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HomeMy WebLinkAbout05/14/1996, 1 - CREEK SETBACK ORDINANCE �Il��ylll�lll�ll�lp II Ilulll MEETING DATE: �, p IIfNMII Of San �U,S OB'SPO ITEM NUMBER: = COUNCIL AGENDA REPORT FROM: Arnold B. Jonas, Community Development Director Cfl'r BY: Glen Matteson, Associate Planner John Mandeville, Long-Range Planning ManagefiIZ4 SUBJECT: Creek Setback Ordinance CAO RECOMMEENDATION: Provide direction to staff regarding the desirable scope and content of a revised creek setback ordinance. If acceptable, direct staff to: 1. Revise the standard setback to more closely resemble the current administrative creek setback policy, requiring a 20-foot setback within the city limits. 2. Recognize the mitigation measure contained in the Land Use Element EIR by requiring a larger setback for certain creeks, as areas outside the existing city limits are annexed and subsequently developed. Focus the application of a larger setback on the larger creeks. 3. Revise the exception provisions of the ordinance to eliminate the averaging provisions and to incorporate some of the application and findings recommendations presented in the "Streamlined" version of the ordinance presented to the Council. 4. Require setbacks within the Central Commercial zoning district, recognizing that most of this area is built out with no setback, and that most new development would be eligible to request an exception. Specify the recommended dimension of the setback, if 20 feet is not desirable. DISCUSSION Background In setting goals for the current budget cycle and in adopting updated land use and open space elements of the General Plan, the Council previously has given high priority to adopting an ordinance which would provide standardized creek setbacks. The purpose and some basic features of a creek setback ordinance are outlined in the updated elements. The Council-certified Environmental Impact Report for the Land Use Element update contained a mitigation measure stating that stream buffers larger than those typically provided under the current Community Development Department administrative policy be required. Staff took this direction and drafted a setback ordinance for the purpose of focusing Planning Commission and public comments at a series of workshops. The product of these public workshops and Planning Commission hearings was a draft ordinance in which the Planning Commission worked to incorporate and balance the desires of the various people who presented ideas through the process. 1 1mN11II111olig city of San ` .JS OBISp0 COUNCIL AGENDA REPORT At its April 16 meeting, Council considered the recommended ordinance from the Planning Commission along with some additions suggested by staff. The Council also received a version of the ordinance recommended by a group of concerned citizens. The Council received many comments from the public. Many of these comments were similar to the comments made at the workshops and Planning Commission hearing. In addition, many of the speakers requested that rather than adopting the Planning Commission version of the ordinance, the Council direct staff to continue to use the Administrative Creek Setback Policy. Major points of discussion were: • The proposed setbacks would be a large part of many particular parcels, greatly reducing their development potential and possibly resulting in a taking of property requiring the City to compensate the property owner; • Certain waterways should not be classified as "creeks", or that setback dimensions should be related to creek types, especially setbacks greater than 20 feet for some creek segments; • Having too many exceptions, especially the non-discretionary or "automatic" exceptions for setbacks less than 20 feet would be in conflict with the idea of opening up the creek corridors; • The cost of requesting exceptions for homeowner's small projects would be an undue burden for homeowners. • Whether or not it is appropriate to exclude the Central Commercial zoning district from a setback requirement. Study Session Format In most communities, study sessions are used to allow for a more informal discussion of issues among council members and staff. Public testimony is limited, if allowed at all. Over the years, our study sessions have evolved so they are at times very much like regular hearings. In this case, given the complexity and misconceptions surrounding the proposed ordinance, staff recommends that we use a more traditional study session format. Doing so will allow more opportunity for questions and answers, and the informal exchange of ideas between Council and staff. Following this study session, another public hearing will be held to consider a proposed revised ordinance. Prevailing Misconceptions The purpose of using the earlier workshop process to develop the ordinance for Council's consideration was to uncover issues early and provide as much public education regarding the ordinance as possible. This process was successful in identifying issues, as these remained fairly constant up to and including the Council meeting. However, several fundamental misconceptions regarding how the ordinance would work were not overcome in spite of addressing them specifically at the workshops. 