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HomeMy WebLinkAboutPhase I - Land Use Element Amendment To The General Plan - R Abffidavit -of: Ptilication a State of California'" County of Orange ss City of Huntington Beach George Farquhar, being duly sworn on oath, says: That he is a citizen of the United States, over the age of twenty-one years. That he is the printer and publisher of the Huntington Beach News, a weekly newspaper of general circulation printed and pub- lished in Huntington Beach, California and circulated in the said County of Orange and elsewhere and published for the dissemination of local and other news of a general character, and has a bona fide subscription list of paying subscribers, and said paper has been established, printed and published in the State of California, and County of Orange, for at least one year next before the publication of the first insertion of this notice; and the said newspaper is not devoted to the interest of, or published for the entertainment of any particular class, profession, trade, calling, race or denomination, or any number thereof. The Huntington Beach New was adjudicated a legal newspaper of general circulation by Judge G. K. Scovel in the Superior Court of Orange County, California August 27th, 1937 by order No. A-5931. That :the NOTICE OF PUBLIC HEARING Published Huritingtoraa6each News, Dec. 6, 1973. NOTICE OF PUBLIC HEARING LAND USE ELEMENT — GENERAL PLAN LAND USE ELEMENT - GENERAL PLAN,. of which the annexed is a printed copy, was published in said news- `DICE in HEREBY GIVEN that a I public hearing will be held by the City ; Council of the City of Huntington.Beach; ' OIl@ 8 S Ue in the Council, Chamber of the Civic i paper at least Center, Huntington Beach, at the hour of 7:00 P.M., or as soon thereafter as possible, on Wednesday the 19th day of commencing from the 6th day of December December, 1973, for the purpose of 1 considering Phase I Land Use Element; 6th to the General Plan. A copy of said plan. 19��., and ending on the y of De cembe r :i&•on file in the City Glerk's office. All interested persons are invited to attend said hearing and express their 1 192-3—, both days inclusive, and as often during said period and opinions for or against slid 'Element. times of publication as said paper was regularly issued, and in the Further information,may be obtained regular and entire issue of said pewspaper proper, and not in a from the Office,of the City Clerk. November 30,-1973 supplement, and Said notice was published therein On the following DATED: CITY OF HUNTINGTON BEACH dates, to-wit: By ALICIA M. WENTWORTH I City Clerk Dec. 6, 1973 47 I � � ublisher Subscribed and sworn to before me this 7th day of December 19_72_ Notary Public Orange County, California THOMAS D. WYLLIE Notary Public-California m Orange County • My Commission Expires September 12, 1974 r-'y of Huntington Beach County of Orange State of California Affidavit of Publication of GEORGE FARQUHAR Publisher Huntington Beach News Filed Clerk By Deputy Clerk -w' Number of Excerpts None Publish Once i LEGAL NOTICE NOTICE OF PUBLIC HEARING NOTICE IS HEREBY GIVEN that a public hearing will be held by the City Planning Commission of the City of Huntington Beach, California, for the purpose of considering Phase . I Land Use Element to the General Plan Said hearing will be held at the hour of 7 : 00 P,Efm , on December 11 , 1973 in,,the Council Chamber of the Civic Center, Huntington Beach, California, on 5th Street" between Main Street and Orange Avenue. All interested persons are invited to attend said hearing and express their opinions for or against the proposed Element to the General Plan Further information may be obtained from the City Planning Department. Telephone No. (714) 536-5271 DATED this 29th day of November 1973 CITY PLANKING COMMISSION By City Clerk City of Huntington Beach The Huntington Beach Planning Commission, at their -regtrlar/adjourned meeting held December 11, 1973 will , recommended �ppr'oval of Open Space and Conservation Element Land Use Element If approval has been recommended, the City Council will be required to hold a public hearing on this matter. Although there is a 10 day appeal period, we suggest that the matter be set for the earliest possible City Council meeting, because the purpose of any appeal is to have a hearing before the City Council and this is already being accomplished. We further suggest that you not accept any appeal, as it will serve no purpose. If approval has been recommended other than as requested, the City Council will be required to hold a public hearing on this matter. However, there is a possibility that the Planning Commission's decision will be appealed; therefore, we suggest that publication be held off until the 10 day appeal period has expired. If denial has been recommended, the City Council may summarily deny the request. However, we suggest that the matter not be scheduled on the City Council agenda until the 10 day appeal period has expired. A copy of the Planning Department legal notice, and a list of owners of property within 300 feet of the subject area will be submitted upon your request. The applicant in this matter is Planning Department (Address) City of Huntington Beach, P.O. Box 190 (Telephone) 536-5271 . Kenneth R. Reynolds, Planning Director By SPierce Environmental Impact Report alpxzn � ERB approval expected on 12-18-73 Exemption declaration approved (� Excluded Publish 12/6/73 Poo tcards none NOTICE OF PUBLIC HEARING Land Use Element - General Plan NOTICE IS HEREBY GIVEN that a public hearing will be held by the City Council of the City of Huntington Beach, in the Council Chamber of the Civic Center, Huntington Beach, at the hour of 7:00 P.M. , or as soon thereafter as possible, on Wednesday the 19th day of December , 19, 3 , for the purpose of considering Phase I Land Use Element to the General Plan. A copy of said plan is on file in the City Clerk's Office. All interested persons are invited to attend said hearing and express their opinions for or against said Element . Further information may be obtained from the Office of the City Clerk. DATED: November 30, 1973 CITY OF- HUNTINGTON BEACH By: Alicia M, Wentworth City Clerk Huntington Beach Planning Commission P.O. BOX 190 CALIFORNIA 92648 TO: HONORABLE MAYOR AND CITY COUNCIL FROM: Planning Commission DATE: December 19, 1973 ATTN: David D. Rowlands, City Administrator RE: LAND USE ELEMENT TO THE GENERAL PLAN Transmitted herewith is the Land Use Element to the General Plan Phase I, as amended and adopted by the Planning Commission on December 18, 1973. The Commission reviewed the Environmental Review Board Transmittal on Environmental Impact Report No. 73-25 and discussed various mitigating measures. AUTHORIZATION i By requiring each planning agency to prepare, and the local legislative body to adopt a general plan, the State has indicated its belief in the necessity for an officially adopted statement of policy for the physical development of each city and county. The General Plan is the key instrument in the California local planning process. Government Code Section 65302 (a) requires a land use element of all city and county general plans. As a result of AB1301, Section 65860 (a) of the Government Code stipulates that county or city zoning ordinances shall be consistent or compatible with the objectives, policies, and programs specified in the General Plan. Deadline for this compatibility is December 31, 1973. PAST ACTIONS The Planning Department staff has put forth a concerted effort in obtain- ing input from various boards, bodies, and groups within Huntington Beach. On November 16, 1973, staff filed a copy of the Land Use Element Environmental Impact Report with the Environmental Review Board. The Environmental Review Board posted said Environmental Impact Report for thirty days public input. i At the November 20, 1973 meeting staff introduced this element to the Planning; Commission and on November 27 staff presented said element to both theiCommission and Environmental Review Board at a study session. i On December 4 and 11, there was further discussion on this Element by the Commission. During this period the Environmental Review Board sub- mitted comments to the Planning Commission, while the Commission made recommendations to the Environmental Review Board on the Environmental Impact Report. Page 2 December 19, 1973 On December 16, 1973, the posting period on the Environmental Impact Report expired. At their regular meeting of December 18, 1973 the Environmental Review Board adopted the Land Use Element Environmental Impact Report and transmitted it to the Planning Commission for adoption. At the Planning Commission regular meeting on December 18 , 1973, a public hearing was held for public input on this element. After the public hearing was closed/ Commission adopted Environmental Impact Report No. 73-25 and Resolution No. 1129 , thereby adopting the Land Use Element to the General Plan. A motion was made by Boyle and seconded by Porter. Environmental Impact Report No. 73-25 -was adopted. Vote: Ayes: Geiger, Bazil, Kerins, Wallin, Boyle, Porter Noes: None Absent: Higgins THE MOTION PASSED. A motion was made by Wallin and seconded by Porter. The Land Use Element was adopted with mitigating measures as recommended by the Environmental Review Board. Vote: Ayes: Geiger, Bazil, Kerins, Wallin, Boyle, Porter Noes: None Absent: Higgins THE MOTION PASSED A motion , was made by Porter and seconded by Boyle. Resolution No. 1129 pertaining to the Land Use Element was adopted. Vote: Ayes: Geiger, Bazil, Kerins, Wallin, Boyle, Porter Noes: None Absent: Higgins THE MOTION PASSED ADDITIONAL INFORMATION: Commissioner Wallin requested staff to come back on January 22 with a plan of action for Phase II of the Land Use Element. Respectfully submitted, // K. A. Reynolds Secretary w . • EnVIROnMEnTAL REVIEW BOARD CITY OF HUNTINGTON BEACH•CALIFORNIA P.O. BOX 190 92648 TO : Honorable Mayor and City Council FROM: Environmental Review Board DATE : December 19 , 1973 SUBJECT : EIR 73-25 (Land Use Element) APPLICANT: City of Huntington Beach LOCATION: City of Huntington Beach The Environmental Impact Report for the Land Use Element of the General Plan is transmitted so that the City Council may consider approval of said element . BACKGROUND: Phase I of the Land Use Element is the first step in the effort to redefine , reevaluate , and expand the concept and utilization of the City' s General Plan. Its purpose is to consolidate and expand past land use plans into new directions and areas of emphasis . This EIR, as prepared by the Planning Department, was filed with the City on November 16, 1973 , and distributed to the City Council on December 13 , 1973 . The project was posted for public review on November 16 , 1973 , and a public hearing was held by the Envir- onmental Review Board on December 18 , 1973. ADOPTION: The Environmental Review Board adopted the EIR on the Land Use Ele- ment on December 18 , 1973 . ERB Discussion: The Environmental Review Board entered into many areas of inquiry, as can be witnessed by the attached doc- uments . However, the scope of the element is so broad and general that it is an almost impossible task to go into all of Land Use Element Page 2 the consequent adverse impacts and offer mitigating measures to those impacts . Until the City has compiled data and pro- vided implementing tools and regulatory measures , it is difficult to visualize the specific adverse effects which may occur. MITIGATING MEASURES : 1. The economic impacts of differing land uses should be thoroughly investigated and documented. 2 . A thorough analysis of the compatibility of differing uses should be made, and development standards should be provided which would eliminate any possible intrusion of a particular use upon the environment of abutting uses . ADDITIONAL INFORMATION: 1 . It is of special interest to the Board that the EIR on Phase II of the Land Use Element go into detail on the concerns which have been expressed by the review process on Phase I . 2 . The Land Use Element should take into consideration the pro- visions of the Growth Policy of the City. 3 . The City Council should pursue a method whereby this element does not create a moratorium upon those areas designated by the element at this time as Planning Reserves . 4 . The Board would like to see the Phase II of the element make greater use of the agricultural zoning within the city for an interim period of time ; and recommends that the city pursue provisions which would make the use of land for agricultural purposes economically feasible, both for the city and for the landowner, by all possible methods available . S . Whenever possible, environmental resources should be categor- ized and qualified for Phase II of the element . 6 . A priority list should be prepared, in order to determine which policies should take precedence. 7 . The Board recommends that the City Council pursue preparation of the Noise Element as soon as possible, so that the infor- mation and data compiled therefrom can be used in preparing Land Use Element Page 3 more specific development standards to mitigate the impacts of land uses as contained within the Land Use Element . CONCLUSION: It was the consensus of the Board that there may be a significant adverse effect from the overall uses provided for by the element , as well as certain specific uses as may be permitted. However, the Board felt that a thorough analysis of all provisions of Divi- sion 9 (to eliminate those specific uses which may create an ad- verse effect upon the environment) and amendments to the develop- ment standards therein could properly mitigate these adverse effects . The Board further recommends that the implementing tools and the regulatory provisions which may accompany Phase II provide provi- sions to eliminate the environmental intrusion of one use upon another; i.e . , industrial adjacent to Central Park without proper setbacks and landscaping, commercial upon abutting residential without proper environmental considerations , and heavy industrial uses within an industrial park. The Board therefore recommends that the City Council adopt the Environmental Impact Report No. 73-25 and proceed with Phase II of the Land Use Element . v d ames W. alin, Chairman Environmental Review Board Attachments : 1) Amendments to the Phase I Land Use Element 2) Comments from the Environmental Council 3) Comments from the Environmental Review Board with responses thereto from the Planning Department i 4207 Parral Place Sherman Oaks, Calif. 91403 December 19, 1973 Honorable Mayor Jerry A. Matney City of Huntington Beach Huntington Beach, California Dear Mayor Matney: This refers to the area bounded by Golden West Boulevard, Garfield Street, Edwards Street and Ellis Avenue. The area is zoned RAO and is shown on the proposed Land Element of the General Plan as "Planning Reserve". My sister, Mrs . Virginia Staudinger, and I own 5 acres in the center of the area (Assessor 's Parcel n110-200-05) . The present zoning, RAO, precludes any reasonable use of the land. Although there are a few producing oil wells, our royalty is about one-half the taxes. Some of the owners, we understand, receive no oil royalty but are nevertheless taxed. Continuing the RAO zoning imposes a financial burden on the owners. Applications for rezoning to either industrial or residential use have not been granted pending completion of a study by the Planning Department. That study, we understand, is dependent now on the decision of the Council regarding the Phase 3 boundaries of Central Park. So that the planning study may be completed and the zoning for the area determined we respectfully urge the Council to make it's decision whether or not to include our property within the park boundary Yours truly, Ra ij4 S. Ashton RSA:lw r MRS. GWYNN WILSON 430 SOUTH FULLER AVENUE, APT. 9-E, Los ANGEI.ES, CALIFORNIA 90036 vL-it i 4v !J C-3 LAND USE ELEMENT AMENDMENT DATE TITLE LOCATION RESOLUTION # 12/19/73 LUE to the general plan 3814 EIR #73-25 1975 Land Use Element of 7 specific areas of the 4010 gen . plan amendment city of Huntington Beach to phase I 3/22/76 LUE Amendment 76-1 4193 A & B adopted 3/22/76 3/22/76 LUE Amendment 76-1 4193 A & B 10/6/76 LUE Amendment 76-2 & S/Main E/Florida 4334 ND #76-78 12/6/76 LUE Amendment 4368 8/77 LUE Amendment 77-1 4505 EIR 77-3 11/7/77 LUE Amendment 77-2 S/Adam & E/Brookhurst 4551 12/19/77 LUE Amendment 77-3 4572 Part 2 EIR 77-13 & Appeal to portion of GPA 8/21/78 LUE Amendment 11/6/78 LUE Amendment Atlanta bet Beach & 4696 Lake 12/18/78 LUE Amendment Bolsa Chica 4708 4/7/80 LUE Amendment 79-1 S/Talbert W/Beach 4865 A & B LUE Amendment 79-2 1251 4/80 LUE #80-1 4865 12/15/80 Open space & Conservation 4935 element EIR 80-4 12/15/80 LUE Amendment/EIR 80-3 Intersection of 4936 Warner & Beach 6/15/81 Land use element amendment Newman/Beach 5005 #81-1 to Gen . plan-Res Adam/Beach 5005 6/81 appeal ( 2 . 1 ) denied 12/21/81 LUE to gen plan 81-3 Ellis/GW Talbert/Beach 5060 & EIR481-6 Res 5060 12/81 12/7/81 LUE Amendment 81-2 5053 & EIR.'.81-4 & appeal Res 5053 12/20/82 LUE 82-1/EIR .82-3 Yorktown/Main Huntington 5206 (part 1 of 2) areas 2 .1 bet Clay & Garfield 2 :3 , 2. 7 2/7/83 LUE Amendment 82-1 (pant Ellis/GW Warner bet 5223 2 of 2) EIR 82-3/ZC 82- Edgewater & Sceptre 16 & 82-17 CA 82-12 5/16/83 LUE Amendment 83-2 ND S/Talbert W/Beach 5265 83-4 11/28/83 LUE Amendment to gen . plan Ellis/GW 5327 #83-3 5/7/84 LUE Amendment 84-1 to gen . Gothard/Center 5373 plan - Res 5373-5/84 11/5/84 LUE Amendment 84-2 EIR Magnolia/Warner 5457A 84-3 Res 5457ABC 1/85 6/17/85 LUE Amendment 85-1 (Holly Ellis/Garfield/GW 5532 Property) denied 6/17/85 LUE Amendment 85-2/EIR Ellis/Garfield 5532 85-1 ZC 85-2 appeal denied 2/18/86 LUE Amendment 85-3 EIR 85-2 5639 ND 86-1-ZC 85-15 9/3/86 LUE Amendment 86-3/ZC 86-21 Ellis/GW 5713 appeal Tabled-AC Marion 3/16/87 LUE 87-1A to gen plan Res N/Garfield 5763 5763 3/87 (Area 2 :2 denied) W/o Mora Kai Nov. 87-1 Combine A & B 4/20/87 LUE Amendment 87-1B Warner/Beach 5768 7/27/87 LUE Amendment 87-2 (_A) NE cor Gothard/Center Dr 5795 EIR 87-2 (OCTD Property) 7/27/87 LUE Amendment 87-2B/EIR NE cor Ellis & GW 5796 86-2 AA5W Mj4k4, /0-i7-77 LAND USE ELEMENT AMENDMENTS `DATE TITLE . -LOCATION RES # 4/20/59 The master plan of streets 60 & highways , 1957-1958 amended 9/8/59 The adoption of the master 68 plan of streets & highways revised 9/8/59 The adoption of the master 69 land use plan revised september 1959 4/11/60 Recommendation for inter- 99 pretation of M-2-0 district 4/18/60 Recommending amendment of the 95 "Master plan of streets & s highways 1957-1958" 10/2/61 Recommending approval of an 1056 amendment to the master plan of. land -,Asp.,"4ifntinator Harbour" 1/13/61 Planning _commission recommen- 1043 ding approval of the master land use plan revised 1961 Recommending adoption of the 1035 master plan of drainage 1966 3/17/58 Planning commission of the 48 city of HB recommending adoption of the master land use plan for said city by the city council 10/ 1/62 A resolution of the city 276 planning commission reco- mmending approval of an admendment to the master plan of land use signal oil & gas Co . . 1W LAND USE ELEMENT AMENDMENTS DATE TITLE LOCATION NO . RES # 7/5/66 Recommending approval 66-1 of the parks , open spaces , school & recreation element to the master plan of land use 9/6/66 "Master plan of land S/Slater , W/ 66-2 use , study area II PER. N/ Heil E/Newland 9/19/66 "Master plan of land use W/Ellis , S/Pacific 66-3 study area I Ocean , E/Santa Ana River & W/Beach 4/17/67 Master plan amendment E/Ellis , W/Beach 67-1 No. 67-1 study area I S/Pacific Ocean E/Santa Ana River 5/6/68 Master plan amendment 68-2 identifying nonstructural brighted areas within the city of HB 6/ 19/67 Master plan amendment 67-2 No . 67-2 study area II 4/21/69 An amendment to the parks 69-2 open spaces , schools & recreation element to the master plan of land use 1/23/70 Master plan of land use 70-1 amendment no . 70-1 & 70-2 master plan of arterial st. & highways amendment No . 70-2 7/19/71 Considering a master plan N/Garfield , E/ 71-2 of land use amendment Santa Ana River S/Pacific Ocean W/Beach 1117172 City planning commission StWarner , W/Edwards 71-5 to a portion of study area "B" 2/22/72 Considering a master plan S/Ellis , W/Edwards 72-1 3448 amendment , initiated by N/Warner , E/Newland the city planning comm- ission to a portion of study area B 4/17/72 Master plan a portion NW cor of Edinger 72-2 of study area "C " & Graham ;.. 4/3/72 Pl.anning commission N/Slater E/Beach 72-3 to a portion of study area "B" 11/6/72 Recommends goals & general 72-6 policies for preservation of open space in HB 9/ 18/72 Considering a master plan S/Terry , E/Beach 72-5 1096 amendment initiated by the punning commission , for a change from commercial district to low density residential district 4/2/73 For a change from institu- W/Springdale , S/Hei172-9 1111 tional use to low density residential use 2/5/73 A change from high density SE of 17th St . bet 72- 10 1105 residential to office Pecan & Orange retail commercial 3/5/73 Reflect a recent rezone N intersention 73-1 1109 of the property to of Brookhurst & commercial Bushard 4/16/73 Master plan amendment S/Holland Dr. 73-2 No . 73-2 Zoee case No . 72-48 6/18/73 Adopt Master plan amend W/Delaware 73-3 1118 ment No . 73-3 amending N/Garfield of land 7/16/73 Change from medium density E/Florida , S/Main 3704 residential to office professional district 7/16/73 Change from rr,,dium density W/Delaware , N Garfield 3703 residential district to office professional district 7/16/73 Change from medium density S/Main , W/Florida 73-4 3704 residential to offic-- professional 7/16/73 Change from office pro- NE cor of Atlanta 73-5 373.1 fessional to commercial & Brookhurst 9/17/73 Change from medium density N/Alhambra 73-6 3763 residential to commercial W/Beach 9/17/73 Adds the new land category E/GW , N/Ellis 73-7 3764 of agriculture to the existing plan & applies it to the light industrial area 12/6/76 Refine the general plan 43-6-9 in keeping with changing community needs & objectives LAND USE ELEMENT NOVEMBER,1973 ph ase'�'e 1 1�' huntington beach•california planning department 1. a LAND USE L;LEMENT PHASE I Table of Contents SECTION `.PITLE PAGE 1. 0 INTRODUCTION 1. 1 1. 1 Intent & Purpose 1. 1 1. 2 Authority & Scope 1. 2 1. 3 Relationships 1. 5 1. To Policy 1. 5 2. To Planning Programs 1. 8 2 . 0 BACKGROUND 2. 1 2 . 1 Planning Area 2. 1 2 . 2 Land Use History 2. 3 2 . 3 Existing Land Use & Circulation 2. 6 2 . 4 Natural Physical Conditions & Factors 2. 17 2. 5 Population & Social Factors 2. 23 2 . 6 Economic Factors 2 . 30 3. 0 GOALS & POLICIES 3. 1 3. 1 Policy Plan 3. 1 3. 2 Environment & Resources Section 3. 1 3. 3 Society & Culture Section 3. 7 3. 4 Development Standards 3. 12 4. 0 LAND USE PLAN 4. 1 4 . 1 General 4 .1 4. 2 Land Use Issues 4. 2 4. 3 Standards & Criteria 4. 6 4 . 4 Land Use Plan 4 . 20 5. 0 IMPLEMENTATION 5. 1 5. 1 Implementation Techniques 5..1 5. 2 Programs 5. 4 5. 3 Future Activities 5. 6 6. 0 ENVIRONMENTAL IMPACT REPORT 6. 1 6. 1 Introduction 6. 1 6. 2 Summary of Major Environmental Issues 6. 4 6. 3 Description of the Project 6. 4 6. 4 Environmental Setting 6. 8 6. 5 Environmental Impacts 6.13 7. 0 APPENDIX 7. 1 7. 1 Bibliography 7. 1 n 12/4/73 OPEN SPACE AND CONSERVATION ELEMENT: PHASE I -- AMENDMENTS S . 3. 1 . 2 (p. 38) revised to read: 2 . Bolsa Chica I A. Marshlands : This vicinity contains one of the most important remaining estuaries in Southern California. Although oil drillings in the "gap" area have substan- tially destroyed its marshland nature by restricting tidal flow, this inlet remains relatively undeveloped and provides valuable wildlife habitat and distinctive vegetation in addition to significant mineral , archaeo- logical , scenic, historic and recreation resources. It is also a flood and seismic hazard area. B. Bluff Area: This valuable bluff-dominated vicinity may some day provide a vital open space link between IIuntington Central Park and the sea. Additionally, it contains archaeological sites , important vista points , and mineral resources . S . 4 . 3. 6' (pp . 66-67) revised to read: Specific ' Plans will be an important management and reporting tool for local government to measure its progress against established tasks . The following Specific Plans , based upon the value system established in Section 3. 0, are recommended. 1 . City Beaches - interrelated with the State beaches. 2 . Bolsa Chica - interrelated and coordinated with the State Planning and Research Office. . 3. Central Park 4 . Ocean area S. Santa Ana River - in conjunction with Orange County Planning Department. 6. Beach-Adams area 7. Northwest Bolsa Chica 8 . Southeast Marshlands 9. Meadowlark 10 . Greenbelt, trails and linear park system to link the above nodal systems . As the environmental planning program is refined, additional areas may be recommended for Specific Plans . ::,....: . 12/4/73 1 1 13 r0*7 * i J ♦ JK 12 :. o �. ♦ 00 3 I ........ �._....._....... 1...__..�` r_.. _..._.___._,. .�_ _._ ... e 2A 4 ♦, fry ' ,' ....� � ,_.. � I,I' �C , AI ��� 10 Existing Park Sites 5 -- Numbered Areas Defined in Section 3 . 1 . 2 Figure 3-3 PRIORITY OPEN SPACE AREAS huntington beach planning department 37. 12/4/73 OPEN SPACE AND CONSERVATION ELEMENT: PHASE I -- AMENDMENTS S . 3. 1 . 2 (p. 38) revised to read: 2 . Bolsa Chica A. Marshlands : This vicinity contains one of the most important remaining estuaries in Southern California. Although oil drillings in the "gap" area have substan- tially destroyed its marshland nature by restricting tidal flow, this inlet remains relatively undeveloped and provides valuable wildlife habitat and distinctive vegetation in addition to significant mineral , archaeo- logical , scenic, historic and recreation resources. It is also a flood and seismic hazard area. B. Bluff Area : This valuable bluff-dominated vicinity may some c� provide a vital open space link between Huntington Central Park and the sea. Additionally, it contains archaeological sites , important vista points , and mineral resources . S . 4 . 3. 6 (pp . 66-67) revised to read : Specific Plans will be an important management and reporting tool for local government to measure its progress against established tasks . The following Specific Plans , based upon the value system established in Section 3. 0 , are recommended. 1 . City Beaches - interrelated with the State beaches . 2. Bolsa Chica - interrelated and coordinated with the State Planning and Research Office. 3. Central Park 4 . Ocean area S . Santa Ana River - in conjunction with Orange County Planning Department. 6. Beach-Adams area 7. Northwest Bolsa Chica 8. Southeast Marshlands 9. Meadowlark 10. Greenbelt, trails and linear park system to link the above nodal systems . As the environmental planning program is refined, additional areas may be recommended for Specific Plans . i 12/4/73 1 1 9 13 * 4 l � * 12 Aj 7 ` r ' 2 A ✓ 1 4 �►`, 10 61 Existing Park Sites 5 -- Numbered Areas Defined P _.. in Section 3 . 1 . 2 5 Figure 3-3 PRIORITY OPEN SPACE AREAS huntington beach planning department 37. t FIGURES FIGURE NUMBER TITLE PAGE 1. 1 Components of the Comprehensive General Plan 1 . 9 1. 2 Relationships Between Master Plan & Comprehensive General Plan Elements 1. 11 1. 3 Master Plan of Arterial Streets & Highways Map 1. 13 2. 1 Planning Area Map 2 . 2 2. 2 Important Historical-Cultural Landmarks 2 . 5 2. 3 Flood Plain Map 2 . 22 2 . 4 Racial Distribution & Household Composition 2 . 25 2. 5 Building Valuation 2 . 31 2. 6 Huntington Beach Retail Sales 2 . 33 6. 1 Planning Area Map 6. 6 6. 2 Vicinity Map 6 . 7 r section 1 introduction I � O r� .1 1 SECTION 1. 0 INTRODUCTION 1. 1 Intent and Purpose The title of this report, Land Use Element - Phase 1, is a misnomer. This is not a first phase, but rather a point of transition. Land use planning and adopted plans have long been used in Huntington Beach and have directed the rapid growth of the 1960' s. However, the city is entering a new era in planning. Like other communities in California, Huntington Beach is responding to the new wave of public concern and legislative mandate. The past five years have witnessed the development of one of the most progressive planning : laws in the world, which has included the expansion of the general plan from the original elements of Land Use and Circulation to include elements of Housing, Conservation, Open Space , Seismic Safety, Noise, Scenic Highways, and Safety. This time period has also seen the adoption of the California Environmental Quality Act, the Coastal Initiative, and numerous other significant laws and court decisions. The Phase .I Land Use Element is part of the first step the city is executing to redefine, reevaluate and expand the concept and utilization of the city' s General Plan. This is not an easy or fast process, but fortunately Huntington Beach has a strong foundation of policy and experience. The purpose of the Phase I Land Use Element is to consolidate and expand the past land use plans into new directions and areas of emphasis. This document is not complete, nor is it intended as such. , The future will see many changes as the land use plan is revised and studied. Of special importance will be the inter- action of land use with the numerous other "new" elements. (Some of these elements are not yet required or prepared. ) Therefore, A" 1. 1 ,r r~ substantial evolution is expected to occur as the newly defined "process" of planning is brought into line with legislative intention and emerging areas of public concern. 1. 2 Authority and Scope 1. 2 . 1 State Planning Law By requiring each planning agency to prepare, and the local legislative body to adopt a general plan, the State has indicated its belief in the necessity for an officially adopted statement of policy for the physical development of each city and county. The general plan is the key instrument in the California local planning process. Section 65302 of the Government Code describes the plan in these terms: The general plan shall consist of a statement of development policies and shall include a diagram or diagrams and text setting forth objectives, principles, standards and plan proposals. . . The general plan is therefore a policies plan which, when adopted by ,the local legislative body, comprises the official statement of city policy regarding future character and quality of development in the planning area. It is a statement of intent regarding the development needed to achieve social, economic and environmental goals and objectives. Government Code Section 65302 (a) requires a land use element of all city and county general plans, as follows: A land use element which designates the proposed general distribution and general location and extent of the uses of the land for housing, business, industry, open space, including agriculture , natural resources, recreation, and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities, and other categories of public and private uses of the land. The land use element shall include a statement of the standards of population density and .building intensity recommended for the various districts and other territory covered by the plan. . The land use element shall also identify areas covered by the plan which are subject to flooding and shall be reviewed annually with respect to such areas. ACOXIA", 1. 2 'i -- 1 . 2 . 2 C. I . R. Guidelines i Additional information regarding the Land Use Element is offered in guidelines developed by the California Council on Intergovernmental Relations (CIR) . The Scope and Nature of the Land Use Element 1 A. Identification of land use issues. B. A statement of land use policies and proposals , distinguishing, where appropriate, among short, middle and long-term periods of fulfillment. C. A description of the land uses and land use intensities for the planning area, including the relationships of such uses to social, environmental and economic goals and objectives. D. The standards and criteria for physical development within each use area with consideration for land capacity. E. A description of the land use pattern, including text and a diagram or other graphic representation such as a map. F. An outline for implementation, including a des- cription of measures necessary to achieve land use objectives and policies and the timing or staging of plan implementation. 1. 2. 3 Zoning and the General Plan: Consistency The General Plan is a comprehensive , long-range policy guide to promote efficient and desirable community growth. Zoning, on the other hand, is a single-purpose, short- range tool applied to precise parcels of land specifying exactly what uses and development standards are required. Obviously, zoning has the greater potential to affect day- to-day land use decisions. This relevance is translated to the General Plan (as a result of AB 1301) by Section 65860 (a) of the Government Code which stipulates: "County or City zoning ordinances shall be consistent with the general plan. . . "2 By requiring that zoning be consistent -- a term later defined as "compatible with the objectives , policies, and programs specified"3 in . 1 "General Plan Guidelines" , September 1973, C. I.R. 2 Section 65860 (a) , California Government Code 3 Assembly Bill 1725, adopted 1972 the General Plan -- AB 1301 enables the definitive policies contained in the General Plan to be enacted by daily operation of local planning agencies. It means, specifically, that the zoning in an area, while it need not duplicate identically General Plan designations, must reflect its intentions. That is, zoning need not conform to the General Plan, but is must be in harmony with it. Thusly, while the General Plan exerts its long- range influence through zoning, latitude in daily land use decisions is not overly restricted. Additionally, just as zoning will no longer be applied without regard to long-range community goals neither will the General Plan be afforded the luxury of the "pie-in-the-sky" status it has had for so long. Recent court rulinqs and planning legislation as we% as prac`icaI application require that General Plans now be bayed nn -&much n f ctua ta, yea ism, and practicality as possible. In other words, the General Plan must become more workable than it has ever been before. 1. 2. 4 Environmental Quality Act Though it was not an original intention of - the bill, passage of the California Environmental Quality Act (CEQA) lent some legal incentive for making General Plans more responsible and practical. As the law has been interpreted, an environmental impact report which analyzes potential effects of public and private projects is required for all General Plan elements. This legislation compels discussion of seven important subjects: 1. Environmental impact of proposed action; 2. Adverse but unavoidable environmental effects; 3. Mitigating measures to minimize impact; ' ' 4. Alternatives; 5. Short-term and long-term impacts; 6. Irreversible environmental changes; and 7. Growth inducing impact. Keeping in mind the long-range and policy nature of the General Plan and its composite elements, direct application of these seven points is not always practical. But because it is a purpose of the environmental impact report process to expose alternatives and consequences to public view and in like manner it is a basic function of the AdRk, 1. 4 •YY _J General Plan to analyze options and select best available alternatives , it should nol. be d i. f f i.cu l.l- LO addross l-oE, i c !-. cited in the CEQA within tho tex l of the a Lemen t . Do i nil so in a conscientious manner will help insure that plans for the future keep in mind the social and environmental realities of the present. 1. 3 Relationships A General Plan is composed of many and varied interactions. This is especially true of the Land Use Element, which is only one part of the series of elements and relationships that compose the General Plan, but has an "umbrella" effect in its potential to reflect in its contents the majority of other elements. Key relationships of the Land Use Element are its interface with policy and the general planning program. 1. 3. 1 Relationship to Policy Policies planning results in what is known as a policy plan, the principal components being the formulation of goals and principles. The policy plan is usually an adopted document, even though it leads to a master plan and be- comes an inherent part of the general plan. There is, however, a distinct difference between a policy plan and a general plan. A policy plan is the guiding tool for the general plan whereas the general plan contains the policy plan along with specific recommendations, proposals, allocations, and implementation procedures. Policies planning has been utilized in varying degrees of effective- ness in Huntington Beach. A major policy (and planning) thrust occurred in the City in 1965 as a result of an Urban Land Institute Panel Report. This paved the way for substantial policy and plan formulation and development which was guided by the U.L. I. Steering Committee , a group formed to carry out panel recommendations. 1. Policy Plan More relevant to current planning activities is the Policy Plan. In May of 1971 the Huntington Beach City Council appointed several citizens to review, coordinate and modify a "Preliminary Policy Plan" . The Preliminary Polic Plan had been developed by the city staff to document existing city policy. Inputs to the Pre- liminary Policy Plan were a staff interpretation of past City Council and Planning Commission decisions made over the previous ten years; the city had not previously had a&de ' nitive statement of goals and 1. 5 objectives. The revised Policy Plan 1s intended t:o document the goals of the city so that policies , specific actions, and the Master Plan will be co- ordinated toward common goals which reflect the attitudes and opinions of the populace. It is recog- nized that attitudes and opinions of what is a de- sirable goal will change over time, so it is planned that the Goals and Objectives be reviewed and revised, as necessary. To implement the review, the Huntington. Beach City Council selected seven citizens of widely varying persuasions to form a "Citizens Steering Committee on Goals and Objectives" for the purpose of reviewing the Preliminary Policy Plan. The Steering Committee was then left to its own devices as to organization, format, and schedule. Staff assistance was supplied by the City. The Steering Committee realized from the first that as many citizens as possible had. to have an input. For this reason, the work was divided initially into seventeen subsections. Each subsection was reviewed by a subcommittee. The Steering Committee coordinated and facilitated, but did not influence, the sub- committees' work. A Steering Committee member was assigned to each subcommittee. Each subcommittee was made up of volunteers solicited by letters to the forty-two organized groups in the city, articles in the newspapers, and personal contacts. In the end over two thousand people were directly involved in subcommittee deliberations. Subcommittee members represented ,a broad cross-section of Huntington Beach citizenry. For the most part, subcommittee members were uninitiated in the workings of city government and for many this was their first serious involvement in civic affairs. The subcommittee efforts were generally divided into . three distinct phases: - 1) Research, 2) Opinion Gather- ing, and 3) Reporting. The Research phase involved library research, consulting with experts, etc. de- signed to inform the subcommittee of the scope and details of their subject. It was the Steering Committee' s objective to have the subcommittee members as informed as possible on their subject. Phase 2 , Opinion Gathering, involved either an advertised forum where anyone could attend and be heard, and/or a questionnaire for each subject. Forums and questionnaires were designed to solicit the general All-KI 1. 6 opinions and attitudes. Forums attracted the general public as well as interest groups. Thousands of questionnaires were randomly mailed to residents who responded to specific probing questions. Typically, twenty to thirty residents attended each forum and two to three hundred responses were received from each subcommittee ' s questionnaires. Inputs from the Community Congress were also used. Reporting, Phase 3, consumed the last one-third of the subcommittee' s efforts. Generally, the subcommittee rewrote the applicable portion of the Preliminary . Policy Plan and included a page of comments by way of explanation and clarification. During this phase , the attitudes and opinions of the subcommittee and public were analyzed, reconciled, and documented. Approximately four months were spent by each sub- committee in the development of their reports. The subcommittee work was the backbone of the "Citizens Committee on Goals and Objectives" efforts. Hundreds of residents enthusiastically gave thousands of hours of their time and energy. Some were so enthused that the Steering Committee had difficulty confining their interests to the scope and procedures of the committee' s task. Very little meaningful work could have been done without the citizens who cared enough about their city to become involved. After the subcommittee' s efforts were completed, the Steering Committee conducted a laborious process of reconciliation and recapitulation of the subcommittees ' reports. Many duplications were removed and conflicts resolved to provide a more condensed and balanced Policy Plan. During this process, city staff members took a number of recommendations to the City which have. already been implemented or considered. The Policy Plan has since been reviewed and amended by the Planning Commission and City Council and adopted by Resolution of the City Council in September 1973 . The section titles of the Policy Plan reveal the scope of contents: A. ENVIRONMENT AND RESOURCES Community Appearance Parks, Recreation and Open Space Natural Resources Shoreline A NL 1. 7 B. SOCIETY AND CULTURE Housing Community Facilities Schools Cultural Affairs Communications C. DEVELOPMENT Residential Development Commercial Development Industrial Development Transportation and Circulation Annexation Fiscal Planning The relationship of the Land Use Element to the Policy Plan is delineated in the figure "Policy Components of the General Plan. " This is a simplified representation of the areas of policy inputs to the Land Use Element (Fig. 1. 1) 2. Growth Policy: While the Policy Plan can supply community values and organizational framework, an overall growth policy is necessary to regulate the perspective and scale of the Comprehensive General Plan. Derived from the concepts presented in the Policy Plan, a Growth Policy would provide a logical basis for developing all General Plan elements. Preparation of a Growth Policy for the City is, in fact, currently .underway. Borrow- ing and adapting an approach established by the County, the Growth Policy concerns three dimensions of population growth -- rate, size, and distribution -- and how they relate to quality of life. The upcoming Growth Policy statement traces past growth; identifies current Growth Policy; projects future growth through the year 2000 based upon current policy and the exist- ing Master Plan of Land Use; derives from the Policy Plan an implied Growth Policy; evaluates current and implied Growth Policy by quality of life criteria from the Policy Plan; and develops an alternative Growth Policy for Huntington Beach. 1. 3. 2 Relationship to the Planning Program The nature and relationship of the Land Use Element to the General Plan has been thoroughly presented in the "General Plan Guidelines, September 1973" prepared by the C. I. R. Relevant to this discussion, however, is the 1. 8 FIGURE 1. 1 C-IMPONENT" 01' THL COMPREHENSIVE -]I:NI;RAI: PLAN 1 _ Po1icv Plan (Quality of Life) Growth 1'olicy Size , Rate , and Distribution 11jolicv Plan : Policy Man : Policy Plan : ?leve l.oPment Environment Society Resources Culture I L;anL.l L►se Element Open Space Element Housing Element Circulation Element Conservation Element Related Elements -rRelated Elements Seismic Safety Element Public Safety Element Scenic Highways Element Noise Element Related Elements 1. 9 Huntington Beach planning program. Land use planning is an established fact in the City and has been used to guide the tremendous development of .the past fifteen years. A brief history of land use planning is a subsequent section. 1. General Plan Program: Huntington Beach is in a position similar to other cities, i .e. partial compliane to the General Plan and on-going efforts to comply with State mandates. At no single point in time is planning or a general plan ever complete. Figure 1. 2 indicates the relationships between the current "Master Plan" and the comprehensive general plan as defined by state law. More importantly, this figure represents a simplified ."flow" of general plan elements to achieve the ultimate objectives of a general plan 'and program to maintain it. Thus it can be seen that this Phase 1 document represents a Land Use Element in . transition, its final form the result of interaction with other elements that are being simultaneously prepared or are yet to be prepared. Thus, the qualification of this document as Phase 1. As a further enumeration of the planning prgram and the relationship of this document the following planning stages are anticipated: Stage 1 : Initial 1. Land Use Element - Phase I 2. Circulation Element (Master Plan of Arterial Streets and Highways) 3. Conservation Element - Phase. I 4 . Open Space Element - Phase I 5. Housing Element - Phase I, Inventory and Analysis Stage 2 : Secondary 1. Revisions to Phase I Elements as a result of continued study, interaction among other elements and re- evaluation. 2. Revisions to Circulation Element 3. Seismic Safety/Safety Element 4 . Growth Strategy Formulated 5. Housing Element - Phase II 6. Begin Management and Implementation Programs Stage 3: Tertiary 1. Noise Element 2. Scenic . Highways Element 3. Total Stage 1 and 2 Element Interactions and Revisions 4 . Additional Elements 5. Management and Implementation Programs. � 1. 10 FIGURE 1.2 RELATIONSHIPS BETWEEN MASTER PLAN AND COMPREHENSIVE GENERAL PLAN ELEMENTS Existing ttaster Plans Comprehensive General Plan Land Use , Land Use Non- Structural B1ig31t Land Use/Circulation Element Arterial Streets and /�Circulation Ifighways Open Space .).)en Space and Conservzlt.ion --- ' nterfu �I)E'fl Sr: ce Conservation Elerfent Parks , Recreat i.on , Olen Spaces and Schools Seismic Safety Seismic Safety Environmental -Safe v Ele;i'ien- Safety Resource Recreati.of; i'fai. ls Management Noise Pro,ra:: rious ing Element : Phase I Scenic highways `;:ous ing i r 2. Circulation Element: The Circulation Element works hand-in-hand with land use. The original Circulation Element was adopted in 1963 and entitled - "Master Plan of Arterial Streets and Highways" shown in Figure 1. 3. This plan has been closely related to past land use planning. Recent revisions to city development plans and the deletion of the Route 1 Freeway (and the redesignation of the route as a transportation corridor) requires a re- evaluation of this element. A report entitled "Circulation and Transportation Study Parameters" dated September 1, 1973 by the Planning Department defines circulation and transportation objectives, criteria and planning issues. This document is the starting point for revisions to the Circulation-Element which has already begun with the retention of a traffic consultant to commence work on portions of the study. This work is being carefully coordinated with the land use plan. Additionally, many planning issues have been identified that relate to both circulation and land use. These issues are discussed in a later section. 1 . 12 4MENDMENTS MASTER PLAN OF ARTERIAL STREETS AND HIGHWAYS \ LEGEND: -- = FREEWAY MAJOR 120'R/W \ PRIMARY 100'R/W "` - - - - — -- SECONDARY 80'R/W NOTE: SOLID LINES INDICATE EXISTING RIGHT OF WAY NOT NECESSARILY ULTIMATE PIG,IT OF WAY DASHED LINES INDICATE AREAS WHERE NO � RIGHT OF WAY EXISTS ='�SYMBOL DENOTES PRIMARY COUPLET CERTIFICATIONS: cl C.-. COJNC4. 1 \: ±_..,.. :.., :��,..,I •.- `\ � `�\ � III I i CITY OF `-�ti HUNTINGTON BEACH ORANGE COUNTY CALIFORNIA , I TI FIGURE 1. 3 1. 13 section 2 background SECTION 2. 0 BACKGROUND 2. 1 Planning Area The planning area is generally defined as the area bordered by the San Diego Freeway on the north, Santa Ana River on the east, the Pacific Ocean on the south, and the city limits of Seal Beach on the west. The study area includes the unincorporated lands of Bolsa Chica, the unincorporated community of Sunset Beach and all the area incorporated as the City of Huntington Beach (Figure 2. 1) . The total study area encompasses approximately 29. 2 square miles of 18 , 690 acres. The existing city limits of Huntington Beach accounts for 26. 5 square miles or 16,970 acres. * The unincorporated portion of the Bolsa Chica area and the community of Sunset Beach accounts for approximately 1, 625 and 115 acres, respectively. Study Areas Huntington Beach is divided into four master plan study areas: "A" , "B" , "C" and_ "D" . The identification of the study areas are based primarily on physical barriers and legal boundaries. The study areas should not be misconstrued to denote any difference of environmental, social or economic characteristics or conditions between sections of the City. The delineated study areas are for the principle purpose of analysis. Additionally, Bolsa Chica and Sunset Beach are newly identified study areas. The inclusion of these two unincorporated areas as part of the overall planning area is based on the city' s sphere of influence. It is anticipated that these areas will eventually be annexed by the City. '�� 2 . 1 m s ter` 2. 2 Land Use History An oil boom in the 1920' s created the first large population influx into Huntington Beach. It was this boom that also gave the city an image of an oil-producing community. Large land annexations added about 19 square miles to the city limits between 1957 and 1959 . Most of this land was vacant (uninhabited) . In the early 1960 ' s when the city was experiencing the first wave of the population explosion, Huntington Beach was advocated as the place to live because of its physical attributes, clean air, lack of congestion, wide open spaces and the 8-1/2 miles of beach. These attributes were looked upon as commodities to be sold and consumed rather than as resources to be conserved. McDonnell-Douglas Astronautics complex located in the city in about 1963. This created a potential economic and industrial base and also an employment potential. These factors helped bring in new residents. Completion of the San Diego Freeway in the mid-1960' s made Huntington Beach accessible to Los Angeles County. 2. 2. 1 Development Prior to 1950 By 1950 the city had grown to 4. 72 square miles. Development was concentrated in an area bounded generally by Beach Boulevard, Adams Avenue, Goldenwest Street and Pacific Coast Highway. Overall development activity was relatively slow. By 1950 there were 2 ,100 dwelling units and a population of 5,200. The city' s image was that of a small coastal community that produced oil. Oil appurtenances dominated the landscape. The other major industry at that time was agriculture. 2 . 2. 2 Development 1950-1960 This era is characterized by the large annexations of relatively vacant or uninhabited land. As was mentioned previously 19 square miles were annexed between 1957 and 1959. Development, especially residential subdivisions, began in the latter part of the decade. This growth was generally linear along Beach Boulevard, or in the Original Townlot Area. }" 2 . 3 I 2. 2 . 3 Development 1960-1970 These are the years of tremendous growth for which Huntington Beach became .known. Over 100, 000 new residents made this city -home. Because of this growth, the city' s image changed from that of an oil,-producing community to that of a diversified residential-industrial-and recreational oriented city. The city also added 3 more square miles to its limits, most of which was in the western portion. Industrial and commercial bases are being established. Residential development is spectacular. Single family dominates in the early part of the decade. Multiple family, as apartments, condominiums, etc. , tends to increasingly dominate the residential building activity in the latter part of the decade. Agricultural activity is being phased out by development in general. This development boom is a result of the right set of conditions : Large areas of vacant land, coastal location of abundance of cheap land, nearness to the Los Angeles and Orange County regional markets, location of McDonnell- Douglas Corp. in the city, and completion of the San Diego Freeway. 2. 2 .4 Development 1970-1973 The city is still developing at a rapid pace. Population influx is still at about 10, 000 new residents per year. A broader industrial base is being established with development of the Huntington Beach .Industrial Park by Lusk. Oil and agriculture are being de-emphasized as major industries. Emphasis is now on planning rather than on reacting. During this period annexation totalled one square mile. 2. 2 . 5 Historical and Cultural Sites5 Historical and cultural resources, of course, shed light on manes more recent past. The scientific resources report prepared by Archaeological Research Incorporated lists two valuable "historical sites" -- the Newland House at Adams and Beach and original adobe homesite of Jose Manuel Nieto (Rancho Los Bolsas) . In addition several other potential historic and cultural landmarks have been identified within the city. These are presented in Fig. 2 . 2 5 Scientific Resources Survey and Inventory AMR- 2 . 4 Table 2. 1 IMPORTANT HISTORICAL-CULTURAL LANDMARKS 1. Huntington Beach Pier 2. Golden Bear - old town buildings 3. Old City Hall 4. Council Chambers 5. Firehouse 6. Old Jailhouse 7. Huntington Beach High School 8. Playhouse 9. Huntington Beach Co. Office 10. Newland House - Beach Blvd. and Adams Ave. 11. Sugar beet i`actory - Main and Garfield 12 . Warehouse - Main St. and Garfield 13 . Old Japanese Church . 14. Hubble House 15. Water tower - Warner & Marina - View 16. Water tower - Bolsa Chica and Warner 17. Bolsa Chica Gun Club 18. Ashton Oil Well #1 19. Bolsa Chica Oil Well #1 20. Huntington Oil Well A-1 21. World War II Bunkers The Huntington Beach Pier, constructed-in 1914 , was the first concrete pier in the area. Additions were made in July 1930 , and the pier was partially destroved by waaas in 1939., then tebju, i�lt to its present length of 1821. 8 feet in August '0. The Golden Bear on Pacific Coast Highway is cal p cal of the "Old Town" downtown area as are several other downtown buildin s , construc the 1920 ' s and 1930' s: the i roa station he oldMOW City Hall , the Council Chambers, the firehouse, and the old jail house. The Huntington Beach High School, historic in its own right, also includes a bell tower that provides a significant visual landmark for the City. Adjacent to the high -school are the Playhouse and the Huntington Beach Company office which are both historical and visual landmarks too. Another site of importance is the Newland House, located on the corner of Beach Boulevard and Adams Avenue and the oldest of the remaining original farm houses. - The office and warehouse of the sugar beet factory at Main and Garfield also stand as decaying monuments to the once-booming agricultural economy of Huntington Beach, and north of the sugar beet factory (at Warner and Gothard) is the old Japanese Church. Built by early Japanese farm workers, the church is still being used. An additional remnant of the agricultural era is the Hubble House, one of the last farm houses typical of early Huntington Beach. Two remaining water towers, one at Bolsa Chica and Los Patos and one near the bluff in the Signal property, are _. 2 . 5 x also landmark sites as is the wooden water reservoir located in Huntington Central Park along Goldenwest. Huntington #Al was the first well in the area after Standard Oil discovered oil in Huntington Beach near Goldenwest and Garfield on May 24, 1920. Bolsa Chica #1 , located near Reservoir Hill, was Huntington Beach' s first "big" discovery well. Producing nearly 20,OOO barrels of oil per day, it started the great oil boom. 2 . 3 Existing Land Use and Circulation Approximately 12 ,000 acres or 18. 75 square miles. of the planning area is developed. Within the existingcity limits over 5000 acres remain currently undeveloped. The unincorporated Bolsa Chica area accounts for an additional 1625 undeveloped acres. Sunset Beach is characterized as a beach community accounting for a total of 115 acres. In summary, a breakdown of the percentages of the total developed land by land use categories reveals that existing residential districts consume 63% of total developed land. Commercial and industrial development accounts for 4% and 7% , respectively, and approximately 24% are under the major category of public or semi- public land uses. 2. 3. 1 Residential Over 7500 acres are presently used for residential districts Low density single family type dwellings are the predominate residential use in the City. It is estimated that 29 ,400 single family units will exist in the City at the end of 1973. Based on building permits it is estimated that slightly under 18, 000 multiple family units will exist in the City by the end of this year. Apartment- type complexes are the dominate multiple family type units accounting for slightly over 15,000 units. Approximately 2700 multiple units in the City are condominiums. Another residential land use category is mobile homes. Presently the City has 2 , 650 mobile homes. 2. 3 . 2 Commercial Total commercial land uses account for 555 acres within the existing city limits. The majority of commercial facilities in the City were built after the residential and population boom of the 1960 ' s. Thus , the majority of facilities are AIN 2. 6 <- 'L relatively new and in good condition. There exist five major types of commercial land uses in the city. 1. Neighborhood Commercial Centers The type of facilities provided by these centers usually include a supermarket, drug store , liquor store, beauty shop, and gas station. Most of these centers are located along corners of residential districts. These centers are intended to facilitate a 1/4 mile service radius and a population of 5 ,000 to 7 ,000 residents. 2. Community Shopping Centers In addition to providing the same facilities as the neighborhood centers, these larger centers provide such facilities as variety and clothing stores, bakeries, appliance stores, large drugstores, furniture stores, hardware, auto shops, eating facilities, and possibly one or more service stations. Most of these centers are located where major arterials intersect. They generally serve a population of up to 40, 000 residents and a service radius of 1/2 to 2 miles. 