaffigan Rob Roubian Fran Ursini Appendix "A " i RESOLUTION NO. 95-32 i A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF NEWPORT BEACH ESTABLISHING THE BALBOA PENINSULA PLANNING . ADVISORY COMMITTEE. WHEREAS, the City Council has received communication from residents and business people that the type and quality of commercial development on the Balboa Peninsula does not well serve the residents on the Peninsula and the City as a whole; and WHEREAS, the City Council desires to investigate the nature and extent of this problem and to seek solutions; and WHEREAS, the City Council in addressing this problem desires to appoint a Committee composed of community members all of whom are knowledgeable in commercial redevelopment and some of whom live and work on the Peninsula. NOW THEREFORE BE IT RESOLVED that the City Council of the City of Newport Beach hereby establishes the Balboa Peninsula Planning Advisory Committee as follows: MEMBERSHIP: The Chairman of the Committee shall be Fritz Duda. The remaining members shall consist of three members at large and three members who live in and shall represent the Peninsula/Lido Area. TERM: The Committee shall sunset upon presentation of its final report to the City Council or December 31, 1995 which ever occurs first unless the term is extended by action of the City Council. FUNCTION AND DUTIES: 1. Develop a Study Design. The initial task of the Committee shall be to investigate the general scope of the problem and to determine how best to address it in terms of the precise geographical boundaries, the staffing and/or consultant requirements and a work program. The work program shall provide ample opportunities for public hearings and citizen input. 2. Determine Funding Requirements, The Committee shall determine what funds or other resources are necessary to complete the study outlined in the first task and shall seek to secure such funds by making recommendations to the City Council, seeking grants or other appropriate means. 3. Coordinate and Monitor the Study Program. In concert with City staff, the Economic Development Committee or others as appropriate, direct and participate In the study process and ensure that periodic progress reports are made to the City Council, 4. Recommend Implementation Measures Upon completion of the study program and the identification of solutions, this Committee shall recommend to the City Council the ongoing organizational and financial commitments necessary to implement the preferred alternatives. Page 2 STAFFING: The Committee shall receive assistance primarily from the Assistant City Manager and periodically from other City departments as necessary. The Economic Development Committee shall also provide assistance and coordination as necessary. ADOPTED this 13th date of March _N�w� � MAYOR ATTEST: �•nv. r. p� iyy��R,.'' CITY CLERK U�11:r r 1995. Appendix "B " BALBOA PENINSULA PLANNING ADVISORY COMMITTEE BALBOA PENINSULA PLANNING POLICY RECOMMENDATIONS (Revised October 11, 1995) DESIGNATE BALBOA PENINSULA AS A SPECIAL PLANNING DISTRICT. DEVELOP A PLAN FOR COMMERCIAL PLANNING AND RESIDENTIAL POLICY ELEMENTS THAT MEETS BOTH TRANSITIONAL AND LONG- TERM OBJECTIVES. POLICY CONSIDERATIONS NECESSARY TO ESTABLISH POSITIVE CHANGES. 1. Balboa Peninsula - Sense of Place: Provide specific plans that will create a mission and sense of place to differentiate unique roles of the four principal commercial areas: • Lido - Civic Center • McFadden Square • Cannery Village • Central Balboa 2. Mission Statement: Adhere to mission statement for a quality community which would include: • . Enhance and expand residential element. • Consolidate and redevelop concentrated quality commercial elements. • Enhance landscape and streetscape for residential and commercial elements. • Consider Redevelopment Agency and comprehensive Redevelopment Area plans. • Revise planning and zoning ordinances to provide incentives for both transitional and long term plan objectives. -1- 3. Residential Compatibility: • Encourage resident -compatible commercial -retail uses. 4. Strategy for Attracting Quality Visitors: • Encourage uses that attract visitors who make a positive economic and social contribution. • Discourage uses that attract visitors who make a negative economic and/or social contribution. • Focus on key historical and cultural sites that provide greatest improvement potential. 5. Crime and Security: • Reduce and control quality of on and off sale liquor license establishments. • Consider limitations and restrictions on liquor stores, bars and theater -nightclubs. • Increase patrol levels. • Consider highly visible police substation at or near Central Balboa. 6. Parking Management Plan: Establish and implement a Peninsula Parking Management Plan that: • Restrict visitor parking in residential areas. • Gives resident users priority privileges. • Allocates financial burdens to high impact users which adversely impact residential and commercial -retail businesses and which provide little or no economic benefit to City. -2- • Prohibits credit for remote parking facilities in entitlement process without appropriate mitigation (i.e., provision for shuttle or transportation services). • Reduce dependency for vehicular access and parking. Encourage pedestrian access. 7. Oven Bay Front: • Open bay front in Central Balboa and selected key areas for visiting yacht facilities to provide access by bay and bring tourists to area by water. • Establish Bay Management Plan to enhance service and control for yachting, recreational and resident users. • Discourage negative influences and uses that interfere with stated objectives. 8. Quality Hospitality: • Establish Bed and Breakfast zones • Establish key sites and incentives for quality lodging and hospitality facilities • Vigorously enforce short term lodging ordinance and establish minimum hospitality quality standards as a condition to permitting short term rentals. 9. Maintenance and Code Enforcement: Increase code enforcement and establish a maintenance ordinance to address deferred and declining commercial and residential elements. 10. New Sian Ordinance: Establish a comprehensive sign ordinance for the Peninsula Villages. 11. Traffic Circulation: Develop a new traffic circulation plan which recognizes: • The necessity for a new circulation plan at McFadden Square. -3- • Peninsula capacity limitations and residents' necessity for reasonable ingress, egress and compatible commercial -retail elements. 12. Opportunities: Maximize opportunities and existing economic strengths. Key examples: • The Bay as an amenity. • Marine sales and service industry. • Visiting yachting and regatta participants. • 15th Street Marina, hospitality, lodging and yachting center potential. 13. Transfer Traffic and Parking Impacts: Transfer high traffic and parking impact uses off Peninsula. 14. Community Issues Management: Institute a community issues management strategy to clearly understand the community issues and develop support for key elements of the plan. Prioritize the key catalysts that stand for quality change. Coordinate planning program with Economic Development Program. 15. Transitional Interim Measures: City Council must be willing to invoke urgent transitional ordinances and zoning controls designed to: • Prevent addition of commercial uses that are inconsistent with stated objectives. • Control expansion or transfer of existing undesirable uses. • Proactively seek desirable uses for strategic sites. • Control existing enforcement costs. • Demonstrate to community at large that City is committed to change. (BPPAGI 5.PT) 52 Printing by Costa Mesa Blueprint/Mouse Graphics Costa Mesa, California