2 ����►��nu��lipil��� city of San 1. .S OBISPO COUNCIL AGENDA REPORT Taking of private pn=M. Several speakers mentioned that the proposed ordinance would result in a.taking of their property requiring that the City compensate the property owner for the value Of the land made unusable. Both Community Development and the City Attorney's Office staff have reviewed and discussed this issue carefully. The Assistant City Attorney made a presentation at one of the workshops regarding the issue of takings. The previous Council report discusses this issue. In short, the proposed setback ordinance is not a taking because it is based on an identified public purpose; it does not impose burdens beyond those necessary to achieve the stated public purpose or necessary to mitigate the impacts of the regulated development; and it does not deprive the property owner of all reasonable or economic use of the property. The proposed ordinance was drafted to be as fair as possible. The previous Council report discusses how fairness as a major concern in the deliberations over the language in the ordinance. It was recognized that out of all the 364 parcels in the City located adjacent to creeks, a small percentage would be burdened by the standardized setback more than others. This is the case with almost any standardized setback and is why the use of an exception process, such as a variance is so prevalent in zoning regulations. The exception process keeps the standard regulation from creating a takings situation for those properties that would be unduly burdened by the standardized setback. The proposed creek setback ordinance contains exceptions that do this. "Automatic" or "non-discretionary" exceptions, Several comments were received at the Council hearing regarding exceptions a property owner could receive that would not require some type of formal review and approval process. The setback averaging provision is an example of this type of exception. Several of these speakers stated they were opposed to automatic exceptions that could be approved as part of a specific plan, development plan, subdivision, use permit, architectural review, or plan for public facilities. However, each of the approval processes described involve noticed public hearings, reviews before formal hearing bodies or officers, and findings specific to the creek setback exception being requested. With the exception of specific plan approvals where the final decision is made by the Council, each of the other types of reviews are appealable. The purpose of the proposed Section 17.16.025.E.2.c is to allow exception requests that are a part of a larger project to be reviewed concurrently with that project and with a higher level of review than a single creek setback exception. Rebuilding within the footprint of existing buildings. Several people commenting on the ordinance felt that allowing a property owner to rebuild a structure within the footprint of an existing structure that encroached into the standard setback area was in essence an automatic exception that should be eliminated. This provision is an automatic exception; however, it is an adopted policy in the City's Open Space Element and cannot be dismissed by an implementing ordinance. If it is the Council's desire to eliminate this exception or in some way reduce it, the policy should be amended to maintain clarity and consistency between the general plan and the zoning regulations. 3 /-3 �ii� I01II�I��i ►���� city of san l ,s osispo COUNCIL AGENDA REPORT Different visions for the City's waterways. The polarized comments presented to the Council on this issue illustrate the different, competing visions for the City's waterways held by City residents. One item of correspondence noted that some members of the community have a vision of the City's future in which the creek corridors have been transformed to more healthy riparian habitat corridors by moving the buildings away from the creeks over time. Others have expressed the opinion that things are fine the way they are, perhaps getting slowly better. The General Plan policy allowing structures to rebuild within existing footprints, and the draft ordinance previously presented to the Council, are based on a vision on the City's future in which the urban pattern within the existing city limits is basically unchanged. Even so, the goal would be to improve quality of creek corridors by limiting what could be built or placed within the setbacks, by applying the setback more consistently, and by improving the City's ability to enforce the setback regulations. New areas that are added to City would have wider corridors or vegetation adjacent to the creeks. Staff believes this is the vision embodied by the General Plan. One of the functions of the General Plan is to provide direction in situations where guidance is needed. The Council may find it useful to review Chapter II.B of the Open Space Element and Section 6.4 of the Land Use Element for some additional perspective on this matter. Council Direction for a Revised Draft Ordinance The four Council members who participated in the discussion at the Council's first public hearing on the Creek Setback Ordinance did not discuss the specific components or provisions of the ordinance. The only action taken was to continue to a study session. Although specifics were not discussed, there appeared to be a desire on the part of a majority of Council members that the City adopt a creek setback ordinance pursuant to the General Plan. In addition, comments from the