3. Downtown Commercial The old downtown section of Huntington Beach does not provide the kind of business facilities that the newer centers do. Perhaps the best way of characterizing the downtown commercial district is that it is an old central business district containing a number of commercial structures and retail stores that are currently operating on less than marginal profits. Physically, the area is victimized by wear and tear indicating a need for rehabilitation of some structures and complete removal of others. The physical deterioration and economic decline of the downtown area correlates with the City' s urban growth that has occurred in other sections of the City. Thus the significance of . the• downtown area as a primary commercial area has dwindled over the years. However, it currently caters to the senior citizens residing in the surrounding residential areas. A number of eating facilities, small second-hand shops, grocery stores, variety shops, banks, and real estate offices and public facilities remain intact in this area. 2 . 7 rF: The downtown commercial section is also a favorite "hang-out" area for many of the younger generation. The fact that it's proximate to the beach area attracts many youngsters who browse around specialty shops, eating places and the general beach area 4. Regional Commercial Center The only regional shopping center in the City is the Huntington Center. Its proximity to the San Diego Freeway makes it easily accessible for non-residents and residents alike. 5. Highway Commercial Beach Blvd. and Pacific Coast Highway are the major highway-oriented commercial strips in the City. Facilities such as service stations, restaurants, drive-in eating places, automotive sales, motels, and office-professional commercial uses are provided in these areas of high exposure and accessibility. 2 . 3. 3 Industry Total industrial development accounts for 875 acres. The principal industrial land uses are in manufacturing, trade and government. Industrial development typically lags about two years behind commercial development, or four to seven years behind residential development. Industrial development in Huntington Beach has averaged about 40 acres per year for the past several years. The industrial base in Huntington Beach is becoming highly diversified. There is still a heavy reliance on the aerospace industry and government contracts. McDonnell-Douglas is the largest employer. Over the long haul industry is the most important employ- ment generator for a city. A good industrial base insures a steady employment base and tax revenue source. 2. 3. 4 Public and Quasi-Public Land Use Public land uses and facilities provide for a very real need in a community. These facilities and services directly affect the lives of not only the lower income families but all residents and are as necessary to their well-being as housing itself. A community that is aware of the needs of all its residents strives to provide services for their needs. Overall, Huntington Beach meets these needs quite well for all its citizens. However, in some of the older 2. 8 portions of the city, many of these facilities or servi.cQ.s are deficient or lacking . Public facilities include schools; such recreation facilities as parks, recreation centers, golf courses and beaches; public transportation, utilities, and libraries. Quasi-public facilities include hospitals, convalescent homes, cemeteries, family counseling centers, churches, service clubs and organizations, and cultural centers. It is necessary for a community to evaluate the impact of different housing types on its facilities and services in order to determine where the deficiencies lay. 1. Schools Schools are one of the most important factors to dis- cussion of a land use element, because it is local government' s responsibility to provide educational services. Schools, especially elementary schools, are directly affected by the composition of housing types in an area, because different housing types generate varying numbers of students. The table below lists the elementary school student generation per type of dwelling unit, as determined by a study conducted in 1969 . Housing Type Students/Unit Single Family 1. 31 Condominiums . 65 Multiple Family . 36 Mobile Home .05 High schools are not as directly affected by housing types , because they draw students from large areas of the city. The areas near Beach Boulevard and Warner Avenue, and. Warner Avenue and Bolsa Chica Street are adequately served by elementary schools, though these schools are .operating at or near capacity. An additional seven . schools are proposed to serve these study areas, the majority of which have been allocated to serve the Original Town Lot area which has only one site that is operating at capacity. 2.9 2. Recreation Facilities Recreation facilities , especially outdoor recreation facilities, are also provided by the Master Plan of Parks , Open Space, Schools , and Recreation. These facilities are important assets to a well-planned and balanced community, such as 'Huntington Beach. It is necessary to provide a wide range of such facilities in order to fully service a community' s needs and demands; needs and demands which are increasing as leisure time is becoming more plentiful. The several types of recreation facilities include parks , playgrounds, beaches, golf courses and community centers. These types provide for a variety of ranges of recreational activities: neighborhood parks and playgrounds ; community parks and centers; regional parks and regional recreation areas; and golfing. Huntington Beach is fortunate to have all of the above- mentioned recreation facilities. By careful planning and much foresight, these facilities are strategically located throughout the city. Neighborhood parks with playground equipment usually serve the area which is served by an elementary school. Because recreation facilities and school facilities are closely related and their purposes, -programs and activities overlap, they are often combined. This combination of facilities increase efficiency by eliminating duplication. City-wide, the majority of elementary schools have adjacent parks that are developed. These parks are well used. Again, the Beach Boulevard and Warner Avenue Area, and the Warner Avenue and Bolsa Chica Area are adequately served by existing parks. The Original Town Lot Area is served by two parks and a recreation center which are heavily used. In the future, an additional eight parks are slated to serve these four housing areas, of which six are for the Original Town Lot Area. Community parks serve several neighborhoods within a community and are designed and planned to serve the broader recreation needs and demands of that area. .Generally, community parks are located near to or adjacent to high schools. This is to avoid, wherever possible , a duplication of facilities and the fact that high schools also serve broader segments of the community. ASIft, 2. 10 hit Community centers or activity buildings are located within the community parks. These centers provide meeting places for a variety of community functions and activities. Currently there is one community park developed, Murdy Park, and five additional parks to be developed throughout the city. Community parks along with the regional park, beaches and golf courses have an indirect effect on the housing survey areas because they serve larger areas than do the neighborhood parks. Huntington Central Park is a community park of over 400 acres that will function at the regional park . level. This park will augment the county' s regional park system. Presently, it is under the first phase of development. 3. Utilities Public utilities such as streets, water service , and sewage disposal are provided by th--2 city. Electricity, gas and telephone are provided by private companies. Trash collection is contracted out to a private firm. The public utilities are continually being upgraded and expanded as the city grows. Improvements such as sidewalks curbs and gutters, street lighting and street maintenance are somewhat deficient or lacking in those areas covered by the housing survey. The Beach Boulevard - Warner Avenue Area and the Warner Avenue - Bolsa Chica Street Area are former county areas and at the time of development were not required to have such improvements . Much of the Original Town Lot Area has fallen into disrepair, due to age and lack of development. 4. Libraries The library system consists of four main elements : a central library; three branches; several outlets , distribution points or stations; and a bookmobile. The central library is located at Talbert Avenue and Goldenwest Street (in the Central City Park) . This facility is currently in the design phases and when constructed, will serve as the central repository and administration headquarters of the library system. The three branch libraries will be strategically located throughout the city and will provide a basic level of service to the neighborhoods. The three sites will be at Springdale Street and Heil Avenue Atftki 2 . 11 (Carr Park) , Main Street (currently in the present civic center) , and Magnolia Street and Hamilton Avenue (Edison Park) . Only the Main Street facility is existing, which is also serving as the main :library until the new library at Goldenwest Street and Talbert Avenue is finished. Library outlets, distribution points, or stations are small distribution centers that are located in intensive use areas, such as shopping centers. The bookmobile is a movable facility that travels to elementary schools and shopping centers that are removed from the outlets. This facility supplements the other library facilities. Currently, the Original Town Lot Area is served by the existing library on Main Street. All other survey areas are served by the bookmobile. When the system is complete, i.e. , when all library facilities are constructed and operating, there will be a more equitable distribution of these facilities. All study areas will be within approximately one mile of either the Central City Library or a branch. In addition , strategically located outlets and the bookmobile will provide service to these areas. 5. Quasi-public Facilities The city is served by two hospitals, four convalescent hospitals, one health clinic, one cemetery, and thirty-one churches representing all denominations. 6. Quasi-public Services Services are offered by various groups and organization dedicated to dealing with family, emotional , physical, psychological, or social problems . Such counseling or aid is offered free of charge or is paid based on the ability to pay of those receiving the aid. Eleven such service-oriented groups are located in Huntington Beach, while another eight are located elsewhere in the county, but serving the city. An additional two groups in the city are exclusively for senior citizens. 2 .3 . 5 Circulation Huntington Beach surface street system is dominated by grid pattern. Major arterials and primary streets divide most of Huntington Beach into uniform square mile sections, the exception being the older developed sections of the city. Secondary streets branch off of major and primary 2. 12 arterials and provide access into residential areas. They further divide the city into quarter mile sections where residential districts become physically defined. The major highways in Huntington Beach are the Pacific Coast Highway and Beach Boulevard. The only freeway that passes through portions of the city is the San Diego freeway completed in 1965 . The level of service in terms of street design, freedom to maneuver, traffic flow capacities and signalization is generally good to excellent. 1. Traffic Volumes Traffic volumes have increased as population and development in Huntington Beach. has grown. Based on the latest average daily traffic flow counts conducted in October 1972 , Pacific Coast Highway, Beach Blvd. , Warner Ave. and Brookhurst Ave. ex- perienced the highest traffic flow counts in the city. The highest range of daily traffic volumes are from 21,400 on Warner Ave. to 32 ,000 on Beach Blvd. 2. Public. Transportation Public transportation in Huntington Beach is minimal, because of two primary considerations: dependency on the automobile as a primary mode of transportation and lack of a population density sufficient to support a public transportation system. Inter-city bus service is available, but these routes do not penetrate the city to any extent. One company provided minimal inter-city service between Huntington Beach and Santa Ana. Due to economic difficulties and lack of rider- ship, this service was discontinued in April 1971. No other comparable ,services are available at this time. Orange County Transit District is an agency that will provide for a mass transit system serving all communities in the county. Initially this system will consist of buses. In the first phase of develop- ment several inter-community routes will be established. Service will be inaugurated on several of these routes within the next two years. The remainder of the inter- community routes will be in service by 1980. Ultimately this agency plans to provide inter- and intra-community service to communities in the county. Nam. 2 . 13 Two routes which will affect 11untin9ton Bunk-h within the next two years are routes that service Beach Boulevard and Adams Avenue. Service proposes a 25 cent fare and a 30 minute frequency schedule. 2 . 3. 6 Sunset Beach* Sunset Beach contains slightly over 115 acres. Land use, other than streets and recreation in Sunset Beach is predominately residential. In many instances, a mixture of residential and commercial uses exist. In a number of cases a "dual use" situation persists. "Dual use" is defined as more than one type of land use per lot. An example of this situation is the commercial-residential combination of uses existing along Pacific Coast Highway. Residential uses range from single family through "five-plex" multiple family type developments. Sunset Beach is a mixture of single and multiple family residences. Commercial uses, 3 percent of total land area, exist sporadically along Pacific Coast Highway in a lineal fashion. This manner of development tends to be adverse to residential uses in areas where no real boundaries serve as a separation. Additionally, strip commercial development tends to create more problems (land use, zoning, traffic, etc. ) which nullify the benefits gained from permitting such use of land. Land uses are distributed in the follow- ing manner: Percent of Use Acres Total Area Residential 19. 3 16. 0 Commercial 5. 5 4 . 0 Recreation 36. 3 31. 0 Water Ways 3. 5 3. 0 Streets 31. 6 27. 0 Vacant 19. 1 16. 0 1. Age and Condition of Structures By Orange County standards Sunset Beach has pre- dominately older homes and generally fair to poor exterior structural conditions. Most, if not all , of the new residential construction in the Sunset Beach area are duplexes and triplexes. These types of development represent the most prevalent means for increasing investment in the area as of this moment. *Technical Report Sunset Beach-Surfside Study March 1, 1967 - Orange County Planning DeparUment Ats`. ` 4 2. 14 2. Streets and Highways Pacific Coast Highway is the connecting link between Sunset Beach and Seal Beach and Huntington Beach as well as serving as an arterial highway along the coast. There are 29 streets and 20 alleys that provide access into the study area from Pacific Coast Highway. These 49 access points in addition to the direct access to properties fronting on Coast Highway are one of the causes for the vehicular traffic problem in the area. Only three streets (excluding Surf Avenue in Surfside) provide direct access to South Pacific and the beach front properties from Coast Highway. These streets are Warner Avenue , Broadway and Anderson Street. Traffic movement in the northwesterly and southeasterly direction is provided by South Pacific Avenue , North Pacific Avenue and Pacific Coast Highway. Traffic access to and circulation on the island are provided by Broadway and Bayview Drive respectively. Bayview Drive is the only street serving the island and is inadequate for a number of reasons including the fact that it is a dead end street without proper "turn-about" provisions at either end of the street. Inasmuch as the final analysis of the streets , highways, vehicular circulation and related matters are the responsibility of the County Road Department, the County Planning Department ' s project team has identified some of the critical problems for the area. For examples: 1) All of the streets are substandard in width and improvements except for one of two instances; 2) The pattern of streets creates an excessive number of conflict points for the movement of traffic. As an illustration, within a mile along Pacific Coast Highway there are over 150 points of direct access to Coast Highway. It is doubtful that this situation is exceeded anywhere else in the county. 3) Off-street parking facilities are wholly inadequate to meet the parking demands for the area; 4) Vehicular-pedestrian conflicts are common and intensified during the summer months; 5) Capacity of the street system seems inadequate to handle any increase in volumes of traffic resulting Ad 2. 15 from full utilization of vacant land and/or sub- stantial increase in dwelling unit density under present conditions. 3. Public Facilities and Utilities A critical part of any community analysis is the condition of the public facilities and utilities that service the community. Because the public utilities in the Sunset Beach - Surfside communities were installed as the area first began to develop, some of the utility services are adequate only to provide the existing level of service to the population density now existing. Two of the utilities that need serious analysis regard- ing ability to maintain and improve services are water and sewer systems. The water for the area is supplied by two wells east of the study area. Storage facilities consist of two storage tanks with a total capacity of 150,000 gallons. A six inch dine serves as the principal distribution line running from the well site along North Pacific in Sunset Beach and through Surfside Colony. Secondary lines of varying diameter feed off this main line. A two inch line, for example, serves the ocean front properties. This small line is completely inadequate for fire fighting purposes. The sewer system for the study area is perhaps the utility that needs the most attention. That is, the present sewer system established in 1933 , is near its operating capacity of 250,000 gallons per day. While this system can handle the present need, it cannot accommodate the needs generated by any future increase in population. A ten inch line serves as the main sewer line running along North Pacific Avenue and Surfside Colony. This line feeds to the sewage processing plant located west of Warner Avenue. An eight inch outfall line from the plant runs along Warner Avenue into the ocean. Gas and electrical services are provided by Southern Counties Gas Company and Southern California Edison Company, respectively. It can be assumed that these companies will upgrade their delivery system as the need arises. Aft 2. 16 2. 4 Natural Physical Conditions and Factors The following sections serve to describe the physical and natural conditions that set the stage for human existence. It represents the environment that man must "live with" rather than just "live on" . They supplement other environmental issues and resources that man must conserve and use wisely. 2. 4. 1 Water Bodies and Waterways A crucial factor in the environment of Southern California has always been the availability of water for domestic use , for agriculture, and for recreation. Its scarcity as well as its multiple use potential have made water a prime natural asset, and Huntington Beach has several important water and water-related areas worthy of consideration as possible open space resources. 1. Ocean and Shoreline One of the city' s most significant natural resources is the coastline. The ocean, of course, dominates the area' s climate and along with 8 miles of beach provides an important wildlife habitat and scenic recreation resource for the entire region. All but 2-1/2 miles of the shoreline is publicly owned, and acquisition of this remaining area has been approved by the State. Two endangered species -- the least tern and the light-footed clapper rail -- are known to inhabit this zone and efforts to preserve native wildlife are being taken. 2. Estuaries Of the 28 major estuaries between Morro Bay and Ensenada, Mexico, 15 have been modified, 10 have been drastically altered, and 3 have been destroyed. Three of these important salt water inlets -- Sunset Bay, Bolsa Chica Bay, and the mouth of the Santa Ana River -- exist in Huntington Beach. Sunset Bay is located at the western end of the city near Sunset Beach. Much of the area has been developed as a marina -- Huntington Harbour -- which extends to the remaining natural marshlands of Sunset Bay Aquatic Park. A colony of endangered least tern frequently visit this area, and building activity was halted recently to protect the nesting birds. However, development is imminent. Bolsa Chica is one of the most significant remaining estuaries in Southern California. Although oil drillings in the "gap" area have substantially ter. w 2 . 17 P+` destroyed its marshland nature by restricting tidal flow this inlet remains relatively undeveloped. By patented tidelands laws, the State has claimed 530 acres of Bolsa Chica and recently negotiated a land settlement with the Signal Oil Company to consolidate its holdings. It is the intention of the State: 1) To reestablish azd maintain a saltwater marsh ecosystem that is adequate in size and quality to provide for a diversity of use ; 2) To improve the bay and surf fisheries of the contiguous area by increasing nurseries and forage; 3) To provide habitat for a variety of water- associated wildlife including the endangered light-footed clapper rail and the least tern; 4) To provide unique scientific and educational use opportunities to study the development, formation, and maintenance of a saltwater marsh; 5) To provide Bolsa Chica State Beach expanded recreational opportunities; and 6) To provide a public waterway system available for small craft recreational use. l Towards this end, approximately 400 acres of State land will be reestablished as a salt marsh with islands, mudflats, and tidal channels. The marsh system, which represents the first opportunity naturalists have had to restore a damaged estuary, will eventually be connected to the ocean via a channel that will serve as a waterway for recreational small craft and other public uses. The main channel and possibly a 125 acre marina will compliment the estuary and marsh system by providing deep sheltered water. The mouth of the Santa Ana River was once an important estuary, also, extending between the river and the bluff line as far north as Adams Street. An elaborate drainage system was created in the area, however, to permit residential development. There are still problems with salinity and salt water intrusion, but the only natural marshlands remaining are adjacent to the flood control channels southeast of the Edison plant and the Adams bluff area. 1 "Bolsa Bay: A Conceptual Plan for Resources and Recreation" , State Resources Agency, Dec. 1972 , p. 12 A11::21_h,62 . 18 2. 4. 2 Topography The topographic characteristics of the planning area are identified in terms of high and low points. The highest and lowest points generally exist along the major bluffs in the City. The northwest portion of the Bolsa Chica area is the highest point of a western bluff. It includes significant vistas to and from the area, particularly from Pacific Coast Highway. The eastern tip of the same bluff is also highly elevated and has significant vistas to the surrounding environs. The area directly north of Warner Ave. , between Springdale and Goldenwest, is comprised of several low-lying areas with peat soils and drainage problems. The central area of Huntington Beach, approximately where Goldenwest intersects Talbert Ave. , contains a number of low points. Within Huntington Central Park, fresh water lakes exist and are to be preserved in the development of the park. Adjacent to the above low area are high points created by well defined bluffs. Directly south of these areas are two sand pit areas and a natural ravine. These areas are presently being utilized for sand pit operations and oil production. The highest point in the planning area is located south of Garfield and adjacent to Goldenwest Ave. and known as reservoir hill. The elevation at this point is 127 feet an provides a prime vista point. 2. 4 . 3 Slopes Because of the City' s limited topographic characteristics , any features of note compared to the surrounding flat land or ocean become important. The bluff areas, rising steeply with a broad, rounded front, have also been labeled mesas; and they are probably the most significant physical features within the city. In addition, there are some hillsides of lesser importance such as the terrain surrounding Huntington Central Park. Aside from the benefits of "urban relief" and scenic vistas, slope is also important because of the potential dangers (of land- slide , mudslide , instability) it harbors for development. In conjunction with the higher elevations, slopes of over 30% grade that exist within the planning area are : (1) the northwest section of Bolsa Chica referred to as the Bolsa Chica Mesa, and (2) the central bluff that ^: 2 . 19 f ' runs along the westerly slope of the Huntington Beach Mesa, and (3) the easterly slope of the Huntington Beach Mesa. 2 . 4. 4 Soils The planning area is typified by four distinct types of soil conditions. Most of the area is composed of recent alluvial and tidal marsh sediments. The Bolsa Chica and Huntington Beach Mesas contain older alluvium type soils. Along the westerly slope of the central bluff, older marine sediments are located. The shoreline and beaches are composed of alluvium and sand. Peat and Organic Soil Deposits - Additionally peat and organic soil deposits exist throughout the planning area. The varying depths of layers of peat range from 1/2 inch to over 25 inches. These deposits represent areas where long-term, large settlement may occur and where , during a major earthquake, potential liquefaction of subsoil and ground shaking may be anticipated. 2 . 4 . 5 Seismic and Flood Hazards 1. Earthquake Hazard The main trace of the Newport-Inglewood Fault runs directly through the City of Huntington Beach. Within recorded history, several epicenters with a magnitude over 4. 0 on the Richter Scale have been identified near the City on this active fault. One such epicenter was several miles offshore from the mouth of the Santa Ana River. Leighton & Yen, seismic consultants, are currently preparing a seismic research report for the City which will include a seismic and geologic inventory of the City and maps of geologic conditions, expansive/ collapsible soils, active faults, liquefaction, and. ground response spectra zones as well as guidelines for risk analysis This data will reveal the greatest potential hazards within the City in terms of geologic and seismic conditions and provide the basis for a "Seismic Safety Element" which will seek to alleviate potentially hazardous conditions. The significant geologic features in the city include the older alluvium mesas, three low-lying "gaps" , older marine sediments, beach and dune sands, and .the active faults and fault traces. Though a detailed analysis of these conditions will be developed by the Leighton and Yen study, preliminary investigation shows that the major damage from earthquakes will be from earthshaking. This means that damage is not based on the location of fault lines but on the soil conditions and geologic structure of the area. . 2. 20 2. Flood Hazard Because most of Huntington Beach is constructed in a flood plain, drainage and flooding have always been problems within the City. Only one hundred years ago , in fact, much of the area below the bluff lines was salt- and fresh-water marshlands. In many areas , the installation of adequate drainage has not been planned or is incomplete -- especially in the townlot portion of the City -- and difficulties may arise with heavy rains. In the east side of the city, the Santa Ana River is at a higher level than the surrounding drainage area, and recent studies by the Army Corps of Engineers have indicated that the flood threat along the entire river course is greater than anywhere else in Southern California. After the near disaster floods in 1969 , the Corps is revising their capacity estimates for the Santa Ana channel. Present figures developed by the Corps indicate that Prado Dam in Riverside County and the river channel could only provide protection against a "70 year flood" though they were originally designed to protect downstream areas from a "100 year storm" . Because of siltation above the dam and development along the channel, the system' s capacity is now far below this original design criteria. The Corps is presently work- ing on plans to expand either Prado Dam, the lower channel, or a combination of both, possibly in con- junction with an expanded greenbelt/parkway system to provide adequate protection to the threatened urban areas. The other major drainage areas on the north and west side of the city have not had the benefit of study as in the Santa Ana River area, but they likewise pose potential flood threats. Every area within the flood Plain is subject to flood damage in such a severe storm. It has been estimated by the Corps of Engineers , in fact, that should a standard project flood occur in Orange County, 100, 000 acres of land would be inundated resulting in $2. 2 billion dollars of damage. The Orange County Flood Control District owns 408 acres in • fee and has easements on 20 acres of flood control channels in Huntington Beach. These channels provide storm drainage for the City and inland areas. All of the Orange County Flood Control District channels within the city have been designated as "environmental corridors" which means that with proper planning they could be utilized for trails or a linear park/greenbelt system. In addition to these permanent County Flood Control 2. 21 *' enw N �,fie 11 v�r Mts' OF ,• FrYp.( p "7r, 7 M • 4� �• '1 t 9d'r - ' r 1 M r M�r� t• � � B s� . r � facilities, there is one channel between Edinger and Heil and Graham and Algonquin which is scheduled for undergrounding in the future. The land above this channel will remain open space, however, and a greenbelt trails corridor could be developed. 2. 5 Population and Social Factors 2 . 5. 1 Population Growth Population has grown tremendously for the past 13 years. The annual rate of increase has decreased substantially over this time period, from over 50 percent in the early 60 ' s to less than 10 percent in the 70 ' s. In spite of this reduction in rate of increase, growth in absolute numbers has been sustained at an average of over 10 ,000 per year. Natural increase is a form of population growth. Because of the tremendous influx of population into Huntington Beach, its existence has been overlooked. Over the past 10 years, Huntington Beach' s rate has fluctuated from a high of 18. 8 in 1965 to a low of 14. 4 in 1970. Converting this rate into a percentage or from a rate per 1000 to a rate per 100, would yield 1. 69 percent for 1960, 1. 88 per- cent for 1965 , and 1. 44 percent for 1970. At these rates it would take Huntington Beach' s population about 50 years to double , assuming no in-migration or out-migration. From 1970 to 1973, the population size of Huntington Beach has increased from 120, 000 to 149 ,900 as of July 1 , 1973. This increase accounted for an annual increase of 80 or approximately 10,000 people per year. 1. Population Distribution Patterns of population growth have been broken into five distinct eras. Up to about 1959 most of the growth was concentrated in the Original Townlot Area, the area generally bounded by Beach Boulevard, Garfield Avenue, Goldenwest Street, and Pacific Coast Highway. The period 1959-1963 marked the beginning of a resid- ential tract activity along Beach Boulevard and roughly parallel to the San Diego Freeway in the northern part of the city. From 1964 to 1967 the development of Huntington Harbour and of condominium developments began. Since 1967 many large apartment com-blexes especially along Warner Avenue have been constructed. `N -"$= 2. 23 2. Redistribution of the Population Population was redistributed in the sense that there was a shift in emphasis from single family residential developments toward other forms of housing. Activity in single family housing was still high, but apart- ments, condominiums, and mobile homes were having an effect. This trend toward other types of housing began around 1969 and has continued into the present. Since 1969 , . single family residential development -ha.s. consistently comprised less than 50 percent of all types of units. 3. Population Density City size increased about 400 percent from 1950-1960 and about 15 percent from 1960 to 1970. Because of this tremendous aerial increase during the 50 ' s, population density decreased by 56 percent during this period. Since 1960 the increase has been steady due to increasing population. Currently, Huntington Beach has a gross population density of 5 ,700 people per square mile. 2. 5. 2 Population Composition 1. Sex Ratio. The sex ratio is the number of males per 100 females. In determining the sex ratio two variables were examined: the ratio of males to females for all age groups and the ratio of males to females for the 16-64 age group. This is the group that comprises the labor force. For all age groups there were more males than females in Huntington Beach up to 1967 .. In 1967 the rate was even and since that time it has been slowly decreasing An average for the decade indicates 100. 0 or an even ratio. The 16-64 group reached equality in about 1965 and like the above group, has continued to decline . Since the mid-60 ' s more females are living in Huntington Beach. Many of these are also in the labor force , probably as working wives. This trend is more prevalent now than it was in the early 1960 ' s. Another reason for this apparent dominance of the sex ratio by females is that in the mid 1960 ' s, the effect of Viet Nam War was being felt on the number of young males in the labor force. This war might also explain the low 10-year average in the 16-24 group, Ad 2 . 24 R 2. Age. The median age declined rapidly from 1960-63 when it reached its lowest point. This is indicatilre of a large influx of young families with young children. Since 1964 , median age has steadily increased to where in 1969 it was 24. 7. Although there is no figure available for 1970, median age is estimated to be 25^ This is still below the county median of 26 years for 1970. 3. Race. Huntington Beach is overwhelmingly a "whit community. Persons of Spanish surname are included in whit this "white" population. There are and have been very few non-whites in the city. During the past decade the total has declined from 2. 1 percent to 2. 0 percent. Although this decrease is slight, this in itself is significant. While the non-white population has increased in proportion to the overall population in most communities, there has been a decrease in Huntington Beach. In the past, the housing market in this city has been aimed primarily at the middle and upper middle class family. Traditionally these are professional or highly skilled workers, the majority of which are "white" . Also, due to the newness of the residential market in Huntington Beach, there are no real clusters or concentrations of minorities in the city. 4. Marital Status. Since there is no comparison available on this subject for 1960 for Huntington Beach, a comparison is made between Huntington Beach and Orange County for 1970. The percent distribution is somewhat similar between Huntington Beach and Orange County for the categories of divorced, separated, and widowed. Huntington Beach has 3 percent fewer singles than has Orange County, but 5 percent more married couples than the County. 2 . 5. 3 Socio-Economic Characteristics Because Huntington Beach is one of the newer residential communities in Orange County, it has attracted a large, seemingly high paid, mobile, and relatively young popu- lation. Table2.4is a composite of several characteristics showing racial distribution and household composition. This table shows that approximately 98 percent of the population is "white" and that the majority of households are comprised of two or more persons. `A 2 . 25 Other census information indicated that over 50 percent of the city' s population is under 25 years of age. Table 2 . 4 Racial Distribution and Household Composition $ of Total Race a Population Population All Races 115 ,960 100 . 0 White 103, 475 89. 3 q 4oSpanish American 10,135 8. 7 Negro 99 . 1 American Indian 250 . 2 'V,AgOriental 1 ,660 1. 4 Others 341 . 3 Households 33, 638 Two or more person households 30, 327 .Male head, wife present no non-relatives 26 ,750 Other male head 1, 095 Female head 2 ,482 One person households 3 , 311 aSee definition of "Race" in U.S. Department of Commerce, Bureau of the Census, 1970 Census of Population, "California, General Population Characteristics, " U.S. Department of Commerce Publication (PC (C2) -6 , (Washington: Government Printing Office, 1971) , p. 2. Sources: University of California, 1970 Census, 1st County "Census Summary for Huntington Beach" , Prince Display Series, STP 1-1, (Berkeley: 1971) , P. 4 ; "Metropolitan Housing Characteristics, "HC (2) -10, Anaheim-Garden Grove-Santa Ana SMSA, US Department of Commerce, Bureau of the Census (Washington: Government Printing Office, 1971) , Table G-7, Huntington Beach Planning Department. 2. Employment Indicators Ability of a family to secure housing for itself is directly related to level of income. Income is directly related to employment. Approximately 67 percent of the population 16 years old and over is in the labor force and of these 94 percent are employed. This 6 percent unemployment rate was reflective of the general unemployment rate for 1970. 2. 26 M(,cl.i .in rrirn.inys for . 111iII :: w,i:; females. One reason or this seem 'Mydi.scr.eponcy i :: the fact that 72 percent of all employed males and only 37 percent of the females worked full time. There is no to determine how many of the unemployed had spouses working. A large portion of the residents in this city are in professional, technical , managerial, or administrative positions (33 percent) . 3. Income Levels Defining income levels is a very nebulous task at best. There are probably as many different definitions as there are people to define them. For this study, in- come levels are designated as poverty, very low, low, moderate, and high. The Federal government has set a gross annual income of $4500 for a family of four persons as the current poverty line limit. These poverty families pay over 30 percent of their incomes for housing, whether it is standard or not. Very low income families ($4500-$6000 annual income) are probably paying over 25 percent of their incomes for housing. Low income families ($6000 - $8000 annual income) probably also pay approximately the same percentage for housing. Moderate income families ($8000-$10, 000 annual income) pay 20-25 percent of their incomes for shelter. High income families (over $10 , 000 annual income) pay 12-20 percent of their incomes toward such housing. The ability of a family to secure standard housing also depends on a variety of factors , such as geographical location, family size, minimum accepted standard of living, and any special considerations, such as physical disabilities or migratory work habits. The cost of living varies from region to region. It costs more , for example, to live in Los Angeles than it does to live in Kansas City. A family of four making $10, 000 annually has more money for luxuries than a family of ten on the same income. Based on the 1970 census the distribution of household income shows that there were a total of 29 , 631 families and 5540 unrelated individuals in the city in 1970. Briefly, it can be seen that about 28 percent of these households have poverty level, very low, or low incomes (below $8000 annual income) . Of these lower income groups, approximately 20 percent are families, while 72 percent are unrelated individuals. Two reasons for this apparent skewed income distribution between 'KK':rts+ 2. 27 families and individuals are: 1) That many wives work; 37 percent of the married women 16 years old and living with their husbands are in the labor force. This extra income boosts the median family income. 2) Many of the unrelated individuals might be elderly on fixed incomes , persons with limited skills earning low salaries, part time workers, or unemployed persons receiving unemployment benefits. Tied very closely to the economic income of a household is the wage earner' s age in relation to his income. The bulk of the population, or those between the ages of 25 and 64 years, have the highest incomes; most own their own homes; and about three-fourths of the families pay less .than 25 percent of their incomes for housing. Approximately half of these families pay less than 20 percent of their incomes for housing. The elderly, or those 65 years old and over, have special significance. It is this group of citizens that is still relatively independent and self-sufficient but due to such factors as retirement or health, their incomes are reduced or limited. This age group comprises about 4 percent of the total population of the city, and about 5 percent of the total elderly population of the county. Three important conclusions that can be drawn from the 1970 census. 1) Over half of the elderly earn less than $5000 a year or have incomes approaching poverty levels. Median income is approximately $5000. 2) Over half of this age group pays 35 percent or more of their incomes for housing. Another quarter spends between 25 to 34 percent of their incomes for shelter. 3) Of the renter occupied units, over three-fourths of occupants who earned under $5000 annual income pay 35 percent or more of their incomes for housing. Information was not available for owner- occupied units. Using the 1970 census. information it is possible to get an idea of the amount of housing that should be provided for these lower income households. Assuming the distribution remains fairly constant approximately 25-30 percent of the units should be made available to those who earn less than $8000 annual income. This includes the povert , very low and low income groups. 2 . 28 4. Poverty Income Households and Welfare Recipients A component of the socio-economic characteristics is the economic and housing situation of the lower income groups. A brief review of their financial situation situation is noted in this section. 1) About 3 percent of all families and about 7 percent of all persons receive some form of public assistance. Approximately 77 percent of all persons 65 years old and over receive Social Security income. 2) About 5 percent of all persons in Huntington Beach have incomes less than poverty level. Of these 9 percent are 65 years old and over. 3) Four percent of all persons were found to have incomes less than 75 percent of poverty level. If poverty level as defined in this study is $4500 annual income, for example , then these persons earn about $3400 a year. Of the persons in this income group 7 percent are 65 years old and over. 4) The last income group examined, or those with incomes less than 125 percent of povery level, included about 7 percent of the population. Of these persons 11 percent were 65 years old and over. Persons in this income group would make a maximum of $5600 a year if $4500 annual income were the poverty line limit. A fairly high correlation exists between the location of welfare recipients and those sections of the city that contain older, poorer, and less expensive housing. The occurrence seems to be the highest in the old Town Lot area and in the Beach Blvd.-Warner Avenue area. 2. 5. 4 Housing Conditions As a result of the tremendous growth in population and subsequent building boom to provide housing for this population, the majority of housing is less than ten years old, and for the most part, in excellent condition. However, there are small pockets that contain problem housing, that is, those units considered to be aging or deteriorated. In a preliminary survey of the entire city, staffs of the Building Department and Planning Department found that there were four areas of focus: `��' 2. 29 .; 1. The original Town Lot= area. 2. An area bounded generally by Edinger Avenue , Newland Street, Talbert Avenue, and Gothard Street, hereafter designated as Beach Blvd.-Warner Avenue area. Much of this area was in the old county area of Wintersburg. 3. An area within a half-mile radius of the intersection of Warner Avenue and Bolsa Chica Street, in the old county area called Sunset Heights. 4 . That portion of Sunset Beach now in the city limits. After a preliminary appraisal, four study areas were then delineated. A fifth area, the remainder of the city, was then designated as a yardstick for measuring the survey criteria and conditions in the other four study areas. These four defined study areas were then divided into a total of seven housing survey areas - two in the original Town Lot area, one in the. Warner Avenue-Bolsa Chica Street area, one in the Sunset Beach area, and three in the Beach Blvd.-Warner Avenue area. An in depth study was then undertaken by the staffs of the Building Department, Planning Department and Public Works Department. The Huntington Beach Housing Survey was modeled after a survey program devised by the Orange County Health Depart- ment and consisted of two parts: 'The Block Environmental Survey and the Individual Pal=cel and Structure Survey. The former was a windshield survey carried out by the staffs of the Planning Department and Public Works Department, while the latter was a .sidewalk survey conducted by the Building Department staff. 5300 dwelling units, representing 15% of Huntington Beach' s total housing stock, were surveyed in seven areas. 1. Findings of the Surveys Five percent or 165 of the 5300 structures surveyed were found to be substandard, i.e. , economically un- feasible for rehabilitation. The problem of substandard housing in this community, then, is not considered to be acute, as only 165 units in the entire city were thought to be substandard. However, in terms of one of the goals set forth in the 1968 Federal Housing Act, " . . .a decent home and a suitable living environment for every American family. . . " the problem must be' recognized. wR 2 . 30 Mm - 2. Future Problems These housing survey areas are problem areas for the city today. They represent only a small portion of the housing in Huntington Beach (15 percent) . Taken at face value, current housing problems in this city are relatively non-existent. This situation is prevalent because the majority of housing was developed in the past ten years , 1960-1970; consequently housing is good. Looking at the other side of the story, concentration of so much growth in such a short time has prompted pre- dictions that large areas of the city' s housing may deteriorate within an equally short period, around the year 2000. Based on this assumption, the city will be faced with its most critical housing problem at the turn of the century. At least 70 percent of the exist- ing housing in the year 2000 will be thirty years old or more and will have reached a . stage of marginal utility. Thus, Huntington Beach must seek a formula for curtailing the deterioration of present housing. Many housing specialists say the county and its cities must find ways soon to promote conservation of aging neighborhoods. The alternative could be a massive single family housing slum. 2. 6 Economic Factors Annexations of the late 1950 ' s increased the development potential of Huntington Beach in terms of the urban economic base. Because of the annexations more land was available for development. General economic growth can be measured by building activity and increases in personal income. 2 . 6. 1 Building Activity The attached figure indicates building valuation since 1960. The total valuation curve and the dwelling valuation curve are subject to pronounced peaks and valleys. The commercial and industrial curve is somewhat flat when compared with the other two. Three peaks are identified, 1963, 1965 and 1969 . 1972 : may be a peak year also, but more information will be needed. Three recessions are also recognized, 1964 , 1966- 1968 and 1970. The 1964 recession was caused by an over- built situation in the county. The 1966-68 recession was a general economic recession. This era also marks the y- .< 2. 31 110 100 - - i 90 _ i._.. 80 70 � r 60 To 50 40 � 30 20 ,0 - • i .1 60 61 62 63 64 65 66 67 68 69 70 71 72. YEAR • FIGURE 2. 5 TOTAL •���� RESIDENTIAL www� COMMERCIAL & INDUSTRIAL �► BUILDING VALUATION huntington beach planning department 2 . 32 4 t beginnings of heavy involvement in Viet Nam. The 1970 recession was caused by the tight money situation. So far the Coastal Zone Initiative and Friends of Mammoth Decision requiring Environmental Impact Reports on all projects have not had much effect on these curves . "Total Dwelling Valuation" curve is responsive to economic pressures outlined above. The commercial and industrial valuation curve is very stable, with little fluctuation as compared to the dwelling curve. Development in these areas, while slow, has been steadily increasing over the past 11 years. 2. 6. 2 Personal Income This factor is an indicator of purchasing power. Median family income has increased $5 , 800 in ten years or 96 percent in Huntington Beach. Orange County median income has increased $3 ,330 or 46 percent during this same period of time. In 1960 median family income in Huntington Beach was 19 percent lower than Orange County, while in 1970, Huntington Beach' s median income was 12 percent above the county' s. Based on the United States Census, median family income in Huntington Beach was $11,850 in 1970 and estimated to be over $12 ,000 in 1973. 2. 6. 3 Retail Sales Retail sales in Huntington Beach reached an all time high of close to $250 million dollars in 1972. In 1972 retail sales gained over $49, 659 ,000 over the previous year. The first quarter of 1973 showed a $13. 5 million gain over the same period of 1972. Since 1968, local sales have increased a total of $146,764 ,000 through the 1st quarter 1973. Listed below are 1969 and 1972 sales comparisons by type of business outlet. Figures bracketed are number of sales . outlets reporting. _ >w 2. 33 �+ r + Fig. 2-6 HUNTINGTON BEACH RETAIL SALES* ($000) O 1972 1969 OUTLETS `hllrzFr: T TOT YEAR GAIN Apparel Stores $ 15,002 ( 69) $ 11,478 ( 58) $ 3,524 ( 11) General Merchandise Stores 48,385 ( 26) 28,279 ( 19) 20,106 ( 6) Drug Stores 7,879 ( 17) 6,710 ( 13) 1,169 ( 4) Food Stores 10,081 ( 60) 12,331 ( 47) 7,750 ( 13) Packaged Liquor Stores 5,671 ( 26) 3,621 ( 17) 2,050 ( 9) Eating & Drinking Places 21,565 (143) 12,001 (102) . 9,564 ( 41) Home Furnishings & Appl. 21,678 ( 36) 6,256 ( 30) 15,422 (. 6) Building Matls. & Farm Impl. 11,007 ( 24) 3,124 ( 16) 7,883 ( 8) Auto Dealers & Supplies 52,425 ( 35) 34,446 ( 28) 17,979 ( 7) Service Stations 11,021 ( 86) 2,091 ( 84) 3,930 ( 2) Other Retail Shores 11,593 (132) 6,935 ( 82) 4,759 ( 40) Retail Stores Total 226,408 (654) 127,272 (496) 99,136 (158) All other Sales Outlets 23,271 (1,034) 16,200 (507) 7,071 (527) Total All Outlets $249,679 (1,688) $143,473 (1,003) $106,206 (685) (Retail & Others) * SOURCE: California Board of Equalization 2 . 6. 4 Labor Market* During the year ending July 1972 employment in Huntington Beach expanded by 6. 1 percent to an all-time high of 31, 000. Manufacturing, at 8 ,900 workers, was 500 above the 1967 level and 1 ,400 above the 1971 count. Aerospace layoffs were primarily responsible for a 2 ,400 decline in manufacturing payrolls between 1967 and 1969, but recalls and transfers in from Los Angeles County have more than made up for that loss. Non-defense manufacturing in Huntington Beach is headed by ten firms in the stone, clay, and glass group. Rubber and plastics tie with the printing and publishing industry for second place. Fabricated metals and oil refining 2. 34 • ti 5.' t also provide a moderate number of jobs. Non-manufacturing employment advanced by 1 , 300 in fiscal ' 72. Of the 6 ,000 workers in the retail sector, one-fourth worked in eating and drinking establishments and one-fourth were employed by department stores and other general merchandise outlets. Auto dealers and gas stations are also prominent in the trade structure of the city. Altogether trade employment increased by 400 over the year. Local government added 300 to serve the expanding school age population and the influx of tourists to the beaches. Construction activity required 300 additional workers, . but oil extraction was down somewhat from the 1971 level. *SOURCE: State of California Department of Human Resources Development - June 1973 2. 6. 5 Oil This natural resource, at one time, made the Huntington Beach Oil Field the Number 2 oil producing field in California. Currently, however, this field is ranked Number 5 in terms of production. In 1971, this field accounted for five percent of the total state production. As a comparison the Wilmington Field, California ' s largest producing oil field, accounted for 20 percent of the state' s total. State-wide production has declined as much as five percent annually in recent years; along with the United States' total production, which has declined two percent in 1971. While California' s and the nation' s total production was on the decline, production from the Huntington Beach field has increased during the past two years. This is due primarily to secondary recovery methods such as steam and/or water flooding. Historically, secondary recovery methods have resulted in maximum production within a relatively short period of time; however, a more rapid production decline than was experienced during primary production can also be expected. Present indications are that the Huntington Beach field will follow the typical pattern with production peaking within the next two years and declining thereafter. Over 1, 000 oil producing wells are currently in operation. However, since 1960 the number of producing oil wells has been declining. 2 . 35 It has been estimated that within the next 20 years most of the oil wells will cease to produce. Thus , a situation will exist where large land holdings consuming approximately 3, 250 acres will be available for other use and subsequent development. 2 . 36 tv"! section 3 goals & policies SECTION 3. 0 GOALS AND POLICIES 3. 1 Policy Plan The development and context of the Huntington Beach Policy Plan has been described in Section 1 of this document. As stated, the Policy Plan contains a wide range of considerations that go beyond the scope of the Land Use Element. For reference purposes the Policy Plan has been reproduced in its entirety. The goals statements are intended to provide long term objectives that represent the desired quality of life to which the community is aspiring. The policy statements represent more specific directions and methods for the accomplishment of the goals. The policies are potentially for short or middle range application that can and should be re- vised as degree of success feedback is measured. NOTE: Those policies that are felt to have direct application to the Land Use Element are underlined. 3. 2 Environmental and Resources Section 3. 2 . 1 Community Appearance Goal To develop and maintain high standards of visual beauty within all areas of the city. AMITZ-4 3. 1 Policies 1. Inventory and encourage the preservation of significant areas of scenic beauty. i.e. water- ways; bluffs, trees and historical landmarks .. 2 . Provide for more intensive architectural review within the city. 3. Preserve existing trees, encourage tree planting and allow full growth to all trees . 4 . Encourage citizen groups and service clubs to create programs which will promote "pride in ownership" and "city identity" . 5. Develop city identity with a coordinated theme, .logo, street fixtures and landscaping throughout the city, particularly at city entrances. 6. Encourage and require landscaping and maintenance of all properties and structures. Develop plans of enforcement to achieve . this objective. 7 . Establish standards for commercial signs and advertising. Continue to prohibit billboards and enforce ordinances. 8 . Enforce existing ordinances which require cleanup on oil field property. 9 . Provide a specific budget for community appearance to accomplish community appearance policy goals . 10 . Develop a comprehensive plan for consolidating and undergrounding utilities within the city. 11. Utilize Edison easements for.-greenbelts and city owned..tre_e.._farms . 12 . Encourage standards for block walls and sidewalks which require setbacks, landscaping and variations in design and materials. 3. 2 . 2 Parks, Recreation and Open Space Goal Capitalize on the outdoor and environmental potential of the city by providing comprehensive, coordinated recreation parks and open space programs that fulfill the needs of all segments of the community. __ 3. 2 1, •' t Policies 1. Acquire land for parks, open space and recreation prior to the time the surrounding area is developed in-accordance with the Master Plan of Land Use. 2 . Coordinate park, recreation and open space programs with elementary, high school, college districts, civic groups, government agencies, county regional parks, and encourage other cities to expand their program. 3 . Increase open space through public acquisition of land in lieu of development where the cost of city 'services_ to that developed property, will exceed present cost of acquisition. 4 . Promote preservation of productive agricultural land, -_--now-oniTy forinfs`value in_ providing food and fiber but also as open space relief from urbanization by --._ providing more-tax incentives. 5 . Develop detail survey of specific recreational programs and facilities for all citizens age groups, as well as physically impaired, in the city and provide a variety of programs to meet these needs . 6 . Determine priorities for park site acquisition _. - - ------ -- - - and development by considering site location, population demand, age of the neighborhood or community and acquisition cost savings by buying .land before area development. - 7. _ Develop a system of trails linking the city parks beaches and bluffs incorporating Mood control and Edison easements. 18. Provide landscape planning as part of the overall parks, recreation and open space program which is low in cost for development and maintenance. 9. Plan m recreational open space to provide a minimum 0 _6'--�acre-s of-- combined private, city.-and regional , parks land, including 8 acres of city marks land p`er ,1�n�0 . persons_.within the city boundaries.. 10 . Seek all available resources of funding for the city ' s Parks, Recreation and Open Space Program. 11 . Encourage private and civic organizations, corporations and individual citizens to contribute land andJor -` funds towards_parks, recreation and open space uses. ff'a. w-4, 3. 3 _12. Preserve and protect historic, scenic, geological, topographical and archaeological sites . 13. Encourage the development of community centers which would combine high schools, community parks, recreational centers, branch libraries and other community face-1ities in one area. A. Areas should be set aside for special recreation: i.e. , tennis, badminton, table tennis, lawn bowling, etc. B. Provide civic meeting sites. 14 . Participate in the Santa Ana Greenbelt plans. 15. Develop beaches to maximize access and recreational potential. 3. 2. 3 Natural Resources Goal Provide for the proper development, maintenance, im- provement, preservation and use of the city' s natural resources. Policies 1. Encourage the generation of clean air through the development of greenbelts, ad the preservation of natural area n s of vegetarion. - - 2 . Enforce the established motor vehicle emission standards required by the State of California. 3. �Consider traffic density control and its effect on air pollution in all _future planning 4 . Provide air pollution standards and controls . 5. Establish and enforce decible level areas within the city to prevent encroachment of excessive noise as a pollutant. 6 . Improve water quality as prescribed by responsible government agencies . 7. Prevent pollution of water resources by providing protection against salt water intrusion into soil and fresh water. ARE, . -_ 3. 4 8. Protect against the pollution of marshlands, fresh water, ` ocean and harbor areas . 9 . Establish methods of reclaiming sewage water for agricultural, domestic, industrial and recreational use. 10 . Encourage the utilization of the ocean as a source of fresh water. 11 . Maintain present city lakes . 12 . Encourage water conservation through a joint program with neighboring communities. 13_- Maintain the natural topography and coordinate with the ..Orange County Flood Control .District to develop flood plain regulations for all water sources and preserve green belt flood protection projects.. 14 . Require all developers to provide an environmental impact study for their projects. 15 . Establish and enforce regulations and controls including,. but not limited to, oil spillage, blight, salt water intrusion, land subsidence, handling of waste and other gaseous emissions. 16 . Encourage the beautification of all oil producing areas through landscaping, walls and other design principles. 17. Provide for the removal of oil zones and enforce provisions for an orderly_ clearance,.o _ all oi1 production equipment and restoration of land, as wells become non-productive. 18. Establish the requirements for performance bonds to defray costs of future enforcement and land clearance. 19 . Es tablish. sanctuaries and preserves for the pro- tection of wildlife in their natural habitat. 20 . Provide enclosures when required for the protection of wildlife. 21. Control wildlife over-population. 3. 5 1 . 3. 2. 4 Shoreline Goal Recognize that our shoreline should be developed as a unique, irreplaceable, regional recreational asset in a balanced manner that preserves it, based on .sound economic and environmental standards. Policies 1. Specified buildings such as high rise and commercial complexes should be clustered in designated areas and standards established. 2 . Where necessary to preserve the vista, all active oil wells should be screened by foliage or placed underground rather than be screened by walls or fences . 3. Overnight street and beach parking should be pro- hibited in the entire area exclusive of designated .camping areas. . 4 . Special attention should be given to compliance with anti-littering and anti-loitering statutes. S . All structures. should provide off-street parking ^for all occupants and customers. 6 . The area should be enhanced by special decorative lighting fixtures on streets and highways in lieu of conventional light poles. 7. Encourage all governmental entities to improve, maintain and coordinate. the- us' -e._of_public _beach lands_within the city for recreational -uses . B. State lands held near Santa Ana River on the land side of the Pacific Coast Highway_ should be kept ...w.. . _ in the public domain and developed either by cif or rivate funds . 9 . Encourage the preservation of the natural tidal area consistent with the _State-Signal land-swap agreement. 10 . Establish a cost sharing program to support recre- ational operation and maintenance with federal, state, and county governments in addition to using their financial assistance programs for acquisition. �5z'c 3. 6 11. Develop high standards of operation and service for all concessions. 12 . Future parking lots, if necessary, should be de- signed for the area inland from the Pacific Coast Highway. 13. Eliminate all billboards throughout the entire area. 14 . Continue the participation of citizens in the development of -the 'shoreline area. 15 . No structures should be built offshore that would adversely affect the ecology of the shoreline area. 16 . All discharges into the ocean should be closely monitored and if any adversly affect the ecology of the offshore waters, steps should be taken to secure immediate correction. 17. Prevent any development on the public beaches except -that which_ is absolutely essential and directly associated-with__recreational beach activities . 18 . Maintain a pleasing and unobstructed view of the ocean from the Pacific Coast Highway.- 19 . _Every_effort should be made to encourage consolidation of properties to result in larger, high quality developments . 3. 3 Society and Culture Section 3 . 3 . 1 Housing Goal Provide and maintain a quality living environment so that members of all economic, racial and ethnic groups may reside in Huntington Beach. Policies 1 . Provide for a variety of housing types in all areas of the city. 2 . Insure a wide distribution of low and moderate income housing throughout- the community: IMP 3. 7 3. Continue participation in the Orange County Housing Authority. 4 . Maintain a constant review of financing methods for low and moderate income housing and make this in- formation available to the public. City should encourage the housing authority to initiate applications and assistance. 5. Require and assist developers to provide an economic range of housing including low and moderate income housing opportunity distributed throughout each new project. 6 . Review and encourage use of new proven concepts in housing construction. 7 . Provide building codes to utilize modern less costly building. techniques while maintaining quality control and encouraging good design. 8. Substandard housing should be recycled with similar density by providing incentives to the redeveloper. 9 . Provide for relocation of residents displaced by demolition of substandard housing. 10 . Provide for adequate and equal city facilities and maintenance services in all housing areas. 11. Adopt a fair housing ordinance and encourage fair housing practices . 3. 3 . 2 Community Facilities Goal Ensure a full range of community facilities that provide for the general public' s health, safety and welfare. Policies 1 . Provide for the continued development of a policy department and facilities to adequately serve the city. 2 . Maintain a fire prevention and protection system that considers private property insurance rates and emphasizes prevention. 3. 8 K41110 r 3. Develop cooperative programs on an intercommunity basis to 'improve all protective services. 4 . Provide systems for assistance to residents and other jurisdictions in case of major disasters. 5 . Develop emergency paramedical services and in addition, provide for immediate and temporary medical assistance. , 6. Provide for the plannin5r, coordination and develop- -- - - -. ._.. . . _._ _ _ .... - -- - ------------ ment of utility. systems..-.to. meet. Proiecteddemands . 7. Provide for a civil defense and training that would be sufficient for any natural disaster or war. 8. Encourage development of, or develop, reasonably priced-or 'ree meeting centers ww ic�1 are avalla-ble for Large--(200=500) civic groups -where liquor;-_ -. smoking, and entertaininent' are permitted: --- 9 . Provide- for the continued development of an efficient and economical refuse disposal system that will adequately serve the community. 10. Continue developing. a quality library system which encompasses greater__pubilc participation__and -access to library activities . 11 . The library should encourage cultural enrichment and inter and intra-city cooperation between educational and Civic Library facilities. 12 . Municipal projects should be developed to standards which are equal to or better than minimum standards in the Huntington Beach Ordinance Code for private developments . 13. Provide for the continued development -of harbors and bea r ches sevices in accordance with the Citv '.s. policies while encoura_qing state and county funding . 14 . Satisfy the quasi-public needs of the community b2� encouraging. the__ploper__location and plannir)5 of facilities such as churches, nursing homes, day care centers, well baby clinics, etc. 15 . Encourage the location `'of municipal,. county, state, o _federal and other gveme rnntal facilities within or near the Civic Center. 16 . YMCA, YWCA; Boys and Girls Clubs and similar organi- zations should be fostered and encouraged. 3. 9 3. 3. 3 Schools Goal Promote communication and coordination between all schools (both public and private, pre-school through university) and the city, utilizing those educational resources and facilities for city programs . Policies 1. Continue representation of school members on the Park and Recreation Commission. 2. Request a position with supporting data from each affected school district on each item that comes before the City Council and Planning Commission as regards that school district. 3 . Make Police Department expertise and facilities available to present safety programs and drug education programs . 4 . The Police Department should cooperate with school officials to prevent vandalism and provide necessary personnel for school activities when requested. 5 . Encourage student involvement in City government.. . 6 . The City should add students ,on work study programs to appropriate staffs as an adjunct to the schools vocational programs. 3. 3. 4 Cultural Affairs Goals 1. Promote the enlightened, enriched and creative life of all citizens. 2 . Foster an environment in which present cultural activities will be expanded and. new endeavors will be creatively pursued to meet the varied needs of off citizens. Policies 1 . Establish a Cultural Affairs Commission whose responsibilities would include coordinating and promoting the many cultural activities and " facilities now sponsored and owned by government, schools and the private sector. 3 . 10 2. Preserve and augment the distinctive development and heritage of the City. -- 3. Incorporate City' s heritage in civic center, .library complexes and/or other appropriate structures . 4 . Provide professional and volunteer staff, qualified in various cultural activities. 3. 3. 5 Communications Goals To establish and maintain an effective communications . system through which the city attempts : 1 . To fully inform citizens on current and proposed services, policies and plans. 2 . To be informed of its citizen' s attitudes , beliefs and desires . Policies 1. Increase the capacity of the Public Information Office to handle citizen inquiries on city functions and i services. 2 . Provide for the monthly publication and direct mail distribution of the Huntington Beach Sands to all households in the city. 3. Publish and distribute a "Know Your City Government" booklet, community directory, and activities calendar. 4 . Provide for wider distribution of City Council and commission agendas , supportive materials, and disposition of all matters. 5 . Create multi-media presentations on various aspects of city government at libraries, shopping centers; schools, parks, city hall and at other major citizen traffic areas . 6 . Establish a practical system to reflect combined public sentiment on major issues for the guidance - - ------- of in council members in establish -- ....g Policy: . g; 3. 11 t / 7. Establish a program whereby elected and appointed officials participate in information "town hall." type gatherings and will write periodic columns for local newspapers on a .rotat.i.nq basis . 8 . Pursue the development of local television and radio broadcasting with the provision for public service broadcasting of community activities . . 9 . Disseminate information on tree care, local conditions landscape information, progress of beautification, street sweeper schedules and all related matters for a clean beautiful city. 3. 4 Development Section 3. 4 . 1 Residential Development Goal Encourage and maintain a well balanced variety of residential densities and uncrowded living environments to provide the highest quality of life for residents of the city. Policies 1. Reduce the projected population at saturation in residential zones by a reduction of densities within those zones. 2. Increase open space requirements in all new developments. 3. Provide for a distribution of population by diversity o ensities throughout_ the_city� 4 . Provide strict legal enforcement of zoning. regulations, use permits and building codes. 5. Accomplish the above policies through implementation ---- --- - - o f r ow t --o- i c - ---- - - - -- .-... --- ----- - 3. 4 . 2 Commercial Development and Tourism Goals r' 1. To establish and maintain a well planned program of commercial development which would be aesthetically pleasing, ecologically sound, and economically feasible to both consumer and supplier. 2 . To promote and encourage the development of services and facilities oriented toward the tourist industry. Policies 1. Redevelop the downtown area and provide adequate parking. _ 2 . Strive to maintain rapport, understanding, and -good public relations with commercial developers and businessmen. 3. Encourage and integrated hotel and tourist retail oriented development- pTdg-fam. 4 . Control general commercial shopping centers through zoning re uction. 3 . 4 . 3 Industrial Development Goal Seek and encourage industrial development to broaden the city' s economic base. Policies 1. Work with industry to provide proper site planning - that=:will-provide_for expansion and future. needs. 2 . Encourage industrial development in several dis- persed industrial ..-. . 3. _ Provide for proper .location of land uses_ both within and .adjacent to industrial areas. Buffer and __ £ransition -standares----sFiould be establi9He--( -. 4 . Establish rigid environmental standards . 5, -_Provide access -to industrial areas by -all available forms of tansportation without disturbing surrounding land uses . - - - 3. 13 i i 6. Carefully re-evaluate the location of areas zoned for industrial development. - 3. 4 . 4 Transportation and Circulation Goals Provide an efficient transportation system that considers city and regional master planning and anticipated growth. Policies 1 . Develop a system of streets and highways that will: a. Provide safe access to and circulation within neighborhoods. b. Provide for minimum disturbance to residential areas from through traffic. C. Be coordinated with the county' s master plan of. arterial streets and highways. d. Be coordinated with trails and greenbelts. e. Control pedestrian access to the arterial streets. 2 : Consider the applicability of mass transportation stems th regional mass transit systems. 3. Ensure adequate parking areas thro ughout the city. 4 . Provide for adequate maintenance and protection of --. waterways as transportation and recreation facilities.. 5 . Provide for adequate truck and rail service to industrial and commercial areas while providing minimum disturbance to residential areas. 6 . Minimize penetration of the City by freeways and railways. 3. 4 . 5 Annexation Goal Encompass within city boundaries only those areas with common interests and which can be efficiently and economically served by city facilities . o .•€ zr . 3. 14 M& 1 Policies 1 . Approve and__pursue only annexations which: a. Will contribute to the accomplishment of Huntington Beach General Plan Objectives. b. Will "square off" city limits at the San Diego Freeway, Santa Ana River, Pacific Ocean, and the Naval Weapons Station. C. Will not dilute the existing tax base. d. Will not place a burden on existing city facilities . e. Will meet all municipal codes. f. Will not overload existing gas, electric and water resources. 2 . Use pre-planning of unincorporated territory to assure that annexed areas: a. Are developed in compatibility with surrounding neighborhoods. b. Do not create unnecessary hardships on property owners in proximity to the annexed areas . C. Provide sufficient tax base to assure that the area will not cause tax increases for current residents within the city. d. That no area be permitted to be annexed to the City which is contrary to the previously accepted Master Plan of the area, of which the annexation is a part. 3. _ During pre-planning for annexation, developers of unincorporated areas should be required to show to_ the public all their accumulated information on ecological impacts of the whole area, including those studies required by ' F'ederal , State, and County Jurisdictions . -- 4 . Historically important sites within an annex area - ~should be considered for -dedication pu to blic use --- -- ---- .. ...... or public ownership. 5. Federal and State grants should be sought to develop property which is within the annexed area. 3. 15 ' 6 . Discussions should be pursued with adjacent community leadership to integrate their goals with those of _ Huntington Beach. 3. 4 . 6 Fiscal Planning Goal Provide a fiscal planning process for Huntington Beach that: 1. Is directly related to the City' s objectives as reflected in the general plan, and is recognized as being the fundamental means of gaining .those objectives. The City budget is a shorter range budgeting process consistent with the fiscal plan. 2 . The City, when developed in accordance with the master plan, should be economically balanced. Growth in specific uses should be balanced by comparable growth in other uses to assure that City services will at all times be supported by adequate tax base. Policies 1. Make the fiscal planning_ process and the City' s -"-general pSan consistent: Both should be formally updated-a hd reviewed annually. 2. Use the fiscal planning process to estimate the financial impact of potential- changes to the _City' s eneral Lan. - 3 . The City' s Fiscal Plan should project the revenues Tana-experi3ittires; _'both :capital and operating; --- to be expected given that te City develops at the prescribed (or assumedf_h rate and in accordance with the master plan. Such projections should be made for at least five (5) dears into _the future. 4 . Insofar_ as practicable, costs of. services should be offset by-revenue generated--from_t-Fiatae-rvi-ce 5 . The Plan should, through properly designed programs of taxation (including incentives) and pending ome s - cases as sub sid r o y) , pvide the proper comBIHn f-ion e sin n ves of 1n6enti and disincentives to cause _. _---_ . _. the City to develop in the desired manner. . . z 3. 16 " 6 . Ensure the continuing critical review of all expenditures, both operating and capital, to ensure that they are both needed and adequate using, for example, such techniques as departmental/ functional budgeting and control . 7. Develp2. and_maintain a 20_�ar or longe lr _capita requirements forecast. Assess the long term impact of"-proposed improvements__-T shoianges on_the City s operation. �~Capital uld^Be -uncae—cFby__bonc3s_or_.c�evelOp-= ment fees. 8 ._ Ensure, that the taxation flan always considers the four basic cannons: a. Revenue Adequacy b. Ease of Administration c. Consistency with Economi�...Goa1� d._ Social Justice and'Equity` 9 . Is sufficiently flexible to adapt to changing conditions, yet sufficiently rigorous to ensure its integrity. 10 . Use special assessment districts to implement local ob_'ectives where the,_district _furthersmaster_pan provisions. ��1 xa, 3. 17 .W 5, Y A`a section 4 land use plan } I SECTION 4 . 0 LAND USE PLAN 4 . 1 General The key aspect of the Land Use Element is the plan itself , which is the final depositor for all the goals, policies, criteria, and information relative to the general plan. Reference was made earlier to the "umbrella" nature of the Land Use Element. Specifically, this refers to the other general plan elements which are reflected in the land use plan, either as specific land use designations or as reflections of policy and planning criteria. This section includes the land use plan and the standards and criteria upon which it is based. Additionally, there is the identification of land use issues. 4. 2 Land Use Issues This statement of land use issues is intended to identify major areas of study, concern and, in some instances, areas requiring greater study or resolution. The land use issues have been divided into the following categories for discussion purposes: • General Plan Issues . Circulation and Transportation Issues . Specific Use Issues 4 . 2 . 1 General Plan Issues : . 4. 1 Y This category of issues deals with the process and content of the general plan and the land use element as a part of the general plan. 1. Other Elements. As previously stated, the other general plan elements are in transition. It will be necessary that the Land Use Element interact and reflect the intent and content of the other elements. This will be especially true for the Conservation and Open Space Elements which are being prepared simultaneously to this document. In this instance the Land Use Element will be a key implementing tool of these elements. Additionally, four of the nine mandatory elements are not required until September, 1974 . Therefore, full integration of these elements with land use is im- possible before they are completed. 2 . Land Use Plan Refinement. The portions of the Land UselElement previously adopted (Study areas A, B, & C) are precisely defined diagrams drawn to existing property lines. Additionally, the other study areas consist of loosely drawn, broadly defined categories. It is important that the plan be given a consistent delineation that "generalizes those precise areas and "specifies" the broadly defined areas. In other words the Land Use Element must strike the. balance . between a vague and precise delineation. In this form it will provide specific directions and information while maintaining flexibility and room for decision. 4 . 2. 2 Circulation and Transportation Issues I The interrelationship between land use and circulation require that they be considered simultaneously. Since the last evaluation of the City' s circulation element to the General Plan (i.e. Master Plan of Arterial Streets and Highways) several significant .factors have come about which call for a re-evaluation. 1. Route 1 Freeway Perhaps the most significant is the deletion of the Route 1 Freeway. In August of 1972 the. State j legislature deleted this route from the State Freeway System. Shown on the present Master Plan of Arterial Streets and Highways the freeway was an integral part of this plan. Deletion of the freeway has a sig- nificant impact on the presently planned arterial street system. s. X 4. 2 : .-� 2. Route 39 Freeway In 1972 the State Division of Highways re-opened the study of the Route 39 Freeway alignment. Presently indicated on the Master Plan of Arterial Streets and Highways to tie into the Route 1 Freeway any realign- ment and terminus could significantly impact the arterial street system. 3. Bolsa Bay In 1973 an agreement was reached between Signal Bolsa Corporation and the State of California on the Tidelands in Bolsa Bay. The agreement provided for the possi- bility of an ocean access point at Pacific Coast Highway within 14 years. Assuming this access point to be used for watercraft and providing a crossing at Pacific Coast Highway unfeasible, the major coastal traffic corridor would effectively be cut off and some alternative needed. 4 . State Guidelines The Governor' s Council on Intergovernmental Relations has developed guidelines on all required elements of the General Plan. The guidelines for the Circulation. Element have significantly changed its scope. Previously focusing on vehicular traffic circulation the guidelines now call for a "balanced circulation system taking full advantage of the entire complement of modes of passenger and commodity movement available for the purpose of the state" . With these guidelines the Circulation Element now takes a different stature than it has in the past. 5. County Transportation Corridor Study In July of 1973 the Orange County Board of Supervisors gave approval to a county wide transportation corridor story. The deleted Route 1 Freeway has been designated as a transportation corridor and cities lying within its route are participating in the study. The county has been divided into zones and the area between the San Diego Freeway and the coastline has been designated as the Coastal Zone and is a top priority. 6 . Consultant Assistance To assist in revising the circulation Element (Master Plan of Arterial Streets and Highways) and the Land Use Element (Master Plan of Land Use) and evaluate o Id 4 . 3 rt 1 some specific circulation problems the Planning. Department has retained Herman Kimmel and Associates to assist in the performance of a Circulation and Transportation Study. Detailed discussion of circulation and transportation issues is contained in "Circulation and Transportation Study Parameters , " September 1, 1973 , which is the basis for updating and revising the Circulation Element and, in concert, the relevant aspects of the Land Use Element. 4. 2 . 3 Specific Use Issues. This category encompasses specific land use types and areas with the planning area. In the latter case the concept of a "planning unit" has been used, in some instances, to identify a land area with common concerns or problems that is best treated as a whole for purposes of detailed study and resolution. 1. Oil production lands Substantial areas have historically been devoted to the extraction of oil. While often an unsightly use , it has provided for the postponement of development of these areas. At this juncture, with the expansion of the scope of the General Plan, it is possible to more intelligently anticipate the optimum use and development of such areas. Short range conversion of oil lands is now possible by removal or consolidatio of oil related facilities. On the whole, however, the majority of these areas are being treated as planning reserves. This designation acknowledges a longer time frame for development (5 to 20 years) and provides for the phased planning and redesignation to ultimate use category prior to development. It is essential that, as a part of short-range future planning activities, a schedule for accomplishment of more precise planning be .established and then pursued. 2 . Flood Plains As indicated in a previous section, a significant portion of the planning area is within potential flood plains. Extensive efforts by the Corps of Engineers , Orange County Flood Control District, and the City have been made in the provision of facilities and preparation of contingency plans. The fact remains that substantial development has occurred in these areas. It is imperative that appropriate strategy be developed in con;*rwith elements of conservation and safety. 4. 4 3.. Bolsa Chica This large land area within the planning area has not yet been annexed to the City. While much of the area is currently being used for oil production, a more significant aspect is the acquisition and optioning by the State of California of approximately 530 acres. This area is intended for use as an ecological reserve and public marina. This will have tremendous impact upon the planning and development of adjacent areas, however, definite plans and development by the State is a long range proposition. Planning by the City must be related to State activities and be phased to provide interim policies and in limited areas , development. 4. Civic Center The Huntington Beach Civic Center and adjacent areas have been the subject of considerable study. Although this area has been designated as a government center on the land use plan, the concept for the area has been chosen. The direction chosen is that defined in the "Civic Center Study" as a high activity level plan. This area will be ready for refinement and the preparation of an implementation program subsequent to the preparation of the Phase 1 Land Use Element. 5. Town Lot Area This area has been defined as a planning unit for purposes of detailed study. Its historic context and ocean relationship make it an area of distinct concern. The "Town Lot Specific Plan Study" dated August 28, 1973 has laid the ground work for revisions to the area which include the reduction of residential density in portions of the area, the consolidation of com- mercial development, the limited provision of multi- story development, and possible changes to the Circulation Element. While directions and criteria have been established, the specific delineation of land uses has not yet occurred, hence the generalized treatment of this area in this Phase 1 document. More precise study and resolution is immediately possible and scheduled. 6 . Top-of-the-Pier area This area was originally planned in 1970. This plan, which is consistent with the destination resort designation, is being re-evaluated as a result of changing city policy, the deletion of the Route 1 freeway, and other factors. While the overall concept, Al 4 . 5 which takes into account the unique ocean orientation of the area, is unchanged; the precise delineation of land uses is subject to revision. Continued planning efforts shall proceed. 7. Old Town area Unlike the other "planning areas" which have a strong policy base and directions for detailed study and implementation, the area designated .as the Old Town is in need of such definition. It is currently an area of heterogeneous uses and phases of development. The area must be studied as a whole and consolidated into appropriate policies and use designations. 4 . 3 Standards and Criteria The following standards and criteria were originally developed for the "Preliminary Policy Plan" and have since been revised and expanded. The intent is to provide guidelines for the preparation and maintenance of the Land Use Element. They include generalized criteria for the types of activities, intensity of use, and aspects of service and locational requirements. -An T4. 6 4.3.1 Residential Standards CATEGORY DENSITY OCCUPANCY TYPE LOCATION REQUIREMENTS LOW 0-8 units Primarily families Single Fam. Within neighborhoods (Gross Acre) with children. Res. , low bound by arterial density street system. Conven- planned unit ient to neighborhood developments. facilities. 1, 2, & 3 Low-High story con- Incomes struction. MEDIUM 8-21 units Families with Mobilehome Transitional areas be- (Gross Acre) children, Parks, Town- tween lower & higher married couples houses, dup- density uses. Low-High in- lexes, tri= Located near arterial comes. plex. 1 & 2 highways, convenient story con- to shopping and work struction. areas. II ! MEDIUM 21-35 units Singles, Garden apart- On or near arterial HIGH (Gross Acre) Young married ments. Rec- highways. Provides families with- reation oriented buffer or transition out children apartment between intensive use Med-High in- complexes areas & lower density comes. 2 & 3 story developments. construction. HIGH 35 units & Mostly singles Large apart- In intensive use.areas, over (Gross & married cou-- ment complex near major transporta- Acre) ples without & high rise tion systems & high- children. 3 stories & ways, commercial areas, Higher in above. & activity generators. comes. High rise demands scenic & view potential. RESIDENTIAL NEIGHBORHOOD STANDARDS 1. Avg. Population - 2, 5000 people 2. Avg. Area = 160 acre. 3. Arterial Streets do not pass through neighborhoods but provide boundaries. 4. Interior streets should be short and curvilinear, utilizing cul-de-sacs and other design principles to preserve the residential atmosphere. 5. Parks, Elementary Schools and other neighborhood facilities should be within walking distance. 6. Pedestrian and vehiclar access to arterial streets should be limited. 0,5 � . &Mta Y 4 . 7 tl 4.3.2 Commercial 1. GENERAL COMMI3RCI11L Standards CATEGORY POPULATION AREA SERVICE FUNCTION LOCATION SERVED READ. DISTANCE Convenience 3000 �-1 mile Major tenant Intersection of People Acre foot picking secondary market to arterials. serve neigh- borhood. Neighborhood About 4-10 1 mile 10-15 re- Major & primary 10,000 Acres tailers, major arterial inter- people. tenant super sections. market & often includes a super drug & bank. Community 15,000 15-35 10 to Anchor tenants Major & Primary people Acres 15 min. are usually jr. arterial or drive. dept. store & intersections. more or market: Regional 100,000 50 Up to Supplants down- Major arterial Acre 30 min. town anchor & freeway & drive. tenants; one, junction. over. to five major dept. stores. Special/ Varies Varies 4-5 mile One to five Major arterial Discount spacing. major tenants. intersection or freeway interchange. 2. OTHER COMMERCIAL FUNCTION LOCATION REQUIRED HIGHWAY Business that try to attract Intersectioh of primary & major RELATED passing automobile traffice as a arterials, and freeway inter- COMMERCIAL large or primary source of cus- changes; also desirable to tomers. Service stations, drive- combine with general commercial in restaurants, etc. uses. 4 . 8 FUNCTION LOCATION REQUIRED RESORT Restaurants, hotels, gift and Must have transportation network ORIENTED specialty shops and other and needs to be near areas COMMERCIAL resort oriented, facilities. possessing resort. qualities. OFFICE Medical dental areas; other Medical dental centered around PROFESSIONAL professional and general hospitals or small centers office uses. dispersed throughout city and related to neighborhoods. Other professional & office uses should be concentra- ted in areas possessing suitable environmental quality such as projected in the Top of Pier Plan. 4.3.3 Industrial Standards INDUSTRIAL CATEGORY PERFORMANCE STANDARDS LOCATION REQUIRED TYPICAL USES Light/ Minimum emissions of Concentrated industrial Research & development Industrial smoke, dust, fumes areas, industrial parks. electronics plants Park vibration, & noise Proximity to arterials office type industrial & freeway important. distributing & ware- housing uses etc. Medium Higher lever of In industrial areas, Auto wrecking yards, ligh/industrial away from residential lumber yards, fabri- park emissions areas. Proximity is cating plants, etc. permitted. transportation. Those uses which are "Heavy" industry but still contain higher nuisance qualities than light industry. Heavy Maximum level of In appropriate Steam generating emissions permitted areas that provide plants, sewage dis- for public utility the least amount posal plants, water facilities of a of nuisance qualities. treatment plants. "heavy" industrial nature. Aewk 4A 4.3.4 Public Uses & Facilities Standards 1. LIBRARIES i FACILITY LOCATION FUNCTION MISCELLANEOUS Central Geographic Central repository 250,000-350,000 volumes Library center of the . & administrative sophisticated informational, city. headquarters of reference, & bibliography library system. materials. Substantial cultural center depth in general interest areas. Major At existing Serves as a 35,000-50.,000 volumes Branches Main St. site, supplemental fa- basic collection in general (Three) the North cility .to cen- interest areas. Sufficient part of town, tral library. resources for children & Talbert basic informational & research Valley. materials for adults & students adequate profess- ional personnel. Bookmobile Movable Provide conven- •travels to neighborhoods facility ience to library schools, shopping centers, users especially & etc. young children. Sub-Branch Near inten- Serves primarily 2,5000 to 5,000 sq. ft. sive use as a book pickup depending upon location areas, on & return & population density. arterial street. NOTE: Overall system Volume Criteria is 2 volumes/capita MF RAM 4 . 10 2. FIRE FACILITIES FACILITY LOCATION FUNCTION MISCELLANEOUS Fire One within Engine co: 1 station to provide Stations 2 miles or 1 mi. /3 minutes both land and water 5 minutes of high value residen- service. all residential tial district. Engine co: 8 areas. Ladder co: Ladder co: 3 Near arterial 3 mi. /3 minutes 1 squad intersections all residential 1 boat set back districts. from R/W. 1 mi. /3 minutes of all high value districts. Adminis- Civic Provide administra- tration & tion & public infor- Fire Head- mation services & quarters fire prevention. Support Where A. Central fire Fire training facility facili- appropriate training facility. in industrial area. ties B. Central city . wide communication C. Fire apparatus maintenance & supply facility. 3. CIVIC FACILITIES FACILITY FUNCTION LOCATION MISCELLANEOUS civic Administrative On arterial street Center & legislative convenient to center. citizens. Corpor- Maintenance & In industrial Facility would primarily serve ation storage of area convenient public works, & service city Yard city owned to all parts of vehicles; limited service would equipment. city. be provided for police, fire & harbors & beaches. 4 . 11 a FACILITY FUNCTION LOCATION MISCELLANEOUS Civic Facilities for In the Top of the Facility would hold Auditorium community Pier area. Near meetings, conferences, & activities & hotel complex & conventions, & theatre Conference conventions. specialty shop activities. Center area. Municipal Provide public Beach area & Developed by a municipal Parking parking in the other areas parking authority. Areas beach area. where demand exists. 4. QUASI-PUBLIC FACILITIES FACILITY LOCATION FUNCTION MISCELLANEOUS Church, Intersection of Provides facilities Sites should be of an Rest Home, primary & sec- & activities that adequate size for func- Private ondary or two are public in nature, tion, provide parking, School, secondary high- but private in scope. facility should be inte- Clubs, etc. ways. grated & compatible with the area its located in. 5. POLICE FACILITIES FACILITY LOCATION FUNCTION Patrol Units One within 1� min. of Protection of life & property. emergency call. 5 min. Prevention of criminality. for non-emergency call. Police & Civic Center Provide administration, Administration training & public information. Facilities Investigation services- communication detention. Support Facilities Where necessary Police garage & heliport & appropriate. maintenance of vehicles & helicopters, pistol range. 4. 12 5. UNDERGROUND UTILITIES UTILITY LINE TYPE COST MISCELLANEOUS DISTRIBUTION Communication Telephone Developer and telephone Telephone Co. establish- Co. funds. es its own priorities; telephone lines usually undergrounded jointly with electric Co. lines. Electrical Over Not applicable No undergrounding re- 34.5 KV quired. Less than Electric Co. funds Provides for underground 34.5 KV in underground ing only existing lines. utility district. Priorities established: 1. Vicinity of Huntington Central' Park. Less than Developer and Mostly new lines, poss- 12 KV Electric Co. ibly some existing. The Funds. developer must under- ground all lines giving him primary benefit; applies to all land uses. Community Television Developer and All lines are required Antenna Cable cable T.V. Co. to be underground. funds. i 'x :: 14 . 13 6. PARKS CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES mile Adjacent to el- Primarily Closely re- service ementary school children lated to radius; when possible. 5-14 yrs. elementary NEIGHBORHOOD 2 to avg. pop- Safe & conven- old; also school; 3� Acres ulation ient access to preschool contains 2,500 to neighborhood children & playground .3,500. residents; away family facilities. from arterial groups;dual streets;on use with local street school fac- ilities. Service Ideally adjacent.Serves sev- May provide radius to high schools; eral neigh- both in- 1 mile to close to ath- borhoods; door & out- COMMUNITY 10-40 1� mile; letic field provides for door 'facil- Acres 40-50 dual purpose. broader rec. ities. thousand needs than popula- neighborhood tion. park does. Popula- Where natural Serve inter- Land and/or tion ser- features & pop- City,County, water fac- ved varies; ulation demands & inter- ility REGIONAL 50 Acres service exist. County needs. with scenic and radius character; above 30/40 mi. ; regional 1 hour beach fac- drive. ilities. AN'] � nl 7. SPECIAL FACILITIES CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES In community Multi-purpose Multi- parks & other functions: purpose RECREATION 10,000 60,000 appropriate Meetings,Bar- Building. CENTERS Square areas. becues, Dances Feet Senior- Citizen, etc. Approx. Areas South East - Neighborhood Neighborhood 6 miles linked ern part of & community & community EDISON length together the city. parks; where Park Facili- POWER LINE by 200 by the it abuts ties. Bike, feet. easement. schools; Horse & Hiking natural Trails; areas in natural areas. the remainder. 100- Varies Where Serve public 18 Hole GOLF 140 appropriate. golf needs. Course Club COURSE Acres house & pro shop. Near bridges connection NEIGHBOR- 1/3 Neigh- Huntington Swimming HOOD Acre borhood Harbour & Quiet water BEACHES oriented. Islands to Sunbathing orientation. Mainland. Appropriate Boat & Boat Boat docks, MARINA Varies Varies quiet oriented fuel & stor- water activities, age. Yacht areas. Club Restau- rant. it k 4. 15 t SPECIAL FACILITIES CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES Facilities Ball Fields, SPECIAL Varies Varies Where for special Tennis courts, USE appropriate. recreation Archery purposes. ranges; Lawn areas, etc. Near geo- Serves all Lakes & nat- 200 Total graphic Cen- neighborhoods ural areas, HUNTINGTON to City ter of City, in the city. Informal lei- CENTRAL 400 300,000 accessible Regional sure areas, & PARK Acres popula- to freeway nature, other facili- tion. & arterials. community ties not dup- scope. licated in community parks. 8. SCHOOL FACILITIES FACILITY GRADE DESIGN AND SPACE SERVICE ENROLL- MISCELLANEOUS LOCATION REQUIRED RADIUS MENT On local st. Elementary within neigh- school should Grades borhood. (Qtr. 8-15 - 3/4 700 be access Elementary K78 sec.) adjacent Acres Mile to ible from to neighbor- 1000 dwelling unit ' hood park. by foot with- out crossing any arterial. If a street must be crossed it should not be a major art- erial. 4 . 16 SCHOOL FACILITIES FACILITY GRADE DESIGN AND SPACE SERVICE ENROLL- MISCELLANEOUS LOCATION REQUIRED RADIUS Ment should be away Intermed- Grades from major 14-15 840 Ideally ad- mediate 7-8 arterials near Acres 1 Mile . to jacent or near (Junior concentration 1200 park facili- High) of dwelling ties. Pedes- units. trian access important. On arterial Should be street, conven- located ad- High Grades ient access, 50 2 Miles 3000 jacent to a 9-12 proximity of Acres or more community park other facili- area. School ties is desir- should be able. screened from noises or objec tionable uses. On arterial 1 Mile Provides higher Community Grades St. convenient 50 Acres walk or 5- education & College 13-14 to all areas & above Bus/auto 15,000 cultural near fwy. distance. programs for the community. a A."AIM"', 4. 17 4. 3. 5 Planning Units As indicated in an earlier section this general category of use designations is intended for specific areas of the city which have been identified as an interrelated planning unit that is to receive individual attention. In many instances substantial progress has been made in these areas, however, they are not sufficiently resolved in detail as to be precisely delineated in this document. 1. Government Center Planning area keynoted by significant government facilities (Huntington Beach Civic Center) . Uses may include : . Civic Facilities Commercial - retail and specialty . Office and Professional (related to civic facilities) . Residential This category is intended to provide a planning unit that will encourage the comprehensive planning and development of a civic facility and related areas. 2 . Planning Reserve A broadly defined interim designation intended for areas where long term comprehensive planning and development is anticipated. Uses. may include: 1) Land areas in a predevelopment phase that are not yet fully planned or ready for immediate development. 2) Land in transition to ultimate use that may be designated by a "holding" zone (such as the "RA" District) 3.) Resource production areas including land in use for agriculture or oil extraction purposes. (Oil extraction may be combined with land desig- nated as industrial, residential-agriculture , or residential use. The intent of this category is. not to preclude develop- ment, but to identify such areas as deserving special attention and planning efforts. 3. Destination Resort An area proximate to the shoreline for the establish- ew `��SNP :'.. 3 4. 18 i �g t ment of a beach oriented, tourist related community providing a variety of land use types. Uses may include : . Residential (including Multi-story) Hotels and Motels . Retail and Specialty Commercial Offices Public Uses & Facilities 4. Townlot A defined planning area characterized by small sub- divided parcels and 'ocean orientation uses may include: Residential-density range (including multi-story) Commercial-Retail & Specialty . Hotels & Motels Public Uses & Facilities The intent is to provide a planning unit that is well defined in character and orientation, that has special qualities and problems that should be addressed as a whole. 5. Old Town Transition A defined planning area characterized by heterogeneous existing land uses and degrees of development and re- development. This area is in a state of long term transition from oil extraction uses, old residential areas and vacant land to residential and commercial community areas. Uses may include : • Residential • Commercial , Retail & Office • Industrial . Public Uses & Facilities . Oil Extraction The intent is to provide a planning unit that will permit the comprehensive planning and assistance for the evolution of the area into final land use patterns and facilities. 6. Planned Community A contiguous area containing a minimum of forty acres and a mixture of land use categories. Uses may include : . Residential Commercial 21'" 4 . 19 F • Industrial • Public Uses & Facilities • Institutional This category is intended to provide for the compre- hensive planning and development of an identifiable area of land. Detailed delineation of a planned community area may be adopted by amendment to the land use element or by specific plan. 4 . 4 Land Use Plan The Land' Use Plan is a graphic representation of land use categories, allocations and locations within the planning area. It is a current statement of community goals and policies and factors of population, social , economic and physical conditions. 4. 4 . 1 Planning Area Acres (gross) Incorporated area 16 ,970 Unincorporated area Bolsa Bay 1 , 625 Sunset Beach 115 1,740 Total Area 18 ,710 acres (gross) '4 4. 20 z: t 4 . 4 . 2 Land Use Area Summary (Incorporated area) Land Use Category Acres (Gross) 1. Residential Low Density 7 ,149 Medium Density 870 High Density 5 Mobile Home 38 Sub Total 8 , 377 2. Commercial Retail 989 Office 89 Sub Total 1,078 3. Industry Light Industry 1 ,545 Public Utility 249 Sub Total 1 , 794 4. Transportation Railroad R/W 46 Transportation Corridors & Freeway 447 Sub Total 493 5. Public & Quasi-Public Uses & Facilities Schools Number Elementary Schools (51) 588 Elementary (Admini- stration Office) ( 1) 10 Junior High Schools ( 5) 63 High Schools ( 5) 252 Junior College ( 1) 120 Sub Total 1 , 033 Parks Neighborhood (47) 142 Community ( 4) 65 H.B. Central Park 312 Sub Total 519 _r 4. 21 ,a Recreational & Special .Facilities Golf Course ( 1) 99 Neighborhood Beach 2 City Beach 50 State Beach 456 Marina 2 Sub Total 609 Public Facilities Fire Stations ( 7) 10 Harbors & Beaches Fire Facility ( 1) 4 Post Offices ( 3) 9 Libraries ( 3) 4 City Yard ( 1) 15 Sub Total 42 Institutional Church (49) 45 Cemetery (31) 48 Meeting Hall, Lodge ( 8) 12 Private Schools (12) 11 Sub Total 116 Other Waterways 236 Water Reservoir 9 Drainage Channels 263 Edison R/W Unleased 143 Edison R/W Leased 21 Buffer 16 Sub Total 688 6 . Special Planning Areas Planning Reserve 453 Government Center 113 Townlot 310 Destination Resort 263 Planned Community 580 Old Town 502 Sub Total 2 ,158 TOTAL ACRES (GROSS) 16, 970 41 K-"d 4. 22 , 4. 4 . 3 Land Use Area Summary (Unincorporated Areas) Category Acres (Gross) 1. Bolsa Chica Planning Reserve 1 ,095 Ecological Reserve 530 Sub Total 1, 625 2. Sunset Beach Residential : Medium High 100 Commercial : Community 15 Sub Total 1 ,730 . .,. :.: L.n. 4. 23 section 5 implementation SECTION 5. 0 IMPLEMENTATION 5 . 1 Implementation Techniques 5 . 1'. 1 General. The key to. effective Land Use planning is the establishment of methods and procedures for the implement of Land Use plans, standards, and policies. Many techniques have long been in existence in Huntington Beach, although the degree of interpretation and use has changed and evolved. Of special significance is the new "consistency" provision of the State Planning Law (described in Section 1) . This provides a stronger tie between the Land Use Plan and zoning, which is the key implementation tool. 5. 1. 2 . Techniques In Use 1. Zoning. Division 9 of the Huntington Beach Ordinance Code provides for the designation of zoning districts and the regulation of development within those districts. Development controls include: Type of use, density, open space requirements, and numerous other develop- ment standards . Procedural techniques for the review and regulation of the development are numerous and include: Administrative Reviews, Conditional Exceptions, Conditional Use Permits, Zone Changes, Tentative Tracts, Environmental 5. 1 Reviews and Design Review. These activities are administered by the planning Commission, Board of Zoning Adjustments, Environmental Review Board, Subdivision Committee, Design Review Board, and the ultimate authority, the City Council. 2. Subdivision Regulations. Subdivisions are regu- lated and reviewed in accordance with the California Subdivision Map Act and the City's subdivision ordinance contained in Division 9 . 3. Building Codes. Division 8 of the Huntington Beach Ordinance Code regulates building and safety and includes provisions for building, plumbing, electrical, and mechanical construction. 4 . Specific Plans. Under the provisions of Section 95450 of the Government Code, the city utilizes the specific plan process for the study of detailed issues and planning of areas . The specific plan is then used for amendments to the General Plan and Zoning. 5 . Area Plans. This subject is analagous to the specific plan, however, it need not require the adoption of a specific plan. This is often used is larger areas, for which a master plan is prepared for inclusion into the General Plan. 6 . Public Acquisition. The acquiring of land for public uses and facilities is an ongoing process and is accomplished in several. ways. Fee simple purchase Condemnation and purchase Required dedication of land and/or fees for the acquisition of community facilities . Easements for public usage Dedication of improved streets and utilities Joint ventures or funding from County or Federal revenue sources. 7. Capital Improvements Program. A six year capital improvements program is currently being used to guide and assist implementation. i 8. Public Involvement. Past and continuing programs involving citizen participation is an essential ingredient in the development of policy and plans . r 5. 2 5. 1 . 3 Techniques Not Used The following are techniques that are not in use or partially used for implementation of the Land Use Element. 1. Urban Redevelopment. The emphasis has been placed on redevelopment by private enterprise, however, this is a possible area of city involvement and leadership. 2. Installment Purchase. Allows the city to adjust acquisition to long term installment payments. 3. Growth Policy. Work is progressing on the development of a growth policy and strategy that will develop new techniques for the regulation of growth. 4. New Ideas. Many options are still open in terms of development review and standards. Potential techniques are constantly being researched and evaluated for potential application to the city. Needs resulting from the new General Plan Elements and environmental legislation are putting the pressure on for new techniques and methods. This area should be expanding in the foreseeable future. A!Rk 5. 3 5. 2 Programs It is impossible, at any one time , to fully identify the status of the numerous planning programs and activities that represent the General Plan (and Land Use) process. The following des- criptions identify the major activities that are currently in progress or scheduled for initiation in the near future. 5. 2 . 1 General Plan Programs As indicated in Section 1, the General Plan program consists of nine mandatory elements, all of which are in various stages of readi- ness. The General Plan preparation is an on-going process . The next immediate phase of work that directly relates to the Land Use Elements includes the following programs. 1. Land Use Restudy: Continuing evaluation of the Land Use Plan as a result of concurrent element activities, which includes the Conservation, Open Space and Circulation Elements. 2. New Elements : Continued preparation of the additional required elements of Seismic, Noise, Scenic Highway, and Safety. Each will have an impact on the Land Use Element. 3. Special Studies : A discussion of programmed special studies occurs below, however, they will eventually be used as specific inputs into the General Plan and will have an important contribution in the refinement of the Land Use Element. 5 . 2 . 2 Special Studies 1. Growth Policy: . The "Growth Policy Study" , dated October 1973, has been prepared by the Planning Department. This is anticipated as the first step in the preparation of a growth strategy which could have a profound effect on land use policy and plans . This work will be a continuing program with eventual input- to the entire General Plan. 2. Town Lot: The "Town Lot Specific Plan Study" (Aug. 1973) has identified the major planning issued and alternatives for the Town Lot area. The next step will refine and define the Land 5. 4 t Use Plan for incorporation into the Land Use Element. 3. Civic Center: The "Civic Center Impact Study addresses the issues and alternatives for the Government Center district. This area is now ready for refinement and inclusion into the Land Use Element. 4 . Transportation: The Planning Department is actively pursuing traffic and transportation studies for input into Circulation and Land Use Elements . 5. 2 . 3 Code Amendments Amendment to Division 9 , Huntington Beach Ordinance Code is constant activity, however, several programs are of special interest to the Land Use Element. 1. Multi-Story .Suffix: Intended to provide for multi-story development in key areas of the city in conjunction with specific plans. 2. Consolidated Apartment Standards: To reduce apartment densities and provide for more uniform application of development standards . 3. Recreational Open Space. The new zoning district has been created. The next phase of the program will entail the designation of appropriate areas within the City. 5. 2 . 4 Miscellaneous Programs 1. Land Use/EPD System; When completed, this system will provide computer data on land uses throughout the City. 2. Special Census: This special census (Nov. 1973) will provide up-to-date land use, population, social and economic data. .. 5 . 5 5 . 3 Future Activities It is difficult to separate future activities from ongoing and scheduled programs. Several items are listed below that are part of the middle-range land use programs . 5 . 3. 1 Top of the Pier. This area will be restudied and integrated with private development plans that are now in preparation: 5 . 3 . 2 Old Town Transition. While continuing work will continue in this area, it is not anticipated that a comprehensive program can be initiated until completion of some of the pending special studies . 5 . 3. 3 Planning Reserves . These areas will be system- atically addressed over a period of time. In many areas the commitment to oil extraction will continue for some time. 5. 3. 4 Bolsa Chica. While largely designated as a planning reserve, activities in the area will be closely monitored so as to coordinate the activities of the State, the land owner and the city until such i time as comprehensive planning can occur. I 5 . 3. 5 Multi-Story Specific Plans. Future work is antici- pated in the preparation of additional specific i plans for the designation and enabling of multi- story development. 5. 3 . 6 Environmental Resource Management (ERM) . When this aspect of the Conservation. Element is realized it will be integrated with all aspects of the General Plan, and especially with the Land Use Element. _.. 5. 6 section 6 environmental impact report SECTION 6. 0 ENVIRONMENTAL IMPACT REPORT FOR PHASE I LAND USE ELEMENT TO THE CITY OF HUNTINGTON BEACH GENERAL PLAN 6. 