public and the Council implied that the current administrative creek policy could be the foundation for an adoptable ordinance. Staff is recommending that the Council affirm this understanding if it is correct (Recommendation #1). A copy of the Administrative Creek Setback Policy is attached. Staff also recommends addressing the items that were the subject of the most substantial discussion at the Council's last hearing on the ordinance. With regard to the major points of discussion identified above and repeated below in italics, staff suggests the following: • The proposed setbacks would greatly reduce the development potential of many properties and may result in a taking of property requiring the City to compensate the property owner. - The standard setback should work for most property located adjacent to a creek. The exception process eliminates the takings issue for properties that would be rendered undevelopable by the setbacks. Standardizing the 20 foot setback required by the Administrative Creek Setback Policy for areas within the current city limits will help provide continuity and minimize conflicts between old and new setback requirements. (See Recommendation #I). 4 �_� llilqjqlqwgI city of san t s osi spo Niig COUNCIL AGENDA REPORT • Certain waterways should not be classified as "creeks, "and setback dimensions should be related to creek types, especially where setbacks greater than 20 feet would be required. As an alternative to designating creek segments as "encroached" or "not encroached" as a means of determining the required setback distance outside the current city limits, the required setback for areas being added to the City could be based upon the width and characteristics of the creek channel. This alternative is based on the assumption that the width and condition of a creek channel is a determinant of the amount of creek habitat that creek segment could support. Thus, where the creek channel is less than a certain width, or extends less than a specified distance between lined sections, a 20-foot setback would be required. Larger setbacks could be required if significant riparian vegetation or the 100-year flood plain extends beyond the 20-foot setback line, or if there is a proposed or adopted future channel widening. (See Recommendation #2) • Having too many exceptions, especially the non.-discretionary or "automatic"exceptionsfor setbacks less than 20 feet would be inn conflict with the idea of opening up the creek corridors. The only "automatic" exceptions in the proposed ordinance involved the setback averaging and the exception called for in the Open Space Element. Minimizing exceptions simplifies the ordinance; however, it can also lead to the equity issues discussed in the previous staff report. Staff now recommends eliminating the averaging provision. Staff also supports including the additional application information requirements and findings described in the "Streamlined" version of the ordinance presented to the Council. However, staff recommends that the hearing procedures for the exceptions be as presented in the previous version of the ordinance. (See Recommendation #3). • The cost of requiring an exception for a homeowner's small project would be an undue burden for the homeowner. Maintain the procedure that a basic exception be processed as an Administrative Use Permit that can be appealed. The administrative use permit is the least costly type of planning application which requires a noticed public hearing. • Is it appropriate to exclude the Central Commercial zoning district from a setback requirement? There has been substantial interest in opening certain sections of the creek in the downtown C-C district. This is consistent with the Physical Concept Plan for the Downtown. Because the C-C district is essentially built out with little or no setback, most of the properties there would be eligible to apply for an exception, which would result in a case-by-case evaluation of development requests for these properties. (See Recommendation #4) Attachment: 1. Administrative Creek Setback Policy CARS-14.CSO 5 /- .500 + ��ifl�lllllili�IIYLUUIIII i 111 ENI city of sAn tuts OBISPO 990 Palm StreetlPost Office Box 8100 • San Luis Obispo, CA 93403.8100 October 20, 1988 To: Planners From: Mike M Subject: Draft administrative creek policy Note: the following are guidelines, not strict standards, and may be varied from when the planner, with the Director's concurrence, judges that the intent can be met through alternative approaches. 1. When reviewing any development proposal, all unlined, open drainage channels should be evaluated as potential sensitive habitat areas (ie: riparian corridors to be preserved or enhanced). i In general, such channels should not be culvertcd, filled or encroached into. Exceptions could include: a. Minor drainage channels (guideline: less than three feet across); b. Short (guideline: 200 feet or less) sections of channels which tie together lined or cul°verted drains; e. Improvements necessary for erosion control, flood protection or circulation, reviewed and approved pursuant to existing adopted policy. In all cases, the Director, Principal Planner or Long-range Planner should be consulted before a channel is determined not to be a sensitive habitat area; if there is any significant doubt, the Department of Fish and Game should be consulted, too. 2. New structures including parking lots should generally be set back at least 20 feet from the top of bank. 