1 Introduction This Environmental Impact Report for the Land Use Element-Phase I has been prepared in accord with both the "Revised Guidelines for Implementation of the California Environmental Quality Act of 1970" , and the California Council on Intergovernmental Relations' (CIR) "General Plan Guidelines" of September, 1973. As stated in the CEQA Guidelines, The EIR may be prepared as a separate document, or as part of a project report. If prepared as a part of the project report, it must still contain in one separate and distinguishable section the elements required of an EIR, including the seven elements specified in Section 15143 of these Guidelines. (Section 15061, d. ) In addition, the CIR Guidelines give further direction for prepara- tion of an EIR on a General Plan Element: The environmental impact evaluation can and should be an ongoing process in. the preparation of the General Plan so that in effect the General Plan report becomes its own environmental impact analysis. This process may well require the documentation and exposure of development alternatives with less detrimental impacts on the environment which have been heretofore rejected in the interest of providing enhanced community facilities, economic growth and opportunity, and improved housing. It should be recalled that one of the purposes of the environmental impact report is to expose . alternatives to public view and comment. am COMM== 6.1 Given the nature of the document as a long-range set of policies and principles, it is not always practical to apply each of the seven points noted in the CEQA with the same degree of specificity that is applied to a specific project. The general plan environmental analysis should take on broader scope than the analysis which is done on a specific project which has specific, well defined limits. , The following is an attempt to discuss each of the seven points in the CEQA with regard to the type of impact assessment which should be part of the General Plan. If these issues are included in the plan- ning process then the General Plan can contain its own impact state- ment. a. The Environmental Impact of the Proposed Action The policy alternatives generated by the plan development process which concern the commitment of land resources (particularly land use, circulation and housing) should undergo an environ- mental analysis so that the extent of the impact of varying levels of density and intensity of use can be projected. Where specific areas are treated in the General Plan, the more specific the delineation of the policy, the easier it will �be to evaluate the impact. Since the General Plan is a long term policy guide, long range impacts should be discussed in sufficient detail so that both beneficial and adverse impacts can be evaluated. b. Any Adverse Environmental Effects Which Cannot be Avoided if The Proposal is Implemented This provision relates more to a specific proposal than necessarily to a General Plan or plan element. The policy alternatives in the General Plan and the options for specific action in the elements should describe adverse impacts which may not be avoided if a particular alternative was adopted. Within this description, the benefits of a particular alterna- tive should also be discussed. C. Mitigation Measures Proposed to Minimize the Impact This section again refers to the evaluation of a specific pro- posal where an adverse impact may result but where concensus within the planning process determines that the option is of such community importance to be implemented, then mitigating measures should be discussed. Mitigation measures can be addressed in short-range or precise plans. d. Alternatives to the Proposed Action In the development to the General Plan and subsequent elements, alternatives which are proposed should have a general statement on the relative degree of environmental impact on each of the alternatives. Where one alternative would create a greater impact than another, more detailed assessment should be made. 6.2 e. The Relationship Between Local Short-Term Uses of Man' s Environment and the Maintenance and Enhancement of Long- Term Productivity In preparing the General Plan there should be sufficient analysis to describe the relationship between short-term uses of man' s environment and long-term productivity. These are fundamental long-range policy choices which the planning process should address. Careful analysis of this issue will provide a sound balance between economic development and environmental protection. f. Any Irreversible Environmental Changes Which Would be Involved in the Proposed Action Should It Be Implemented The General Plan commits various uses of man' s environment. Where implementation of the General Plan would cause any adverse irreversible environmental changes, the benefits to be secured by the changes should be clearly evaluated on balance against the environmental losses. g. The Growth Inducing Impact of the Proposed Action The principles and policies of the General Plan all have an impact on community growth and development. Evaluation of the impact of the population growth policies should be a primary subject of consideration in the formulation of the General Plan. Keeping these instructions in mind, this impact report will be a general analysis of the impact of Phase I of the Land Use Element on the community environment. As further defined in this section, this environment consists of seven resources: Land, Water, Air, Biological, Cultural, Economic, and Social. Potential impacts, either positive or negative,will be identified on the following pages. It is the nature of the General Plan Elements to be broad policy documents to guide subsequent specific actions; and because of the broad policies and temporary status of the Phase I Land Use Element; it is impossible to assess the specific problems which may arise as development occurs. Therefore, this EIR is intended to be the first of a series of environmental assessments, with the final assessment made at the project level. Accordingly, this EIR cannot be used as the basis for a categorical exemption for any proposed project, even though it be in conformance with the General Plan. All of the detailed impacts that might conceivably occur as a result of this General Plan Element cannot be completely dealt with in a report of this scope. However, it is the intent of this report to outline those impacts which are anticipated in the greatest detail AMIN 6.3 5 possible. It must be noted that the Land Use Element-Phase I is by its very nature an environmental assessment. In this sense, an appropriately detailed EIR for this Element would appear to be a duplication of all the work that preceded the adoption of the plan. 6 . 2 Summary of Major Environmental Issues The development of the City of Huntington Beach according to policies and guidelines proposed in the Phase I Land Use Element will produce fewer adverse environmental impacts than would its development under the two alternatives possible at either extreme: 1) current trends based on market demand with no constraints imposed to protect vital resources, or 2) a strict, no growth development plan geared to preserve all remaining resources within the City. The intent of the Phase I Element is to provide the policy framework which will guide the relations between the urban and natural environment from this point forward. The plan proposed is of a very general nature and will require future policy decisions to provide guidance for implementing the available alternatives. It affords the City maximum flexibility in preserving, conserving, and utilizing its resources in the best and most efficient way possible. Therefore , this Element allows considerably greater protection for environ- mental values than would result from a "no plan" alternative while allowing greater flexibility to maximize potentials for creative use of resources than a strict "preserve all" program. As such, it represents the best of these three categoric alternatives. 6. 3 Description of the Project 6. 3. 1 objectives The Phase I Land Use Element, as part of the General Plan, provides general environmental goals and policies for the City of Huntington Beach and an Action Program for the preservation and conservation of resources. Very generally its stated objectives include : 1. Incorporate environmental concerns in municipal decision-making; 2 . Control urban form and growth;and 3 . Coordinate land utilization. This EIR, then, deals only with the broad concepts and objectives presented in this Phase I Element. This Element represents an attempt to consolidate and expand past land use plans . into new directions and areas of emphasis. Because of its transitory nature, Phase I MI �� 6.4 is just a preliminary step in the City' s efforts to protect and preserve its resources. Detailed data and analysis of the environment will be presented in the Open Space & Conservation Element to the General Plan. Other reports which supplement the base environmental data to be presented are cited here as reference for this E. I.R. These include: 1. "Scientific Resources Survey and Inventory, Huntington Beach, California" 2. "Geotechnical Inputs , Seismic Safety Element, Huntington Beach, California" 3. "Coastline Study" 4. "Recreational Trails Element: Phase I" 5. "Revenue/Expenditures Analysis of Land Uses" 6. "Growth Policy Study" 7. "Housing Element: Phase I" 8. "Bolsa Bay: A Conceptual Plan for Resources & Recreation" 9. "Townlot Specific Plan Study" 10. "Circulation & Transportation Study Parameters" 11. "Technical Report: Sunset Beach - Surfside Colony" 12. "What Shall This Community Be? A Policy Plan for Huntington Beach, California" 6. 3. 2 Location Figure 6. 1 depicts the area to be influenced by this Element. Including the incorporated City of Huntington Beach, the territory between the city limits and the center line of the Santa Ana River Channel, and the unincorporated Bolsa Chica and Sunset Beach vicinity, this area is designated as the Huntington Beach "Sphere of Influence" . Located along the coast of Southern California in the County of Orange, this 18 ,700 acres is bounded by the Cities of Seal Beach, Westminster, Fountain Valley, and Costa Mesa. Figure 6. 2 places the City in regional perspective. ol SO,z", oo� /0 Fg, 01,11, NONE �Mlol WNW/ NINE 11 A 01 V", mull"- 0 ,0,0 W/O G 01,3111M.o 17-19-0 o I o"0,'�' VZAo 04 00 VENTURA FRWY. (�k'0 PASAOENA 101 0 PASAOENA ^f y FOOTNIL FR1r r. HOLLYWOOOO wy , QALHAMBRA- QEL MONTE COVINAQ SAN SERNARDINO FR' 10� OPOMONA U.CL.A. FR.Ir POMONA FR111Y O SANTA MONICA 10 Y 60 OINDUSTRY o ' C104 L.L 7SANTA 1 MONICA i u a.c CITY Uf LOS ANGELES COMMERCE a o0 > Q OPICO RIVERA ♦ rr$ s 5 7 0� L A.INTERNATIONAL AIRPORT LL O O WHITTIER fir ' `\ HUNTINGTON 7P� L A. CO. \ EL SEGUND�O/ 11 PARK QSANTA FE` ` t ORANGE CO. 405 SPRINGS �' ' r MANHATTANO 1 W OS / BREAQ q BEACH GARDENAQ m ART OPLACENTIA E SIA FRWY. .P dWIMr �IMIIIIIIIII FULLERTON � s �� AIRPORT ���CAL.STATE COLLEGE OC, �F BUENAQ ^ AT FULLERTON 00 PARK LrJ QFULL'RTON CARBON W / RIVERfiOE FRwT \ REDON00 O Q BEACH O c 91 'O TORRANCE '�Ip 5 LONG BEACH ' QANAHEIM ' mv 7/'� O AIRPORT . ' 4 PALOS VERGES c � '� QViLLA PARK ESTATES a LONG o n e BEACH CAL•STATE COLLEGE o r AT LONG BEACH OGARDEN GROVE ; SAN GARDEN GROVE FRWY 22 QTUSTIN PEDROQ %% GOLDEN WEST ` COLLEGE SANTAQ ANA 0, �. �untingtoh SAN s, " V h o�FGo r� ^QC�n NEWPORT BEACH ORANGE CO. ` O' AIRPORT a 1 0 rJ' �`C:o U C IRVINE 1,/ SCALE IN MILES �LAGUNA BEAc:H VICINITY MAP FIGURE: 6 - 2 6. 3. 3 General Description of the Project' s Characteristics Three characteristics to be described in this E. I .R. are technique , economics, and environment: 1. The technical characteristic to be considered is that the Phase I Element is regarded as a tool whereby land development or utilization may proceed in an orderly and coordinated manner. 2 . The economic characteristic is that the Phase I Element will provide a mechanism whereby sufficient land is preserved so that those land use activities that will broaden the City' s economic base will be encouraged. 3 . Seven environmental characteristic have been identi- fied: Land, Water, Air, Biological,Culture, Economics , and Society. 6. 4 Environmental Setting Huntington Beach is a metropolitan area in a metropolitan county, and as such its environment -- both local and regional -- is primarily an urban one. Even in this urban area, however, natural resources remain with the potential for improving the quality of life for all residents of the community. 6. 4 . 1 Land Resources The city borders the Pacific Ocean and lies predominantly in a. flood plain which drains interior mountain regions. As a result, most of its land is flat and a considerable portion is less than 10 feet above sea level. Only bluffs demarking the Bolsa Chica and Huntington Beach Mesas appear in contrast. Three active branches of the Newport- Inglewood Fault Zone are located within the City; these faults represent areas which may be associated with surface rupture in future earthquakes. Earthquake shaking . potential depends on local soil conditions, but it is considered to be generally high. Liquefaction, ground lurching and differential compaction potential is consider- ed to be high in low coastal areas underlain by shallow groundwater. Peat and organic soil deposits are scattered throughout the City. These deposits represent areas where long-term and large settlements may occur due to oxidation, groundwater lowering, and/or stress application due to fill or building loads. Expansive soils are widespread throughout the City. Slope instability and landsliding have not been found to be a significant problem. No damage or safety hazard has been found to be associated with subsidence due to oil withdrawal. i 4��t . a= 6.8 The location of oil and gas pools corresponds to geologic conditions and such conditions are present within the area. The City' s oil field .is, in fact, one of Cal. i. roi-n i.ci ' s largest in cumulative production. There is only one operating sand and gravel pit in the City. Though others existed previously, this mineral xesource is fast being exhausted and holds little potential for the future. There are currently about 2 , 600 acres of public and private open space uses in the Ci4cy including parks, . outdoor recreation facilities, and nature reserves. Publicly-owned acreage, assumed to be permanent, totals approximately 2 ,275 acres with 480 acres of proposed use. Additionally, there are about 3 ,400 acres of land reserve; that is , land which is vacant or underdeveloped. It is expected, however, that these reserves will dwindle rapidly unless municipal effort is exerted. 6. 4. 2 Water Resources A crucial factor in the environment of Southern California has always been the availability of water for domestic use, for agriculture , and for recreation. Its scarcity as well as its multiple use potential have made water a prime natural asset, and Huntington Beach has several important water and water-related areas. One of the City' s most significant natural resources is the ocean and shoreline. The ocean, of course, dominates the area' s climate and along with 8 miles of beach provides an important wildlife habitat and scenic recreation resource for the entire region. Three important saltwater estuaries -- Sunset Bay, Bolsa Chica Bay, and the mouth of the Santa Ana River -- exist in the City' s Sphere of Influence; and several lakes and inland marshes occur, especially in the Central Park area. The Santa Ana River, once the largest in Southern California, bounds the City to the southeast. Today, it is a leveed sand bottom channel. Because most of Huntington Beach is constructed in a flood plain, drainage and flooding have always been a problem. In the east side of the City, in fact, the Santa Ana River is at a higher level than the surrounding drainage area. Domestic water is produced from nine wells which vary in depth from 250 to 900 feet, and quantity varies. Total production is about 14 ,000 gallons per minute. Additionally, the City has three connections from the Metropolitan Water District of Southern California and three reservoirs with a storage capacity of over 20 million gallons. 6 . 4 . 3 Air Resources 6.9 Contamination from organic decay and from volcanic sources is infrequent in the air masses crossing the shoreline of Huntington Beach. The most frequent natural contaminant found in the coastal atmosphere is corrosive sea spray. In the South Coast Basin , the substances added to the atmosphere from man-made sources are primarily combustion products. These substances are of great concern for their effect on the health and well being of people, livestock, crops, wildlife and the preservation of nature. Artificially induced contaminants are known to have their adverse effects at great distances from the point where they are introduced. The air environment of the Huntington Beach area is superior to that of the developable area inland. The coastal areas such as Huntington Beach have little reason to expect significant air contami- nation, except for motor vehicle emissions. The prevailing westerlies and the daily morning and after- noon shore breezes regularly refresh the coastal air even though there may be an extended period of low inversion inland. 6. 4. 4 Biological Resources Avifauna, or birds, are the most significant wildlife populations within the City. Two native species -- the light-footed clapper rail and the least tern -- are considered endangered and face extinction. Other endanger- ed or rare species common to this coastal area include the brown pelican, the California clapper rail , and the California black rail. The most significant vegetative resources in the city are trees, primarily eucalyptus, palms, and some pines. Most natural tree stands were removed for agriculture; the eucalyptus groves were planted during the 1930 ' s and 1940 ' s for timber and several remain standing today. The palms and pines are primarily ornamentation. 6. 4. 5 Cultural Resources A scenic vista is a view or outlook which presents desirable sights. It may be a spectacular scene of natural features or an interesting perspective of the urban skyline. Being a coastal community, of course, affords the city many pleasurable seascapes. The bluff lines also provide significant views especially where development has not yet occurred. In addition to vistas, visual landmarks are also important and valuable as visual stimuli. These landmarks are structures which occur in vista areas and provide variation from the 6.10 surrounding urban framework of streets, cars, and buildings. Such visual landmarks include the Edison Electric Generating Plant, the Pier, the Newland House, the Huntington Beach Company Office, the Civic Center, Huntington Beach High School, two old water towers, and the Bolsa Chica Gun Club. Parks and recreation facilities are also important cultural resources. At present, the City has about 190 acres of neighborhood parks and 110 acres of community parks developed or scheduled. In addition, the following regional parks and recreation areas are included within the Sphere of Influence: 1. City Beach 2. Bolsa Chica State Beach 3. Huntington State Beach 4. Bolsa Chica Ecological Preserve 5. Huntington Central Park 6. Adams Bluff Park 7. Dobkin Bluff Park Paleontological and archaeological resources provide modern man with the opportunity to understand and take pride in his unique heritage. Unlike many other natural resources, each individual find is novel, never exactly duplicated, and incapable of regeneration. If destroyed or damaged, it is lost. Although there have been no significant fossil discoveries within the City, several have been reported in the area, and any grading or digging done below five feet is likely to encounter such materials. Archaeological findings provide the clues to help scien- tists reconstruct the culture and life styles of past human societies. Already several major finds have been made within the city; and in an effort to identify all additional sites within the City, Huntington Beach contracted the firm of Archaeological Research Incorporated to survey the community. The results of their study, which indicate that there are a variety of archaeological sites (some of which remain undisturbed) within the City, have been published in a report entitled Scientific Survey and Inventory. 6. 4. 6 Economic Resources Huntington Beach is fortunate to have a broad economic base. In the Orange County Labor Market, most recent statistics indicate that the City accounted for 31,000 jobs (five percent) out of a total of 586, 900. 6.11 The City is continuing to diversify and expand its indus- trial base to lessen dependence on any one industrial type. Over the long haul, industry is the most important . employment generator for the City. A good industrial base ensures steady employment and a tax revenue source. Commercial development in Huntington Beach is continuing to expand, thereby strengthening the economic base. The City is capturing a significant portion of the retail market in Orange County. For the three-year period, 1970- 1972, Huntington Beach ranked second of all cities in the net retail dollars gained. Assessed valuation is an indicator of the City' s general economic well-being. It measures the City' s worth in terms of property tax revenue. In fiscal year 1973, the City' s total assessed valuation was $410,300 ,000. Since 1966 Huntington Beach has ranked third in the County. Income is an indication of purchasing power. Median family income in Huntington Beach in 1970 was $12 ,930. 6. 4. 7 Social Resources Population is one of Huntington Beach' s most famous assets. Its spectacular growth rate of the past decade has given the City a valuable human resource. It is a young, healthy, ' concerned, and well-educated population that currently resides within the city limits. ' I Coupled with population, there is another unique resource that deserves mention: -that of an interested and highly motivated citizenry. Without their participation and concern, such timely and important projects as the Policy Plan would never have been a reality. The majority of the housing stock is still relatively new and of high quality. Many of the City' s older areas have aged gracefully, thereby adding charm and uniqueness to a young community. Huntington Beach recognizes that education is one of the keys to a better future and as such has very progressive educational programs.At all levels the various districts have agressive planning programs that are continually assessing present and future requirements for students. School sites are planned, and, in many cases, acquired several years prior to actual need. Public facilities and services are designed to protect and preserve the public health, safety, convenience , and gener al welfare. Quasi-pub ', . facilities and services provide 6.12 . a r b C for family emotional, physical, psychological , social, and religious needs. 6. 5 Environmental Impacts The following discussions present in general form those consequences and environmental impacts that can be expected during the implemen- tation of the proposed Phase I Land Use Element. These impacts are broad and general in scope, reflecting the nature of the plan itself. Future Environmental Impact Reports dealing with specific projects will discuss in greater detail the exact nature of the significant impacts expected. This section is designed to give an over-view of the environmental issues involved when evaluating various policy decisions at a future date. 6. 5. 1 Environmental Impact of the Proposed Element 1. General Impacts The impact of the Phase I Land Use Element will be to promote better, more efficient use of natural and human resources by making consideration of these resources as a prerequisite for development. This element is the first time that the land use plan and related factors have been pulled together into a single plan and supporting document. This allows for the comprehensive and total evaluation and study of the planning area, thus promoting a more satisfactory base for consideration of resource planning and consideration. This document provides (over the previous fragmented approach) for the comprehensive application of goals, policies and programs for the preservation and enhancement of the environment. By its nature the Land Use Element is an indirect im- pact since it is only a plan and does not propose spe- cific development. It is dependent upon numerous mechanisms and procedures for implementation. A notable aspect of predevelopment procedures is the environmental review process that permits the specific analysis of environmental conditions and impacts. 2. Impact on Natural Resources The Element provides for the adoption and use- of goals and policies that are committed to the protection and conservation of natural resources. The Element provides for the allocation and distribution of re- sources and conservation elements. 6.13 The Element identifies and promotes the protection of natural resources: Water: Pacific Ocean , Santa Ana River, Marinas, flood plains, flood channels. Air: Provides a base for detailed assessment of air resources and provides for potential transportation modes as an alternative to the automobile. Land: Identifies resources and promotes the proper planning and utilization of land resources. Biological : Identifies and promotes preservation of key ecological resources. The Element provides, as part of the General Plan and land use programs, for the incorporation and utilization of the conservation and Land Use Elements. 3. Impact on Human Resources The Element provides a sound policy base , derived from community goals, oriented to the provision of cultural, social , and economic considerations and enhancement. The Element identifies and provides those facilities and uses for the health, protection, safety and welfare of human resources. The Element provides information and criteria for the anticipation of human needs and fulfillment of those needs and concerns. The Element considers economic factors in the pro- vision of use allocation and distribution, city facilities, employment and residential needs. . The Element considers social factors in terms of population characteristics and needs which include employment, housing, education, recreation and civic facilities. The Element considers cultural factors in terms of population and social needs which include the pro- vision of civic and community services and needs and recreational, educational and institutional facilities. I 6.14 L ' c 4. All of the above statements represent positive environ- mental impacts. In overview the Land Use Element identifies and proposes specific programs for the re- finement, evolution and revisions of land use as it relates and influences natural and human resources. The Phase 1 Land Use Element represents a positive environmental impact either by direct application or through the creation of mechanisms and future programs that will provide for positive impact. 6. 5. 2 Any Adverse Environmental Effects Which Cannot Be Avoided If The Proposal is Implemented. No significant adverse impacts have been identified. By its nature the Element is indirect and will require sub- stantial checks, balances and procedures before it can be implemented. The Element is a general guide, hence it is flexible and amenable to consideration and avoidance of any detailed adverse impacts that may result from specific development proposals, which is beyond the possible scope of the Element. 6. 5. 3 Mitigation Measures Proposed to Minimize the Impact Since there are no significant adverse environmental impacts, no mitigation measures are required. In fact, this Element is a mitigation measure in itself. When combined with other General Plan elements, the Land Use Element will act as a mechanism to measure,. adjust and direct the use of resources forithe avoidance of specific adverse impacts. Without this Element there would be no guarantee that environmental concerns would be properly coordinated in future development in the planning area. 6. 5. 4 Alternatives to the Proposed Element Several alternatives have been identified: 1. To not adopt this Element. While existing plans are in effect, they do not provide for the comprehensive framework of use allocation, policies and programs contained in the proposed Element. The result would be a continued, disjointed approach that would not provide for proper guidelines and environmental consideration. 2 . To adopt an element which accommodates maximum growth and development. This alternative could result in over development and over utilization of environmental resources. This would produce a number of adverse impacts. 6.15 3. To adopt a more restrictive element that would severely• limit development. This alternative might be more favorable to the natural environment, but it would have. serious adverse effects on the social , economic , and legal aspects of the environment. This alternative would tend to inhibit redevelopment where it may be desirable for the improvement of the man-made physical environment;and it would tend to deny both present and future residents of Huntington Beach the full range of benefits or amenities that would be available if a more moderate land use element were adopted. These three alternatives are inconsistent with the goals and policies of Huntington Beach. Adoption of any one of these alternatives will result in a number of adverse impacts, including existence of incompatible land uses; occurrence of uncoordinated development; and an unbalanced economic base. This proposed land use element is regarded as a logical compromise between extremes. It will result in a balance of the important environmental values and an optimum envornment in physical, economic , social, and psychological terms. It will allow the current and future residents of Huntington Beach to attain the Quality of Life Goals set forth in the Growth Policy Study. 6.5 . 5 Relationship Between Local Short-Term Uses of Man' s Environment and the Maintenance and Enhancement of Long- Term Productivity I As was stated before,there are no adverse effects anticipated. It was also mentioned that this Land Use Element is a mitigation measure in itself. Being a long-term guideline for development there exists a positive relationship between the local short-term uses of man' s en- vironment and the maintenance and enhancement of long- term productivity. Additionally, the Phase 1 Land Use Element represents a process that provides for the staged development of policies , plans and programs that identifies short range programs and issues within a context of long range .goals, policies and environmental planning programs. 6.5 . 6 Any Irreversible Environmental Changes Which Would Be Involved In The Proposed Action, Should it be Implemented This Land Use Element will not cause any irreversible environmental changes , but instead will help to avoid or mitigate any adverse changes. 6.16 6.5 . 7 Growth-Inducing Impact of the Proposed Action This Land Use Element will not have any growth-inducing impact, but will serve to limit and guide future growth. This is in concert with the modified policy alternatives recommended by the Growth Policy Study. _A41 IMF` 6.17 section 7 appendix BIBLIOGRAPHY Archaeological Research Inc. "Scientific . Resources Survey and Inventory" . 1973 California Council on Intergovernmental Relations. "General Plan Guidelines" 1973 California State of Assembly Bill 1301, Adopted 1971. Assembly Bill 1725, Adopted 1972. California State of,Environmental Quality. Act. California, State of,Government Code, Section 65302, 65860, 95450. California, State of, Department of Human Resources Development. "Area Manpower Review" . 1973 California, State of,Resources Agency. "Bolsa Bay: A Conceptual Plan for Resources and Recreation" . 1972 California, State of,Subdivision Map Act. Huntington Beach, Citizens Steering Committee for Goals and Objectives. " What Shall This Community Be? A Policy Plan for Huntington Beach, California" . 1972 Huntington Beach, City of Department of Harbors & Beaches. "Coastline Study" . 1973 Huntington Beach, City of, Planning Department. "Circulation and Transportation Study Parameters" . 1973 Huntington Beach, City of, Planning Department" . Civic Center Impact Study" . 1973. Huntington Beach, City of, Planning Department. "Growth Policy Study" . 1973. Huntington Beach, City of, Planning Department. "Housing Inventory, Phase I of the Housing Element to the General Plan" . 1972. Huntington Beach, City of, Planning Department. "Ordinance Code, Divisions 8, 9" . Huntington Beach, City of, Planning Department. "Preliminary Policy Plan" . 1971. A400A 7. 1 Huntington Beach, City of, Planning Department. "Recreational Trails : Phase I. 1973. Huntington Beach, City of, Planning Department. "Revenue/ Expenditure Analysis of Land Uses" . 1973 . Huntington Beach, City of, Planning Department. "Townlot Specific Plan Study" . 1973 Leighton-Yen and Associates. "Geotechnical Inputs, Seismic Safety Element, Huntington Beach, California" . 1973. Orange County, Planning Department. "Technical Report: Sunset Beach-Surfside Colony" . 1967. Urban Land Institute. "Huntington Beach, California. A Report By An Urban Land Institute Panel" . 1965. Adft�k 7. 2 LEGEND' RESIDENTIAL PUBLIC USES 8 FACILITIES (CON'T) LOW DENSITY EXISTING PROPOSED MEDIUM DENSITY SCHOOL MEDIUM-HIGH DENSITY ELEMENTARY HIGH DENSITY JUNIOR HIGH Q MOBILE HOME HIGH 0 COLLEGE PARKS COMMERCIAL NEIGHBORHOOD COMMERCIAL RETAIL COMMUNITY 0 OFFICE HUNTINGTON CENTRAL HOTELS-MOTELS REGIONAL SPECIALTIES RECREATIONAL FACILITIES RECREATION CENTER INDUSTRIAL NEIGHBORHOOD BEACH = LIGHT BEACH PUBLIC UTILITY MARINA Ul GOLF COURSE EDISON R/W LEASED AGRICULTURE EDISON R/W UNLEASED SPECIAL USE PUBLIC USES & FACILITIES INSTITUTIONAL TRANSPORTATION ECOLOGICAL RESERVE = CHURCH F7j RAILROAD F_+_j HOSPITAL "Ill CORRIDOR CITY YARD FIZ-1 LODGE, MEETING HALL F—ps I PRIVATE SCHOOL STREETS LIBRARY CEMETERY — — — — FREEWAY QUASI-PUBLIC(INCLUDING: CENTRAL LIBRARY CHURCHES,CLUBS a LODGES) INTERCHANGE EKI SCHOOL WAREHOUSE MAJOR SCHOOL ADMIN.OFFICE OTHERS PRIMARY POST OFFICE PRIMARY WATER RESERVOIR COUPLET FIRE TRAINING CENTER a STATION FIRE STATION PLANNING RESERVE m....man— SECONDARY oFJ Ell BUFFER HARBORS a BEACHES FACILITY DRAINAGE CHANNEL 8 WATER WAYS DESTINATION RESORT PLANNED COMMUNITY REV 918 111?-73 OLD TOWN TOWN LOT GOVERNMENT CENTER LKND USE ELEMENT PHASE 1 it ,✓-. 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L?r C, Cr D fill 11121 4 <,♦ w7 '.ii;ii ii::i.€ �.:: O PS .at:. u. ♦ �_ � ':,.. c.. w:.�` •..— �'..... ..;. ,+i;;.�;iji;^EF:\ '�'"�i�`'V-���t�t J'4b�`� � `}t,� ��P� x' .c��t\. �♦ � I( L � ........x;�+;�... ::•.s� �':: -:.,� ... ._rt _ +�'—i Y 'irarcs•t dc1• i � nt,' 6 �` r, r� ♦ ad 'tom p1 ��� +` +'' � � oP P4a� . ♦ . �:I�- . � .ter: . �' - I� J � •t I , •. �.. e ..:sir..:•I:• ,:.•.,::�.:: - P u `C r: + 1 - a') G P' E. L • r • 4CIII q. --- - _ z O(• •N PACIFIC. HUNrINGTON BEACH, 04LIFORNIA :-PLANNING-DEPARTMENT ------ ---- ----- -- ------ --- -- -- r � CITY OF HUf1 nGT0n BEACH P.O. BOX 190, CALIFORNIA 92648 i • * PLANNING DEPT. (714) 536-5271 TO: Honorable Mayor and City Council � . Planning Commission ATTN: David D. Rowlands, City Administrator FROM: Planning Department RE: Amendment to the Land Use Element DATE: September 24, 1974 � 9 In December of 1973 , the Planning Commission and City Council adopted the Phase I Land Use Element. Prepared in response to a state mandated deadline of December 31, 1973 , the Element contained six "Planning Units" which required further study. The amendment being proposed to the Land Use Element contains three of these planning units plus two other study areas (refer to attached vicinity map) . The attached draft report is composed of the summary sections of the Element amendment and EIR being prepared by the Planning staff. • The recommendations are the result of four months of study sessions between the Planning staff and Commission. Alternative R plans for each planning unit and study area were evaluated prior to formulation of a recommended plan. The Planning staff feels that with one exception, all the proposals contained in the Element would have concurrence from the City Council.. The exception being tha industrial area south of Huntington Central Park, east of Goldenwest Street. Staff is proposing much of this industrial area for residential development. Y Although it is the staff' s professional opinion that the proposed residential areas are not suited for industrial development, it should be pointed out that the Planning Commission is not unanimously in favor of these proposals. The Planning staff will be prepared to discuss this in further detail Tuesday evening. 5� The staff presentation Tuesday evening will give an overview of all proposals in the amendment. Staff will then discuss in further detail the recommendations for the industrial area south of the park. - The presentation will conclude with a discussion on con- tinuing studies and future amendments to the Land Use Element. * �. Page 2 • Staff is not requesting any formal action by the Council on the proposals,. only an indication of preference prior to the public hearing stage with the Planning Commission. Respectfully submitted, Richard A. Harlow Director of Planning and Environmental Resources by: Edward D. Selich Planning Program Administrator RAH:ED:gc Attachments Amendment To The m Phase 1 Land Use Element ................ t ROM .................... ................ ....... ...... MdADDBi .......... ............................................... .......... ....... ...................... MEL SUNSET HEIGHTS VAUM .......... PLANNING RESERVE SOUTH OF ........... -I--------- UAW HUNTIN9%TO*.. CENTRAL PARK ... ........ ............... .................. .................................. EAST OF BEACH/ SOUTH OF ELLIS @ARFIELD IJ ........... ............. YORKTOWN .... ..... GOVERNMENT CENTER/ V OLD TOWN ADAMS To`ML0T . INDIANAPOLIS ..... ................ ................. ............... X. X AMLANIA -4— MMLTON .......... ......... BANNING Adtk IRM V STUDY AREAS huntington beach planning department section 2 planning reserve planning unit south of huntington central park 2.5 Recommendations Provided in this sub-section is a recommended Land Use Plan and accompanying policy statements. In essence , the recomnended Land Use Plan and policies represents the conceptual approval by the Planning Commission. 2.5.1 General Conclusions During the process of evaluating Alternative Land Use proposals, several conclusions have been reached by staff and the Planning Commission. In general the following conclusions were reached: A. A low to moderate level of residential and light industrial development was most suitable for the area south and southeast of Huntington Central Park. B. Due to unique topographic and locational conditions, estate type of residential development, not to exceed 4 units per acre, was most suitable in the general area south of central park, north of Garfield and west of Goldenwest to the bluff line . C. Typical low density residential development (7 units maximum) was favored in the area east of Goldenwest, south of Central Park and adjacent to industrially designated land. D. The remaining residential areas would not exceed 15 units per acre. E. It was the consensus of the Commission and staff that no retail commercial should be permitted within close proximity to Central Park. F. Previous plans for the study area had indicated excessive amounts of industrial land. With the deletion of the freeways, the topographic constraints, questionable compatibility with the park, and land subdivision characteristics it was felt that this industrially planned land should be reduced. G. It was felt that Garfield Avenue should serve as the most southerly boundary of the Central Indus- trial Corridor and that the proposed realignment of Gothard Avenue should serve as the most westerly boundary of industrial uses within the study area. H. The proposed realignment of Ellis Avenue would serve as the most southerly boundary of Huntington Central Park or other major open space areas. I. The proposed realignment of Edwards Avenue would generally run along the bluff line, eventually linking with 38th Street. J. The area south of the present limits of land acquired or authorized for acquisition as Huntington Central Park should be either acquired for the park or preserved as open space. K. Areas of long term potential for oil production should be placed in a "resource production" category. 2.5. 2 Proposed Goals and Policies A set of Proposed Goals and Policies have been developed in efforts to provide basic guidance in the future development of the study area. It is further intended that the proposed Goals and Policies may be used city wide in conjunction with the adopted Policy Plan in the study area. The policy statements expand the concept of the adopted Policy Plan and provide more detailed guide- lines and criteria for decision making by the Commission and the City Council. Residential Goal Encourage and maintain a variety of residential types conducive of the physical, economic and social character- istics of the area. Policies 1. Provide for a moderate level of residential devel- opment through estate, low, and medium density residential development. 2. Promote the highest quality of residential develop- ment throughout the entire area with special emphasis in areas within close proximity to Huntington Central Park. 3. Maximize private open space and preservation of natural resources in medium density residential areas through planned residential development zoning. 4. Assure the aesthetic and design quality of develop- ment through civic district suffix zoning. Commercial Goal Provide a level of commercial development which would meet community commercial needs and would be compatible with surrounding land uses. Policy 1. To phase out all commercial development which is incompatible with surrounding land uses. Industrial Goal To establish and maintain light industrial development in areas where it would be compatible with surrounding land uses and provide necessary facilities and services . Policy 1. To concentrate industrial uses in an area which is served by adequate transportation facilities and routes . 2 . To protect industrial areas from other encroaching land uses. 3 . To provide for compatible land uses surrounding industrial areas. 4. To promote light industrial park development within industrial areas. 5. Phase out marginal and non compatible industrial uses . 6 . Assure the highest quality industrial development through improved development standards. 7. Within the vicinity of Huntington Central Park provide for maximum compatibility between all industrial development and the park. Open Space. Provide for the preservation of natural resources and open space to the maximum extent possible. Policies 1. Provide for the further expansion of Huntington Central Park to facilitate a diversity of passive and active recreational activities. 2. Preserve the bluff line from development and optimize visual and physical amenities as a scenic greenbelt corridor. 3. Encourage maximum landscaping and open space in all residential and industrial developments. 4 . Protect unique natural features or resources, where possible, by integrating them into public, residen- tial, and industrial developments. 2 .5. 3 Recommended Land Use Plan (Figure 2. 15) It is the contention of the Planning staff and the conceptual approval of the Planning Commission that the recommended Land Use Plan provides the best long- range plan for future development of the study area. It reflects, in the staff' s opinion, the resolution of major land use and circulation issues . It is consistent with the open space concepts set forth in the Phase I Open Space Element and is in concert with the concept of moderate population growth. A proposed land use summary and population estimate based on the proposed residential uses is provided in Table 2. 11 and Table 2 .12 . TABLE 2 . 11 Proposed Land Use Acreage Summary Land Use Gross Acres Residential Estate 0-4 UN/GAC 175 Low Density 7 UN/GAC MAX 24 Medium Density 7-15 UN/GAC 109 Industry Light 98 Public Open Space 174 Fire Station 5 Oil Resource Production Area 60 TOTAL 645 TABLE 2 .12 Projected Population Estimate Residential Gross Maximum Total Population Type Acres Units/GAC Units Unit Population Estate 1.75 X 4 = 700 X 3. 55 = 2 , 485 Single Family 24 X 7 = 168 X 3. 55 = 596 Multiple Family 109 X 15 = 1, 635 X 2 . 3 = 3, 760 TOTAL = 6, 841 -V talbert ell 1L co C C 41 1w q. AU 4Yti is - 1101011-:y xw .7- LEGEND RES11DENTIAL ..I . ...... ESTATE 0-4 DU/gac v LOW DENSITY 0-71XJ/qw RETAIL PiWLIC lum DENSITY 7-15 DU/gw INMISTRY - HCP:CITY OWNED OR AUTHORIZED FOR ACOUISMON in 1974-75 LOW HCP:PROPOSED EXF%NSION OR OTHER OPEN SPACE OIL RESOURCE PRODUCTICKFJ- F,7 FIRE FACILITY Aft RIF RECOMMENDED LAND USE PLAN huntington beach planning department figure 2. 15 section 3 planning unit government center/old town 3. 5 Recommendations Provided. in this sub-section is a recommended Land Use Plan and accompanying policy statements. In essence the recommmended Land Use Plan and policies represents the conceptual approval by the Planning Commission. 3. 5. 1 General Conclusions During the evaluation process of the proposed Alternative Land Use Plans, several conclusions have been reached by staff and the Planning Commission. The following conclu- sions were generally reached by both the staff and Commission: A. A moderate level of residential development, consist- ent with the moderate growth policy concept as set forth in the preliminary Population Growth Element, was most suitable for the study area. B. The concept of conserving existing low density resi- dential districts should be initiated where possible. C. Medium density, residential, not to exceed a maximum . of 15 units per acre, should be established in the remaining residential areas. D. The long range elimination of all existing industrial zoned areas is proposed as a result of the proposed land use designations within the study area. E. Where feasible, the elimination of commercially zoned parcels along Beach Boulevard in order to control the amount of strip commercial along Beach Boulevard. F. An office-professional area should be designated in the civic center area on the east side of Main Street between Clay and Mansion Avenues . G. All of the area bordered by Clay on the north, Main Street on the east, Mansion on the south and Golden- west on the west (excluding Reservoir Hill) should be designated for retail commercial use. H. Providing as much open space as possible, including the suggested location of two neighborhood parks was generally agreed upon as proposed in the recommended Land Use Plan (Figure 3. 16) . I. With regards to circulation the following major concept proposals were looked upon favorably: 1. The northerly extension of Lake Street, east of the railroad right-of-way between Garfield and Mansion/Yorktown. 2. Delaware Street as a secondary arterial between Garfield and Atlanta Avenues. 3. Seventeenth Street should be eliminated as a primary arterial between Main Street to Mansion and Yorktown to Garfield. 4 . Main Street would be reclassified from a major arterial between Garfield and Clay and south of Adams . 5. Gothard shall link with Main Street approx- imately where Main Street connects with Clay Street and run further south to link with 17th Street. 6 . Adams between Lake and 17th Streets should be eliminated as a primary arterial street. 3. 5. 2 Proposed Goals and Policies The proposed goals and policies provide the framework for the establishment of land use designations within the study area. Furthermore, the proposed policy state- ments focus on critical community development issues applicable to the study area. It is intended that the proposed goals and policies will be used as guidelines in the decision making process by both the Planning Commission and City Council. Residential Goal Encourage and maintain a well-balanced variety of resi- dential types and encourage a living environment that will provide a high quality of life for residents. Policy 1. Establish defined residential neighborhoods that are homogenous in character. 2 . Provide for a level of moderate residential develop- ment consistent with the proposed population growth element to the General Plan. 3. Assure aesthetic qualities of residential types within civic districts through design review. 4. Provide for residential development that maximizes open space by encouraging planned residential developments on larger parcels or unsubdivided land. lap 5. Balance population growth by defining and conserving existing homogenous single family districts and providing a variety of housing types in other sections of the area. Commercial Goal To establish and maintain well-planned commercial devel- opments which are aesthetically pleasing, convenient and economically sound for both consumers and businesses. Policy 1. Reduce the amount of strip commercial along Beach Boulevard, specifically where one ownership or consolidated ownership of larger areas exist. 2 . Concentrate commercial facilities in locations that will optimize the level of retail services and will adequately serve consumers. 3. Establish new and preserve existing convenience commercial facilities to serve local residents. 4. To establish and maintain high quality office professional uses in the vicinity of the civic center. Industrial Goal Phase out all existing industrial uses and industrially zoned areas which are non-compatible with existing and proposed land uses. Policy 1. Rezone existing industrially zoned land which is non-compatible with surrounding zoning or land uses. 2. Phase out existing industrial uses and encourage the relocation of industrial facilities in planned industrial areas within the City. Open Space Goal Provide maximum open space by preserving where possible unique natural physical features , historical landmarks, and potential scenic corridors. Policies 1. Acquire land for parks, open space and recreation prior to or at the time the surrounding area is developed in accordance with the Open Space and Land Use Element. 2. Preserve and protect historic, scenic, geological, topographical, and archaeological sites. 3. Develop a recreational trails system as an interim use for the Southern Pacific Railroad right-of-way between abandonment of the railroad and its develop- ment as a mass transit corridor. Civic Center Goal Establish and maintain for the civic center area a medium high activity level. Policy 1. Provide for adequate land area for future civic center expansion. 2. Establish compatible land uses around the civic center which would reflect the medium high activity level. 3. Protect the quality of civic center area through the expansion of the civic district zoning suffix. 3. 5. 3 Recommended Land Use Plan (Figure 3.16) The recommended land use plan for the study area reflect the general conclusions and opinions of the Planning staff and Commission. { f�l• �' .:>,�i�'< :tom:: :�,j... 4 �' �� �� I• •� i'1yt fir, x '�i!}W:C�L• eavyd9c' k.� .,�.i,., , .i � �� T Y Y�,R�r 1 RE TATI�rN gil II � •` � R a T r 1 1 II .III ;s.>� Sox •it'�T}r,�y-.^ } �' ' ECOO MME DE�E© LA 'D �JSE PLAN huntin • tcn bag wit ch vpla Wing department All suggested Planning Commission changes and modifica- tions to the land use and circulation proposals have been accounted for and integrated into the proposed land use plan proposal . For comparative purposes an inventory of the proposed land uses and a population estimate is provided in Table 3.9 and Table 3. 10. Portions of the VTN study area which encroach into this study area were left in the destination resort category pending outcome of VTN's effort. i TABLE 3. 9 PROPOSED LAND USE ACREAGE SUMMARY LAND USE GROSS ACRE RESIDENTIAL LOW DENSITY 109 MEDIUM DENSITY 446 COMMERCIAL OFFICE-PROF..ESSIONAL 15 RETAIL 98 PUBLIC SCHOOL 38 CIVIC CENTER 33 CITY YARD 1 FIRE STATION 1 PARK 4 DISTINATION RESORT 64 TOTAL 809 TABLE 3 .10 PROJECTED POPULATION ESTIMATE RESIDENTIAL GROSS : MAXIMUM TOTAL POPULATION POP. TYPE ACRES UNITS/GAC UNITS UNIT LOW DENSITY 109 x 7 = 736 x 3. 55 = 2708 MEDIUM DENSITY 446 x 15 = 6690 x 2 . 3 = 15387 TOTAL = 18095 section 4 town lot planning unit 4.5 Recommendations Provided in this subsection is a recommended land use plan and accompanying policy statements. The recommended land use plan and proposed policies, represents the conceptual approval by the Planning Commission. 4. 5.1 General Conclusions In the evaluation of the proposed Alternative Land Use Plans, several conclusions have been reached by the Planning staff and Planning Commission. The following items were generally favored by the staff and the Commission: A. All the area south of Walnut Avenue between Golden- west and 5th Streets needs further analysis and sould be precisely planned (Townlot specific plan) . B. A level of extensive development for proposed residential uses was somewhat favored. C. The provision for the conservation of low density residential districts primarily in the eastern portion of the study area was promoted. D. It was felt that medium to medium-high residential densities could be established in the central and western portions of the study area. The Townlot assessment district should be designated for medium density residential use. E. Convenience type of commercial uses should be accommodated within the central portion of the study area. F. Existing industrial uses should be eventually phased out of the Townlot area and encouraged to relocate in other planned industrial districts within the City. G. Regarding circulation, the following circulation proposals were generally favored. 1. Palm Avenue should not serve as a primary arterial east of Seventeenth Street. 2. The original Orange/Olive couplet proposal should remain intact. 3. Excluding Goldenwest Street, Seventeenth Street should be the only north-south arterial within the study area. 4. 5. 2 Proposed Goals and Policies Provided in this subsection is a set of proposed goals and policies . As stated in the recommendation subsections of the two previous planning unit studies , the intent of the policies are to provide additional criteria for the establishment of land uses within the study area. The adopted Policy Plan reflects the desire of community goals and objectives for the entire City. Consequently the proposed policies application to the Townlot area, simply expanded on the general concepts of the City wide policy plan. The policies provided long-range criteria for decision making regarding future land uses within the Townlot area. Residential Goal Encourage and maintain a well-balanced variety of resi- dential types and encourage a living environment that will provide a high quality of life for residents. Policy 1. Establish defined residential neighborhoods . 2 . Balance population by providing a mixture of resi- dential densities. 3. Preserve the existing low density residential neigh- borhood to maintain the characteristic of the area. 4. Designate the area located between Walnut Street and Pacific Coast Highway from Fifth Street and to Goldenwest Street as a specific plan area. .N • g x 5. Provide proper residential zoning for multi-story type developments and potential high rise. Commercial Goal To establish and maintain well-planned commercial developments which are aesthetically pleasing and convenient. Policies 1. Reduce the amount of strip commercial along Pacific Coast Highway. 2 . Concentrate commercial facilities in locations that will provide the optimum level of retail services . 3 . Preserve existing and establish new convenience commercial facilities to serve local residents. Open Space Goal Provide for maximum open space by maintaining existing recreational facilities and designating additional public open space wherever possible. Policies 1. Explore the potential for a neighborhood park site to serve local residents. 2 . Protect and maintain existing public beach area to be used for future public open space and recreational uses. 3. Maintain the existing recreational facilities in and around the Townlot area. Industrial Goal Phase out all existing industrial uses which are non- compatible with existing and proposed land uses. Policies 1. Phase out industrial uses and encourage the reloca- tion of industrial facilities in planned industrial areas within the City. 4.5. 3 Recommended Land Use Plan (Figure 4.15) It is the opinion of the Planning staff that the recom- mended land use plan (Figure 4. 15) provides the best resolution of the land use issues within the study area. While long-range in nature, it does however, accommodate many of the existing land use (e.g. existing commercial and single family districts) . In addition, the final recommended residential designations for the undeveloped portions of the Townlot area set forth appropriate densities that provides opportunities for development and population control. The area south of Walnut Avenue remains undefined in terms of land use designation. It shall be the tasks of the Planning Commission and staff to resolve land uses within this specific plan area in the immediate future. An acreage inventory of the proposed land uses is provided in Table 4. 10 and a population estimate is provided in Table 4.11. It should be understood that as a result of not defining land uses in the lower portions of the study area, a comparative analysis between the previous alter- natives can not be made in terms of gross acreage and population. �sh 't - 0 0 rx ! O O' r� o •:N. 0 •b , 0 0 F. . o^ Wgn k O i r:;•x . 4 a � ii• rx••. 1. f f �a �f • O • ::.:.�.:i::::.:}}iiii:;i:•i:•i:•iii::6.�:•}:i;{•}:4::.ti}}:3:4:•::•ii:i{•}7}i}:•}}:�:•}:v:• q' . f rf ' O F k F FJ' •Fii'� '+1. � u• J : i. .A hw 3 i !o S (�aaaac�r Idooa�a000000�a•a•�a•a•aa.a••a C�oa� O °owo o° O ° �°°oa•a°° °o���°000 0 0 0 ° . ..... . ..... ....... . .. . ........ .... . aaaaaaaaaaa�c-)F--1 ooae1r--1 aaaa arr_�Qaaao e o° ..a a •e.ee.. H O a:�.°o a e°a°e e°°o o°0 0 0.0°°°oe a°:veee°o ooe 6 Y 6 ou0000�0040�0°0 000 00°�00 0.0.0 0000°00°00°>° d o0 00 0 00`�°0�°000000000000bo° °0000°00000.000000000000o a OGO .000 0 00 OU o 0 00o00 0 {rr OOOOOUODUr>OOOUOUOOOUOo00U000000ppO.O n.0 OOUO Opp Op000UU00U0000000000000U000 pp ppppppOUO^ OOr,000 000OOOOo0U00000 r n• OOOo0U000 0 0 000 000000...0.000000000 0� G°a r>- QUO 00000000000u00000oW,oO°000.00pp00000°°°OooO°°o o ,"OODOOOOnU000pOOpp000 o OOOOOOO UOU000UOOUOOUOOOOo00000UpO0U u u — O '•QUO OOU OOnu 0000o0000 On 0.0onoo 000000 oU OOOOOO�:J��"•Ot.00000 oOn000pn0000000 0000000000000000000 0000000n0000000o Q O �rroo^° 00000000�,000000000000 0000000000 000no 0000000......on000^n0000000000o Q{� O OOOOUOOOOnO000UU0<i%�n��00000000 Go^0000 UU Oo��0000 OOu�0000000000ooUOOc�0 Go opp �00 OOOOOOOOOOOOOOOU0000<,p000UU0000 U 0 00 UOOOOOpO0oo0U0000 OOOOOUr,UnO 00000� o UOOOOUOUOOOOOo00o00 o 000000 000 O o0 OOUO00000pp0pp0000o 000 on0°00o0 Q�� ^� 00 oU O 0o O nOOo OOOUOO�ti00000000°OOOtio° p �LN`1Y.I�.Wyi�JiYl ��:�:°;/:'��'�i'.Vv. �."�db'Vi°:�2..�+... `� �.443�'wii�;:1.44.�:�{wii.l{1. 6�4^iN'JK�X`OG"ab... .'�•�i.. W`�UU�__ - d[�C���iD RESIDENTIAL °o° �oo� LOW DENSITY 000 a°000 YCDWNLOY SPECIFIC PLAN AREA FAMMA DENSITY O O A UDOURA Hm DENSITY CORAPA SRCYAO° O QC�C�OOG`v'JG`�C��1D0 dQMD USE pdIM PUBLIC :y COATI MMOTV WSCOO.OVOES Ir�i MG ran o bOG3 r�i o o m5nog gl r�iu OGi4 15 TABLE 4 .10 PROPOSED LAND USE ACREAGE SUMMARY Land Use Gross Acre Residential Low Density 99 Medium Density 122 Medium--High Density 37 Commercial Retail 3 Public Recreation Center 3 Specific Plan Area _ 2 TOTAL 316 TABLE 4 .11 PROJECTED POPULATION ESTIMATES Residential Gross Maximum Total Pop. Type Acres Units/Gac Units Unit Population Low Density 99. x 7 = 693 x 3 .55 - 2460 Medium Density 122 x 15 = 1830 x 2 . 3 = 4209 Med.High Density 37 x 21 = 777 x 2 .2 1709 TOTAL 8378 section 5 sunset heights area 5. 6. 3 Recommended Plan The following is the recommendation of the Planning Commission and City Council: 1. Designate Alternative 3B. without the commercial designation at the intersection of Bolsa Chica and Heil as the general plan amendment and initiate the zoning necessary to implement the selected plan. In addition to the general policies of the Land Use Element the following is recommended for Sunset Heights: (a) Initiate a precise plan of street alignment for the study area similar to that shown in Alterna- tive Three. The portions falling within the assessment district should be included in the assessment district project. Also., at such time as sufficient consolidation has taken place within the small. lot area -a precise plan of street alignment should be initiated there . 2. A 6-acre neighborhood park be acquired as indicated in Alternative Three and a priority be placed on, acquisition and development in the Capital Improve- ments Program for Parks . The priority should reflect fiscal resources and the growth projections outlined in Section 5 .3. 3. That no further development be allowed to take place within the small lot area until such time that sufficient lot consolidation has taken place to allow: a. precise planning of streets b. residential development that meets all City requirements. It is suggested that the first step be to attempt to organize the property owners within the small lot area to formulate a reasonable plan for consoli- dation. However, . with the multitude of ownership this may prove unworkable. If that becomes the . case it is reconunended that the provisions of the 1968 Master Plan of Non-Structural Blight be imple- mented and the City take on the task of lot consolidation. AdM { r r :.Ff .. '•:}: :::} :;{r:: is ''t�•t4� \; •� ..?c;';}f a h. OF `: :w•.;{}.; .� : '•�' :}X:}::.. •ref - :� ....� rr v•• J:•F::.? .,�% ,fir ;SH. �j • ij''y.if}r i7$ !{ IrQ :�'��:K'•.t',G2;:•4}:•.:/{::::' .. .. . .. ........ MO IN X. k:XNX f r .1w�' •\ tiJrtiµ} i :vF t ' .�•'R`:1,'� /r,,<'.;:.�: -.�x•X<cy?:•<{•>:4,+;:Y•:ra�xti{i: mar f.:. .ap� r'• '�•: }...... ....: •.;!?;?s ur;:ti:• r.;�?. .!-. vn•s... err . • a•r Rv A_L. fy,, a �1.'•i4 t ]}}yyJy��5f, ��jpt�y�(Yp�y[' sa �t .v,Nf•:.,M•:.,,-:Y ,,,X:. • fJy ~ } ALI � `S. ��rpc7pO'OGa NY J.S M'S .pr �l�(l Q •`XQ4 UhN`?PI- zi \�� ':,f;••S. �:'.yyvi�f3}y�R#�iCir:'4T�.`lC:p. \\\ •f y v vA+4'f JJD 4K •%Kn+17`Pi bti \ ' Fr gyp' dF+�4{^?�404h'M '• \ \\ ON >+bL Tyr 1:49Y}�8•,{t}h 4?C. y;Y `• �\� \'•'=""+�"�'?S�•f r •`ff�i'��,"-�- {' �'i;Y 'u 4}.s.}}}J,�r�f:X:�::��:oa. section 6 east of beach/south of ellis quarter section 6 .5. 3 Recommended Plan and Policies Based on the analysis in Section 6.5. 1 the Planning Commission recommended a modified alternative two for inclusion in the Land Use Element to the General Plan. Figure 6.9 and Tables 6 .11 and 6.12 depict the recommended plan. In addition to other applicable policies of the Land Use Element the following is recommended for this study area. Commercial To assist in the development of well planned commercial projects no further division of land should be permitted on these parcels fronting Beach Boulevard. DEL L I --1— -- --- —..��..�r a. ,f A, ,e n $ : J L f;. :•?!. ..ir'.x. ee :ram' :y ':•r sz •4.. ?::}:•: J {... xx x r. f% •x E:.. .. .:. .....`` x• • Ar n T .. '•?:• nv;.:.lF.;�.M•n!...:.Y.�w•.:{:•:.:V:::':ti::'::•:i: : :'f:':`.;.. :'i:i:Vi::i::;:•:;::::.. ti:a3.; >: >Sf'`° v f- .vT..... W. rf .:��f:••; n.::>'�, fir... ::c,........ r. .. ::�•::::..: { }:r•sue• :�.�... ..�.•x rr .J r}}:: r• fU r • g {���. -�t r' •.;f. ,yyam� .:.}}mrf';::ti{'. $: ?? ......:{::?>is:7ii::2'::........... i r.... •. :?.... S4 O d R D LE 0 l Q $ 1 h: '•1 1'1 yy Tf1' COR13YAgYlgg _ OR x :•:ti :•x• L . : ti}' .1 ;�- i;::>:•: ;: :} 2:: y .'... .. 2 � ::•x ,{r J •.tip:+'• :�Q .......... 'i•T. Ip� -••.:.. .:� r.,.,,.• X}:::.':}$:ii: .iY i}j::::yi�:�`: •'r:�::}:�:�::•::i:�i:• ::� •:.�:.?>$:>::.: {?::•::::.:���:�:�:::::::}:�>:�:•}}:}:�}iir IA u.: }� U : :. yy v{ Cl AT W!RI Pe ,Y •::TiT.:1.k4d:.�.; S �. S i. {• • O Pm LEGEND �C��ODC�L`��OGad C�Gv�1GvJ�Q000d kow DEMSM FIEVAOL C�[ DOMG�1 DD EMSOUV PM°LOC pq QC��OG��C [ D�D pdQ� 6vuErn4orrawm beach h o unn0nn dro n afroom, "o F i a u r e 6. 9 TABLE 6.11 PROPOSED LAND USES RECOMMENDED PLAN Approximate Percentage Use Gross Acres Of Total Residential Low Density 74 46 .2 Medium Density 43 26 . 9 Commercial 41 25 . 6 Retail Public Park 2 1. 3 TABLE 6 .12 POPULATION ESTIMATE RECOMMENDED PLAN Residential Type Gross Units/ Total Pop./ Total Acres Acre Units Unit Pop. Low Density 72 7 504 3. 55 1,789 Medium Density 30 15 450 2. 30 1,035 TOTAL 2 ,824 r 12/11/73 LAND USE ELEMENT TO THE GENERAL PLAN PHASE I - - AMENDMENTS S . 2 . 1 Planning Area (p. 2 . 1) to read as follows : The planning area is generally defined as the area bordered by the San Diego Freeway on the north, Santa Ana River on the east , the Pacific Ocean on the south, and the city limits of Seal Beach on the west. The planning area includes the unincorporated lands of Bolsa Chica, the unincorporated community of Sunset Beach and all the area incorporated as the City of Huntington Beach (Figure 2 . 1) . The total planning area encompasses approximately 29 . 2 square miles or 18 , 690 acres . The existing city limits of Huntington Beach accounts for 26. 5 square miles or 16,970 acres . * The unincorporated portion of the Bolsa Chica area and the community of Sunset Beach accounts for approximately 1,625 and 115 acres , respectively. *Based on staff land use inventory, September 1973. S. 4. 2 . 2 (p. 4. 3) to read as follows : 3. Bolsa Bay In 1973 an agreement was reached between Signal Bolsa. Corporation and the State of California on the Tidelands in Bolsa Bay. The agreement provided for the possibility of an ocean access point at Pacific Coast Highway within 14 years . If this access point is to be used for watercraft, a crossing at Pacific Coast Highway may be unfeasible . Thus major coastal traffic corridor would effectively be cut off and some alternative needed. S. 4 . 2 . 2 (p. 4 . 3) to read as follows : S. County Transportation Corridor Study In July of 1973 the Orange County Board of Super- visors gave approval to a county-wide transportation corridor story. The deleted Route 1 Freeway has been designated as being within a transportation corridor and cities lying within its route are participating in the study. The county has been divided into zones and the area between the San Diego Freeway and the coastline has been designated as the Coastal Zone and is a top priority. S. 4. 2 . 3 (p. 4. 5) to read as follows : 3. Bolsa Chica Within the planning area is a large land area , consisting of approximately 1 , 625 acres , that has not yet been annexed to the City. Known as the Bolsa Chica, much of this area is currently being used for oil production. Improvement of this area rests primarily with two developers , the Signal Bolsa Corporation and the State of California Resources Agency . Certain problems and questions that are inherent in the development of this area should be addressed and answered prior to proceeding with annexation. It is the Planning Commission' s position that the best approach, then, would be for City staff to prepare , with input from the Signal Bolsa Corporation and the State a comprehensive master plan prior to any annexations . Reasons for the Planning Commission' s position regarding development of the Bolsa Chica was stated on February 2 , 1973. a. This is the last large area within the City' s sphere of influence that can be master planned prior to development. b. Annexatiori of an area encompassing a portion of the Bolsa Chica mesa would bring the property into the City as R- 1, single family residential , and said zoning may be detrimental to the future comprehensive master plan. C. Zoning must be in accord with the master plan as per a State mandate, effective January 1 , 1974. Allowing this property to be annexed as R- 1 might not be in concert with the master plan that is being developed by staff. The Planning Commission also expressed a need to evaluate and answer the problems and questions in the Bolsa Chica, including the ratio of multifamily uses , an environmental impact report, a cost/revenue analysis , traffic circulation, effect of the Coast Freeway deletion, archaeological considerations , the ocean cut, the State' s 530 acre ecological reserve , and the realignment of Pacific Coast Highway. -.1.1 jF Adft 4. 2 . 3 (p. 4. 5) to read as follows : 4. Civic Center The Huntington Beach Civic Center and adjacent areas have been the subject of considerable study. Although this area has been designated as a government center on the land use plan, the concept for the area has been chosen. The direction chosen is that defined in the "Civic Center Impact Study" as a high activity level. This policy alternative means that the Civic Center will serve as a focu:� for jovernmental, business and commercial activities. Surrounding residential uses will be low to medium density. This area will be ready for refinement and the preparation of an implementation program subsequent to the preparation of the Phase I Land Use Element.. I S. 4 . 3. 1 (p. 4 . 7) to read as follows : RESIDENTIAL NEIGHBORHOOD STANDARDS 1. Avg. Population - 2,500 people. 2. Avg. Area = 160 acre. 3. Arterial Streets do not pass through neighborhoods but provide boundaries. 4. Interior streets should be short and curvilinear, utilizing cul-de-sacs and other design principles to preserve the residential atmosphere. S. Parks, Elementary Mchools and other neighborhood facilities should be within walking distance. 6. Pedestrian and vehicular access to arterial streets should be limited. S. 4.3.4 Public Uses $ Facilities Subsection S . Underground Utilities (p. 4. 13) Updating the criteria for underground utility standards will require additional research. Thus , this amendment will be submitted as soon as this research is completed. S. 4 . 3. 4 Public Uses $ Facilities Subsection 7 . Special Facilities (p. 4. 16) to read as follows : SPECIAL FACILITIES CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES HUNTINGTON 200 Total Near geo- Serves all Lakes $ natural CENTRAL to City graphic Cen- neighborhoods areas, informal PARK 400 Population ter of City, in the city. leisure areas, Acres accessible Regional & other facili- to freeway nature, ties not dup- & arterials. community licated in scope. community parks. . 4. 21 4. 4 . 2 Land Use Area Summary (Incorporated area) Land Use Category Acres (Gross) 1 . Residential Low Density 7, 024 Medium Density 872 Medium High Density 328 Mobile Home 254 Sub Total 8 ,478 2 . Commercial Retail 993 Office , R7_ Sub Total 1, O80 3 . Industry Light Industry 1,555 Public Utility �� Sub Total 1 .^n7 4 . Transportation Railroad R/W 46 Transportation Corridors & Freeway 290 Sub Total 336 S. Public & Quasi-Public Uses & Facilities Schools Number Elementary Schools (51) 592 Elementary (Admini- stration Office) ( 1) 10 Junior High Schools ( 5) 63 High Schools ( 5) 252 Junior College ( 1) 120 Sub Total 1, 037 Parks Neighborhood (47) 142 Community ( 4) 65 H.B. Central Park 312 Sub Total 519 � I - p. 4 . 22 Recreational F, Special Facilities (col f Course ( 2 ) 245 Neighborhood Beach City Beach 5 O State Beach 41Q Marina Sub Total 709 Public Facilities Fire Stations ( 7) 10 Harbors & Beaches Fire Facility ( 1) 4 Post Offices ( 3) 9 Libraries ( 3) 4 City Yard ( 1) 15 Sul) Total 42 Institutional Church (49) 4S Cemetery (31) 48 Meeting }-Tall , Lodge ( 8) 12 Private Schools (12) 11 Sul? Total 116 Other Waterways 228 Water Reservoir 9 Drainage Channels 263 Edison R/W Unleased 143 Edison R/W Leased 21 Buffer 16 Sub Total 680 6 . Special Planning Areas Planning Reserve 522 Government Center 113 Townlot 310 Destination Resort 285 Planned Community 434 Old Town S02 Sub Total 2,166 TOTAL ACRES (GROSS) 16, 970 s P. 4. 23 4 .4 . 3 Land Use Area Summary (Unincorporated Areas) Category Acres (cross) 1 . Bolsa Chica Planning Reserve 1 , 095 Ecological Reserve 530 Sub Total 1, 625 2 . Sunset Beach Residential : Medium High 100 Commercial : Community 15 Sub Total 1 , 730 �( CLERIC S COPY LAND USE ELEMENT NOVEM6ER,1973 phase 1 Aft huntington beach•california planning department LAND USE ELEMENT PHASE I Table of Contents SECTION `i'ITLE PAGE 1. 0 INTRODUCTION 1. 1 1. 1 Intent & Purpose 1. 1 1. 2 Authority & Scope 1. 2 1. 3 Relationships 1. 5 1. To Policy 1. 5 2. To Planning Programs 1. 8 2. 0 BACKGROUND 2. 1 2 . 1 Planning Area 2. 1 2 . 2 Land Use History 2. 3 2 . 3 Existing Land Use & Circulation 2. 6 2 . 4 Natural Physical Conditions & Factors . 2. 17 2. 5 Population & Social Factors 2 . 23 2 . 6 Economic Factors 2 . 30 3. 0 GOALS & POLICIES 3. 1 3. 1 Policy Plan 3. 1 3. 2 Environment & Resources Section 3. 1 3. 3 Society & Culture Section 3. 7 3. 4 Development Standards 3. 12 4. 0 LAND USE PLAN 4. 1 4. 1 General 4 .1 4. 2 Land Use Issues 4. 2 4. 3 Standards & Criteria 4 . 6 4 . 4 Land Use Plan 4. 20 5. 0 IMPLEMENTATION 5. 1 5. 1 Implementation Techniques 5. 1 5. 2 Programs 5. 4 5. 3 Future Activities 5. 6 6. 0 ENVIRONMENTAL IMPACT REPORT 6. 1 6. 1 Introduction 6. 1 6. 2 Summary of Major Environmental Issues 6. 4 6. 3 Description of the Project 6. 4 6. 4 Environmental Setting 6. 8 6. 5 Environmental Impacts 6.13 7. 0 APPENDIX 7. 1 7. 1 Bibliography 7. 1 Ye:- FIGUUES FIGURE NUMBER TITLE PAGE 1. 1 Components of the Comprehensive General Plan 1 . 9 1. 2 Relationships Between Master Plan & Comprehensive General Plan Elements 1 . 11 1. 3 Master Plan of Arterial Streets & Highways Map 1. 13 2 . 1 Planning Area Map 2 . 2 2. 2 Important Historical-Cultural Landmarks 2 . 5 2 . 3 Flood Plain Map 2 . 22 2 . 4 Racial Distribution & Household Composition 2 . 25 2 . 5 Building Valuation 2 . 31 2. 6 Huntington Beach Retail Sales 2 . 33 6 . 1 Planning Area Map 6 . 6 6. 2 Vicinity Map 6 . 7 section 1 introduction f � Y SECTION 1. 0 INTRODUCTION 1. 1 Intent and Purpose The title of this report, Land Use Element - Phase 1, is a misnomer. This is not a first phase, but rather a point of transition. Land use planning and adopted plans have long been used in Huntington Beach and have directed the rapid growth of the 1960 ' s. However, the city is entering a new era in planning. Like other communities in California, Huntington Beach is responding to the new wave of public concern and legislative mandate. The past five years have witnessed the development of one of the most progressive planning laws in the world, which has included the expansion of the general plan from the original elements of Land Use and Circulation to include elements of Housing; Conservation, Open Space , Seismic Safety, Noise, Scenic Highways, and Safety. This time period has also seen the adoption of the California Environmental Quality Act, the Coastal Initiative, and numerous other significant laws and court decisions. The Phase I Land Use Element is part of the first step the city is executing to redefine, reevaluate and expand the concept and utilization of the city' s General Plan. This is not an easy . or fast process, but fortunately Huntington Beach has a strong foundation of policy and experience. The purpose of the Phase I Land Use Element is to consolidate and expand the past land use plans into new directions and areas of emphasis. This document is not complete, nor is it intended as such. The future will see many changes as the land use plan is revised and studied. Of special importance will be the inter- action of land use with the numerous other "new" elements. (Some of these elements are not yet required or prepared. ) Therefore, 1. 1 substantial evolution is expected to occur as the newly defined "process" of planning is brought into line with legislative intention and emerging areas of public concern. 1. 2 Authority and Scope 1. 2 . 1 State Planning Law By requiring each planning agency to prepare, and the local legislative body to adopt a general plan, the State has indicated its belief in the necessity for an officially adopted statement of policy for the physical development of each city and county. The general plan is the key instrument in the California local planning process. Section 65302 of the Government Code describes the plan in these terms: The general plan shall consist of a statement of development policies and shall include a diagram or diagrams and text setting forth objectives, principles, standards and plan proposals. . . The general plan is therefore a policies plan which, when adopted by the local legislative body, comprises the official statement of city policy regarding future character and quality .of development in the planning area. It is a statement of intent regarding the development needed to achieve social , economic and environmental goals and objectives. Government Code Section 65302 (a) requires a land use element of all city and county general plans, as follows: A land use element which designates the proposed general distribution and general location and extent of the uses of the land for housing, business, industry, open space, including agriculture, natural resources, recreation, and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities, and other categories of public and private uses of the land. The land use element shall include a statement of the standards of population density and .building intensity recommended for the various districts and other territory covered by the plan. The land use element shall also identify areas covered by the plan which are subject to flooding and shall be reviewed annually with respect to such areas. Afflhk 1. 2 z 1 . 2 . 2 C. I . R.- Guidelines � Additional information regarding the Land Use Element is offered in guidelines developed by the California Council on Intergovernmental Relations (CIR) . The Scope and Nature of the Land Use Element 1 A. Identification of land use issues. B. A statement of land use policies and proposals , distinguishing, where appropriate, among short, middle and long-term periods of fulfillment. C. A description of the land uses and land use intensities for the planning area, including the relationships of such uses to social, environmental and economic goals and objectives. D. The standards and criteria for physical development within each use area with consideration for land capacity. E. A description of the land use pattern, including text and a diagram or other graphic representation such as a map. F. An outline for implementation, including a des- cription of measures necessary to achieve land use objectives and policies and the timing or staging of plan implementation. 1. 2. 3 Zoning and the General Plan: Consistency The General Plan is a comprehensive, long-range policy guide to promote efficient and desirable community growth. Zoning, on the other hand, is a single-purpose, short- range tool applied to precise parcels of land specifying exactly what uses and development standards are required. Obviously, zoning has the greater potential to affect day- to-day land use decisions. This relevance is translated to the General Plan (as a result of AB 1301) by Section 65860 (a) of the Government Code which stipulates: "County or City zoning ordinances shall be consistent with the general plan. . . "2 By requiring that zoning be consistent -- a term later defined as "compatible with the objectives, policies, and programs specified"3 in 1 "General Plan Guidelines" , September 1973, C. I.R. 2 Section 65860 (a) , California Government Code 3 Assembly Bill 1725, adopted 1972 i` r �- the General Plan -- AB 1301 enables the definitive policies contained in the General Plan to be enacted by daily operation of local planning agencies. It means, specifically, that the zoning in an area, while it need not duplicate identically General Plan designations , must reflect its intentions. That is, zoning need not conform to the General Plan, but is must be in harmony with it. Thusly, while the General Plan exerts its long- range influence through zoning, latitude in daily land use decisions is not overly restricted. Additionally, just as zoning will no longer be applied without regard to long-range community goals neither will the General Plan be afforded the luxury of the "pie-in-the-sky" status it has had for so long. Recent court rulings and planning legislation as well as practical application require that General Plans now be based on as much factual data, realism, and practicality as possible. In other words, the General Plan must become more workable than it has ever been before. 1. 2. 4 Environmental Quality Act Though it was not an original intention of the bill , passage of the California Environmental Quality Act (CEQA) lent some legal incentive for making General Plans more responsible and practical. As the law has been interpreted, an environmental impact report which analyzes potential effects of public and private projects is required for all General Plan elements. This legislation compels discussion of seven important subjects: 1. Environmental impact of proposed action; 2. Adverse but unavoidable environmental effects; 3. Mitigating measures to minimize impact; 4. Alternatives; 5. Short-term and long-term impacts; 6. Irreversible environmental changes; and 7. Growth inducing impact. Keeping in mind the long-range and policy nature of the General Plan and its composite elements, direct application of these seven points is not always practical. But because it is a purpose of the environmental impact report process to expose alternatives and consequences to public view and in like manner it is a basic function of the Ad" 1. 4 General Plan to analyze options .and select best available alternatives, it should itot- be cf i. f f i.cu I.1: Lo iiddroc;s t-op i k—, cited in the CI QA within 1_ho text of t.hc:� o Lenient . Ike i nil so in a conscientious manner will help insure that plans, for the future keep in mi-nd the social and environmental realities of the present. 1. 3 Relationships A General Plan is composed of many and varied interactions. This is especially true of the Land Use Element, which is only one part of the series of elements and relationships that compose the General Plan, but has an "umbrella" effect in its potential to reflect in its contents the majority of other elements. Key relationships of the Land Use Element are its interface with policy and the general planning program. 1. 3. 1 Relationship to Policy Policies planning results in what is known as a policy plan, the principal components being the formulation of goals . and principles. The policy plan is usually an adopted document, even though it leads to a master plan and be- comes an inherent part of the general plan. There is, however, a distinct difference between a policy plan and a general plan. A policy plan is the guiding tool for the general plan whereas the general plan contains the policy plan along with specific recommendations, proposals, allocations, and implementation procedures. Policies planning has been utilized in varying degrees of effective- ness in Huntington Beach. A major policy (and planning) thrust occurred in the City in 1965 as a result of an Urban Land Institute Panel Report. This paved the way for substantial policy and plan formulation and development which was guided by the U.L.I. Steering Committee , a group formed to carry out panel recommendations. 1. Policy Plan More relevant to current planning activities is the Policy Plan. In May of 1971 the Huntington Beach City Council appointed several citizens to review, coordinate and modify a "Preliminary Policy Plan" . The Preliminary Policy Plan had been developed by the city staff to document existing city policy. Inputs to the Pre- liminary Policy Plan were a staff interpretation of past City Council and Planning Commission decisions made over the previous ten years; the city had not previously had a adenitive statement of goals and 1. 5 f objectives. The revised Policy Plan is ] ntendod to document the goals of the city so that policies , specific actions, and the Master Plan will be co- ordinated toward common goals which reflect the attitudes and opinions of the populace. It is recog- nized that attitudes and opinions of what is a de- sirable goal will change over time, so it is planned that the Goals and Objectives be reviewed and revised, as necessary. To implement the review, the Huntington Beach City Council selected seven citizens of widely varying persuasions to form a "Citizens Steering Committee on Goals and Objectives" for the purpose of reviewing the Preliminary Policy Plan. The Steering Committee was then left to its own devices as to organization, format, and schedule. Staff assistance was supplied by the City. The Steering Committee realized from the first that as many citizens as possible had. to have an input. For this reason, the work was divided initially into . seventeen subsections. Each subsection was reviewed by a subcommittee. The Steering Committee coordinated and facilitated, but did not influence, the sub- committees' work. A Steering Committee member was assigned to each subcommittee. Each subcommittee was made up of volunteers solicited by letters to the forty-two organized groups in the city, articles in the newspapers, and personal contacts. In the end over two thousand people were directly involved in subcommittee deliberations. Subcommittee members represented a broad cross-section of Huntington Beach citizenry. For the most part, subcommittee members were uninitiated in the workings of city government and for many this was their first serious involvement in civic affairs. The subcommittee efforts were generally divided into three distinct phases: 1) Research, 2) Opinion Gather- ing, and 3) Reporting. The Research phase involved library research, consulting with experts, etc. de- signed to inform the subcommittee of the scope and details of their subject. It was the Steering Committee' s objective to have the subcommittee members as informed as possible on their subject. Phase 2 , Opinion Gathering, involved either an advertised forum where anyone could attend and be heard, and/or a questionnaire for each subject. Forums and questionnaires were designed to solicit the general ,a 1. 6 w `t opinions and attitudes. Forums attracted the general public as well as interest groups. Thousands of questionnaires were randomly mailed to residents who responded to specific probing questions. Typically, twenty to thirty residents attended each forum and two to three hundred responses were received from each subcommittee ' s questionnaires. Inputs from the Community Congress were also used. Reporting, Phase 3, consumed the last one-third of the subcommittee' s efforts. Generally, the subcommittee rewrote the applicable portion of the Preliminary . Policy Plan and included a page of comments by way of explanation and clarification. During this phase, the attitudes and opinions of the subcommittee and public were analyzed, reconciled, and documented. Approximately four months were spent by each sub- committee in the development of their reports. The subcommittee work was the backbone of the "Citizens Committee on Goals and Objectives" efforts. Hundreds of residents enthusiastically gave thousands of hours of their time and energy. Some were so enthused that the Steering Committee had difficulty confining their interests to the scope and procedures of the committee' s task. Very little meaningful work could have been done without the citizens who cared enough about their city to become involved. After the subcommittee' s efforts were completed, the Steering Committee conducted a laborious process of reconciliation and recapitulation of the subcommittees ' reports. Many duplications were removed and conflicts resolved to provide a more condensed and balanced Policy Plan. During this process, city staff members took a number of recommendations to the City which have. already been implemented or considered. The Policy Plan has since been reviewed and amended by the Planning Commission and City Council and adopted by Resolution of the City Council in September 1973. The section titles of the Policy Plan reveal the scope of contents: A. ENVIRONMENT AND RESOURCES Community Appearance Parks, Recreation and Open Space Natural Resources Shoreline AtWm% 1. 7 Y •� .. B. SOCIETY AND CULTURE Housing Community Facilities Schools Cultural Affairs Communications C. DEVELOPMENT Residential Development Commercial Development Industrial Development Transportation and Circulation Annexation Fiscal Planning The relationship of the Land Use Element to the Policy Plan is delineated in the figure "Policy Components of the General Plan. " This is a simplified representation of the areas of policy inputs to the Land Use Element (Fig. 1. 1) 2. Growth Policy: While the Policy Plan can supply community values and organizational framework, an overall growth policy is necessary to regulate the perspective and- scale of the Comprehensive General Plan. Derived from the concepts presented in the Policy Plan, a Growth Policy would provide a logical basis for developing all General Plan elements. Preparation of a Growth Policy for the City is, in fact, currently underway. Borrow- ing and adapting an approach established by the County, the Growth Policy concerns three dimensions of population growth -- rate, size, and distribution -- and how they relate to quality of life. The upcoming Growth Policy statement traces past growth; identifies current Growth Policy; projects future growth through the year 2000 based upon current policy and the exist- ing Master Plan of Land Use; derives from the Policy Plan an implied Growth Policy; evaluates current and implied Growth Policy by quality of life criteria from the Policy Plan; and develops an alternative Growth Policy for Huntington Beach. 1. 3. 2 Relationship to the Planning Program The nature and relationship of the Land Use Element to the General Plan has been thoroughly presented in the "General Plan Guidelines , September 1973" prepared by the C. I. R. Relevant to this discussion, however, is the 1. 8 r P FREEWAY SAN OIEGO � Y / 1p �� (;,' .yL C F'f"i�a'c•CC r"l J r�.�'.; .,` C. /Cr, :.. \� :,�,p .` •\ >;: ^ ° Q �b,�\ 1. e" C• c c r• f 4 P/ .................. ol iMln G .JG cf. Q: '> .1 G C •f c� S• O •r, 4 \ d ...................... c. \ -i¢7 �� / .:::'•' ♦♦♦ .Q a„� t r f C•,4CG .c ".\J�J 4 �w � 'YM � Qc- MN� ♦SPO/ \��(' � �^n�_A,•`� \ :�v � t\� &tz�y.�ru i r?y � _�v ,:,�"I914h rw ; c�., C� ce f�C° '' •. .� cc'4.j.C''-r, :i•, � ��' D \,� ><' Pit`� \. I■II� �:.::.:.:. ......� ( �p1iF\ 11t'v'1�`�I`''j:., N / �: :::4 C' ��wc��♦ ` C_i:':; .: � r� \ lO rs ,I�ii $i<Fc#�'��`j} '}4 � 006 c d r:- P _, w�♦♦ � ii {iei:r'. `...::ii, a o� _ lilt J JCrif'f �0 < '♦+ -:__.:: ...-........ F ' i-_.� ~✓ r�C�':::::::yr:.:IMj ��1A������������� ss o �i°Ii ` it t':., a �/ �ry' ?� I e �� � f 1 V t T r 1�. --~�—_-- —�—'=_ —�_� IGvwar ����� I r. � �•,:'�Y:i�::�:?r'',�•'.���� F�P.GIFIC Ile OWN PEI OCEAN PACIFIC. Afllh� HUNfINGTON BEACH, GUFORNIA PLANNING DEPARTMENT FIGURE 1. 1 CIMP0Nl Ol' THE COMPREHENSIVE 1�I NIiRAL PLAN I'o l ic�I'� pan (Quality of Life) i Growth Policy Size , Rate , and Distribution 1 Polio• Plan : Policy Ilan : Policy Plan : Development Environment & Society is Resources Culture I i Land L!se Element open Space Element Housing Element Circulation Element Conservation Element Related Elements -[!:elated Elements Seismic Safety Element Public Safety Elemcnt Scenic Highways Klement Noise Element Related Elements 1. 9 r e Huntington Beach planning program. Land use planning is J an established fact in the City and has been used to guide the tremendous development of the past fifteen years. A brief history of land use planning is a subsequent section. 1. General Plan Program: Huntington Beach is in a position similar to other cities , i .e. partial compliane to the General Plan and on-going efforts to comply with State mandates. At no single point in time is planning or a general plan ever complete. Figure 1. 2 indicates the relationships between the current "Master Plan" and the comprehensive general plan as defined by state law. More importantly, this figure represents a simplified ."flow" of general plan elements to achieve the ultimate objectives of a general plan and program to maintain it. Thus it can be seen that this Phase 1 document represents a Land Use Element in : transition, its final form the result of interaction with other elements that are being simultaneously prepared or are yet to be prepared. Thus, the qualification of this document as Phase 1. As a further enumeration of the planning prgram and the relationship of this document the following planning stages are anticipated: Stage 1: Initial 1. Land Use Element - Phase I 2. Circulation Element (Master Plan of Arterial Streets and Highways) 3. Conservation Element - Phase I 4 . Open Space Element - Phase I 5. Housing Element - Phase I, Inventory and Analysis. Stage 2 : Secondary 1. Revisions to Phase I Elements as a result of continued study, interaction among other elements and re- evaluation. 2. Revisions to Circulation Element 3. Seismic Safety/Safety Element 4 . Growth Strategy Formulated 5. Housing Element - Phase II 6. Begin Management and Implementation Programs Stage 3: Tertiary 1. Noise Element 2. Scenic . Highways Element 3. Total Stage 1 and 2 Element Interactions and Revisions 4 . Additional Elements 5. Management and Implementation Programs. AR � 1. 10 1 P IG URE 1.2 RELATIONSHIPS BETWEEN MASTER PLAN -AND COMPREHENSIVE GENERAL PLAN ELEMENTS . Existing Master Plans. Comprehensive General Plan Land Use Land Use Non-Structural Blight -Land Use/Circulation Element . Arterial Streets and /Circulation Highways Open Space Open Space and rater iir, a�,f. n SE�ace Conservation Cons ery ation Element Parks , Recreation , Open Spaces and Schools Seismic Safety Se r i ic Sa.e t�' .Safety Ele.iient cn� ironraer,tal Recreation Trails Safety Resource . Management Noise Proci rious ing Llement : Phase I Scenic i ighways ��;:ous ing 2. Circulation Element: The Circulation Element works hand-in-hand with land use. The original Circulation Element was adopted in 1963 and entitled'."Master. Plan of Arterial Streets and Highways" shown in Figure 1. 3.. 'This plan has been closely related to past land use planning. Recent revisions to city development plans and the deletion of the Route 1 Freeway (and the redesignation of the route as a transportation corridor) requires a re- evaluation of this element. A report entitled "Circulation and Transportation Study Parameters" dated September 1, 1973 by the Planning Department defines circulation and transportation objectives, criteria . and planning issues. This document is the starting point for revisions to the Circulation-Element which has already begun with the .retention of a traffic consultant' to commence. work on portions of the study. This work is being carefully coordinated with the land use plan. Additionally, many planning issues have been . identified that relate to both circulation and land use. These issues are discussed in a later section. 1 . 12 1 , 4MENDMENTS MASTER PLAN OF ARTERIAL .a.�s c•. :n. STREETS AND HIGHWAYS \\ LEGEND FREEWAY. \ MAJOR 120'R/W ---- - --- - — PRIMARY 100'R/W SECONDARY 8O'R/W J � \ I NOTE' SOLID LINES INDICATE EXISTING RIGHT OF WAY NOT NECESSARILY ULTIMATE PIG- OF WAY I II DASHED LINES INDICATE AREAS WHERE NO RIGHT CF WAY EXISTS ` _=L•�. .__— _L--- — ___ __ I SYMBOL DENOTES PRIMARY COUPLET T % - CERTIRICATQNS: \\ �\ lCl- COUNCIL. �, II OF CI- CITY HUNTINGTON BEACH - -- ORANGE COUNTY CALIFORNIA FIGURE 1. 3 1. 13 section 2 background SECTION 2 . 0 BACKGROUND 2. 1 Planning Area The planning area is generally defined as the area bordered by the San Diego Freeway on the north, Santa Ana River on the east, the Pacific Ocean on the south, and the city limits of Seal Beach on the west. The study area includes . the unincorporated lands of Bolsa Chica, the unincorporated community of Sunset Beach and all the area incorporated as the City of Huntington Beach (Figure 2 . 1) . The total study area encompasses approximately 29. 2 square miles of 18 , 690 acres. The existing city limits of Huntington Beach accounts for 26. 5 square miles or 16,970 acres. * The unincorporated portion of the Bolsa Chica area and the community of Sunset Beach accounts for approximately 1, 625 and 115 acres, respectively. Study Areas Huntington Beach is divided into four master plan study areas: "A" , "B" , "C" and - "D" . The identification of the study areas are based primarily on physical barriers and legal boundaries. The study areas should not be misconstrued to denote any difference of environmental , social or economic characteristics or conditions between sections of the City. The delineated study areas are for the principle purpose of analysis. Additionally, Bolsa Chica and Sunset Beach are newly identified study areas. The inclusion of these two unincorporated areas as part of the overall planning area is based on the city' s sphere of influence. It is anticipated that these areas will eventually be annexed by the .City. a 2 . 1 o olo -- ,/, / . Im NO',/, jib �/ ,b_���� •/ o', , AREA � ji , o 010, %j VYIO Vo , PLANNING AREA � , h ntingto� h��nch • nning • - •c•�rtment 2. 2 Land Use History An oil boom in the 1920' s created the first large population influx into Huntington Beach. It was this boom that also gave the city an image of an oil-producing community. Large land annexations added about 19 square miles to the city limits between 1957 and 1959 . Most of this land was vacant (uninhabited) . In the early 1960 ' s when the city was experiencing the first wave of the population explosion, Huntington Beach was advocated as the place to live because of its physical attributes, clean air, lack of congestion, wide open spaces and the 8-1/2 miles of beach. These attributes were looked upon as commodities to be sold and consumed rather than as resources to be conserved. McDonnell-Douglas Astronautics complex located in the city in about 1963. This created a potential economic and industrial base and also an employment potential. These factors helped bring in new residents. Completion of the San Diego Freeway in the mid-1960' s made Huntington Beach accessible to Los Angeles County. 2. 2. 1 Development Prior to 1950 By 1950 the city had grown to 4 . 72 square miles. Development was concentrated in an area bounded generally by Beach Boulevard, Adams Avenue, Goldenwest Street and Pacific Coast Highway. Overall development activity was relatively slow. By 1950 there were 2 ,100 dwelling units and a population of 5,200. The city' s image was that of a small coastal community that produced oil. Oil appurtenances dominated the landscape. The other major industry at that time was agriculture. 2 . 2. 2 Development 1950-1960 This era is characterized by the large annexations of relatively vacant or uninhabited land. As was mentioned previously 19 square miles were annexed between 1957 and 1959 . Development, especially residential subdivisions, began in the latter part of the decade. This growth was generally linear along Beach Boulevard, or in the Original Townlot Area. '� 2 . 3 M r V Y P 2. 2 . 3 Development 1960-1970 These are the years of trcmendous growth for which Huntington Beach became known. Over 100, 000 new residents made this city home. Because of this growth, the city' s image changed from that of an oil,-producing community to that of a diversified residential-industrial-and recreational oriented city. The city also added 3 more square miles to its limits, most of which was in the western portion. Industrial and commercial bases are being established. Residential development is spectacular. Single family dominates in the early part of the decade. Multiple family, as apartments, condominiums, etc. , tends to increasingly dominate the residential building activity in the latter part of the decade. Agricultural activity is being phased out by development in general. This development boom is a result of the right set of conditions: Large areas of vacant land, coastal location of abundance of cheap land, nearness to the Los Angeles and Orange County regional markets, location of McDonnell- Douglas Corp. in the city, and completion of the San Diego Freeway. 2. 2 . 4 Development 1970-1973 The city is still developing at a rapid pace. Population influx is still at about 10, 000 new residents per year. A broader industrial base is being established with development of the Huntington Beach Industrial Park by Lusk. Oil and agriculture are being de-emphasized as major industries. Emphasis is now on planning rather than on reacting. During this period annexation totalled one square mile. 2. 2. 5 Historical and Cultural Sites5 Historical and cultural resources, of course, shed light on manes more recent past. The scientific resources report prepared by Archaeological Research Incorporated lists two valuable "historical sites" -- the Newland House at Adams and Beach and original adobe homesite of Jose Manuel Nieto (Rancho Los Bolsas) . In addition several other potential historic and cultural landmarks have been identified within the city. These are presented in Fiq. 2. 2 s Scientific Resources Survey and Inventory !' 2.4 lu Table 2. 1 IMPORTANT HISTORICAL-CULTURAL LANDMARKS 1. Huntington Beach Pier 2. Golden Bear - old town buildings 3. Old City Hall 4. Council Chambers 5. Firehouse 6. Old Jailhouse 7. Huntington Beach High School 8. Playhouse 9. Huntington Beach Co. Office 10. Newland House - Beach Blvd. and Adams Ave. 11. Sugar beet i`actory - Main and Garfield 12 . Warehouse - Main St. and Garfield 13 . Old Japanese Church 14. Hubble House 15. Water tower - Warner & Marina - View 16. Water tower - Bolsa Chica and Warner 17. Bolsa Chica Gun Club 18. Ashton Oil Well #1 19. Bolsa Chica Oil Well #1 20. Huntington Oil Well A-1 21. World War II Bunkers The Huntington Beach Pier, constructed in 1914 , was the first concrete pier in the area. Additions were made in July 1930, and the pier was partially destroyed by waves in 1939 , then rebuilt to its present length of 1821. 8 feet in August 1940. The Golden Bear on Pacific Coast Highway is typical of the "Old Town" downtown area as are several other downtown buildings constructed in the 1920' s and 1930 ' s: the railroad station, the. old City Hall, the Council Chambers, the firehouse, and the old jail house. The Huntington Beach High School, historic in its own •right, also includes a bell tower that provides a significant visual landmark for the City. Adjacent to the high -school are the Playhouse and the Huntington Beach Company office which are both historical and visual landmarks too. Another site of importance is the Newland House, located on the corner of Beach Boulevard and Adams Avenue and the oldest of the remaining original farm houses. - The office and warehouse of the sugar beet factory at Main and Garfield also stand as decaying monuments to the once-booming agricultural economy of Huntington Beach, and north of the sugar beet factory (at Warner and Gothard) is the old Japanese Church. Built by early Japanese farm workers, the church is still being used. An additional remnant of the agricultural era is the Hubble House, one of the last farm houses typical of early Huntington Beach. Two remaining water towers, one at Bolsa Chica and Los Patos and one near the tuff in the Signal property, are 2 . 5 Y \ i also landmark sites as is the wooden water reservoir located in Huntington Central Park along Goldenwest. Huntington #Al was the first well in the area after Standard Oil discovered oil in Huntington Beach near Goldenwest and Garfield on May 24, 1920 . Bolsa Chica #1 , located near Reservoir Hill, was Huntington Beach' s first "big" discovery well. Producing nearly 20,000 barrels of oil per day, it started the great oil boom. 2. 3 Existing Land Use and Circulation Approximately 12 ,000 acres or 18. 75 square miles. of the planning area is developed. Within the existingcity limits over 5000 acres remain currently undeveloped. The unincorporated Bolsa Chica area accounts for an additional 1625 undeveloped acres. Sunset Beach is characterized as a beach community accounting for a total of 115 acres. In summary, a breakdown of the percentages of the total developed land by land use categories reveals that existing residential districts consume 63% of total developed land. Commercial and industrial development accounts for 4% and 7% , respectively, and approximately 24% are under the major category of public or semi- public land uses. 2. 3. 1 Residential Over 7500 acres are presently used for residential districts Low density single family type dwellings are the predominate residential use in the City. It is estimated that 29 ,400 single family units will exist in the City at the end of 1973. Based on building permits it is estimated that slightly under 18, 000 multiple family units will exist in the City by the end of this year. Apartment- type complexes are the dominate multiple family type units accounting for slightly over 15,000 units. Approximately 2700 multiple units in the City are condominiums. Another residential land use category is mobile homes. Presently the City has 2 ,.650 mobile homes. 2 . 3. 2 Commercial Total commercial land uses account for 555 acres within the existing city limits. The majority of commercial facilities in the City were built after the residential and population boom .of the 1960 ' s. Thus , the majority of facilities are ANN, 2. 6 relatively new and in good condition. There exist five major types of commercial land uses in the city. 1. Neighborhood Commercial Centers The type of facilities provided by these centers usually include a supermarket, drug store , liquor store, beauty shop, and gas station. Most of these centers are located along corners of residential districts. These centers are intended to facilitate a 1/4 mile service radius and a population of 5 ,000 to 7 ,000 residents. 2. Community Shopping Centers In addition to providing the same facilities as the neighborhood centers, these larger centers provide such facilities as variety and clothing stores, bakeries, appliance stores, large drugstores , furniture stores, hardware, auto shops, eating facilities, and possibly one or more service stations. Most of these centers are located where major arterials intersect. They generally serve a population of up to 40, 000 residents and a service radius of 1/2 to 2 miles. 3. Downtown Commercial The old downtown section of Huntington Beach does not provide the kind of business facilities that the newer centers do. Perhaps the best way of characterizing the downtown commercial district is that it is an old central business district containing a number of commercial structures and retail stores that are currently operating on less than marginal profits. Physically, the area is victimized by wear and tear indicating a need for rehabilitation of some structures and complete removal of others. The physical deterioration and economic decline of the downtown area correlates with the City' s urban growth that has occurred in other sections of the City. Thus the significance of . the• downtown area as a primary commercial area has dwindled over the years. However, it currently caters to the senior citizens residing in the surrounding residential areas. A number of eating facilities, small second-hand shops, grocery stores, variety shops, banks, and real estate offices and public facilities remain intact in this area. 2 . 7 OEM r :::. Y 't The downtown commercial section is also a favorite ' "hang-out" area for many of the younger generation. The fact that it' s proximate to the beach area attracts many youngsters who browse around specialty shops, eating places and the general beach area 4. Regional Commercial Center The only regional shopping center in the City is the Huntington Center. Its proximity to the San Diego Freeway makes it easily accessible for non-residents and residents alike. 5. Highway Commercial Beach Blvd. and Pacific Coast Highway are the major highway-oriented commercial strips in the City. Facilities such as service stations, restaurants, drive-in eating places, automotive sales, motels, and office-professional commercial uses are provided in these areas of high exposure and accessibility. 2 . 3. 3 Industry Total industrial development accounts for 875 acres. The principal industrial land uses are in manufacturing, trade and government. Industrial development typically lags about two years behind commercial development, or four to seven years behind residential development. Industrial development in Huntington Beach has averaged about 40 acres per year for the past several years. The industrial base in Huntington Beach is becoming highly diversified. There is still a heavy reliance on the aerospace industry and government contracts. McDonnell-Douglas is the largest employer. Over the long haul industry is the most important employ- ment generator for a city. A good industrial base insures a steady employment base- and tax revenue source. 2. 3. 4 Public and Quasi-Public Land Use Public land uses and facilities provide for a very real need in a community. These facilities and services directly affect the lives of not only the lower income families but all residents and are as necessary to their well-being as housing itself. A community that is aware of the needs of all its residents strives to provide services for their needs. Overall, Huntington Beach meets these needs quite well for all its citizens. However, in some of the older 2 . 8 portions of the city, many of these facilities or Services are deficient or lacking . Public facilities include schools; such recreation facilities as parks, recreation centers, golf courses and beaches; public transportation, utilities, and libraries. Quasi-public facilities include hospitals, convalescent homes, cemeteries, family counseling centers, churches, service clubs and organizations, and cultural centers. It is necessary for a community to evaluate the impact of different housing types on its facilities and services in order to determine where the deficiencies lay. 1. Schools Schools are one of the most important factors to dis- cussion of a land use element, because it is local government' s responsibility to provide educational services. Schools, especially elementary schools, are directly affected by the composition of housing types in an area, because different housing types generate varying numbers of students. The table below lists the elementary school student generation per type of dwelling unit, as determined by a study conducted in 1969 . Housing Type Students/Unit Single Family 1. 31 Condominiums . 65 Multiple Family . 36 Mobile Home .05 High schools are not as directly affected by housing types, because they draw students from large areas of the city. The areas near Beach Boulevard and Warner Avenue, anO. Warner Avenue and Bolsa Chica Street are adequately served by elementary schools, though these schools are operating at or near capacity. An additional seven schools are proposed to serve these study areas, the majority of which have been allocated to serve the Original Town Lot area which has only one site that is operating at capacity. 2 . 9 mom Fi y f 1( s 2. Recreation Facilities I Recreation facilities , especially outdoor recreation facilities, are also provided by the Master Plan of Parks , Open Space, Schools , and Recreation. These facilities are important assets to a well-planned and balanced community, such as 'Huntington Beach. It is necessary to provide a wide range of such facilities in order to fully service a community' s needs and demands; needs and demands which are increasing as leisure time is becoming more plentiful. The several types of recreation facilities include parks, playgrounds, beaches, golf courses and community centers. These types provide for a variety of ranges of recreational activities: neighborhood parks and playgrounds; community parks and centers; regional parks and regional recreation areas; and golfing. Huntington Beach is fortunate to have all of the above- mentioned recreation facilities. By careful planning and much foresight, these facilities are strategically located throughout the city. Neighborhood parks with playground equipment usually serve the area which is served by an elementary school. Because recreation facilities and school facilities are closely related and their purposes, programs and activities overlap, they are often combined. This combination of facilities increase efficiency by eliminating duplication. City-wide, the majority of elementary schools have adjacent parks that are developed. These parks are well used. Again, the Beach Boulevard and Warner Avenue Area, and the Warner Avenue and Bolsa Chica Area are adequately served by existing parks. The Original Town Lot Area is served by two parks and a recreation center which are heavily used. In the future, an additional eight parks are slated to serve these four housing areas, of which six are for the Original Town Lot Area. Community parks serve several neighborhoods within a community and are designed and planned to serve the broader recreation needs and demands of that area. .Generally, community parks are located near to or adjacent to high schools. This is to avoid, wherever possible , a duplication of facilities and the fact that high schools also serve broader segments of the community. ~ 2. 10 • � 1 Community centers or activity buildings are located within the community parks. These centers provide meeting places for a variety of community functions and activities. Currently there is one community park developed, Murdy Park, and five additional parks to be developed throughout the city. Community parks along with the regional park, beaches and golf courses have an indirect effect on the housing survey areas because they serve larger areas than do the neighborhood parks. Huntington Central Park is a community park of over 400 acres that will function at the regional park level. This park will augment the county' s regional park system. Presently, it is under the first phase of development. 3. Utilities Public- utilities such as streets, +water service , and sewage disposal are provided by the city. Electricity, gas and telephone are provided by private companies. Trash collection is contracted out to a private firm. The public utilities are continually being upgraded and expanded as the city grows. Improvements such as sidewalks curbs and gutters, street lighting and street maintenance are somewhat deficient or lacking in those areas covered by the housing survey. The Beach Boulevard - Warner Avenue Area and the Warner Avenue - Bolsa Chica Street Area are former county areas and at the time of development were not required to have such improvements. Much of the Original Town Lot Area has fallen into disrepair, due to age and lack of development. 4. Libraries The library system consists of four main elements : a central library; three branches ; several outlets , distribution points or stations; and a bookmobile. The central library is located at Talbert Avenue and Goldenwest Street (in the Central City Park) . This facility is currently in the design phases and when constructed, will serve as the central repository and administration headquarters of the library system. The three branch libraries will be strategically located throughout the city and will provide a basic level of service to the neighborhoods. The three sites will be at Springdale Street and Heil Avenue 2. 11 (Carr Park) , Main Street (currently in the present civic center) , and Magnolia Street and Hamilton Avenue (Edison Park) . Only the Main Street facility is existing, which is also serving as the main .library until the new library at Goldenwest Street and Talbert Avenue is finished. Library outlets, distribution points, or stations are small distribution centers that are located in intensive use areas, such as shopping centers. The bookmobile is a movable facility that travels to elementary schools and shopping centers that are removed from the outlets. This facility supplements the other library facilities. Currently, the Original Town Lot Area is served by the existing library on Main Street. All other survey areas are served by the bookmobile. When the system is complete, i.e. , when all library facilities are constructed and operating, there will be a more equitable distribution of these facilities. All . study areas will be within approximately one mile of either the Central City Library or a branch. In addition, strategically located outlets and the bookmobile will provide service to these areas. 5. Quasi-public Facilities The city is served by two hospitals, four convalescent hospitals, one health clinic, one cemetery, and thirty-one churches representing all denominations. 6. Quasi-public Services Services are offered by various groups and organization dedicated to dealing with family, emotional , physical, psychological, or social problems . Such counseling or aid is offered free of charge or is paid based on the ability to pay of those receiving the aid. Eleven such service-oriented groups are located in Huntington Beach, while another eight are located elsewhere in the county, but serving the city. An additional two groups in the city are exclusively for senior citizens. 2 . 3 . 5 Circulation Huntington Beach surface street system is dominated by grid pattern. Major arterials and primary streets divide most of Huntington Beach into uniform square mile sections, the exception being the older developed sections of the city. Secondary streets branch off of major and primary 2. 12 i f arterials and provide access into residential areas. They further divide the city into quarter mile sections where residential districts become physically defined. The major highways in Huntington Beach are the Pacific Coast Highway and Beach Boulevard. The only freeway that passes through portions of the city is the San Diego �re.eway completed in 1965 . The level of service in terms of street design, freedom to maneuver, traffic flow capacities and signalization is . generally good to excellent. 1. Traffic Volumes Traffic volumes have increased as population and development in Huntington Beach has grown. Based on the latest average daily traffic flow counts conducted in October 1972 , Pacific Coast Highway, Beach Blvd. , Warner Ave. and Brookhurst Ave. ex- perienced the highest traffic flow counts in the city. The highest range of daily traffic volumes are from 21, 400 on Warner Ave. to 32 ,000 on Beach Blvd. 2. Public Transportation Public transportation in Huntington Beach is minimal, because of two primary considerations: dependency on the automobile as a primary mode of transportation and lack of a population density sufficient to support a public transportation system. Inter-city bus service is available, but these routes do not penetrate the city to any extent. One company provided minimal inter-city service between Huntington Beach and Santa Ana. Due to economic difficulties and lack of rider- ship, this service was discontinued in April 1971. No other comparable services are available at this time. Orange County Transit District is an agency that will provide for a mass transit system serving all communities in the county. Initially this system will consist of buses. In the first phase of develop- ment several inter-community routes will be established. Service will be inaugurated on several of these routes within the next two years. The remainder of the inter- community routes will be in service by 1980. Ultimately this agency plans to provide inter- and intra-community service to communities in the county. Tom,, 2 . 13 L y . Two routes which wil l affect lluntiiig ton Beach w i_th in the next two years are routes that service Beach Boulevard and Adams Avenue. Service proposes a 25 cent fare and a 30 minute frequency schedule. 2. 3. 6 Sunset Beach* Sunset Beach contains slightly over 115 acres. Land use, other than streets and recreation in Sunset Beach is predominately residential. In many instances, a mixture of residential and commercial uses exist. In a number of cases a "dual use" situation persists. "Dual use" is defined as more than one type of land use per lot. An example of this situation is the commercial-residential combination of uses existing along Pacific Coast Highway. Residential uses range from single family through "five-plex" multiple family type developments. Sunset Beach is a mixture of single and multiple family residences. Commercial uses, 3 percent of total land area, exist sporadically along Pacific Coast Highway in a lineal fashion. This manner of development tends to be adverse to residential uses in areas where no real boundaries serve as a separation. Additionally, strip commercial development tends to create more problems (land use, zoning, traffic, etc. ) which nullify the benefits gained from permitting such use of land. Land uses are distributed in the follow- ing manner: Percent of Use Acres Total Area Residential 19 . 3 16. 0 Commercial 5. 5 4. 0 Recreation 36. 3 31. 0 Water Ways 3. 5 3. 0 Streets 31. 6 27. 0 Vacant 19. 1 16. 0 1. Age and Condition of Structures By Orange County standards Sunset Beach has pre- dominately older homes and generally fair to poor exterior structural conditions. Most, if not all, of the new residential construction in the Sunset Beach area are duplexes and triplexes. These types of development represent the most prevalent means for increasing investment in the area as of this moment. *Technical Report Sunset Beach-Surfside Study March 1, 1967 - Orange County Planning epar ent `- 2. 