'Top of bank' means the physical top of bank (ie: where the more steeply eroded bank begins to flatten to conform with the terrain not cut by the water flow). If the bank is terraced, the highest most step is the top of bank, not any intermediate step. (In some cases, the top of bank will not be apparent; the Director, Principal Planner or Long-range Planner should be consulted to help determine a reasonable line, considering such variables as the top of bank on the other side of the creek, the extent of riparian vegetation and the 100-year flood line.) Draft Creek Policy Page 2 A. Greater setbacks may be required if I. significant riparian vegetation extends beyond the 20-Coot line; 2. a setback line has been adopted or proposed by Public Works which is farther from the bank; 3. the 100-year flood plain extends beyond the 20-Coot line. B. Lesser setbacks may be acceptable if: 1. the channel is minor and is not judged to be a significant riparian corridor or likely to be part of the urban trails system; 2. the lot is small, and reasonable development without some exception is impossible; 3. the lot is a small infill site where a clear pattern of lesser setbacks has been established on both sides of the lot along the creek. l I In all such cases where setbacks are to be reduced or increased, the Director and Principal Planner or Long-range Planner should be consulted. 3. If the site is considered by the Long-range Planner to be a possible link in the urban trails system, then an offer of dedication for public access should be required as a condition of any discretionary permit. 4. All areas in the setback should be dedicated in an open space easement as a condition of approval of any discretionary permit. S. If the corridor has been degraded, a restoration program may be required as a condition of approval for any discretionary permiL 6. Sites with creeks are considered to be 'sensitive sites' for architectural review purposes; projects which would not otherwise need architectural review Should be taken in as minor and incidental and may be approved if the guidelines above are met; if they are not met, then the project should be referred to the ARC with a recommendation that the guidelines be followed. /- 7 � Q MEE. G AGENDA 10 C 1 T Jr DATE ITEM # T_ Z -. cC RICHARD SCHMIDT U .a 112 Broad Street,S . . ujs Obispo oCA 93405 (805) 544-4247 02 :8'CiJUNCIL �CLJ tJIR ' email:rschmldt®cal edu V. Oj AO ❑ FIN DIR Poly G-AcAo ❑ FIRE CHIEF May 4, 1996 a�-A�TTORNEY ❑,PVTDIR IS-VEERIVORIG ❑ POLICE CHF"' Re: Creek Setback Ordinance ❑ MGM(TTEAM ❑ REC DIR ❑ C R��f SE O UTIL DIR To the City Council: - -__ —_❑ PEris vl The enclosed letter from the California Audubon ciety�camein the mail yesterday, and I thought it might interest you. As you can see, Audubon is very concerned about the loss of riparian habitat throughout the state of California-- so concerned, in fact, that it is undertaking a major fund raising drive to try to do something about the problem. The letter states, factually, that more than 90% of California's riparian habitat has been destroyed. What remains hangs by a thread, and with it, the species which depend upon it. I think this underscores the issues that face you in your deliberations on the creek setback ordinance, which is designed to protect and permit restoration of riparian habitat within the city of San Luis Obispo. The letter puts into a stark spotlight the importance of a local resource that we tend to take for granted: What we have here is precious, and ought to be cherished and protected by us. Should we protect this dwindling resource which it is within our jurisdiction to protect? Or should we turn a deaf ear and blind eye to the problem, contribute to the on-going degradation and loss of an important and endangered habitat resource, and then bemoan our loss of songbirds and other habitat-specific species? You are all thoughtful people, and I'm sure you can see the importance of pro-active, preemptive conservation action with regard to this endangered habitat. I urge you to join with Audubon's efforts by helping to preserve our share of the 10% of this important habitat resource that still exists. Sincerely, ichard Schmidt Attachment: Audubon "Rivers of Birds Campaign" letter National`'Audubon Society ,c Californian Field Office `'Audubon 555 Audubon Place Sacramento, CA 95825 (916)481-5332 (916)481-6228 fax Dear California Audubon Friend, Spring in California is a time when hundreds of thousands of birds migrate to our state to a find a place to nest and raise their young. Among them are species like the yellow-hued Wilson's warbler, the highly threatened Swainson's hawk, willow flycatcher, and yellow billed cuckoo, and the brilliant red summer tanager. What do these and 38 other species have in common? Each spring, for thousands of years, they and their ancestors have journeyed north from Mexico and the Tropics to find a home in California's riparian forests— those dense stands of cottonwoods, willows, alders, and sycamores lining our streams, lakes, and springs throughout California. In these forests, they build their nests and raise the next generation of beautiful birds that we will see and hear. But there is trouble in this otherwise wonderful story. Even though riparian forests are among our state's most important and productive wildlife habitat, they are under siege due to a number of destructive factors -- stream channelization, development, logging, grazing, and water diversions throughout California -- resulting in a massive reduction of this magnificent habitat. Today, less than 10% of California's. original streamside habitat still exists. Even these remaining portions continue to be developed or destroyed. Have you noticed fewer birds through your yard and garden each spring? In part, we believe this is due to the decline of our state's riparian forest habitat. Clearly, more must be done to protect and restore these habitats valued by such a variety of birds. Audubon, with your continued support, is answering the challenge to protect and restore California's dwindling riparian habitats through our Rivers of Birds Campaign. The goal of this campaign is simple . . . protect and restore our state's riparian habitats so that more birds will grace our skies and your backyard for generations to come. Here is what Audubon's Rivers of Birds Campaign is doing over the next five years to protect riparian habitats and the 135 California bird species depending on these areas during all or part of their life cycle. We are: • Creating a network of high-quality streamside habitats throughout California to enhance and protect native birds. • Restoring over 1,000 miles of riparian habitat on public and private lands using scientifically valid restoration techniques. (over, please) • Improving the wildlife values of riparian communities using appropriate management techniques. • Educating the general public and resource managers about the value of California's riparian habitat. • Developing guidelines for the protection of existing riparian habitat on public lands and recommending habitat protection programs on private lands. Your contribution to Audubon's Rivers of Birds Campaign will help put more birds in our skies in years to come. Please consider a generous gift today. Your donation will be used to: plant trees . . . build nest boxes . . . educate kids and adults about birds and forests . . . work with landowners to improve habitat . . . make sure that good laws protecting birds are passed, and bad laws that harm our wildlife are stopped, . . . help Audubon chapters working in local communities around the state . . . and much, much more! As a life long Californian, I have seen the great loss of birds and riparian forests in our state. The challenge to reverse this damage is enormous, and it will only happen through the cooperation and commitment of dedicated Californians to get the job done. In addition to my Audubon duties, I am also privileged to serve as chairperson of the California Riparian Habitat Joint Venture, an effective partnership of conservation groups and public agencies, all working together to undue the damage that's been done to our .state's riparian resource. I am especially proud that our Rivers of Birds Campaign is a critical part of this statewide movement. Would you please give a generous gift of $100 or more to the National Audubon Society and become an important partner in our Rivers of Birds Campaign? Your donation will help ensure that tomorrow's birds will have a healthy home when they come to California to raise their young. Thank you for your support of birds, and Audubon! For a healthy environment filled with birds, DANIEL TAYLOR Executive Director PS: We need both your financial help and your volunteer support. Please let us know if you are available to write letters on bird conservation issues or to become a volunteer with your local chapter. We will make sure you receive the appropriate materials. Bobelaine Sanctuary • California Legislative Affairs Center • Los Angeles Education Center Mayacamas Mountain Sanctuary • Richardson Bay Audubon Center • Starr Ranch Sanctuary Paul L.Wattis Sanctuary AU604DI Recycled Paper i`f cow-)01I - ct,. f-56fiL.EY G(TY ear 5AAJ I U6 liter CAWOIJs 5AWMCE qqo ppri' l SST 155& t-Pr Cir 1TA Cou.024� 5W I W5 D93E5jG� `131fO1 32zt? 5w �W5 Dwfw S3gol. MEETING—= AGENDA , - RECEIVED W- i3� c 6 DATE !`�y� BT9NI J :; -- MAY 1 � IV96 CITY COUNCIL ¢pn - ..ncon rq SCU3J�GI SONtE DF M4 / Co/vlMaUl-5 OA) TbfE GTt( 6aE,5K OAX)IMkPC4 FDP, `e602, iqF &tPCoM,l/lY--.7 STC,(W 5LQQ Ong Tits t5suF s�i4��. 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AAsb D MORE L�+L. p��95c8tL4 IYPoUD CA►�93'�DG, A�t9b �^ R"L T +15 O2diA)PUN3cF- O1AE-55 M>McaOJ-� of 61-cY < PUPARIW V06eTtT(-Ot6 JAJ CITY P IPAPJAA) CMra PUMRs. 5EVWT14 7 PWA6e RSD PAGES 10-12 or MY dt/i.2/% ijMrg Td (qu Tb A5:5W�r- Ti4Ar IOF- ftRE WT-*J�a4 A-4(A9Mkrp a-rRE-P, GMb .6 Ter 1-PW a9�T?iF- COY Celpb IA-)AAj0Z;F- tq,j AA)tVPrj-r:5 COpK-, 5WWA3 17,/'f. OZO 04lib G tN TIE aUKAODWAAM. /4gt, PsE,Fu G Prrzs�s TPrRbS�k Amb W rr14 STANbA)$X'SE1WX HOZE 96 k)rrd ST�t�DPoQD ?19 SE,TBAGC Figure 4.1 Creek Setback M as . . i main •. •' E RIPARIAN PLANTS G 01 OF BANK 1^;,. ' '`y�(R , ••:, ¢ -r• "�' - '.• REnUIRED SETBACK CoA • • • . • •• • • •• . r. . .•. . .• Figure 4.2 Creek Setback Averaging Example c A Vacant 20' STANDARD SETBACK I assume 20' 1p0• 20' / CALCULATION OF AVERAGE: -TOPO/F BAKi A 10 10' p. J B 20 'Il C 20 CREEK D 5 1�,`,I. IS' Required setback E 20 7 BRIDGE S' p OF gANi' F 30 �/ E G 4(building in charnel is not a negative number) _ 105 o >1 r c F G 100 D I� o I a N III N A I F W W c A aU >s .