14 2. Streets and Highways Pacific Coast Highway is the connecting link between Sunset Beach and Seal Beach and Huntington Beach as well as serving as an arterial highway along the coast. There are 29 streets and 20 alleys that provide access into the study area from Pacific Coast Highway. These 49 access points in addition to the direct access to properties fronting on Coast Highway are one of the causes for the vehicular traffic problem in the area. Only three streets (excluding Surf Avenue in Surfside) provide direct access to South Pacific and the beach front properties from Coast Highway. These streets are Warner Avenue , Broadway and Anderson Street. Traffic movement in the northwesterly and southeasterly direction is provided by South Pacific Avenue , North Pacific Avenue and Pacific Coast Highway. Traffic access to and circulation on the island are provided by Broadway and Bayview Drive respectively. Bayview Drive is the only street serving the island and is inadequate for a number of reasons including the fact that it is a dead end street without proper "turn-about" provisions at either end of the street. Inasmuch as the final analysis of the streets, highways, vehicular circulation and related matters are the responsibility of the County Road Department, the County Planning Department' s project team has identified some of the critical problems for the area. For examples: 1) All of the streets are substandard in width and improvements except for one of two instances; 2) The pattern of streets creates an excessive number of conflict points for the movement of traffic. As an illustration, within a mile along Pacific Coast Highway there are over 150 points of direct access to Coast Highway. It is doubtful that this situation is exceeded anywhere else in the county. 3) Off-street parking facilities are wholly inadequate to meet the parking demands for the area; 4) Vehicular-pedestrian conflicts are common and intensified during the summer months; 5) Capacity of the street system seems inadequate to handle any increase in volumes of traffic resulting 2. 15 r . from full utilization of vacant land and/or sub- stantial increase in dwelling unit density under present conditions. 3. Public Facilities and Utilities A critical part of any community analysis is the condition of the public facilities and utilities that service the community. Because the public utilities in the Sunset Beach - Surfside communities were installed as the area first began to develop, some of the utility services are adequate only to provide the existing level of service to the population density now existing. Two of the utilities that need serious analysis regard- ing ability to maintain and improve services are water and sewer systems. The water for the area is supplied by two wells east of the study area. Storage facilities consist of two storage tanks with a total capacity of 150, 000 gallons. A six inch :line serves as the principal distribution line running from the well site along North Pacific in Sunset. Beach and through Surfside Colony. Secondary lnes of varying diameter feed off this main line. A two inch line, for example, serves the ocean front properties. .This small line is completely inadequate for fire fighting purposes. The sewer system for the study area is perhaps the utility that needs the most attention. That is, the present sewer system established in 1933 , is near its operating capacity of 250,000 gallons per day. While this system can handle the present need, it cannot accommodate the needs generated by any future increase in population. A ten inch line serves as the main sewer line running along North Pacific Avenue and Surfside Colony. This line feeds to the sewage processing plant located west of Warner Avenue. An eight inch outfall line from the plant runs along Warner Avenue into the ocean. Gas and electrical services are provided by Southern Counties Gas Company and Southern California Edison Company, respectively. It can be assumed that these companies will upgrade their delivery system as the need arises. 2. 16 2. 4 Natural Physical Conditions and Factors The following sections serve to describe the physical and natural conditions that set the stage for human existence. It represents the environment that man must "live with" rather than just "live on" . They supplement other environmental issues and resources that man must conserve and use wisely. 2. 4. 1 Water Bodies and Waterways A crucial factor in the environment of Southern California has always been the availability of water for domestic use , for agriculture, and for recreation. Its scarcity as well as its multiple use potential have made water a prime natural asset, and Huntington Beach has several important water and water-related areas worthy of consideration as possible open space resources. 1. Ocean and Shoreline One of the city' s most significant natural resources is the coastline. The ocean, of course, dominates the area' s climate and along with 8 miles of beach provides an important wildlife habitat and scenic recreation resource for the entire region. All but 2-1/2 miles of the shoreline is publicly owned, and acquisition of this remaining area has been approved by the State. Two endangered species -- the least tern and the light-footed clapper rail -- are known to inhabit this zone and efforts to preserve native wildlife are being taken. 2. Estuaries Of the 28 major estuaries between Morro Bay and Ensenada, Mexico, 15 have been modified, 10 have been drastically altered, and 3 have been destroyed. Three of these important salt water inlets -- Sunset Bay, Bolsa Chica Bay, and the mouth of the Santa Ana River -- exist in Huntington Beach. Sunset Bay is located at the western end of the city near Sunset Beach. Much of the area has been developed as a marina -- Huntington Harbour -- which extends to the remaining natural marshlands of Sunset Bay Aquatic Park. A colony of endangered least tern frequently visit this area, and building activity was halted recently to protect the nesting birds. However, development is imminent. Bolsa Chica is one of the most significant remaining estuaries in Southern California. Although oil drillings in the "gap" area have substantially 2 . 17 destroyed its marshland nature by restricting tidal flow , this inlet remains relatively undeveloped. By patented tidelands laws, the State has claimed 530 acres of Bolsa Chica and recently negotiated a land settlement with the Signal Oil Company to consolidate its holdings. It is the intention of the State: 1) To reestablish an' d maintain a saltwater marsh ecosystem that is adequate in size and quality to provide for a diversity of use; 2) To improve the bay and surf fisheries of the contiguous area by increasing nurseries and forage; 3) To provide habitat for a variety of water- associated wildlife including the endangered light-footed clapper rail and the least tern; 4) To provide unique scientific and educational use opportunities to study the development, formation, and maintenance of a saltwater marsh; 5) To provide Bolsa Chica State Beach expanded recreational opportunities; and 6) To provide a public waterway system available for small craft recreational use.l Towards this end, approximately 400 acres of State land will be reestablished as a salt marsh with islands, mudflats, and tidal channels. The marsh system, which represents the first opportunity naturalists have had to restore a damaged estuary, .will eventually be connected to the ocean via a channel that will serve as a waterway for recreational small craft and other public uses. The main channel and possibly a 125 acre marina will compliment the estuary and marsh system by providing deep sheltered water. The mouth of the Santa Ana River was once an important estuary, also, extending between the river and the bluff line as far north as Adams Street. An elaborate drainage system was created in the area, however, to permit residential development. There are still problems with salinity and salt water intrusion, but the only natural marshlands remaining are adjacent to the flood control channels southeast of the Edison plant and the Adams bluff area. 1 "Bolsa Bay: A Conceptual Plan for Resources and Recreation" , State Resources Agency, Dec. 1972 , p. 12 RK 2 . 18 ffml=lz� i 2. 4. 2 Topography The topographic characteristics of the planning area are identified in terms of high and low points. The highest and lowest points generally exist along the major bluffs in the City. The northwest portion of the Bolsa Chica area is the highest point of a western bluff. It includes significant vistas to and from the area, particularly from Pacific Coast Highway. The eastern tip of the same bluff is also highly elevated and has significant vistas to the surrounding environs. The area directly north of Warner Ave. , between Springdale and Goldenwest, is comprised of several low-lying areas with peat soils and drainage problems. The central area of Huntington Beach, approximately where Goldenwest intersects Talbert Ave. , contains a number of low points. Within Huntington Central Park, fresh water lakes exist and are to be preserved in the development of the park. Adjacent to the above low area are high points created by well defined bluffs. Directly south of these areas are two sand pit areas and a natural ravine. These areas are presently being utilized for sand pit operations and oil production. The highest point in the planning area is located south of Garfield and adjacent to Goldenwest Ave. and known as reservoir hill. The elevation at this point is 127 feet an provides a prime vista point. 2 . 4 . 3 Slopes Because of the City' s limited topographic characteristics , any features of note compared to the surrounding flat land or ocean become important. The bluff areas, rising steeply with a broad, rounded front, have also been labeled mesas; and they are probably the most significant physical features within the city. In addition, there are some .hillsides of lesser importance such as the terrain surrounding Huntington Central Park. Aside from the benefits of "urban relief" and scenic vistas, slope is ,also important because of the potential dangers (of land- slide , mudslide , instability) it harbors for development. In conjunction with the higher elevations, slopes of over 30% grade that exist within the planning area are : (1) the northwest section of Bolsa Chica referred to as the Bolsa Chica Mesa, and (2) the central bluff that -m 2 . 19 runs along the westerly slope of the Huntington Beach Mesa, and (3) the easterly slope of the Huntington Beach Mesa. 2 . 4. 4 Soils The planning area is typified by four distinct types of soil conditions. Most of the area is composed of recent alluvial and tidal marsh sediments. The Bolsa Chica and Huntington Beach Mesas contain older alluvium type soils. Along the westerly slope of the central bluff, older marine sediments are located. The shoreline and beaches are composed of alluvium and sand. Peat and Organic Soil Deposits - Additionally peat and organic soil deposits exist throughout the planning area. The varying depths of layers of peat range from 1/2 inch to over 25 inches. These deposits represent areas where long-term, large settlement may occur and where , during a major earthquake, potential liquefaction of subsoil and ground shaking may be anticipated. 2. 4. 5 Seismic and Flood Hazards 1. Earthquake Hazard The main trace of the Newport-Inglewood Fault runs directly through the City of Huntington Beach. Within recorded history, several epicenters with a magnitude over 4. 0 on the Richter Scale have been identified near the City on this active fault. One such epicenter was several miles offshore from the mouth of the Santa Ana River. Leighton & Yen, seismic consultants, are currently preparing a seismic research report for the City which will include a seismic and geologic inventory of the City and maps of geologic conditions, expansive/ collapsible soils, active faults, liquefaction, and, ground response spectra zones as well as guidelines for risk analysis. This data will reveal the greatest potential hazards within the City in terms of geologic and seismic conditions and provide the basis for a "Seismic Safety Element" which will seek to alleviate potentially hazardous conditions. The significant geologic features in the city include the older alluvium mesas, three low-lying "gaps" , older marine sediments, beach and dune sands, and .the active faults and fault traces. Though a detailed analysis of these conditions will be developed by the Leighton and Yen study, preliminary investigation shows that the major damage from earthquakes will be from earthshaking. This means that damage is not based on the location of fault lines but on the soil conditions and geologic structure of the area. 2 . 20 2. Flood Hazard Because most of Huntington Beach is constructed in a flood plain, drainage and flooding have always been problems within the City. Only one hundred years ago , in fact, much of the area below the bluff lines was salt- and fresh-water marshlands. In many areas , the installation of adequate drainage has not been planned or is incomplete -- especially in the townlot portion of the City -- and difficulties may arise with heavy rains. In the east side of the city, the Santa Ana River is at a higher level than the surrounding drainage area, and recent studies by the Army Corps of Engineers have indicated that the flood threat along the entire river course is greater than anywhere else in Southern California. After the near disaster floods in 1969 , the Corps is revising their capacity estimates for the Santa Ana channel. Present figures developed by the Corps indicate that Prado Dam in Riverside County and the river channel could only provide protection against a "70 year flood" though they were originally designed to protect downstream areas from a "100 year storm" . Because of siltation above the dam and development along the channel, the system' s capacity is now far below this original design criteria. The Corps is presently work= ing on plans to expand either Prado Dam, the lower channel, or a combination of both, possibly in con- junction with an expanded greenbelt/parkway system to provide adequate protection to the threatened urban areas. The other major drainage areas on the north and west side of the city have not had the benefit of study as in the Santa Ana River area, but they likewise pose potential flood threats. Every area within the flood . Plain is subject to flood damage in such a severe storm. It has been estimated by the Corps of Engineers, in fact, that should a standard project flood occur in Orange County, 100,000 acres of land would be inundated resulting in $2. 2 billion dollars of damage. The Orange County Flood Control District owns 408 acres in • fee and has easements on 20 acres of flood control channels in Huntington Beach. These channels provide storm drainage for the City and inland areas. All of the Orange County Flood Control District channels within the city have been designated as "environmental corridors" which means that with proper planning they could be utilized for trails or a linear park/greenbelt system. In addition to these permanent County Flood Control " 2. 21 t fi P aw �` 14 oT •.� fS�gR`. ..1 i ' yo i lk" �5 :r v s• facilities, there is one channel between Edinger and Heil and Graham and Algonquin which is scheduled for undergrounding in the future. The land above this channel will remain open space, however, and a greenbelt trails corridor could be developed. 2 . 5 Population and Social Factors 2 . 5. 1 Population Growth Population has grown tremendously for the past 13 years. The annual rate of increase has decreased substantially over this time period, from over 50 percent in the early 60 ' s to less than 10 percent in the 70 ' s. In spite of this reduction in rate of increase, growth in absolute numbers has been sustained at an average of over 10,000 per year. Natural increase is a form of population growth. Because of the tremendous influx of population into Huntington Beach, its existence has been overlooked. Over the past 10 years, Huntington Beach' s rate has fluctuated from a high of 18. 8 in 1965 to a low of 14. 4 in 1970 . Converting this rate into a percentage or from a rate per 1000 to a rate per 100, would yield 1. 69 percent for 1960, 1. 88 per- cent for 1965, and 1. 44 percent for 1970. At these rates it would take Huntington Beach' s population about 50 years to double, assuming no in-migration or out-migration. From 1970 to 1973, the population size of Huntington Beach has increased from 120, 000 to 149 ,900 as of July 1 , 1973. This increase accounted for an annual increase of 8% or approximately 10,000 people per year. 1. Population Distribution Patterns of population growth have been broken into five distinct eras. Up to about 1959 most of the growth was concentrated in the Original Townlot Area, the area generally bounded by Beach Boulevard, Garfield Avenue, Goldenwest Street, and Pacific Coast Highway . The period 1959-1963 marked the beginning of a resid- ential tract activity along Beach Boulevard and roughly parallel to the San Diego Freeway in the northern part of the city. From 1964 to 1967 the development of Huntington Harbour and of condominium developments began. Since 1967 many large apartment complexes especially along Warner Avenue have been constructed. 2. 23 2.. Redistribution of the Population Population was redistributed in the sense that there was a shift in emphasis. from single family residential developments toward other forms of housing. Activity in single family housing was still high, but apart- ments, condominiums, and mobile homes were having an effect. This trend toward other types of .housing began around 1969 and has continued into the present. Since 1969 , . single family residential development -has. consistently comprised less than 50 percent of all types of units. 3. Population Density City size increased about 400 percent from 1950-1960 and about 15 percent from 1960 to 1970. Because of this tremendous aerial increase during the 50 ' s, population density dE:creased by 56 percent during this period. Since 1960 the . increase has been steady due to increasing population. Currently, Huntington Beach has a gross population density of 5 ,700 people per square mile. 2. 5. 2 Population Composition 1. Sex Ratio. The sex ratio is the number of males per 100 females. In determining the sex ratio two variables were examined: the ratio of males to females for all age groups and the ratio of males to females for the 16-64 age group. This is the group that comprises the labor force. For all age groups there were more males than females in Huntington Beach up to 1967. In 1967 the rate was even and since that time it has been slowly decreasing. An average for the decade indicates 100. 0 or an even ratio. The 16-64 group reached equality in about 1965 and like the above group, has continued to decline. Since the mid-60 ' s more females are living in Huntington Beach. Many of these are also in the labor force, probably as working wives.- This trend is more prevalent now than it was in the early 1960 ' s. Another reason for this apparent dominance of the sex ratio by females is that in the mid 1960' s, the effect of Viet Nam War was being felt on the number of young males in the labor force. This war might also explain the low 10-year average in the 16-24 group, 2 . 24 MOM -r 2. Age. The median age declined rapidly from 1960-63 when it reached its lowest point. This is indicatilre of a large influx of young families with young children. Since 1964 , median age has steadily increased to where in 1969 it was 24 . 7. Although there is no figure available for 1970, median age is estimated to be 25 years. This is still below the county median of 26 years for 1970. 3. Race. Huntington Beach is overwhelmingly a "white" community. Persons of Spanish surname are included in with this "white" population. There are and have been very few non-whites in the city. During the past decade the total has declined from 2. 1 percent to 2. 0 percent. Although this decrease is slight, this in itself is significant. While the non-white population has increased in proportion to the overall population in most communities , there has been a decrease in Huntington Beach. In the past, the housing market in this city has been aimed primarily at the middle and upper middle class family. Traditionally these are professional or highly skilled workers, the majority of which are "white" . Also, due to the newness of the residential market in Huntington Beach, there are no real clusters or concentrations of minorities in the city. 4. Marital Status. Since there is no comparison available on this subject for 1960 for Huntington Beach, a comparison is made between Huntington Beach and Orange County for 1970. The percent distribution is somewhat similar between Huntington Beach and Orange County for the categories of divorced, separated, and widowed. Huntington Beach has 3 percent fewer singles than has Orange County, but 5 percent more married couples than the County. 2 . 5. 3 Socio-Economic Characteristics Because Huntington Beach is one of the newer residential communities in Orange County, it has attracted a large, seemingly high paid, mobile, and relatively young popu- lation. Table2.4is a composite of several characteristics showing racial distribution and household composition. This table shows that approximately 98 percent of the population is "white" and that the majority of households are comprised of two or more persons. 2 . 25 r Other census information indicated that over 50 percent of the city' s population is under 25 years of age. Table 2 . 4 Racial Distribution and Household Composition of Total Race a Population Population All Races 115 ,960 100 . 0 - White 103, 475 89. 3 Spanish American 10 ,135 8. 7 Negro 99 . 1 American Indian 250 . 2 Oriental 1 ,660 1. 4 Others 341 ..3 Households 33, 638 Two or more person households 30, 327 Male head, wife present no non-relatives 26 ,750 Other male head 1, 095 Female head 2 ,482 One person households 3 , 311 aSee definition of "Race" in U.S. Department of Commerce, Bureau of the Census, 1970 Census of Population, "California, General Population Characteristics, " U.S. Department of Commerce Publication (PC (C2) -6, (Washington: Government Printing Office, 1971) , p. 2. Sources: University of California, 1970 Census, lst County "Census Summary for Huntington Beach" , Prince Display Series, STP 1-1, (Berkeley: 1971) , P.4 ; "Metropolitan Housing Characteristics, "HC (2) -10, Anaheim-Garden Grove-Santa Ana SMSA, US Department of Commerce, Bureau of the Census (Washington: Government Printing Office, 1971) , Table G-7, Huntington Beach Planning Department. 2. Employment Indicators Ability of a family to secure housing for itself is directly related to level of income. Income is directly related to employment. Approximately 67 percent of the population 16 years old and over is in the labor force and of these 94 percent are employed. This 6 percent unemployment rate was reflective of .the general unemployment rate for 1970. t 2. 26 M w� x .;1 1 Wdirin (,rir.n.in(.1s (o.r w.i:; 2 . '.) 1 iui(�:; 111-11 1O1- f.emales. One reason for this seem.iny di.s(.:r.cp,1nry i :: the fact that 72 percent of all employed males and only 37 percent of the females worked full time. There is no to determine how many of the unemployed had spouses working. A large portion of the residents in this city are in professional, technical , managerial, or administrative positions (33 percent) . 3. Income Levels Defining income levels is a very nebulous task at best. There are probably as many different definitions as there are people to define them. For this study, in- come levels are designated as poverty, very low, low, moderate, and high. The Federal government has set a gross annual income of $4500 for a. family of four persons as the current poverty line limit. These poverty families pay over 30 percent of their incomes for housing, whether it is standard or not. Very low income families ($4500-$6000 annual income) are probably paying over 25 percent of their incomes for housing. Low income families ($6000 - $8000 annual income) probably also pay approximately the same percentage for housing. Moderate income families ($8000-$10, 000 annual income) pay 20-25 percent of their incomes for shelter. High income families (over $10, 000 annual income) pay 12-20 percent of their incomes toward such housing. The ability of a family to secure standard housing also depends on a variety of factors, such as geographical location, family size, minimum accepted standard of living, and any special considerations, such as physical disabilities or migratory work habits. The cost of living varies from region to region. It costs more, for example, to live in Los Angeles than it does to live in Kansas City. A family of four making $10 , 000 annually has more money for luxuries than a family of ten on the same income. Based on the 1970 census the distribution of household income shows that there were a total of 29 , 631 families and 5540 unrelated individuals in the city in 1970. Briefly, it can be seen that about 28 percent of these households have poverty level, very low, or low incomes (below $8000 annual income) . Of these lower income groups, approximately 20 percent are families, while 72 percent are unrelated individuals.. Two reasons for this apparent skewed. income distribution between 'T' 2. 27 P G J;9/ q Lm-W' families and individuals are: 1) That many wives work; 37 percent of the married women 16 years old and living with their husbands are in the labor force. This extra income boosts the median family income. 2) Many of the unrelated individuals might be elderly on fixed incomes , persons with limited skills earning low salaries, part time workers, or unemployed persons receiving unemployment benefits. Tied very closely to the economic income of a household is the wage earner' s age in relation to his .income. The bulk of the population, or those between the ages of 25 and 64 years, have the highest incomes; most own their own homes; and about three-fourths of the families pay less .than 25 percent of their incomes for housing. Approximately half of these families pay less than 20 percent of their incomes for housing. The elderly, or those 65 years old and over, have special significance. It is this group of citizens that is still relatively independent and self-sufficient but due to such factors as retirement or health, their incomes are reduced or limited. This age group comprises about 4 percent of the total population of the city, and about 5 percent of the total elderly population of the county. Three important conclusions that can be drawn from the 1970 census. 1) Over half of the elderly earn less than $5000 a year or have incomes approaching poverty levels. Median income is approximately $5000. 2) Over half of this age group pays 35 percent or more of their incomes for housing. Another quarter spends between 25 to 34 percent of their incomes for shelter. 3) Of the renter occupied units, over three-fourths of occupants who earned under $5000 annual income pay 35 percent or more of their . incomes for housing. Information was not available for owner- occupied units. Using the 1970 census. 'information it is possible to get an idea of the amount of housing that should be provided for these lower income households. Assuming the distribution remains fairly constant approximately 25-30 percent of the units should be made available to those who earn less than $8000 annual income. This includes the povert , very low and low income groups. 2 . 28 4. Poverty Income Households and Welfare Recipients A component of the socio-economic characteristics is the economic and housing situation of the lower income groups. A brief review of their financial situation situation is noted in this section. 1) About 3 percent of all families and about 7 percent of all persons receive some form of public assistance. Approximately 77 percent of all persons 65 years old and over receive Social Security income. 2) About 5 percent of all persons in Huntington Beach have incomes less than poverty level. Of these 9 percent are 65 years old and over. 3) Four percent of all persons were found to have incomes less than 75 percent of poverty level. If poverty level as defined in this studv is $4500 annual income, for example, then these persons earn about $3400 a year. Of the persons in this income group 7 percent are 65 years old and over. 4) The last income group examined, or those with incomes less than 125 percent of povery level , included about 7 percent of the population: Of these persons 11 percent were 65 years old and over. Persons in this income group would make a maximum of $5600 a year if $4500 annual income were the poverty line limit. A fairly high correlation exists between the location of welfare recipients and those sections of the city that contain older, poorer, and less expensive housing. The occurrence seems to be the highest in the old Town Lot area and in the Beach Blvd.-Warner Avenue area. 2 . 5. 4 Housing Conditions As a result of the tremendous growth in population and ,subsequent building boom to provide housing for this population, the majority of housing is less than ten years old, and for the most part, in excellent condition. However, there are small pockets that contain problem housing, that is, those units considered to be aging or deteriorated. In a preliminary survey of the entire city, staffs of the Building Department and Planning Department found that there were four areas of focus: &-t so-, _... 2 . 29 e A 1. The original Town Lot: area. 2. An area bounded generally by Edinger Avenue , Newland Street, Talbert Avenue, and Gothard Street, hereafter designated as Beach Blvd.-Warner Avenue area. Much of this area was in the old county area of Wintersburg . 3. An area within a half-mile radius of the intersection of Warner Avenue and Bolsa Chica Street, in the old ' county area called Sunset Heights. " 4 . That portion of Sunset Beach now in the city limits. After a preliminary appraisal, four study areas .were then delineated. A fifth area, the remainder of the city, was then designated as a yardstick for measuring the survey criteria and conditions in the other four study areas. These four defined study areas were then divided into a total of seven housing survey areas - two in the original Town Lot area, one in the Warner Avenue-Bolsa Chica Street area, one in the. Sunset Beach area, and three in the Beach Blvd.-Warner Avenue area. An in depth study was then undertaken by the staffs of the Building Department, Planning Department and Public Works Department. The Huntington Beach Housing Survey was modeled after a survey program devised by the Orange County Health Depart- ment and consisted of two parts : 'The Block Environmental Survey and the Individual Paicel and Structure Survey. The former was a windshield survey carried out by the staffs of the Planning Department and Public Works Department, while the latter was a .sidewalk survey conducted by the Building Department staff. 5300 dwelling units, representing 15% of Huntington Beach' s total housing stock, were surveyed in seven areas. 1. Findings of the Surveys Five percent or 165 of the 5300 structures surveyed . were found to be substandard, i.e. , economically un- feasible for rehabilitation. The problem of . substandar housing in this community, then, is not considered to be acute, as only 165 units in the entire city were thought to be substandard. However, in terms of one of the goals set forth in the 1968 Federal Housing Act, " . . .a decent home and a. suitable living environment for every American family. . . " the problem must be' recognized. 2. 30 :�y 2. Future Problems These housing survey areas are problem areas for the city today. They represent only a small portion of the housing in Huntington Beach (15 percent) . . Taken at face value, current housing problems in this city are relatively non-existent. This situation is prevalent because the majority of housing was developed in the past ten years , 1960-1970; consequently housing is good. Looking at the other side of the story, concentration of so much growth in such a short time has prompted pre- dictions that large areas of the city' s housing may deteriorate within an equally short period, around the year 2000. Based on this assumption, the city will be faced with its most critical housing problem at the turn of the century. At least 70 percent of the exist- ing housing in the year 2000 will be thirty years old or more and will have reached a . stage of marginal utility. Thus, Huntington Beach must seek a formula for curtailing the deterioration of present housing. Many housing specialists say the county and its cities must find ways soon to promote conservation of aging neighborhoods. The alternative could be a massive single family housing slum. 2 . 6 Economic Factors Annexations of the late 1950 ' s increased the development potential of Huntington Beach in terms of the urban economic base. Because of the annexations more land was available for development. General economic growth can be measured by building activity and increases in personal income. 2. 6. 1 Building Activity The attached figure indicates building valuation since 1960. The total valuation curve and the dwelling valuation curve are subject to pronounced peaks and valleys. The commercial and industrial curve is somewhat flat when compared with the other two. Three peaks are identified, 1963, 1965 and 1969 . 1972 may be a peak year also, but more information will be needed. Three recessions are also recognized, 1964 , 1966- 1968 and 1970. The 1964 recession was caused by an over- built situation in the county. The 1966-68 recession was a general economic recession. This era also marks the V 2. 31 3 c 110 100 - - i 90 80 70 A 60 ` 50 40 la 30 _ 20 10 • Fagot ,. 1 .1 60 61 62 63 64 65 66 67 68 69 70 .71 72 YEAR FIGURE 2. 5 TOTAL •���� RESIDENTIAL wwsw- COMMERCIAL & INDUSTRIAL .cam► BUILDING VALUATION Ilip huntington beach planing department 2 . 32 beginnings of heavy involvement in Viet Nam. The 1970 recession was caused by the tight money situation. So far the Coastal Zone Initiative and Friends of Mammoth Decision requiring Environmental Impact Reports on all projects have not had much effect on these curves. "Total Dwelling Valuation" curve is responsive to economic pressures outlined above. The commercial and industrial valuation curve is very stable, with little fluctuation as compared to the dwelling curve. Development in these areas, while slow, has been steadily increasing over the past 11 years. 2 . 6. 2 Personal Income This factor is an indicator of purchasing power. Median family income has increased $5, 800 in ten years or 96 percent in Huntington Beach. Orange County median income has increased $3 ,330 or 46 percent during this same period of time. In 1960 median family income in Huntington Beach was 19 percent louver than Orange County, while in 1970, Huntington Beach' s median income was 12 percent above the county' s. Based on the United States Census, median family income in Huntington Beach was $11,850 in 1970 and estimated to be over $12 ,000 in 1973. 2. 6. 3 Retail Sales Retail sales in Huntington Beach reached an all time high of close to $250 million dollars in 1972. In 1972 retail sales gained over $49 , 659 ,000 over the previous year. The first quarter of 1973 showed a $13. 5 million gain over the same period of 1972. Since 1968, local sales have increased a total of $146,764 ,000 through the 1st quarter 1973. Listed below are 1969 and 1972 sales comparisons by type of business outlet. Figures bracketed are number of sales outlets reporting. x; 2. 33 w: Fig. 2-6 HUNTINGTON bEACll RETAIL SALES* ($000) OUTLETS 1972 1969 THREL•' TOTAL TOTAL YEAR GAIN Apparel Stores $ 15,002 ( 69) $ 11,478 ( 58) $ 3,524 ( 11) General Merchandise Stores 48,385 ( 26) 28,279 ( 19) 20,106 ( 6) Drug Stores 7,879 ( 17) 6,710 ( 13) 1,169 ( 4) Food Stores 10,081 ( 60) 12,331 ( 47) 7,750 ( 13) Packaged Liquor Stores 5,671 ( 26) 3,621 ( 17) 2,050 ( 9) Eating & Drinking Places 21,565 (143) 12,001 (102) 9,564 ( 41) Herne Furnishings & Appl. 21,678 ( 36) 6,256 ( 30) 15,422 ( 6) Building Matls. & Farm Ill. 11,007 ( 24) 3,124 ( 16) 7,883 ( 8) Auto Dealers & Supplies 52,425 ( 35) 34,446 ( 28) 17,979 ( 7) Service Stations 11,021 ( 86) 2,091 ( 84) 3,930 ( 2) Other Retail Stores 11,593 (132) 6,935 ( 82) 4,759 ( 40) Retail Stores Total 226,408 (654) 127,272 (496) 99,136 (158) All other Sales Outlets 23,271 (1,034) 16,200 (507) 7,071 (527) Total All Outlets $249,679 (1,686) $143,473 (1,003) $106,206 (685) (Retail & Others) * SOURCE: California Board of Equalization 2 . 6 . 4 Labor Market* During the year ending July 1972 employment in Huntington Beach expanded by 6.1 percent to an all-time high of 31, 000. Manufacturing, at 8 ,900 workers, was 500 above the 1967 level and 1 , 400 above the 1971 count. Aerospace layoffs were primarily responsible for a 2 ,400 decline in manufacturing payrolls between 1967 and 1969, but recalls and transfers in from Los Angeles County have more than made up for that loss. Non-defense manufacturing in Huntington Beach is headed by ten firms in the stone , clay, and glass group. Rubber and plastics tie with the printing and publishing industry for second place. Fabricated metals and oil refining 2. 34 �m also provide a moderate number of jobs. Non-manufacturing employment advanced by 1 , 300 in fiscal 172 . Of the 6 ,000 workers in the retail sector, one-fourth worked in eating and drinking establishments and one-fourth were employed by department stores and other general merchandise outlets. Auto dealers and gas stations are also prominent in the trade structure of the city. Altogether trade employment increased by 400 over the year. Local government added 300 to serve the expanding school age population and the influx of tourists to the beaches. Construction activity required 300 additional workers, but oil extraction was down somewhat from the 1971 level. *SOURCE : State of California Department of Human Resources Development - June 1973 2. 6. 5 Oil This natural resource, at one time, made the Huntington Beach Oil Field the Number 2 oil producing field in California. Currently, however, this field is ranked Number 5 in terms of production. In 1971 , this field accounted for five percent of the total state production. As a comparison the Wilmington Field, California ' s largest producing oil field, accounted for 20 percent of the state' s total. State-wide production has declined as much as five percent annually in recent years; along with the United States' .total production, which has declined two percent in 1971. While California' s and the nation' s total production was on the decline, production from the Huntington Beach field has increased during the past two years. This is due primarily to secondary recovery methods such as steam and/or water flooding. Historically, secondary recovery methods have resulted in maximum production within a relatively short period of time; however, a more rapid production decline than was experienced during primary production can also be expected. Present indications are that the Huntington Beach field will follow the typical pattern with production peaking within the next two years and declining thereafter. Over 1, 000 oil producing wells are currently in operation. However, since 1960 the number of producing oil wells has been declining. 2 . 35 It has been estimated that within the next 20 years most of the oil wells will cease to produce. Thus , a situation will exist where large land holdings consuming approximately 3, 250 acres will be available for other use and subsequent development. w �. 2. 36 section 3 goals policies SECTION 3. 0 GOALS AND POLICIES 3. 1 Policy Plan The development and context of the Huntington Beach Policy Plan has been described in Section 1 of this document. As stated, the Policy Plan contains a wide range of considerations that go beyondthe scope of the Land Use Element. For reference purposes the Policy Plan has been reproduced in its entirety. The goals statements are intended to provide long term objectives that represent the desired quality of life to which the community is aspiring. The policy statements represent more specific directions and methods for the accomplishment of the goals. The policies are potentially for short or middle range application that can and should be re- vised as degree of success feedback is measured. NOTE: Those policies that are felt to have direct application to the Land Use Element are underlined. 3. 2 Environmental and Resources Section 3. 2 . 1 Community Appearance Goal To develop and maintain high standards of visual beauty within all areas of the city. 3. 1 s Policies 1. Inventory and encourage the preservation of significant areas of scenic beauty. i.e. water- ways; bluffs, trees and historical landmarks .. 2 . Provide for more intensive architectural review within the city. 3. Preserve existing ,trees, encourage tree planting and allow full growth to all trees. 4 . Encourage citizen groups and service clubs to create programs which will promote "pride in ownership" and "city identity" . 5 . Develop city identity with a coordinated theme, logo, street fixtures and landscaping throughout the city, particularly at city entrances. 6. Encourage and require landscaping and maintenance of all properties and structures. Develop plans of enforcement to achieve this objective. 7 . Establish standards for commercial signs and advertising. Continue to prohibit billboards and enforce ordinances. 8 . Enforce existing ordinances which require cleanup on oil field property. 9 . Provide a specific budget for community appearance to accomplish community appearance policy goals. 10 . Develop a comprehensive plan for consolidating and undergrounding utilities within the city. 11.` Utilize Edison easements for. greenbelts and city owned tree farms . 12. Encourage standards for block walls and sidewalks which require setbacks, landscaping and variations in design and materials . 3. 2 . 2 Parks, Recreation and Open Space Goal Capitalize on the outdoor and environmental potential of the city by providing comprehensive, coordinated recreation parks and open space programs that fulfill the needs of all segments of the community. _.:w 3. 2 Policies 1. Acquire land for parks, open space and recreation prior to the time the surrounding area is developed in accordance with the Master Plan of Land Use. 2. Coordinate park, recreation and open space programs with elementary, high school, college districts, civic groups, government agencies, county regional parks, and encourage other cities to expand their program. 3. Increase open space through public acquisition of land in lieu of development where the cost of city services to that developed property, will exceed present cost of acquisition. 4 . Promote preservation of productive agricultural land, -_—yno -oiiT or_i.s va-Tue in providing food and fiber but. also as open space relief from urbanization by providing more tax incentives. 5 . Develop detail survey of specific recreational programs and facilities for all citizens age groups, as well as physically impaired, in the city and provide a variety of programs to meet these needs . 6 . Dete_rminb priorities for park site acquisition and-- development by considering_..site_.location, population demand, age of the neighborhood or ,—-----—---- - _ community and- acquis-_ -ition cost _savings by buying land before area development. 7. Develop a system of trails h ,linking the city parks - -- beaces and bluffs incorporate_n_g flood_ control and Edison easements. - . 8. Provide landscape planning as part of the overall parks, recreation and open space program which is low in cost for development and maintenance. 9 . Plan recreational open space to provide a minimum --- - . .. . ._- .----- - of 16. �acresy'o£`combined private, cit_y_..and_ regional_ , parks land,_ including 8 acres of city parks-land perUb- persons__within the city boundaries. 10 . Seek all available resources of funding for the city' s Parks, Recreation and Open Space Program. 11 . Encourage private and civic organizations, corporations and individual citizens to contribute land and/or funds towards_parks, recreation and open _space uses. 3. 3 12 . Preserve and protect historic, scenic, geological, topographical and archaeological sites . 13. Encourage the development of community centers which would combine high schools-, communty__parks, recreational centers, branch libraries and other community aciiities in one area. A. Areas should be set aside for special recreation: i.e. , tennis, badminton, table tennis, lawn bowling, etc. B. Provide civic meeting sites. 14 . Participate in the Santa Ana Greenbelt plans. 15. Develop beaches to maximize access and recreational potential. 3. 2. 3 Natural Resources Goal Provide for the proper development, maintenance, im- provement, preservation and use of the city' s natural resources. Policies 1. Encourage the generation of clean air through the development of green belts, and the preservation of natural areas of vegetarion. 2 . Enforce the established motor vehicle emission standards required by the State of California. 3. Consider traffic density .control _and its effect on air pollution in all future planning. . 4 . Provide air pollution standards and controls . 5 . Establish and enforce decible level areas within the city to prevent encroachment of excessive noise as a pollutant. .6 . Improve water quality as prescribed by responsible government agencies. 7. Prevent pollution of water resources by providing protection against salt water intrusion into soil and fresh water. a r -.x . 3. 4 8. Protect against the pollution of marshlands, fresh water, ' ocean and harbor areas . 9 . Establish methods of reclaiming sewage water for agricultural, domestic, industrial and recreational i use. 10 . Encourage the utilization of the ocean as a source of fresh water. 11. Maintain present city lakes. 12 . Encourage water conservation through a joint program with neighboring communities. 13. Maintain the natural topography and coordinate with the Orange County Flood Control District to develop flood plain regulations for all water sources and preserve green belt flood protection projects. 14 . Require all developers to provide an environmental impact study for their projects. 15 . Establish and enforce regulations and controls including,. but not limited to, oil spillage, blight, salt water intrusion, land subsidence, handling of waste and other gaseous emissions. 16 . Encourage the beautification of all oil producing areas through landscaping, walls and other design principles. 17 . Provide for the removal of oil zones and enforce _.. provisions for an orderly_ clearance_,of_ all _of production equipment and restoration of land, as wells become non-productive. 18 . Establish the requirements for performance bonds to defray costs of future enforcement and land clearance. 19,. Establish. sanctuaries and preserves for the _pro - tection of wildlife in their natural habitat. 20 . Provide enclosures when required for the protection of wildlife. 21. Control wildlife over-population. 3. 5 3. 2. 4 Shoreline Goal Recognize that our shoreline should be developed as a unique, irreplaceable, regional recreational asset in a balanced manner that preserves it, based on .sound economic and environmental standards. Policies 1. Specified buildings such as high rise and commercial complexes should be clustered in designated areas and standards established. 2 . Where necessary to preserve the vista, all active oil wells should be screened by foliage or placed underground rather than be screened by walls or fences . . 3. Overnight street and beach parking should be pro- hibited in the entire area exclusive of designated camping areas. . 4 . Special attention should be given to compliance with anti-littering and anti-loitering statutes. 5. All structures. should provide off-street parking for all occupants and customers. 6 . The area should be enhanced by special decorative lighting fixtures on streets and highways in lieu of conventional light poles. 7. Encourage all governmental entities to improve, maintain and coordinate _the_ _use_ of public ._beach lands within the city for__recreatonal.-uses. 8. State lands held near Santa Ana River on the land ... ....._.... - - side of the Pacific Coast Highway should be kept in the public domain and developed either. by city or rivate funds . 9 . Encourage the preservation of the natural tidal area consistent with the'-State-Sign-al lan d-s wap vagreement. 10 . Establish .a cost sharing program to support recre- ational operation and maintenance with federal, state, and county governments in addition to using their financial assistance programs for acquisition. �7s � F w�,N' 3. 6 11 . Develop high standards of operation and service for all concessions. 12 . Future parking_lots,_ if necessary, should be de- signed for the area inland from the Pacific Coast Highway . 13. Eliminate all billboards throughout the entire area. 14 . Continue the participation of citizens in the development of the shoreline area-. 15. No structures should be built offshore that would adversely affect the ecology of the shoreline area. 16. All discharges into the ocean should be closely monitored and if any adversly affect the ecology of the offshore waters, steps should be taken to secure immediate correction. 17. Prevent any development on the public beaches except —that which is absolutely essential and directly associated with---recreational beach activities. 18 . Maintain a pleasing and unobstructed view of the ocean from the Pacific Coast Highway.- 19 . Every_effort should be made to encourage_ consolidation of pro_perties to result in larger, high quality developments. 3. 3 Society and Culture Section 3 . 3 . 1 Housing Goal Provide and maintain a quality living environment so that members of all economic, racial and ethnic groups may reside in Huntington Beach. Policies 1.. . Provide for a variety of housing types in all areas of the city. 2 . Insure a wide distribution of low and moderate income housing throughout -the community. 3. 7 s k_ �_j 3. Continue participation in the Orange County Housing Authority. 4 . Maintain a constant review of financing methods for low and moderate income housing and make this in- formation available to the public. City should encourage the housing authority to initiate applications and assistance. 5 . Require and assist developers to provide an economic range of housing including low and moderate income housing opportunity distributed throughout each new project. 6 . Review and encourage use of new proven concepts in housing construction. 7 . Provide building codes to utilize modern less costly building techniques while maintaining quality control and encouraging good design. 8 . Substandard housing should be recycled with similar density by providing incentives to the redeveloper. 9 . Provide for relocation of residents displaced by demolition of substandard housing. 10 . Provide for adequate and equal city facilities and _ maintenance services in all housing areas . 11. Adopt a fair housing ordinance and encourage fair housing practices. 3. 3 . 2 Community Facilities Goal Ensure a full range of community facilities that provide for the general public' s health, safety and welfare. Policies 1. Provide for the continued development of a policy department and facilities to adequately serve the city. 2 . Maintain a fire prevention and protection system that -considers private property irisurance- rates and emphasizes prevention. 3. 8 3. Develop cooperative programs on an intercommunity basis to improve all protective services. 4 . Provide systems for assistance to residents and other jurisdictions in case of major disasters. 5 . Develop emergency paramedical services and in addition, provide for immediate and temporary medical assistance. 6. Provide for the planning, coordination and develop- ._ . - ----- - - ... __ ..- - ...--------------- ment of utility, systems to. meet.projected_demands. . 7. Provide for a civil defense and training that would be sufficient for any natural disaster or war. . 8. Encourage development of, or develop, reasonably -------------- ---_ - - ...-----..._ _ _,_ _ priced or free meeting.. centers whisk--are aeaildlle -for Tar4d _ (20-0-500) civic groups where liquof;-__.._ smoking, and entertairimerif are -permitted:-...__.__... - 9 . Provide for the continued development of an efficient and economical refuse disposal system that will adequately serve the community. 10. Continue developing a quality library system which encompasses greater_ public participation and access to library activities . 11 . The library should encourage cultural enrichment and ' inter and intra-city cooperation between educational and Civic Library facilities. 12 . Municipal projects should be developed to standards which are equal to or better than minimum -st andards in the Huntington Beach Ordinance Code for private developments. 13. Provide for the continued development -of harbors and beachesservices in accordance with the City's. _policies while encouraging state and county funding. 14 . Satisfy the quasi-public needs of the community_ by encouraging the proffer location _an.... ing of facilities such as churches, nursing homes, day care centers, well baby_ clinics, etc. _15 . Encourage the location of municipal, county, state, federal and other governmental facilities._.within_-or near the Civic Center. 16 . YMCA, YWCA, Boys and Girls Clubs and similar organi- zations should be fostered and encouraged. M, 3. 9 "+v R S I I . I e 3. 3. 3 Schools Goal Promote communication and coordination between all schools (both public and private, pre-school through university) and the city, utilizing those educational resources and facilities for city programs . Policies 1 . Continue representation of school members on the Park and Recreation Commission. 2. Request a position with supporting data from each affected school district on each item that comes before the City Council and Planning Commission as regards that school district. 3 . Make Police Department expertise and facilities available to present safety programs and drug education programs. 4 . The Police Department should cooperate with school officials to prevent vandalism and provide necessary personnel for school activities when requested. 5 . Encourage student involvement in City government.. 6 . The City should add students on work study programs to appropriate staffs as an adjunct to the schools vocational programs. 3. 3 . 4 Cultural Affairs Goals 1. Promote the enlightened, enriched and creative life of all citizens . 2 . Foster an environment in which present cultural activities will be expanded and. new endeavors will be creatively pursued to meet the varied needs of off citizens. Policies 1 . Establish a Cultural Affairs Commission whose. responsibilities would include coordinating and promoting the many cultural activities and facilities now sponsored and owned by government, schools and the private sector. 3. 10 a 2. Preserve and augment the distinctive development and heritage of the City. 3. Incorporate City' s heritage in civic center, library complexes and/or other appropriate structures . 4 . Provide professional and volunteer staff, qualified in various. cultural activities. 3. 3. 5 Communications Goals To establish and maintain an effective communications system through which the city attempts : 1 . To fully inform citizens on current and proposed services, policies and plans. 2 . To be informed of its citizen' s attitudes , beliefs and desires . Policies 1. Increase the capacity of the Public Information Office to handle citizen inquiries on city functions and services. 2 . Provide for the monthly publication and direct mail distribution of the Huntington Beach Sands to all households in the city. 3. Publish and distribute a "Know Your City Government" booklet, community directory, and activities calendar. 4 . Provide for wider distribution of City Council and commission agendas, supportive materials, and disposition of all matters. 5 . Create multi-media presentations on various aspects of city government at libraries, shopping centers, schools, parks, city hall and at other major citizen traffic areas . 6 . Establish a practical system to reflect combined public sentiment on major issues for the guidance of council members in establishing__policy. 3. 11 7 . Establish a program whereby elected and appointed officials participate in information "town hall.". type gatherings and will write periodic columns for local newspapers on a rota-i i riq basis. 8 . Pursue the development of local television and radio broadcasting with the provision for public service broadcasting of community activities . 9 . Disseminate information on tree care, local conditions landscape information, progress of beautification, street sweeper schedules and all related matters for a clean beautiful city. 3. 4 Development Section 3. 4 . 1 Residential Development Goal Encourage and maintain a well balanced variety of residential densities and uncrowded living environments to provide the highest quality of life for residents of the city. Policies 1. Reduce the projected population at saturation in residential zones by a reduction of' densities within those zones. 2. Increase open space requirements in all new developments. 3. Provide for a distribution of population by diversity of-cerisites tYiroucjhout� t_fi_e_,eity, 4 . Provide strict legal enforcement of zoning- regula.tions,. w...----- ..._ . .__....__._._.... - - __._...._.__... - ._._.. use permits and building codes. 5. Accomplish the above policies through implementation of growt-- Po icy. 3. 4 . 2 Commercial Development and Tourism Goals 3. 12 1. To establish and maintain a well planned program of commercial development which would be aesthetically pleasing, ecologically sound, and economically feasible to both consumer and supplier. 2 . To promote and encourage the development of services and facilities oriented toward the tourist industry. Policies 1. Redevelop the downtown area and provide adequate parking. -- _ 2 . Strive to maintain rapport, understanding, and -good public relations with commercial developers and businessmen. 3. Encourage and integrated hotel and tourist retail oriented development-program. 4 . Control general commercial shopping centers through zoning uc n-- tio red . - -_.___. . . - 3 . 4 . 3 Industrial Development Goal Seek and encourage industrial development to broaden the city' s economic base. Policies 1. Work with industry_ to provide proper site planning - -� - that will provi-de for expansion and future. needs. 2. Encourage industrial development in several dis- ersed industrial parks. __ 3. Provide for proper location of land uses both within__ and .adjacent to industrial areas . Buffer and ___ _ transition standard-s----§H-6uld be establ sHe-d. 4 ._ Establish rigid environmental standards . , 5. ._Provide access -to industrial areas by all available forms of tansportation without disturbing surrounding land uses . �.. IIIMMI , _ �u � 3. 13 ? . 6. Carefully re-evaluate the location of areas zoned for industrial development. 3. 4 . 4 Transportation and Circulation , Goals Provide an efficient transportation system that considers city and regional master planning and anticipated growth. Policies 1 . Develop a system of streets and highways that will: a. Provide safe access to and circulation within neighborhoods . b. Provide for minimum disturbance to residential areas from through traffic. C. Be coordinated with the county' s master plan of. arterial streets and highways. d. Be coordinated with trails and greenbelts. e. Control pedestrian access to the arterial streets. 2. Consider the applicability of mass transportation_ sy terns to _Huntington Beach--in_ .coor3ination with- regional mass transit systems . 3 . Ensure adequate parking areas throughout the city. 4 . Provide for adequate maintenance_ and protection of waterways as transportation and recreation facilities . 5. Provide for adequate truck and rail service to industrial and commercial areas while providing minimum disturbance to resicyeritial areas: -- 6 . Minimize penetration of the City by freeways and railways. 3. 4 . 5 Annexation Goal Encompass within city boundaries only those areas with common interests and which can be efficiently and economically served by city facilities . CISM 3. 14 Policies _1. Approve and_ pursue only annexations which: a. Will contribute to the accomplishment of Huntington Beach General Plan Objectives . b. Will "square off" city limits at the San Diego Freeway, Santa Ana River, Pacific Ocean, and the Naval Weapons Station. c . Will not dilute the existing tax base. d. Will not place a burden on existing city facilities. e. Will meet all municipal codes. f. Will not overload existing gas, electric and water resources. 2_ _-Use pre-planning of unincorporated territory -to assure that annexed areas: a. Are developed in compatibility with surrounding neighborhoods. b. Do not create unnecessary hardships on property owners in proximity to the annexed areas . C. Provide sufficient tax base to assure that the area will not cause tax increases for current residents within the city. d. That no area be permitted to be annexed to the City which is contrary to the previously accepted Master Plan of the area, of which the annexation is a part. 3 . During pre-planning for annexation, developers of unincorporated areas should be required to show to bli _ the public all their accumulated nformation " on ecological impacts of_ the _whole area, including those studies required by Federal , State, and County Jurisdictions . 4. Historically important sites within an annex area -should be considered for __dedication to public use.. or public ownership. 5. Federal and State grants should be sought to develop property which is within the annexed area. ' 3. 15 i 6 . Discussions should be pursued with adjacent community leadership to integrate their goals with those of. Iuntington Beach. 3. 4 . 6 Fiscal Planning Goal Provide a fiscal planning process for Huntington Beach that: 1. Is directly related to .the City's objectives as reflected in the general plan, and is recognized as being the fundamental means of gaining .those objectives. The City budget is a shorter range budgeting process consistent with the fiscal plan. 2 . The City, when developed in accordance with the master plan, should be economically balanced. Growth in specific uses should be balanced by comparable growth in other uses to assure that City services will at all times be supported by adequate tax base. Policies 1 . Make the fiscal planning process and the City' s - -- general_-plan consistent: Both should be formally up3ated aril reviewed annually. 2 . Use the fiscal planning process to estimate the financial impact -of potential changes to the City' s eneralplan 3 . The City' s Fiscal Plan should project the revenues and-expendiires; both capital ancT operating;-_-- to be_expected_given that _the_City develops at the prescribed (or assumed j- rate and in accordance with the master plan. Such- pr t ojecions -s_houl_d____ -- 5e made for at least five (5) ears into. the future. 4 . Insofar as practicable, costs of services should be o fset y -revenue generated:::from-_tfi_atlserv3ce:-- `-- 5 . The Plan should, through properly designed programs - of taxatio n (including_ incentives) and spending - -- Tin-some__cases as subsidy) , provide- the proper combination -o incentives and disincentives to cause the City to develop in the desired manner. w 3. 16 6 . Ensure the continuing critical review of all expenditures, both operating and capital, to ensure that they are both needed and adequate using, for example, such techniques as departmental/ functional budgeting and control. 7. _ Develop and maintain a 20_vear or longer caQital requirements forecast. Assess the_ long term impact of proposed__cchanges_-ori the -City s operation.��Capital improvements should be- un�ed'b---bonds or develop - ment fees. 8 . Ensure that the_tax_a_tion Alan always considers_ the__ four basic cannons: r - -a. Revenue Adequacy b. Ease of Administration c.- Consistency With-_.EconolC�i�_,Goa1� d._ Social Justice _and 1Equity - 9 . Is sufficiently flexible to adapt to changing conditions, yet sufficiently rigorous to ensure its integrity. 10 . Use special assessment districts to implement local ob 'ectiyes where the_ district furthers_ _master_p an provisions. ME w �,.. AC 3. 17 section 4 land use plan SECTION 4 . 0 LAND USE PLAN 4 . 1 General The key aspect of the Land Use Element is the plan itself, which is the final depositor for all the goals, policies, criteria, and information relative to the general plan. Reference was made earlier to the "umbrella" nature of the Land Use Element. Specifically, this refers to the other general plan elements which are reflected in the land use plan, either as specific land use designations or as reflections of policy and planning criteria. This section includes the land use plan and the standards and criteria upon which it is based. Additionally, there is the identification of land use issues. 4. 2 Land Use Issues This statement of land use issues is intended to identify major areas of study, concern and, in some instances, areas requiring greater study or resolution. The land use issues have been divided into the following categories for discussion purposes: . ,General Plan 'Issues . Circulation and Transportation Issues . Specific Use Issues 4 . 2 . 1 General Plan Issues This category of issues deals with the process and content , of the general plan and the land use element as a part of the general plan. 1. Other Elements. As previously stated, the other general plan elements are in transition. It will be necessary that the Land Use Element interact and reflect the intent and content of the other elements. This will be . especially true for the Conservation and Open Space Elements which are being prepared simultaneously to this document. In .this instance the Land Use Element will be a key implementing tool of these elements. Additionally, four of the nine mandatory elements are not required until September, 1974 . Therefore, full integration of these elements with land use is im- possible before they are completed. 2 . Land Use Plan Refinement. The portions of the Land Use; Element previously adopted (Study areas A, B, & C) are precisely defined diagrams drawn to existing property lines. Additionally, the other study areas consist of loosely drawn, broadly defined categories. It is important that the plan be given a consistent delineation that "generalizes" . those precise areas and "specifies" the broadly defined areas. In other words the Land Use Element must strike the- balance . between a vague and precise delineation. In this form it will provide specific directions and information while maintaining flexibility and room for decision. 4 . 2 . 2 Circulation and Transportation Issues. The interrelationship between land use and circulation require that they be considered simultaneously. Since the last evaluation of the City' s circulation element to the General Plan (i.e. Master Plan of Arterial Streets and Highways) several significant factors have come .about which call for a re-evaluation. 1. Route 1 Freeway Perhaps the most significant is the deletion .of the Route 1 Freeway. In August of 1972 the. State legislature deleted this route from the State Freeway System. Shown on the present Master Plan of Arterial Streets and Highways the freeway was an integral part of this plan. Deletion of the freeway has a sig- nificant impact on the presently planned arterial street system. :. `k 4. 2 0 2. Route 39 F'rcewa In 1972 the State Division of Highways re-opened the study of the Route 39 Freeway alignment. Presently indicated on the Master Plan of Arterial Streets and Highways to tie into the Route 1 Freeway any realign- ment and terminus could significantly impact the arterial street system. 3. Bolsa Bay In 1973 an agreement was reached between Signal Bolsa Corporation and the State of California on the Tidelands in Bolsa Bay. The agreement provided for the possi- bility of an ocean access point at Pacific Coast Highway within 14 years. Assuming this access point to be used for watercraft and providing a crossing at Pacific Coast Highway unfeasible, the major coastal traffic corridor would effectively be cut off and some alternative needed. 4'. State Guidelines The Governor' s Council on Intergovernmental Relations has developed guidelines on all required elements of the General Plan. The guidelines for the Circulation . Element have significantly changed its scope. Previously focusing on vehicular traffic circulation the guidelines now call for a "balanced circulation system taking full advantage of the entire complement of modes of passenger and commodity movement available for the purpose of the state" . With these guidelines the Circulation Element now takes a different stature than it has in the past. 5. County Transportation Corridor Study In July of 1973 the Orange County Board of Supervisors gave approval to a county wide transportation corridor story. The deleted Route 1 Freeway has been designated as a transportation corridor and cities lying within its route are participating in the study. The county has been divided into zones and the area between the San Diego Freeway and the coastline has been designated as the Coastal Zone and is a top priority. 6 . Consultant Assistance To assist in revising the circulation Element (Master Plan of Arterial Streets and Highways) and the Land Use Element (Master Plan of Land Use) and evaluate �:, m 4 . 3 some specific circulation problems the Planning Department has retained- Herman Kimmel and Associates to assist in the performance of a Circulation and Transportation Study. Detailed discussion of circulation and transportation issues is contained in "Circulation and Transportation Study Parameters, " September 1, 1973, which is the basis for updating and revising the Circulation . Element and, in concert, the relevant aspects of the Land Use Element. 4. 2 . 3 Specific Use Issues. This category encompasses specific land use types and areas with the planning area. In the latter case the concept of a "planning unit" has been used, in some instances, to identify a land area with common concerns or problems that is best treated as a whole for purposes of detailed study and resolution. 1. Oil production lands Substantial areas have historically been devoted to the extraction of' oil. While often an unsightly use , it has provided for the postponement of development of these areas. At this juncture, with the expansion of the scope of the General Plan, it is possible to more intelligently anticipate the optimum use and development of such areas. Short range conversion of oil lands is now possible by removal or consolidatio of oil related facilities. On the whole, however, the majority of these areas are being treated as planning reserves. This designation acknowledges a longer time frame for development (5 to 20 years) and provides for the phased planning and redesignation to ultimate use category prior to development. It is essential that, as a part of short-range future planning activities, a schedule for accomplishment of more precise planning ba established and then pursued. 2 . Flood Plains As indicated in a previous section, a significant portion of the planning area is within potential flood plains. Extensive efforts by the Corps of Engineers, Orange County Flood Control District, and the City have been made in the provision of facilities and preparation of contingency plans. The fact remains that substantial development has occurred in these areas. It is imperative that appropriate strategy be developed in con cer with elements of conservation and safety. 4. 4 l 3. Bolsa Chica This large land area within the planning area has not yet been annexed to the City. While much of the area is currently being used for oil production, a more significant aspect is the acquisition and optioning by the State of California of approximately 530 acres. This area is intended for use as an ecological reserve and public marina. This will have tremendous impact upon the planning and development of adjacent areas, however, definite plans and development by the State is a long range proposition. Planning by the City must be related to State activities and be phased to provide interim policies and in limited areas , development. 4 . Civic Center The Huntington Beach Civic Center and adjacent areas have been the subject of considerable study. Although this area has been designated as a government center on the land use plan, the concept for the area has been chosen. The direction chosen is that defined in the "Civic Center Study" as a high activity level plan. This area will be ready for refinement and the preparation of an implementation program subsequent to the preparation of the Phase 1 Land Use Element. 5. Town Lot Area This area has been defined as a planning unit for purposes of detailed study. Its historic context. and ocean relationship make it an area of distinct concern. The "Town Lot Specific Plan Study" dated August 28, 1973 has laid the ground work for revisions to the area which include the reduction of residential density in portions of the area, the consolidation of com- mercial development, the limited provision of multi- story development, and possible changes to the Circulation Element. While directions and criteria have been established, the specific delineation of land uses has not yet occurred, hence the generalized treatment of this area in this Phase 1 document. More precise study and resolution is immediately possible and scheduled. 6 . Top-of-the-Pier area This area was originally planned in 1970. This plan, which is consistent with the destination resort designation, is being re-evaluated as a result of changing city policy, the deletion of the Route 1 freeway, and other factors. While the overall concept, ll m"Ni 4. 5 ♦ e which takes into account the unique ocean orientation of the area, is unchanged; the precise delineation of land uses is subject to revision. Continued planning efforts shall proceed. 7. Old Town area Unlike the other "planning areas" which have a strong policy base and directions for detailed study and implementation, the area designated as the Old Town is in need of such definition. It is currently an area of heterogeneous uses and phases of development. The area must be studied as a whole and consolidated into appropriate policies and use designations. 4 . 3 Standards and Criteria The following standards and criteria were originally developed for the "Preliminary Policy Plan" and have since been revised and expanded. The intent is to provide guidelines for the preparation and maintenance of the Land Use Element. They include generalized criteria for the types of activities, intensity of use, and aspects of service and locational requirements. 4 . 6 4.3.1 Residential Standards CATEGORY DENSITY OCCUPANCY TYPE LOCATION REQUIREMENTS LOW 0-8 units Primarily families Single Fam. Within neighborhoods (Gross Acre) with children. Res. , low bound by arterial density street system. Conven- planned unit ient to neighborhood developments. facilities. 1, 2, & 3 Low-High story con- Incomes struction. MEDIUM 8-21 units Families with Mobilehome Transitional areas be- (Gross Acre) children, Parks, Town- tween lower & higher married couples houses, dup- density uses. Low-High in- lexes, tri- Located near arterial comes. plex. 1 & 2 highways, convenient story con- to shopping and work struction. areas. l MEDIUM 21-35 units Singles, Garden apart- On or near arterial HIGH (Gross Acre) Young married ments. Rec- highways. Provides families with- reation oriented buffer or transition out children apartment between intensive use Med-High in- complexes areas & lower density comes. 2 & 3 story developments. construction. HIGH 35 units & Mostly singles Large apart- In intensive use.areas, over (Gross & married cou ment complex near major transporta- Acre) ples without & high rise tion systems & high- children. 3 stories & ways, commercial areas, Higher in above. & activity generators. comes. High rise demands scenic & view potential. RESIDENTIAL NEIGHBORHOOD STANDARDS 1. Avg. Population - 2, 5000 people 2. Avg. Area = 160 acre. 3. Arterial Streets do not pass through neighborhoods but provide boundaries. 4. Interior streets should be short and curvilinear, utilizing cul-de-sacs and other design principles to preserve the residential atmosphere. 5. Parks, Elementary Schools and other neighborhood facilities should be within walking distance. Pedestrian and vehiclar access to arterial streets should be limited. A Y. 4 . 7 ��a 4.3.2 Commercial 1. GENERAL COMMERCIAL Standards CATEGORY POPULATION AREA SERVICE FUNCTION LOCATION SERVED REQD. DISTANCE Convenience 3000 �-1 ' mile Major tenant Intersection of People Acre foot picking secondary market to arterials. serve neigh- borhood. Neighborhood About 4-10 1 mile 10-15 re- Major & primary 10,000 Acres tailers, major arterial inter- people. tenant super sections. market & often includes a super drug & bank. Community 15,000 15-35 10 to Anchor tenants Major & Primary people Acres 15 min. are usually jr. arterial or drive. dept. store & intersections. more or market: Regional 100,000 50 Up to Supplants down- Major arterial Acre 30 min. town anchor & freeway & drive. tenants; one junction. over. to five major dept. stores. Special/ Varies Varies 4-5 mile One to five Major arterial Discount spacing. major tenants. intersection or freeway interchange. 2. OTHER COMMERCIAL FUNCTION LOCATION REQUIRED HIGHWAY Business that try to attract Intersection of primary & major RELATED passing automobile traffice as a arterials, and freeway inter- COMMERCIAL large or primary source of cus- changes; also desirable to tomers. Service stations, drive- combine with general commercial in restaurants, etc. uses. NOR- 4 . 8 A'K u FUNCTION LOCATION REQUIRED RESORT Restaurants, hotels, gift and Must have transportation network ORIENTED specialty shops and other and needs to be near areas COMMERCIAL resort oriented. facilities. possessing .resort qualities. OFFICE Medical dental areas; other Medical dental centered around PROFESSIONAL professional and general hospitals or small centers office uses. dispersed throughout city and related to neighborhoods. Other professional & office uses should be concentra- ted in areas possessing suitable environmental quality such as projected in the Top of Pier Plan. 4.3.3 Industrial Standards INDUSTRIAL CATEGORY PERFORMANCE STANDARDS LOCATION REQUIRED TYPICAL USES Light/ Minimum emissions of Concentrated industrial Research & development Industrial smoke, dust, fumes areas, industrial parks. electronics plants Park vibration, & noise Proximity to arterials office type industrial & freeway important. distributing & ware- housing uses etc. Medium Higher lever of In industrial areas, Auto wrecking yards, ligh/industrial away from residential lumber yards, fabri- park emissions areas. Proximity is cating plants, etc. permitted. transportation. Those uses which are "Heavy" industry but still contain higher nuisance qualities than light industry. Heavy Maximum level of In appropriate Steam generating emissions permitted areas that provide plants, sewage dis- for public utility the least amount posal plants, water facilities of a of nuisance qualities. treatment plants. "heavy" industrial nature. 4K VM >> 4.3.4 Public Uses & Facilities Standards 1. LIBRARIES FACILITY LOCATION FUNCTION MISCELLANEOUS i I Central Geographic Central repository 250,000-350,000 volumes Library center of the . & administrative sophisticated informational, city. headquarters of reference, & bibliography library system. materials. Substantial cultural center depth in general interest areas. Major At existing Serves as a 35,000-50.,000 volumes Branches Main St. site, supplemental fa- basic collection in general (Three) the North cility .to cen- interest areas. Sufficient part of town, tral library.. resources for children & Talbert basic informational & research Valley. materials for adults & students adequate profess-• ional personnel. Bookmobile Movable Provide conven- travels to neighborhoods facility ience to library schools, shopping centers, users especially _ & etc. young children. Sub-Branch Near inten- Serves primarily 2,5000 to 5,000 sq. ft. sive use as a book pickup depending upon location areas, on & return & population density. arterial street. NOTE: Overall system Volume Criteria is 2 volumes/capita At 213': 4 . 10 I 2. FIRE FACILITIES FACILITY LOCATION FUNCTION MISCELLANEOUS Fire One within Engine co: 1 station to provide Stations 2 miles or 1 mi. /3 minutes both land and water 5 minutes of high value residen- service. all residential tial district. Engine co: 8 areas. Ladder co: Ladder co: 3 Near arterial 3 mi. /3 minutes 1 squad intersections all residential 1 boat set back districts. from R/W. 1 mi. /3 minutes of all high value districts. Adminis- Civic Provide administra- tration & tion & public infor- Fire Head- mation services & quarters fire prevention. Support Where A. Central fire Fire training facility facili- appropriate training facility. in industrial area. ties B. Central city wide communication C. Fire apparatus maintenance & supply facility. 3. CIVIC FACILITIES FACILITY FUNCTION LOCATION MISCELLANEOUS Civic Administrative On arterial street Center & legislative convenient to center. citizens. Corpor- Maintenance & In industrial Facility would primarily serve ation storage of area convenient public _works, & service city Yard city owned to all parts of vehicles; limited service would equipment. city. be provided for police, fire & harbors & beaches. 4 . 11 FACILITY FUNCTION LOCATION MISCELLANEOUS Civic Facilities for In the Top of the Facility would hold Auditorium community Pier area. Near meetings, conferences, & activities & hotel complex & conventions, & theatre Conference conventions. specialty shop activities. Center area. Municipal Provide public Beach area & Developed by a municipal Parking parking in the other areas parking authority. Areas beach area. where demand exists. 4. QUASI-PUBLIC FACILITIES FACILITY LOCATION FUNCTION MISCELLANEOUS Church, Intersection of Provides facilities Sites should be of an Rest Home, primary & sec- & activities that adequate size for func- Private ondary or two are public in nature, tion, provide parking, School, secondary high- but private in scope. facility should be inte- Clubs, etc. ways. grated & compatible with the area its located in. 5. POLICE FACILITIES FACILITY LOCATION FUNCTION Patrol Units One within 1� min. of Protection of life & property. emergency call. 5 min. Prevention of criminality. for non-emergency call. Police & Civic Center Provide administration, Administration training & public information. Facilities Investigation services- communication detention. Support Facilities Where necessary Police garage & heliport & appropriate. maintenance of vehicles & helicopters, pistol range._ 4. 12 ♦v ♦ 1 5. UNDERGROUND UTILITIES UTILITY LINE TYPE COST MISCELLANEOUS DISTRIBUTION Communication Telephone Developer and telephone Telephone Co. establish- Co. funds. es its own priorities; telephone lines usually undergrounded jointly with electric Co. lines. Electrical Over Not applicable No undergrounding re- 34.5 KV quired. Less than Electric Co. funds Provides for underground 34.5 KV in underground ing only existing lines. utility district. Priorities established: 1. Vicinity of Huntington Central Park. Less than Developer and Mostly new lines, poss- 12 KV . Electric Co. ibly some existing. The Funds. developer must under- ground all lines giving him primary benefit; applies to all land uses. Community Television Developer and All lines are required Antenna Cable cable T.V. Co. to be underground. funds. I 4'pi 14 . 13 "r^k z. 1 6. PARKS CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES mile Adjacent to el- Primarily Closely re- service ementary school children lated to radius; when possible. 5-14 yrs. elementary NEIGHBORHOOD 2 to avg. pop- Safe & conven old; also school; 3� Acres ulation ient access to preschool contains 2,500 to neighborhood children & playground 3,500. residents; away family facilities. from arterial groups;dual streets;on use with local street school fac- . ilities. Service Ideally adjacent Serves sev- May provide radius to high schools; eral neigh- both in- 1 mile to close to ath- borhoods; door & out- COMMUNITY 10-40 1� mile; letic field provides for door facil- Acres 40-50 dual purpose. broader rec. ities. thousand needs than popula- neighborhood ' tion. park does. Popula- Where natural Serve inter- Land and/or tion ser- features & pop- City,County, water fac- ved varies; ulation demands & inter- ility REGIONAL 50 Acres service exist. County needs. with scenic and radius character; above 30/40 mi. ; regional 1 hour beach fac- drive. ilities. 4. 1 7. SPECIAL FACILITIES CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES In community Multi-purpose Multi- parks & other functions: purpose RECREATION 10,000 60,000 appropriate Meetings,Bar- Building. CENTERS Square areas. becues, Dances Feet Senior- Citizen, etc. Approx. Areas South East - Neighborhood Neighborhood 6 miles linked ern part of & community & community EDISON length together the city. parks; where Park Facili- POWER LINE by 200 by the it abuts ties. Bike, feet. easement. schools; Horse & Hiking natural Trails; areas in natural areas. the remainder. 100- Varies Where Serve public 18 Hole GOLF 140 appropriate. golf needs. Course Club COURSE Acres house & pro shop. Near bridges connection NEIGHBOR- 1/3 Neigh- Huntington Swimming HOOD Acre borhood Harbour & Quiet water BEACHES oriented. Islands to Sunbathing orientation. Mainland. Appropriate Boat & Boat Boat docks, MARINA Varies Varies quiet oriented fuel & stor- water activities, age. Yacht areas. Club Restau- rant. r I 4. 15 I• D . SPECIAL FACILITIES CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES Facilities Ball Fields, . SPECIAL Varies Varies Where for special Tennis courts, USE appropriate. recreation Archery purposes. ranges, Lawn areas, etc. Near geo- Serves all Lakes & nat- 200 Total graphic Cen- neighborhoods ural areas, HUNTINGTON to City ter of City, in the city. Informal lei- CENTRAL 400 300,000 accessible Regional sure areas, & PARK Acres popula- to freeway nature, other facili- tion. & arterials. community ties not dup- scope. licated in community parks. 8. SCHOOL FACILITIES FACILITY GRADE DESIGN AND SPACE SERVICE ENROLL- MISCELLANEOUS LOCATION REQUIRED RADIUS MENT On local st. Elementary within neigh- school should Grades boyhood. (Qtr. 8-15 - 3/4 700 be access- Elementary K-8 sec.) adjacent Acres Mile to ible from to neighbor- 1000 dwelling unit hood park. by foot with- out crossing any arterial. If a street must be crossed it should not be a major art- erial. 4 . 16 ee• SCHOOL FACILITIES FACILITY GRADE DESIGN AND SPACE SERVICE ENROLL- MISCELLANEOUS LOCATION REQUIRED RADIUS Ment should be away Intermed- Grades from major 14-15 840 Ideally ad- mediate 7-8 arterials near Acres 1 Mile . to jacent or near (Junior concentration 1200 park facili- High) of dwelling ties. Pedes- units. trian access important. On arterial Should be street, conven- located ad- High Grades ient access, 50 2 Miles 3000 jacent to a 9-12 proximity of Acres or more community park other facili- area. School ties is desir- should be able. screened from noises or objec tionable uses. On arterial 1 Mile Provides higher Community Grades St. convenient 50 Acres walk or 5- education & College 13-14 to all areas & above Bus/auto 15,000 cultural near fwy. distance. programs for the community. ON F 4. 17 4. 3. 5 Planning Units As indicated in an earlier section this general category of use designations is intended for specific areas of the city which have been identified as an interrelated planning . unit that is to receive individual attention. In many instances substantial progress has been made in these areas, however, they are not sufficiently resolved in detail as to be precisely delineated in this document. 1. Government Center Planning area keynoted by significant government facilities (Huntington Beach Civic Center) . Uses may include : . Civic Facilities Commercial - retail and specialty Office and Professional (related to civic facilities) . Residential This category is intended to provide a planning unit that will encourage the comprehensive planning and development of a civic facility and related areas. 2 . Planning Reserve A broadly defined interim designation intended for areas where long term comprehensive planning and development is anticipated. Uses may include: 1) Land areas in a predevelopment phase that are not yet fully planned or ready for immediate development. 2) Land in transition to ultimate use that may be designated by a "holding" zone (such as the "RA" District) 3) Resource production areas including land in use for agriculture or oil extraction purposes. (Oil extraction may be combined with land desig- nated as industrial, residential-agriculture, or residential use. The intent of this category is not to preclude develop- ment, but to identify such areas as deserving special attention and planning efforts. 3. Destination Resort An area proximate p to the shoreline for the establish- .. 4. 18 ment of a beach oriented, tourist related community providing a variety of land use types. Uses may include : . Residential (including Multi-story) • Hotels and Motels • Retail and Specialty Commercial . Offices • Public Uses & Facilities 4. Townlot A defined planning area characterized by small sub- divided parcels and 'ocean orientation uses may include: • Residential-density range (including multi-story) • Commercial-Retail & Specialty • Hotels & Motels . Public Uses & Facilities The intent is to provide a planning unit that is well defined in character and orientation, that has special qualities and problems that should be addressed as a whole. 5. Old Town Transition A defined planning area characterized by heterogeneous existing land uses and degrees of development and re- development. This area is in a state of long term transition from oil extraction uses, old residential areas and vacant land to residential and commercial community areas. Uses may include : . Residential • Commercial , Retail & Office • Industrial • Public Uses & Facilities • Oil Extraction The intent . is to provide a planning unit that will permit the comprehensive planning and assistance for the evolution of the area into final land use patterns and facilities. 6. Planned Community A contiguous area containing a minimum of forty acres and a mixture of land use categories. Uses may include : Residential Commercial 4 . 19 r OrM �Y . Industrial . Public Uses & Facilities . Institutional This category is intended to provide for the compre- hensive planning and development of an identifiable area of land. Detailed delineation of a planned community area may be adopted by amendment to the land use element or by specific plan. 4 . 4 Land Use Plan The Land' Use Plan is a graphic representation of land use categories, allocations and locations within the planning area. It is a current statement of community goals and policies and factors of population, social , economic and physical conditions. 4. 4 . 1 Planning Area Acres (gross) Incorporated area 16 ,970 Unincorporated area Bolsa Bay 1,625 Sunset Beach 115 1,740 Total Area 18 ,710 acres (gross) nve 4 . 20 4 .4 . 2 Land Use Area Summary (Incorporated area) Land Use Category Acres (cross) 1. Residential Low Density 7 , 149 Medium Density 870 High Density 5 Mobile Home 38 Sub Total 8 , 377 2. Commercial Retail 989 Office 89 Sub Total 1,078 3. Industry Light Industry 1 ,545 Public Utility 249 Sub Total 1 ,794 4. Transportation Railroad R/W 46 Transportation Corridors &. Freeway 447 Sub Total 493 5. Public & Quasi-Public Uses & Facilities Schools Number Elementary Schools (51) 588 Elementary (Admini- stration Office) ( 1) 10 Junior High Schools ( 5) 63 High Schools ( 5) 252 Junior College ( 1) 120 Sub Total 1, 033 Parks Neighborhood (47) 142 Community ( 4) 65 H.B. Central Park 312 0 Sub Total 519 RIB"• 4. 21 Recreational & Special Facilities Golf Course ( 1) 99 Neighborhood Beach 2 City Beach 50 State Beach 456 Marina 2 Sub Total 609 Public Facilities Fire Stations ( 7) 10 Harbors & Beaches Fire Facility ( 1) 4 Post Offices ( 3) 9 Libraries ( 3) 4 City Yard ( 1) 15 Sub Total 42 Institutional Church (49) 45 Cemetery (31) 48 Meeting Hall, Lodge ( 8) 12 Private Schools (12) 11 Sub Total 116 Other Waterways 236 Water Reservoir 9 Drainage Channels 263 Edison R/W Unleased 143 Edison R/W Leased 21 Buffer 16 Sub Total 688 6 . Special Planning Areas Planning Reserve 453. Government Center 113 Townlot 310 Destination Resort . 263 Planned Community 580 Old Town 502 Sub Total 2 ,158 TOTAL ACRES (GROSS) 16, 970 RN UN, 4 . 22 . 4. 4 . 3 Land Use Area Summary (Unincorporated Areas) Category Acres (Gross) 1. Bolsa Chica Planning Reserve 1 , 095 Ecological Reserve 530 Sub Total 1, 625 2. Sunset Beach Residential : Medium High 100 Commercial : Community 15 Sub Total 1 ,730 '= 4 . 23 section 5 mplementation SECTION 5. 0 IMPLEMENTATION 5 . 1 Implementation Techniques 5. 1. 1 General. The key to effective Land Use planning is the establishment of methods and procedures for the implement of Land Use plans, standards, and policies. Many techniques have long been in existence in Huntington Beach, although the degree of interpretation and use has changed and evolved. Of special significance is the new "consistency" provision of the State Planning Law (described in Section 1) . This provides a stronger tie between the Land Use Plan and zoning, which is the key implementation tool. 5. 1. 2 Techniques In Use 1. Zoning. Division 9 of the Huntington Beach Ordinance Code provides for the designation of zoning districts and the regulation of development within those districts. Development controls include: Type of use, density, open space requirements, and numerous other develop- ment standards. Procedural techniques for the review and regulation of the development are numerous and include: Administrative Reviews, Conditional Exceptions, Conditional Use Permits, Zone Changes, Tentative Tracts, Environmental f 5. 1 Reviews and Design Review. These activities are administered by the Planning Commission, Board of Zoning Adjustments, Environmental Review Board, Subdivision Committee, Design Review Board, and the ultimate authority, the City Council. 2 . Subdivision Regulations. Subdivisions are regu- , lated and reviewed in accordance with the California Subdivision Map Act and the City' s subdivision ordinance contained in Division 9 . 3. Building Codes. Division 8 of the Huntington Beach Ordinance Code regulates building and safety and includes provisions for building, plumbing, electrical, and mechanical construction. 4 . Specific Plans. Under the provisions of Section 95450 of the Government Code, the city utilizes the specific plan process for the study of detailed issues and planning of areas . The specific plan is then used for amendments to the General Plan and Zoning. 5. Area Plans. This subject is analagous to the specific plan, however, it need not require the adoption of a specific plan. This is often used is larger areas, for which a master plan is prepared for inclusion into the General Plan. 6 . Public Acquisition. The acquiring of land for public uses and facilities is an ongoing process and is accomplished in several ways. Fee simple purchase Condemnation and purchase Required dedication of land and/or fees for the acquisition of community facilities. Easements for public usage Dedication of improved streets and utilities Joint ventures or funding from County or Federal revenue sources. 7 . Capital Improvements Program. A six year capital improvements program is currently being used to guide and assist implementation. 8. Public Involvement. Past and continuing programs involving citizen participation is an essential ingredient in the development of. policy and plans . 5. 2 5. 1 . 3 Techniques Not Used The following are techniques that are not in use or partially used for implementation of the Land Use Element. 1. Urban Redevelopment. The emphasis has been placed on redevelopment by private enterprise, however, this is a possible area of city involvement and leadership. 2. Installment Purchase. Allows the city to adjust acquisition to long term installment payments. 3. Growth Policy. Work is progressing on the development of a growth policy and strategy that will develop new techniques for the regulation of growth. 4. New Ideas. Many options are still open in terms of development review and standards. Potential techniques are constantly being researched and evaluated for potential application to the city. Needs resulting from the new General Plan Elements and environmental legislation are putting the pressure on for new techniques and methods. This area should be expanding in the foreseeable future. 5. 3 f 5. 2 Programs It is impossible, at any one time , to fully identify the status of the numerous planning programs and activities that represent the General Plan (and Land Use) process . The following des- criptions identify the major activities that are currently in progress or scheduled for initiation in the near future. 5. 2 .1 General Plan Programs As indicated in Section 1, the General Plan program consists of nine mandatory elements, all of which are in various stages of readi- ness. The General Plan preparation is an on-going process. The next immediate phase of work that directly relates to the Land Use Elements includes the following programs. 1. Land Use Restudy: Continuing evaluation of the Land Use Plan as a result of concurrent element activities, which includes the Conservation, Open Space and Circulation Elements. 2. New Elements : Continued preparation of the additional required elements of Seismic , Noise, Scenic Highway, and Safety. Each will have an impact on the Land Use Element. 3. Special Studies: A discussion of programmed special studies occurs below, however, they will eventually be used as specific inputs into the General Plan and will have an important contribution in the refinement of the Land Use Element. 5 . 2 . 2 Special Studies 1. Growth Policy: The "Growth Policy Study" , dated October 1973, has been prepared by the Planning Department. This is anticipated as the first step in the preparation of a growth strategy which could have a profound effect on land use policy and plans . This work will be a continuing program with eventual input to the entire General Plan. 2. Town Lot: The "Town Lot Specific Plan Study" (Aug. 1973) has identified the major planning issued and alternatives for the Town Lot area. The next step will refine and define the Land Adft 1 5. 4 Use Plan for incorporation into the Land Use Element. 3. Civic Center: The "Civic Center Impact Study addresses the issues and alternatives for the Government Center district. This area is now ready for refinement and inclusion into the Land Use Element. 4 . Transportation: The Planning Department is actively pursuing traffic and transportation studies for input into Circulation and Land Use Elements . 5 . 2 . 3 Code Amendments Amendment to Division 9 , Huntington Beach Ordinance Code is constant activity, however, several programs are of special interest to the Land Use Element. 1. Multi-Story -Suffix: Intended to provide for multi-story development in key areas of the city in conjunction with specific plans. 2. Consolidated Apartment Standards : To reduce apartment densities and provide for more uniform application of development standards . 3. Recreational Open Space. The new zoning district has been created. The next phase of the program will entail the designation of appropriate areas within the City. 5. 2 . 4 Miscellaneous Programs 1. Land Use/EPD System; When completed, this system will provide computer data on land uses throughout the City. 2. . Special Census : This special census (Nov. 1973) will provide up-to-date land use, population, social and economic data. !,, 5. 5 r 5 . 3 Future Activities It is difficult to separate future activities from ongoing and scheduled programs. Several items are listed below that are part of the middle-range land use programs . 5 . 3. 1 Top of the Pier. This area will be restudied and integrated with private development plans that are now in preparation: 5 . 3. 2 Old Town Transition. While continuing work will continue in this area, it is not anticipated that a comprehensive program can be initiated until completion of some of the pending special studies. 5 . 3. 3 Planning Reserves . These areas will be system- atically addressed over a period of time. In many areas the commitment to oil extraction will continue for some time. 5. 3 . 4 Bolsa Chica. While largely designated as a planning reserve, activities in the area will be closely monitored so as to coordinate the activities of the State, the land owner and the city until such time as comprehensive planning can occur. i 5 . 3. 5 Multi-Story Specific Plans. Future work is antic i- i pated in the preparation of additional specific plans for the designation and enabling of multi- story development. 5 . 3 .6 Environmental Resource Management (ERM) . When this aspect of the Conservatiori. Element is realized it will be integrated with all aspects of the General Plan, and especially with the Land Use Element. section 6 environmental impact report SECTION 6. 0 ENVIRONMENTAL IMPACT REPORT FOR PHASE I LAND USE ELEMENT TO THE CITY OF HUNTINGTON BEACH GENERAL PLAN 6. 1 Introduction This Environmental Impact Report for the Land Use Element-Phase I has been prepared in accord with both the "Revised Guidelines for Implementation of the California Environmental Quality Act of 1970" , and the California Council on Intergovernmental Relations' (CIR) "General Plan Guidelines" of September, 1973. As stated in the CEQA Guidelines, The EIR may be prepared as a separate document, or as part of. a project report. If prepared as a part of the project report, it must still contain in one separate and distinguishable section the elements required of an EIR, including the seven elements specified in Section 15143 of these Guidelines. (Section 15061, d. ) In addition, the CIR Guidelines give further direction for prepara- tion of an EIR on a General Plan Element: The environmental impact evaluation can and should be an ongoing process in. the preparation of the General Plan so that in effect the General Plan report becomes its own environmental impact analysis. This process may well require the documentation and exposure of development alternatives with less detrimental impacts on the environment which have been heretofore rejected in the interest of providing enhanced community facilities, economic growth and opportunity, and improved housing. It should be recalled that one of the purposes of the environmental impact report is to expose , alternatives to public view and comment. 6.1 IRV Given the nature of the document as a long-range set of policies and principles, it is not always practical to apply each of the seven points noted in the CEQA with the same degree of specificity that is applied to a specific project. The general plan environmental analysis should take on broader scope than the analysis which is done on a specific project which has specific, well defined limits. , The following is an attempt to discuss each of the seven points in the CEQA with regard to the type of impact assessment which should be part of the General Plan. If these issues are included in the plan- ning process then the General Plan can contain its own impact state-' ment. a. The Environmental Impact of the Proposed Action The policy alternatives generated by the plan development process which concern the commitment of land resources (particularly land use, circulation and housing) should undergo an environ- mental analysis so that the extent of the impact of varying levels of density and intensity of use can be projected. Where specific areas are -treated in the General Plan, the more specific the delineation of the policy, the easier it will -be to evaluate the impact. Since the General Plan is a long term policy guide, long range impacts should be discussed in sufficient detail so that both beneficial and adverse impacts can be evaluated. b.. Any Adverse Environmental Effects Which Cannot be Avoided if The Proposal Is Implemented This provision relates more to a specific proposal than necessarily to a General Plan or plan element. The policy alternatives in the General Plan and the options for specific action in the elements should describe adverse impacts which may not be avoided if a particular alternative was adopted. Within this description, the benefits of a particular alterna- tive should also be discussed. C. Mitigation Measures Proposed to Minimize the Impact This section again refers to the evaluation of a specific pro- posal where an adverse impact may result but where concensus within the planning process determines that the option is of such community importance to be implemented, then mitigating measures should be discussed. Mitigation measures can be addressed in short-range or precise plans. d. Alternatives to the Proposed Action In the development to the General Plan and subsequent elements, alternatives which are proposed should have a general statement on the relative degree of environmental impact on each of the alternatives. Where one alternative would create a greater impact than another, more detailed assessment should be made. 6.2 1 e. The Relationship Between Local Short-Term Uses of Man' s Environment and the Maintenance and Enhancement of Long- Term Productivity In preparing the General Plan there should be sufficient analysis to describe the relationship between short-term uses of man' s environment and long-term productivity. These are fundamental long-range policy choices which the planning process should address. Careful analysis of this issue will provide a sound balance between economic development and environmental protection. f. Any Irreversible Environmental Changes Which Would be Involved in the Proposed Action Should It Be Implemented The General Plan commits various uses of man' s environment. Where implementation of the General Plan would cause any adverse irreversible environmental changes , the benefits to be secured by the changes should be clearly evaluated on balance against the environmental losses. g. The Growth Inducing Impact of the Proposed Action The principles and policies of the General Plan all have an impact on community growth and development. Evaluation of the impact of the population growth policies should be a primary subject of consideration in the formulation of the General Plan. Keeping these instructions in mind, this impact report will be a general analysis of the impact of Phase I of the Land Use Element on the community environment. As further defined in this section, this environment consists of seven resources: Land, Water, Air, Biological , Cultural, Economic, and Social. Potential impacts, either positive or negative,will be identified on the following pages. It is the nature of the General Plan Elements to be broad policy documents to guide subsequent specific actions; and because of the broad policies and temporary status of the Phase I Land Use Element, it is impossible to assess the specific problems which may arise as development occurs. Therefore, this EIR is intended to be the first of a series of environmental assessments, with the final assessment made at the project level. Accordingly, this EIR cannot be used as the basis for a categorical exemption for any proposed project, even though it be in conformance with the General Plan. All of the detailed impacts that might conceivably occur as a result of this General Plan Element cannot be completely dealt with in a report of this scope. However, it is the intent of this report to outline those impacts which are anticipated in the greatest detail 6.3 1 possible. It must be noted that the Land Use Element-Phase I is by its very nature an environmental assessment. In this sense, an appropriately detailed EIR for this Element would appear to be a duplication of all the work that preceded the adoption of the plan. 6 . 2 Summary of Major Environmental Issues The development of the City of Huntington Beach according to policies and guidelines proposed in the Phase I Land Use Element will produce fewer adverse environmental impacts than would its development under the two alternatives possible at either extreme: 1) current trends based on market demand with no constraints imposed to protect vital resources, or 2) a strict, no growth development plan geared to preserve all remaining resources within the City. The intent of the Phase I Element is to provide the policy framework which will guide the relations between the urban and natural environment from this point forward. The plan proposed is of a very general nature and will require future policy decisions to provide guidance for implementing the available alternatives. It affords the City maximum flexibility in preserving, conserving, and utilizing its resources in the best and most efficient way possible. Therefore , this Element allows considerably greater protection for environ- mental values than would result from a "no plan" alternative while allowing greater flexibility to maximize potentials for creative use of resources than a strict "preserve all" program. As such, it represents the best of these three categoric alternatives. 6. 3 Description of the Project 6. 3. 1 Objectives The Phase I Land Use Element, as part of the General Plan, provides general environmental goals and policies for the City of Huntington Beach and an Action Program for the preservation and conservation of resources. Very generally its stated objectives include: 1. Incorporate environmental concerns in municipal decision-making; 2 . Control urban form and growth;and 3 . Coordinate land utilization. This EIR, then, deals only with the broad concepts and objectives presented in this Phase I Element. This Element represents an attempt to consolidate and expand past land use plans . into new directions and areas of emphasis. Because of its transitory nature, Phase I Fu 6.4 2j'e is just a preliminary step in the City' s efforts to protect and preserve its resources. Detailed data and analysis of the environment will be presented in the Open Space & Conservation Element to the General Plan. Other reports which supplement the base environmental data to be presented are cited here as reference for this E. I .R. These include: 1. "Scientific Resources Survey and Inventory, Huntington Beach, California" 2. "Geotechnical Inputs, Seismic Safety Element, Huntington Beach, California" 3. "Coastline Study" 4. "Recreational Trails Element: Phase I" 5. "Revenue/Expenditures Analysis of Land Uses" 6. "Growth Policy Study" 7. "Housing Element: Phase I" 8. "Bolsa Bay: A Conceptual Plan for Resources & Recreation" 9. "Townlot Specific Plan Study" 10. "Circulation & Transportation Study Parameters" 11. "Technical Report: Sunset Beach - Surfside Colony" 12. "What Shall This Community Be? A Policy Plan for Huntington Beach, California" 6. 3. 2 Location Figure 6. 1 depicts the area to be influenced by this Element. Including the incorporated City of Huntington Beach, the territory between the city limits and the center line of the Santa Ana River Channel, and the unincorporated Bolsa Chica and Sunset Beach vicinity, this area is designated as the Huntington Beach "Sphere of Influence" . Located along the coast of Southern California in the County of Orange, this 18 , 700 acres is bounded by the Cities of Seal Beach, Westminster, Fountain Valley, and Costa Mesa. Figure 6. 2 places the City in regional perspective. u F v . VENYURA FRWY. 101 �►'OO �. GRIMY PASADLNA PASADENA ^ FOOT141L, iRWT. HOLLYWOODO Y OALHAMBRA-- OEL MONTE COVINAO SAN BERNARDINO FRI f� P OMONA ,0 ✓ OPOMONA GRWY �rqr UCL.A. MONICA10FRM'Y 60 OINDUSTRY / Co 0 SANTA L^ 9CjF, ]JNow MONICA SANTA : us.c LOSA. "LE S COMMERCE a °o O OPICO RIVERA 3 57 r0 L A.INTERNATIONAL AIRPORT O u x WHITTIER r2 'HUNTINGTON O o L a. co- EL SEGUND/ 405 1 t PARK OSANTA FE- �1 ORANGE co. SPRINGS -Zr ' MANHATTAN0 1 < 05 / 8RE4O 9L BEACH GARDENAO m OPLACENTIA A Pq ARTE SI fRWY. 411111111 111111110 011111110 411111111' d FULLERTON =:fl s ��CAL.STATE COLLEGE �� AIRPORT 'F BUENAOoft ` A� FULLERTON 00 PARK -� OFULLERTON CARSON W RIVERSIDE FRWY REDONDO O O BEACH O z < 'O TORRANCE (�] v �./p 5 LONG SEACN ar OANAHEIM O AIRPORT ' PALOS VERDES c at VILLA PARK ESTATES a LONG < \\ O �^ < BEACH CAL.STATE COLLEGE z AT LONG BE OGAROEN GROVE ; BEACH GARDEN GROVE FRWY\ SAN OIII 22 OTUSTIN PEDRO �{� GOLDEN WEST E-D COLLEGE SANTAO ANA 0, 134oup9toh $4N s, N °jt•C �. •I 0 °NEWPORT` Pow),` BEACH'S AIRPORT CO. 4 `O, II O S CA U C IRVINE SCALE IN MILES LAGUNA BEACH VICINITY MAP FIGURE.' 6 - 2 t s 1 6. 3. 3 General Description of the Project' s Characteristics Three characteristics to be described in this E. I .R. are technique , economics, and environment: 1. The technical characteristic to be considered is that the Phase I Element is regarded as a tool whereby land development or utilization may proceed in an orderly and coordinated manner. 2 . The economic characteristic is that the Phase I Element will provide a mechanism whereby sufficient land is preserved so that those land use activities that will broaden the City' s economic base will be encouraged. 3. Seven environmental characteristic have been identi- fied: Land, Water, Air, Biological,Culture, Economics , and Society. 6. 4 Environmental Setting Huntington Beach is a metropolitan area in a metropolitan county, and as such its environment -- both local and regional -- is primarily an urban one. Even in this urban area, however, natural resources remain with the potential for improving the quality of life for all residents of the community. 6. 4 . 1 Land Resources The city borders the Pacific Ocean and lies predominantly in a flood plain which drains interior mountain regions. As a result, most of its land is flat and a considerable portion is less than 10 feet above sea level. Only bluffs demarking the Bolsa Chica and Huntington Beach Mesas appear in contrast. Three active branches of the Newport- Inglewood Fault Zone are located within the City; these faults represent areas which may be associated with surface rupture in future earthquakes. Earthquake shaking potential depends on local soil conditions, but it is considered to be generally high. Liquefaction, ground lurching and differential compaction potential is consider- ed to be high in low coastal areas underlain by shallow groundwater. Peat and organic soil deposits are scattered throughout the City. These deposits represent areas where long-term and large settlements may occur due to oxidation, groundwater lowering, and/or stress application due to fill or building loads. Expansive soils are widespread throughout the City. Slope instability and landsliding have not been found to be a significant problem. No damage or safety hazard has been found to be associated with subsidence due to oil withdrawal. n�7Y:m. fl 6.8 The location of oil and gas pools corresponds to geologic "I conditions and such conditions are present within the area. The City' s oil field is, in fact, one of. Cal i. ot-ii i.c► ' s largest in cumulative production. There .is only one operating sand and gravel pit in the City. Though others existed previously, this mineral resource is fast being exhausted and holds little potential for the future. There are currently about 2 , 600 acres of public and private open space uses in the City including parks, outdoor recreation facilities, and nature reserves. Publicly-owned acreage, assumed to be permanent, totals approximately 2 ,275 acres with 480 acres of proposed use. Additionally, there are about 3 ,400 acres of land reserve; that is , land which is vacant or underdeveloped. It is expected, however, that these reserves will dwindle rapidly unless municipal effort is exerted. 6. 4. 2 Water Resources A crucial factor in the environment of Southern California has always been the availability of water for domestic use, for agriculture, and for recreation. Its scarcity as well as its multiple use potential have made water a prime natural asset, and Huntington Beach has several important water and water-related areas. One of the City' s most significant natural resources is the ocean and shoreline. The ocean, of course, dominates the area' s climate and along with 8 miles of beach provides an important wildlife habitat and scenic recreation resource for the entire region. Three important saltwater estuaries -- Sunset Bay, Bolsa Chica Bay, and the mouth of the Santa Ana River -- exist in the City' s Sphere of Influence; and several lakes and inland marshes occur, especially in the Central Park area. The Santa Ana River, once the largest in Southern California, bounds the City to the southeast. Today, it is a leveed sand bottom channel. . Because most of Huntington Beach is constructed in a flood plain, drainage and flooding have always been a problem. In the east side of the City , in fact, the Santa Ana River is at a higher level than the surrounding drainage area. Domestic water is produced from nine wells which vary in depth from 250 to 900 feet, and quantity varies. Total production is about 14 , 000 gallons per minute. Additionally, the City has three connections from the Metropolitan Water District of Southern California and three reservoirs with a storage capacity of over 20 million gallons. 6 . 4 . 3 Air Resources ` a _ k.. 6.9 , , J J' 1 . Contamination from organic decay and from volcanic sources is infrequent in the air masses. crossing the shoreline of Huntington Beach. The most frequent natural contaminant found in the coastal atmosphere is corrosive sea spray. In the South Coast Basin , the substances added to the atmosphere from man-made sources are primarily combustion products. These substances are of great concern for their effect on the health and well being of people, livestock, crops, wildlife and the preservation of nature. Artificially induced contaminants are known to have their adverse effects at great distances from the point where they are introduced. The air environment of the Huntington Beach area is superior to that of the developable area inland. The coastal areas such as Huntington Beach have little reason to expect significant air contami- nation, except- for motor vehicle emissions. The prevailing westerlies and the daily morning and after- noon shore breezes regularly refresh the coastal air even though there may be an extended period of low inversion inland. 6 . 4. 4 Biological Resources Avifauna, or birds, are the most significant wildlife populations within the City. Two native species -- the light-footed clapper rail and the least tern -- are considered endangered and face extinction. Other endanger- ed or rare species common to this coastal area include the brown pelican, the California clapper rail, and the California black rail. I The most significant vegetative resources in the city are trees, primarily eucalyptus, palms, and some pines. Most natural tree stands were removed for agriculture; the eucalyptus groves were planted during the 1930' s and 1940 ' s for timber and several remain standing today. The palms and pines are primarily ornamentation. 6. 4. 5 Cultural Resources A scenic vista is a view or outlook which presents desirable sights. It may be a spectacular scene of natural features or an interesting perspective of the urban skyline. Being a coastal community, of course, affords the city many pleasurable seascapes. The bluff lines also provide significant views especially where development has not yet occurred. In addition to vistas, visual landmarks are also important and valuable as visual stimuli. These landmarks are structures which occur in vista areas and provide variation from the Af am, 6.10 surrounding urban framework of streets, cars, and buildings. Such visual landmarks include the Edison Electric Generating Plant, the Pier, the Newland House , the Huntington Beach Company Office, the Civic Center, Huntington Beach High School, two old water towers, and the Bolsa Chica Gun Club. Parks and recreation facilities are also important cultural resources. At present, the City has about 190 acres of neighborhood parks and 110 acres of community parks developed or scheduled. In addition, the following regional parks and recreation areas are included within the Sphere of Influence: 1. City Beach 2. Bolsa Chica State Beach 3. Huntington State Beach 4. Bolsa Chica Ecological Preserve 5. Huntington Central Park 6. Adams Bluff Park 7. Dobkin Bluff Park Paleontological and archaeological resources provide modern man with the opportunity to understand and take pride in his unique heritage. Unlike many other natural resources, each individual find is novel, never exactly duplicated, and incapable of regeneration. If destroyed or damaged, it is lost. Although there have been no significant fossil discoveries within the City, several have been reported in the area, and any grading or digging done below five feet is likely to encounter such materials. Archaeological findings provide the clues to help scien- tists reconstruct the culture and life styles of past human societies. Already several major finds have been made within the city; and in an effort to identify all additional sites within the City, Huntington Beach contracted the firm of Archaeological Research Incorporated to survey the community. The results of their study, which indicate that there are a variety of archaeological ' sites (some of which remain undisturbed) within the City, have been published in a report entitled Scientific Survey and Inventory. 6. 4. 6 Economic Resources Huntington Beach is fortunate to have a broad economic base. In the Orange County Labor Market, most recent statistics indicate that the City accounted for 31 ,000 jobs (five percent) out of a total of 586, 900. 6.11 The City is continuing to diversify and expand its indus- trial base to lessen dependence on any one industrial type. Over the long haul, industry is the most important employment generator for the City. A good industrial base ensures steady employment and a tax revenue source. Commercial development in Huntington Beach is continuing to expand, thereby strengthening the economic base. The City is capturing a significant portion of the retail market in Orange County. For the three-year period, 1970- 1972, Huntington Beach ranked second of all cities in the net retail dollars gained. Assessed valuation is an indicator of the City' s general economic well-being. It measures the City' s worth in terms of property tax revenue. . In fiscal year 1973 , the City' s total assessed valuation was $410 , 300 ,000. Since 1966 Huntington Beach has ranked third in the County. Income is an indication of purchasing power. Median family income in Huntington Beach in 1970 was $12 ,930. 6. 4. 7 Social Resources Population is one of Huntington Beach' s most famous assets. Its spectacular growth rate of the past decade has given the City a valuable human resource. It is a young, healthy, concerned, and well-educated population that currently resides within the city limits. Coupled with population, there is another unique resource that deserves mention: that of an interested and highly motivated citizenry. Without their participation and concern, such timely and important projects as the Policy Plan would never have been a reality. The majority of the housing stock is still relatively new and of high quality. Many of the City' s older areas have aged gracefully, thereby adding charm and uniqueness to a young community. Huntington Beach recognizes that education is one of the keys to a better future and as such has very progressive educational programs.At all levels the various districts have agressive planning programs that are continually assessing present and future requirements for students. School sites are planned, and, in many cases, acquired several years prior to actual need. Public facilities and services are designed to protect and Preserve the public health, safety, convenience, and gener- al welfare. Quasi-pub*facilities and services provide 6.12 unp for family emotional, physical , psychological , social, and religious needs. 6 . 5 Environmental Impacts The following discussions present in general form those consequences and environmental impacts that can be expected during the implemen- tation of � the proposed Phase I Land Use Element. These impacts are broad and general in scope, reflecting the nature of the plan itself. Future Environmental Impact Reports dealing with specific projects will discuss in greater detail the exact nature of the significant impacts expected. This section is designed to give an over-view of the environmental issues involved when evaluating various policy decisions at a future date. 6. 5 . 1 Environmental Impact of the Proposed Element 1. General Impacts The impact of the Phase I Land Use Element will be to promote better, more efficient use of natural and human resources by making consideration of these resources as a prerequisite for development. This element is the first time that the land use plan and related factors have been pulled together into a single plan and supporting document. This allows for the comprehensive and total evaluation and study of the planning area, thus promoting a more satisfactory base for consideration of resource planning and consideration. This document provides (over the previous fragmented approach) for the comprehensive application of goals, policies and programs for the preservation and enhancement of the environment. By its nature the Land Use Element is an indirect im- pact since it is only a plan and does not propose spe- cific development. It is dependent upon numerous mechanisms and procedures for implementation. A notable aspect of predevelopment procedures is the environmental review process that permits the specific analysis of environmental conditions and impacts. 2. Impact on Natural Resources The Element provides for the adoption and use- of goals and policies that are committed to the protection and conservation of natural resources. The Element provides for the allocation and distribution of re- sources and conservation elements. 6.13 The Element identifies and promotes the protection of natural resources: Water: Pacific Ocean , Santa Ana River, Marinas , flood plains, flood channels. Air: Provides a base for detailed assessment of air resources and provides for potential transportation modes as an alternative to the automobile. Land: Identifies resources and promotes the proper planning and utilization of land resources. Biological: Identifies and promotes preservation of key ecological resources. The Element provides, as part of the General Plan and land use programs, for the incorporation and utilization of the conservation and Land Use Elements. 3. Impact on Human Resources The Element provides a sound policy base , derived from community goals, oriented to the provision of cultural , social , and economic considerations and enhancement. The Element identifies and provides those facilities and uses for the health, protection, safety and welfare of human resources. The Element provides information and criteria for the anticipation of human needs and fulfillment of those needs and concerns. The Element considers economic factors in the pro- vision of use allocation and distribution, city facilities, employment and residential needs. . The Element considers social factors in terms of population characteristics and needs which include employment, housing, education, recreation and civic facilities. The Element considers cultural factors in terms of population and social needs which include the pro- vision of civic and community services and needs and recreational, educational and institutional facilities. 6.14 • 4. All of the above statements represent positive environ- mental impacts. In overview the Land Use Element identifies and proposes specific programs for the re- finement, evolution and revisions of land use as it relates and influences natural and human resources . The Phase 1 Land Use Element represents a positive environmental impact either by direct application or through the creation of mechanisms and future programs that will provide for positive impact. 6. 5. 2 Any Adverse Environmental Effects Which Cannot Be Avoided If The Proposal is Implemented. No significant adverse impacts have been identified. By its nature the Element is indirect and will require sub- stantial checks, balances and procedures before it can be implemented. The Element is a general guide, hence it is flexible and amenable to consideration and avoidance of any detailed adverse impacts that may result from specific development proposals, which is beyond the possible scope of the Element. 6 . 5. 3 Mitigation Measures Proposed to Minimize the Impact Since there are no significant adverse environmental impacts, no mitigation measures are required. In fact, this Element is a mitigation measure in itself. When combined with other General Plan elements, the Land Use Element will act as a mechanism to measure, adjust and direct the use of resources for, the avoidance of specific adverse impacts. Without this Element there would be no guarantee that environmental concerns would be properly coordinated in future development in the planning area. 6. 5. 4 Alternatives to the Proposed Element Several alternatives have been identified: 1. To not adopt this Element. While existing -plans are in effect, they do not provide for the comprehensive framework of use allocation, policies and programs contained in the proposed Element. The result would be a continued, disjointed approach that would not provide for proper guidelines and environmental consideration. 2 . To adopt an element which accommodates maximum growth and development. This alternative could result in over development and over utilization of environmental resources. This would produce a number of adverse impacts. AMMA6.15 3. To adopt a more restrictive element that would severely limit development. This alternative might be more favorable to the natural environment, but it would have serious adverse effects on the social , economic, and legal aspects of the environment. This alternative would tend to inhibit redevelopment where it may be desirable for the improvement of the man-made physical environment;and it would tend to deny both present and future residents of Huntington Beach the full range of benefits or amenities that would be available if a more moderate land use element were adopted. These three alternatives are inconsistent with the goals and policies of Huntington Beach. Adoption of any one of these alternatives will result in a number of adverse impacts , including existence of incompatible land uses; occurrence of uncoordinated development; and an unbalanced economic base. This proposed land use element is regarded as a logical compromise between extremes. It will result in a balance of the important environmental values and an optimum envornment in physical, economic , social, and psychological terms. It will allow the current and future residents of Huntington Beach to attain the Quality of Life Goals set forth in the Growth Policy Study. 6.5 . 5 Relationship Between Local Short-Term Uses of Man' s Environment and the Maintenance and Enhancement of Long- Term Productivity As was stated before,there are no adverse effects anticipated. It was also mentioned that this Land Use Element is a mitigation measure in itself. Being a long-term guideline for development there exists a positive relationship between the local short-term uses of man' s en- vironment and the maintenance and enhancement of long- term productivity. Additionally , the Phase 1 Land Use Element represents a process that provides for the staged development of policies , plans and programs that identifies short range programs and issues within a context of long range goals, policies and environmental planning programs. 6.5 . 6 Any Irreversible Environmental Changes Which Would Be Involved In The Proposed Action, ; Should it be Implemented This Land Use Element will not cause any irreversible environmental changes , but instead will help to avoid or mitigate any adverse changes. 6.16 6.5 . 7 Growth-Inducing Impact of the Proposed Action This Land Use Element will not have any growth-inducing impact, but will serve to limit and guide future growth. This is in concert with the modified policy alternatives recommended by the Growth Policy Study. VN ,a ."- 6.17 i BIBLIOGRAPHY Archaeological Research Inc. "Scientific Resources Survey and Inventory" . 1973 California Council on Intergovernmental Relations. "General Plan Guidelines" . 1973 California State of Assembly Bill 1301, Adopted 1971. Assembly Bill 1725, Adopted 1972. California State of,Environmental Quality Act. California, State of,Government Code, Section 65302, 65860, 95450. California, State of, Department of Human Resources Development. "Area Manpower Review" . 1973 California, State of,Resources Agency. "Bolsa Bay: A Conceptual Plan for Resources and Recreation 1972 California, State of,Subdivision Map Act. Huntington Beach, Citizens Steering Committee for Goals and Objectives . " What Shall This Community Be? A Policy Plan for Huntington Beach, California" . 1972 Huntington Beach, City of Department of Harbors & Beaches. "Coastline Study" . 1973 Huntington Beach, City of, Planning Department. "Circulation and Transportation Study Parameters" . 1973 Huntington Beach, City of, Planning Department" . Civic Center Impact Study" . 1973. Huntington Beach, City of, Planning Department. "Growth Policy Study" 1973. Huntington Beach, City of, Planning Department. "Housing Inventory, Phase I of the Housing Element to the 4 General Plan" . 1972. { Huntington Beach, City of, Planning Department. "Ordinance Code, Divisions 8, 9" . Huntington Beach, City of, Planning Department. "Preliminary Policy Plan" . 1971. 7 . 1 Huntington Beach, City of, Planning Department. "Recreational Trails : Phase I. 1973. Huntington Beach, City of, Planning Department. "Revenue/ Expenditure Analysis of Land Uses" . 1973 . Huntington Beach, City of, Planning Department. "Townlot Specific Plan Study" . 1973 Leighton-Yen and Associates. "Geotechnical Inputs, Seismic Safety Element, Huntington Beach, California" . 1973. Orange County, Planning Department. "Technical Report: Sunset Beach-Surfside Colony" . 1967. Urban Land Institute. "Huntington Beach, California. A Report By An Urban Land Institute Panel" . 1965. 7. 2 LEGEND* RESIDENTIAL: PUBLIC USES 8, FACILITIES (CON'T) LOW DENSITY EXISTING PROPOSED MEDIUM DENSITY SCHOOL MEDIUM-HIGH DENSITY ELEMENTARY HIGH DENSITY JUNIOR HIGH 0 MOBILE HOME HIGH COLLEGE COMMERCIAL PARKS NEIGHBORHOOD ® COMMERCIAL RETAIL COMMUNITY O '= OFFICE HUNTINGTON CENTRAL CP HCP HOTELS-MOTELS REGIONAL RP ® SPECIALTIES RECREATIONAL FACILITIES O RECREATION CENTER O O INDUSTRIAL NEIGHBORHOOD BEACH LIGHT BEACH 0 PUBLIC UTILITY MARINA ETI GOLF COURSE EDISON R/W LEASED AGRICULTURE EDISON R/W UNLEASED SPECIAL USE 0 PUBLIC USES 81 FACILITIES INSTITUTIONAL TRANSPORTATION ECOLOGICAL RESERVE 0 CHURCH F:j RAILROAD 0 HOSPITAL F!�� CORRIDOR CITY YARD LODGE, MEETING HALL PS PRIVATE SCHOOL STREETS LIBRARY © CEMETERY _ __ _ FREEWAY QUASI-PUBLIC(INCLUDING: INTERCHANGE CENTRAL LIBRARY CHURCHES,CLUBS 8 LODGES) C_11 EW' SCHOOL WAREHOUSE o MAJOR c`A _ SCHOOL ADMIN. OFFICE OTHERS PRIMARY POST OFFICE PRIMARY �..� FIRE TRAINING CENTER&STATION WATER RESERVOIR COUPLET-` FIRE STATION PLANNING RESERVE ■.■■....■., SECONDARY vFJ; BUFFER HARBORS a BEACHES FACILITY O DRAINAGE CHANNEL a WATER WAYS DESTINATION RESORT PLANNED COMMUNITY REV.9-17:72 II73 OLD TOWN TOWN LOT a'.•;._ GOVERNMENT CENTER LAND USE ELEMENT PHASE 1 � '. 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's a �' ti \ i r ,v t .^" .a f A. ,.e- ,+t _ r' sI- -, __, , s , _'. s� ,e"", "y �5 r,^'k a ° - s `�a s r u_ ., T > - ;a a.r', w y.o . . o- ""n wow MR1 ", , ANJ�_n_Ai,, » r aq ,a ,t f a �A a�,,, '� �* �v ifs �, ` r „s.� , c� �. � P a 'T ." �qw,M", "_�!. ­­- - �.. ' ,­­j '� `­­-',-,,­��_-z�-',.-�-,.-,,�� ,; �, �:,�,,' �',-,;,­",-,,.C;;�'-,, WM>qxMna,_"-*_- i�l V,111�," .;�.'­�%��, __W� MM ;, �,.:;��' ­­_�, ,� �I�,��"."� ��, I - '�'.,,,��,i'�".�,'.,,',�z-",�,��.,: _�;;�:., -­­ ­­­­­ r ,,_ , � aF, 00 . z�:, •��_­�".­.r y WWI * Y�? ✓ yq 4 n� F �..2_ _ —A I- r' n�+­--�ig, oi�, „�;�' «�. ,� r­.,%,­��,-,:,�,.' �'.�';�,�,,,,;,.,,-,�,,,-,,'-��;��,.�',,��".^,."�i t �,v��.,'.� - ,: ,_� 1-" Z" am _ s -1�"! " s ;, I I I-t-� 0 MM.Mv -Lf�.-­��,*­�;,­I,, ";, �� I -­ na, , ,�-�'-',':,�­:.,, 046001", �,, ., , " "� 04 n.v x- 1­1111 _-, FAT .✓."IS;m s. t n 1:# � 5 r .l,ate 3 .* ,�..v` ct a a - to t~ � S z # t- ti rr a x M $„"' r •r ,.y, .�' &'.. t a ar r. r yi r -. t �. . g I - . 11 <- t a J - . 11 n , - - CITY OF HUNTINGTON BEACH CITY COUNCI L JERRY A.MATNEY,Mayor HENRY H. DUKE,Mayor Pro-Tempore TED W.BARTLETT ALVIN M.COEN NORMA BRANDEL GIBBS N.JOHN V.V.GREEN DR.DONALD D.SHIPLEY DAVID D.ROWLANDS,City Administrator PLANNING COMMISSION EDWARD H.KERINS,Chairman FRANK P.HIGGINS,Vice-Chairman ROBERT D.BAZIL WILLIAM J.GEIGER MARCUS M.PORTER KATHERINE L.WALLIN KENNETH A.REYNOLDS,Secretary CITY OF HUf1TIf aon BEACH / P.O. BOX 190, CALIFORNIA 92648 PLANNING DEPT. (714) 536-5271 Enclosed is the Planning Department staff' s report entitled A New Direction for Huntington Beach: Introduction to the General Plan. In response to many inquiries from City officials and con- cerned citizens, the Planning staff put this report together as an information tool that would explain what the General Plan is and how it is being .approached in Huntington Beach. It contains a brief discussion on the concepts of planning. Recent State legislation has added new requirements and dimensions to the General Plan and is also covered in the report. The new direction or how the current master plans will be de- veloped into a comprehensive general plan and the State guide- lines for the plan elements conclude the report. It is hoped that this report will assist in clarifying to all concerned the status of the General Plan for Huntington Beach. Very truly yours, K. A. Reynolds Planning Director KAR:j a Enclosure • 0 0 INTRODUCTION TO THE GENERAL PLAN november 1973 0 Alft a GENERAL PLAN BACKGROUND REPORT HlNTINGTON BEACH PLANNING DEFT. s • TABLE OF CONTENTS PAGE SECTION ONE: INTRODUCTION 3 Purpose 3 • An Overview 4 SECTION TWO: CONCEPTS OF PLANNING 7 Why Plan: . A Philosophy 7 What Can Planning Do? 8 Planning Actors 9 SECTION THREE : THE GENERAL PLAN 13 A History 13 A New Look 15' Zoning and the General Plan : Consistency 17 Effects of CEQA 18 Amending the General Plan 19 A Summary 20 SECTION FOUR: STATE OF THE ART 23 Master Plan of Land Use 23 • Supporting Master Plan Elements 24 An Evaluation 25 SECTION FIVE : A NEW DIRECTION 29 Goal : A Comprehensive General Plan 29 The Approach 30 • A Place for the Master Plans 32 Some Upcoming Projects 35 Concluding Remarks 36 SECTION SIX: APPENDIX: GUIDELINES FOR THE GENERAL PLAN ELEMENTS 39 Land Use Element 39 Circulation Element 42 Housing Element 46 Conservation Element 53 Open Space Element S6 Seismic Safety Element 61 • Noise Element 67 Scenic Highways Element 71 Safety Element 74 • section 1 introduction, SECTION ONE INTRODUCTION A quiet beach community surrounded by oil fields and farm lands this was Huntington Beach not too long ago . Today after an inundating 900 percent growth rate during the sixties , the City is a metropolitan area complete with all the problems of modern urban life. Having recovered from the first shock of this population and development explosion during which exhausting municipal efforts were required simply to keep up with burgeoning demands for public services , the City is now pausing to review and reflect upon the turbulent decade just passed and to make plans for the future . • Purpose Planning for the future . . . that is what this report is all about. Planning is nothing new; the people and the government have been • making plans , arranging and designing things , for a long time . As the City grows up and matures , however, more sophisticated, comprehensive , and rational planning efforts are necessary if today' s problems are to be solved and tomorrow 's difficulties prevented. • The following pages present a brief synopsis of planning as it relates to the citizens and municipal officials of Huntington Beach. For those who are unfamiliar with city planning, this report can be considered a primer in the fundamentals of the local planning process . For others , it may be a refresher course . • 3 r presenting latest amendments to planning law and modifications to planning philosophy. For everyone , it can serve as a status report on planning in Iuntington Beach, . an explanation of the City 's "new direction", and a preview of some new projects scheduled for 1 completion in the near future . An Overview Why is planning necessary? What can planning do to make life better for the City and its residents? Who is involved in the planning process? These are some of the questions dealt with in Section Two, "Concepts of Planning" . Of particular interest and surrounded by a flurry of legislative amendments , public debate , and judicial review is the General Plan. This is the subject of Section Three which traces the development of the General Plan concept , discusses a bevy of recent laws that affect it, and explains the vital role now played by the General Plan in local planning activities . In Section Four, generalities become specifics when "The State of the Art" in Huntington Beach is the topic for discussion. Existing plans for the City - - how they were developed, how they relate to each other, and how adequately they meet legal require- ments and community needs - - are the focal point here in an attempt to describe planning activities that have been undertaken in the past. Finally, Section Five reveals "A New Direction" for . planning in the City. With a Comprehensive General Plan the major goal , a new approach is necessary. This section explains changing tactics , how they differ from previous efforts , how they will fulfill requirements of state law, and how they will utilize existing planning programs and methodologies . Adft MUM N� 4 • section 2 . concepts of planning SECTION TWO • CONCEPTS OF PLANNING From its early beginnings during the colonial period, planning in America has grown to a major activity at all levels of government . Most of this planning emphasis , however, has come about only in the last few years as the problems of urban decay, suburban sprawl , and rural degeneration have multiplied to overwhelming proportions . As governments strove to meet these challenges , it became obvious that all problems were interrelated and that successful solutions would have to be comprehensive ones . Comprehensive investigation , evaluation, and problem solving -- this is the planning process . • Why Plan : A Philosophy Basically, there are two ways to view life . One outlook is deterministic; that is , everything is resolved by a sequence of events over which no one has control. The other perspective , which stresses free will , assumes that situations can be controlled by man' s intellect. Planning -- which attempts to regulate, prepare for, and manipulate occurrences - - obviously is based on the concept of free will . If man can influence his environment , can make things better for himself and his community, then planning is an important tool for improving the quality of life. Aft • 7 There is no magic in community planning. Though municipal planning activities are generally more sophisticated, people and governments really plan for the same reasons . Firstly , cities plan for expected change such as increased public services to meet expanding populations . Planning is also necessary to promote desired change ; for example , rerouting traffic to relieve congestion. Finally, municipalities plan to prevent undesirable change . Preserving a natural marsh to protect threatened plant and animal species is a good illustration. Provide for expected change , promote desired change, prevent undesirable change - - that is why government plans . What Can Planning Do? More than a step by step procedure for problem .solving , planning � is a continuous process for measuring the present , predicting the future, identifying community objectives , and keening municipal government on a course to achieve them. Because planning is an on-going process , identification of the sequential relationships among its various phases is difficult . However, planning activities can generally be grouped into six phases : 1 . Research and analysis of current and historic situations 2 . Projection of future occurrences 3. Goal identification 4 . Development of plan alternatives S . Final plan formulation 6 . Plan implementation These activities often proceed simultaneously , and the final plan is not the only important output of the process . Because planning involves in-depth and comprehensive research and analysis projects , problems confronting the community - - and, perhaps most importantly , their causes and the relationships among them - - can be identified. Their identity helps clarify community needs and thereby encourages adoption of more pertinent and realistic goals . Analysis of needs and goals , on the other hand, aids municipal decision makers in assigning priorities for community projects to insure that a "first things first" system prevails . The importance of these . outputs , nevertheless , should not overshadow actual initiation of programs which directly attack real problems and make noticeable changes in community life . AMk Planning Actors Just as the planning process consists of a series of complicated activities so does it involve numerous actors in the political arena . A schematic presentation of these "planning actors" and their interrelationships is presented in Figure 2 . 1 . FIGURE 2 . 1 • ACTORS IN THE PLANNING PROCESS City Council • Other Agencies Planning Planning Department Commission Advisory • Boards v-FGeneral Public • Seven Council members constitute the ultimate planning authority for Huntington Beach. As representatives of the people , they are responsible for insuring that community needs and desires are realistically and efficiently fulfilled. The Planning Commission, whose seven members are appointed by the City Council , is charged with advising the Council on planning • matters . Its task involves conducting public hearings , making preliminary judg•ments , _ and forwarding recommendations to the Council . Assisting the Planning Commission and City Council in their work are advisory boards, also appointed by the City Council , which deal with specialized planning problems such as design review, zoning, and environmental analysis . • The Planning Department serves as technical staff to the Council , Commission, and advisory boards while providing the man-power and professional expertise to conduct planning studies , process technical projects , and develop short- and long-range plans for community -growth and development. The department is often • assisted by other agencies as planners confer with experts in related fields to formulate plans that are practical and realistic. A symbiotic relationship exists , for example, among Planning, Parks and Recreation, and Harbors and Beaches relative to conser- vation and recreation programs . Planning activities of other city, county, state and federal governments also influence local projects . • IF lip • 9 i 3ut planning is not solely a bureaucratic activity . "fhe puhlic , residents and property owners of Ilunt.ington Ijeach , i.s very much involved. Of course, fundamentally , planning is for peoplle . . .. to promote their health, safety, and general welfare ; and citizens provide a significant input to the planning process . They elect the City Council , for example , and thereby control the City ' s highest planning authority. Additionally, public response is sought through mandatory public hearings , and formal citizens committees are frequently appointed to advise city government on planning matters of particular importance. • Working in concert, these separate actors - - council , commission, advisory boards , planning department , other agencies , and citizens -- are responsible for composing a community in harmony with the needs of the people and the constraints of the natural environment . • MM i • • -� 10 section 3 the general plan • • • SECTION THREI: THE GENERAL PLAN • The General Plan forms the heart of the planning process . In theory it always has ; in practice , however, its role in community affairs was often perfunctory and its influence over growth and development minimal . Metamorphosis of the General Plan from this fallow state to the center of planning activities is a short • story written over the last five years in landmark state laws , judicial decisions , and changing planning philosophies . A History • Though n6ed for "future growth, development, and beautification" plans was recognized by state law as early as 1915 and planning commissions were charged with preparing 114 master plan for the physical development of the municipality" in 1927 , not until 1955 was the General Plan made a compulsory part of the local planning process . In that year , Section 65460 was added to the Planning • Act stipulating that "each commission or planning department shall prepare and the commission shall adopt a comprehensive , long-term general plan for . . .physical development. 113 Further, Section 65462 declared that "the general plan shall consist of a map and state- ment describing it, and a statement covering objectives , principles , and standards used to develop it ; and ii shall include. . . a land us-e • element . . (and) a circulation element . " In 1965 , these mandatory elements- were specifically defined as a land use element "which 1 Stat 1915 , Ch. 428 , California Government Code . 2 Stat 1927 , Ch. 874 , 5. 4 , California Government Code . • 3 Stat 1955 , Ch. 1644 , 5. 2 , California Government Code . 4 , Stat 1955 , Ch. 1644 , S. 2 , Californi_a Government Code . 13 • designates the proposed general distribution and general location and extent of the uses of land for housing, business , indt«try , agriculture , natural resources , recreat i-on , e(Iucat i.on , Iiub 1 i c buildings and grounds , and other categories of public and pri.vatc uses of land"5 and a circulation element "consisting of the general location and extent of existing and proposed major thoroughfares , transportation routtes , terminals , and other local public utilities and facilities" . In 1969 , the law was amended to include a housing element "consist- ing of standards and principles for the impr?vement of housing and the provision of adequate sites for housing" as a mandatory part of the General Plan. General Plan law was amended again in 1970 when "a conservation element for the conservation, development , and utilization of natural resources"8 and an open space element . "for the comprehensive and long-range preservation and conservation of open space land" were added to the growing list of compulsory plans . Reflecting an ever-increasing concern for environmental quality, requirements for a seismic safety element "consisting of an identification and appraisal of seismic hazards ,1110 a noise element (S. 65302 (g) ) and a scenic highways element (S. 65302 (h) ) were added. to state law in 1971 ; and a safety element (S . 65302 . 1) became mandatory in 1973 . Thusly, the purpose of the General Plan grew from a statement of proposed future land use to an in-depth investigation and analysis of physical and environmental relationships within the planning area culminating in a comprehensive design for tomorrow. For the most part, however, planning agencies approached the General Plan as a "pie-in-the-sky" dream devoid of realism and practicality and most of all devoid of authority. For while the law assumed that the General Plan should provide a guide in day-to-day decision making, nowhere did it stipulate specifically to what use the plan should be put . General Plans faded on office walls and gathered dust on out-of-the-way book shelves . 5 Section 65302 a) , California Government Code. 6 Section 65302 (b) , California Government Code. 7 Section 65302 (c) , California Government Code . 3 Section 65302 (d) , California Government Code. 9 Section 65560, California Government Code . 10 Section 65302 (f) , California Government Code. . hr 14 A New Look Along with new laws mandating additional elements came legislation redirecting the emphasis of the general planning process . Completion dates for required elements -- along with punitive actions for nonconformance -- were adopted into law, for example, meaning that local government could no longer postpone indefinitely preparation of the plan. These important deadlines , listed below, reflect the time remaining for preparation and submission of the • elements for state review and approval . TABLE 3-1 DEADLINES FOR GENERAL PLAN ELEMENTS • Land Use Required since 195.5 Circulation Required since 1955 • Housing Required since 1969 Conservation December 31 , 1973 Open Space (plan and program) December 31, 1973 • Seismic Safety September 20, 1974 Noise September 20, 1974 Scenic Highways September 20, 1974 • Safety September 20, 1974 Consistency of the zoning ordinance with the general plan January 1 , 1974 Recently, General Plan guidelines suggesting ways to meet legal planning requirements were prepared and adopted by the California Council on Intergovernmental Relations (CIR) . These guidelines . contained in the Appendix, will serve as criteria by which CIR will judge the adequacy of local plans , and at the same -time • they will help define for local agencies the often confusing or vague stipulations contained in planning legislation. The intent of the law, therefore, is becoming increasingly clear. • 15 • In addition to deadlines and guidelines , the state (through the Office of Planning and Research) has issued a declaration of environmental concerns which enunciates official goals and policies for air quality, land use, noise, pesticides , population, solid waste, transportation, water and environmental resources and hazards . Identifying areas of statewide interest and critical concern, this statement can serve as an aid to local jurisdictions in allocating priorities within .the overall planning program by designating potential problem areas to be conscienciously dealt with in General Plan elements . As explained by CIR,11 these areas of concern are organized in the following manner : TABLE 3-2 STATE ENVIRONMENTAL ISSUES CORRESPONDIidG POTENTIAL AREAS OF CRITICAL CONCERN GENERAL PLAN ELEMENT • Scenic, Scientific , Educational & Recreational Resource Areas Park, reserve and wilderness areas Open Space Recreation, access and connecting links Open Space/Scenic Hwys . Historic , archaeological & cultural • resources Open Space Wildlife habitats Conservation/Open Space Open space surrounding metropolitan areas Open Space Resource Production Areas • Porest lands Conservation/Open .Space Agricultural lands Conservation/Open Space Mineral areas Conservation Water sources Conservation Energy Conservation Hazardous Areas . Geologic hazard areas Open Space/Seismic Safety/Safety Fire hazard areas Safety . Flood prone areas Safety/Conservation/ Open Space/Land Use Critical air areas Circulation/Land Use 1 California Council on Intergovernmental Relations , General Plan Guidelines , September 20, 1973, pp. II-14-15. 16 Of greatest significance to local planning programs , however, was passage of Assembly Bill 1301 in 1971 which demands that zoning ordinances be consistent with the general Plan and provides that "any resident or property owner within the city. . . may bring an action in the superior court to enforce complialice" . 32 This act gives the General Plan the "teeth" , the authority, it had lacked to become a vital part of the local planning process . Not only does AB 1301 give legal powers to the General Plan, it also represents a severe reprimand to local governments for their failure to adequately regulate growth and development . For many years control over land use was one of the last vestiges of autonomous authority for city and county governments , and local politicians waged determined battles to nullify state attempts to control their planning authority. With the passage and implementation of AB 1301, however, counties and cities are reminded to give serious attention to planning and zoning laws - - a mandate , so to speak, from the state for local agencies to execute their planning functions . This mandate is accompanied by an implied threat that if local government fails in its task, the state itself may assume. full responsibility for land use control . Zoning and the General Plan : Consistency The General Plan is a comprehensive , long-range policy guide to promote efficient and desirable community growth. Zoning, on the other hand, is a single-purpose , short-range tool applied to precise . parcels of land specifying exactly what uses and development standards are required. Obviously, zoning has the greater potential to affect day-to-day land use decisions . This relevance is translated to the General Plan (as a result of AB 1301) by Section • 65860 (a) of the Government Code which stipulates : "County or C1sy zoning ordinances shall be consistent with the general plan. . ." By requiring that zoning be consistent -- a term later defined as "compatible with the objectives , policies , and programs specified"14 in the General Plan -- AB 1301 enables the definitive policies contained in the General Plan to be enacted by daily operation of local planning agencies . It means , specifically, that 'the zoning in an area , while it need not duplicate identically General Plan designations , must reflect its intentions . That is , zoning need not conform to the General Plan, but it must be in harmony with it . The following "checklist" is offered by CIR to Help local agencies i.n determining whether or not zoning and the General Plan are consistent. 12 Section 65860 (b) , California Government Code. 13 Section 65860 (a). , California Government Code. • 14 Assembly Bill 1725, adopted 1972 - 17 TABLE 3-3 DETERMINING CONSISTENCY OF ZONING AND GENERAL PLAN ELEMENTSIS General Plan Elements Zoning Ordinance Range of uses Regulations for distributed distributed uses Policies and Are the regulations objectives applied so as to be directed toward the attainment of the policies? Treatment of Are there devices specific areas available to attain specific objectives? • Phased development Will present allowable uses preclude or obstruct future uses as outlined by the plan? • Thusly, while the General Plan exerts its long-range influence through zoning, latitude in daily land use decisions is not overly restricted. Additionally, just as zoning will no longer be applied without regard to long-range community goals neither will the General Plan be afforded the luxury of the "pie- in-the-sky" status • it has had for so long. Recent court rulings and planning .legisla- tion as well as practical application require that General Plans now be based on as much factual data, realism, and practicality as possible . In other words , the General Plan must become more workable than it ever has been before . • Effects of CEQA Though it was not an original intention of the bill , passage of the California Environmental Quality Act (CEQA) lent some legal incen- tive for making General_ Plans more responsible and practical . As • the law has been interpreted, an environmental impact report which analyzes potential effects of public and private projects is required for all General Plan elements . This legislation compels discussion of seven important subjects : • 15 California Council on Intergovernmental Relations , General Plan Guidelines , September, 1973, p. II-3 Am" 13 1 1 . Environmental impact of proposed action; 2 . Adverse but unavoidable environmental effects ; 3. Mitigating measures to minimize impact ; 4. Alternatives ; • 5 . Short-term and long-term impacts ; 6 . Irreversible environmental changes ; and 7 . Growth inducing impact. • Keeping in mind the long-range and policy nature of the General Plan and its composite elements , direct application of these seven points is not always practical . But because it is a purpose of the environmental impact report process to expose alternatives and consequences to public view and in like manner it is a basic function of the General Plan to analyze options and select best • available alternatives , it should not be difficult to address topics cited in the CEQA within the text of the element. Doing so in a conscientious manner will help insure that plans for the future keep in mind the social and environmental realities of the present. • Amending the General Plan These numerous changes in General Plan law have met with mixed reactions . Those who view allocation of added powers to the General Plan with alarm fear that current development activities will be stifled by a futuristic plan "set in cement" once adopted. They • view these changes as part of a long series of cumbersome bureau- cratic dictates designed to suppress private property rights . Such judgments are hardly accurate . Though new legislation does mean that the General Plan will have greater influence on current land use, it also makes provision for flexibility and realism. State law requires , in fact, that the plan contain specific • procedures for periodic review (and revision, if necessary) thereby insuring that as community needs and desires alter over time the General Plan can be modified. On the . other hand , those concerned with the seeming lack of direction in community growth view the strengthening of the General flan with hope that more conscientious and rational land use decisions will now be made based on comprehensive plans developed in the public interest . At the same time , they are apprehensive that the General Plan will now be modified to conform to existing zoning (instead of vice versa) and frequently altered for short-term gains at the expense of long-run advantages . • 19 Though it is too early to know if these fears are justified, some of the most recent planning legislation is already attacking these .potential problems . State law stipulates , for example , that hear- ings on zoning changes and General Plan amendments cannot be held concurrently, that such hearings must be at least two weeks apart . 16 And a newly enacted statute declares that after January 1 , 1974 the General Plan can be ameVed not more than 3 times a year Cexclusive of additional elements) to encourage comprehensive analysis of the impacts of such changes on the future of the community. A Summary It is apparent from this discussion that the role of the General Plan in the planning process is undergoing considerable change . With the multiplication of mandatory elements , state law is making it ever more comprehensive . At the same time by requiring zoning consistency and limiting amendment , specificity and realism are encouraged. Such fluctuation should not be interpreted as a flaw in the planning -process , however. Indeed, it -exemplifies the dynamics of planning. Planning, it should be remembered, is not a product or result ; it is a process of inventory, analysis , evaluation and implementation. As conditions change , the planning process should react to change. . . as illustrated by the evolution of the General Plan. 16 Section. 65862, California Government Code. 17 Section 65361 , California Government Code . 20 / • Section 4 state of the art SECTION FOUR STATE OF THE ART Just as the theories and principles of planning change over time so does their application at the local level . The City of Huntington Beach has experienced phenomenal growth and development during the past few years as it expanded from a small beach community to a fast-paced urban center; and the needs and desires of the City have changed along with the size and make-up of the population. Therefore , it is reasonable to assume that the planning tools devised to cope with problems of the 1950' s and 1960 ' s may not be adequate to handle the demands of the present and future . Before setting forth on a new direction, it is wise to evaluate the existing state of the planning art in Huntington Beach. tMaster Plan of Land Use • Foundations of the City' s long-range planning program rest on the Master Plan of Land Use developed by Hahn, Wise , and Barber and adopted in 1958 . This basic plan, revised in 1963, 1964 , 1965, 1969, 1970 , and 1971 , indicates residential, commercial , industrial , and institutional devef'opment categories as well as physical proposals from later Master Plans . As a composite of these plans , the Master Plan of Land Use is the fundamental planning document. MA!Rk 23 Supporting Master Plan Elements In addition to the Master Plan of Land Use , the City has six other , adopted Master Plans . Taken together, they represent the core programs for advance planning in Huntington Beach. Adopted over a ten-year period, these plans broaden the scope of the original Master Plan and reflect growing responsibilities of planning in the community. Master Plan of Arterial Streets and Highways : An outgrowth of the 1958 land use plan and the 1956 Orange County Master Plan of Highways , a Master Plan of Arterial Streets and Highways was adopted for the City in 1963 and amended annually thereafter. This plan sets forth the location and design standards for four categories of roadway : freeways and major, primary, and secondary arterials . Parks , Open Spaces , Schools , and Recreation Element to the Master Plan of Land Use : Adopted in 1967 and amended in 1969 , the Parks , Open Spaces , Schools , and Recreation Element delineates locations for parks , schools , and special open space recreation facilities as well as park design standards , priorities , and implementation programs . It also serves as a general guide for the City' s five-year Capital Improvements Program. Non-Structural Blight Element of the Master Plan: Properties which are blighted by size, shape, or accessibility are identified by the Non-Structural Blight Element.. Adopted in 1968, this element defines a program for consolidation of these trouble- some lots into developable parcels . Preliminary Plan for Recreational Trails Element : The Preliminary Trails Element was adopted in 1972 as a concept plan for recreation trails within the City. Used to apply for funding a trails system, it establishes three trail categories (bicycle , jogging, and equestrian) , design criteria, and standards . Interim Open Space Element : Adopted as an amendment to the Master Plan of Land Use in 1972 , the Interim Open Space Element was prepared in response to state planning law. The plan inventories existing open spaces , classifies them, and sets forth considerations for future open spaces . 24 Housing Inventory : Phase I of the Housing Element to the General. Plan : Adopted in 1973 as the first of two phases of the Housing Element , the Housing Inventory analyzes housing conditions and problems in Huntington Beach and identifies a set of preliminary housing policies . • An Evaluation A General Plan (as the state legislature titles the core planning document) must be long-range , looking approximately 20 years into the future . Thusly, the General Plan has a target date and offers ! a broad perspective on community growth that is divorced from current zoning and short-term land use . Secondly, law requires that the General Plan be comprehensive , dealing with nine specific elements in a coordinated manner designed to establish basic development policies upon which flexible physical design proposals can be based. And perhaps most importantly, the General Plan must • be a viable part of community life -- a logical , rational , explain- able program for tomorrow. To be an effective planning tool , it must be readily understood by the citizens it is meant to serve . These criteria form the yardstick by which the planning program must be measured. ! The City' s advance planning program currently revolves around the Master Plan of Land Use and six supporting elements . Almost as a time line , the Master Plan and its consecutive parts - - each developed to a different level of sophistication and each respond- ing to varying laws and needs existing at the time of its formulation - - illustrate the evolution of planning laws and the ! planning profession in California. These elements, however, lack the degree of consistency and coordination necessary to meet the challenging problems of an urban community which demand a long- range perspective and comprehensive solutions . What is needed now is to employ the advanced knowledge of today' s technicians in upgrading the City ' s existing plans to rigorous standards established by new state laws and ever-increasing expectations of a concerned and motivated public. Adft 25 • section 5 a new direction r SECTION FIVE • A NEW DIRECTION It is apparent that changing philosophies , changing laws , and changing community needs necessitate revision of the planning + approach in Huntington Beach. A new direction is called for, a course of action that rises to the challenges presented by a dynamic city and a dynamic art. The following pages outline this fresh approach in an effort to explain a new goal , set forth a methodology for achieving that goal , and preview some important upcoming; projects . • Goal : A Comprehensive General Plan What is most needed now is a Comprehensive General Plan reflecting • the requirements of state law and the needs of the community. To be comprehensive , the General Plan must consider all facets of the urban scene, address all necessary elements , and relate them to City policies and objectives . To be general , the comprehensive plan must not be concerned with individual lots , current zoning, and short-term land use. Instead, it must deal with the long-range growth of the community from a conceptual perspective . It must • provide a workable guide for land use decisions and community development in a changing social and physical environment . A Comprehensive General Plan. . . this is the target for the City of Huntington Beach. • 29 The Approach To achieve the goal of a Comprehensive General Plan does not mean disregarding the work of many years . It does not mean that the ; City must start over in its planning efforts : Rather, the new approach will simply place the existing planning program (the Master Plan of Land Use and its related elements) in proper perspective , using what is valid, modifying what is salvageable and discarding that which is no longer usable . Additionally, this new approach will allocate the time and man-power of the planning actors to developing new plans and concepts leading to completion of a practical and useful Comprehensive General Plan that will truly serve public needs in designing a community for tomorrow. • The Planning Area : One of the first changes called for by this new approach has already been accomplished: redefining the planning area. Until recently , planning efforts dealt strictly with territory within the legal boundaries of the city . Recently, however, an official • commitment was made to the Bolsa Chica property; and with adoption of a Sphere of Influence, the Huntington Beach Planning Area was extended to include Sunset Beach and the Santa Ana River Channel as delineated on Map 5. 1. The changes represent a growing realization that planning issues and potentials do not stop at arbitrary political boundaries but relate more to geographical and environmental realities . It also reflects a growing sense of responsibility on the city ' s part toward areas that will probably fall within its jurisdiction in the future. Planning for these areas now will not only lend regional. credibility to the City 's plans but will aid their eventual transition from county to municipal rule. Policy Plan: Recent adoption of a Policy Plan for Iuntington Beach comes at a most opportune time. Because it is a current reflection of community goals and desires , there is no better foundation for the Comprehensive General Plan. Scope of the Policy Plan is broad. • enough to encompass all existing and conceivable General Plan elements and thusly can provide the citizen input so necessary for a workable planning program. Recommendations contained in this document will set the direction for the community' s future. The Policy Plan also provides an excellent basis for organizing the Comprehensive General Plan. Its three categories delve into the major components of man 's environment and can readily serve as a framework for the General Plan program. The "Development" section of the Policy Plan deals with urban environment and will include a 30 o Z, NO Ills000 IMPME, MEN Po 014 "0 0, 0 Poo 0 P,01 0 0 FZ'zz", 40 M/1,I�rv, F//////, VON�ff/� "0 o ME wovzp/%.IMM� I o 0 Mol�ol 01, RON' ' ,anFull 0 rx, "oo �A i i Lex, WV L the land use and c-irculatioii elements of the Gener.il H .in . The "I?nvironment and Resources" section i.s concerned wi.t-11 11.1till-al environment and will consist of the open space , recreation , conservation, seismic safety, public safety, scenic highways , and noise elements . Addressing human environment , the "Society and Culture" section consists of the housing element . Additional elements could easily be distributed among these broad categories ; and while some overlap is unavoidable , the emphasis of the organizational pattern is clear. • Growth Policy : While the Policy Plan can supply community values and organizational framework, an overall growth policy is necessary to regulate the perspective- and scale of the Comprehensive General Plan. Derived • from the concepts presented in the Policy Plan, a Growth Policy would provide a logical basis for developing all General Plan elements . Preparation of a Growth. Policy for the City is , in fact , currently underway and will be presented to the Planning Commission in October. Borrowing and adapting an approach established by the County, the Growth Policy concerns three • dimensions of population growth - rate , size, and distribution -- and how they relate to quality of life . :The upcoming Growth Policy statement traces past growth; identifies current Growth Policy; projects future growth through the year 2000 based upon -current policy and the existing Master Plan of Land Use ; derives from the Policy Plan an implied Growth Policy; evaluates current and implied Growth Policy by quality of life criteria from the Policy Plan; and develops an alternative Growth Policy for Huntington Beach. The relationships among Growth Policy, Policy Plan, and General ' Plan elements are illustrated in Figure 5 . 1 . A Place for the Master Plans Earlier it was explained that the Master Plans already adopted would . be incorporated into the new Comprehensive General Plan whenever possible. Many of the latest plans will probably require little more than updating or expansion while some of the oldest will necessitate extensive revision. Figure 5 . 2 diagrams the relation- ship between existing Master Plans and elements of the Comprehensive General Plan mandated by state law. ' As illustrated, not only will Master Plans be combined into new General Plan elements , but the future planning program will consolidate the six compulsory environmental elements in an Environmental Resources Management Program (ERMP) . The ERMP -- which combines open space, conservation, scenic highways , recreation, ' 32 r•. r FIGURE 5 . 1 COMPONENTS OF THE COMPREHENSIVE GENERAL PLAN Z Policy Plan (Quality of Life) Growth Policy [Size , Rate, and Distribution Policy Plan : Policy Plan: Policy Plan : Development Environment �, Society $ Resources Culture S Land Use Element Open Space Element Housing Element Circulation Element Conservation Element Related Elements Related Elements Seismic Safety Element Public Safety Element Scenic Highways Element Noise Element i Related Elements s t s 33 W . FIGURE 5 . 2 RELATIONSHIPS BETWEEN MASTER PLAN AND COMPREHENSIVE GENERAL PLAN ELEMENTS Existing Master Plans Comprehensive General Plan Land Use Land Use E� Non-Structural Blight Land Use/Circulation Element Arterial Streets and /Circulation Highways Open Space Open Space and ConservInterim Open Space Conservation Elementation Parks , Recreation, Open Spaces and Schools Seismic Safety Seismic Safety Safety Element Environmental Recreation Trails Safety Resource Management Noise Program Housing Element : Phase I —'_ \ Scenic Highways _Housing � Mi • ! ! ! • • fib � • seismic safety, safety, and noise considerations -- w.i.11 provide a guiding influence for all future growth and development . Such a program could result eventually in the preparation of specific development plans for resource areas . As a comprehensive eiiviron- mental factors analysis , the ERMP would provide a consistent rationale for evaluating environmental impact, for developing logical growth and resource management strategies , and for making logical land use decisions . • Some Upcoming Projects Many of the changes outlined on the preceding pages have already been initiated, and work is underway in preparing Comprehensive General Plan Elements . Some important on-going projects that will soon be presented by the Planning Department include: Policy Plan Final Report Growth Policy Study Technical Report Growth Policy Study Summary Report • Geotechnical Inputs for the General Plan Report Open. Space Survey and Analysis Report Conservation Survey and Analysis Report .Land Use Element : Alternative Concepts Report Circulation and Transportation Study Report Open Space and Conservation Element : Final Report • Land Use and Circulation Element : Final Report Seismic Safety/Safety Element : Final Report IIousing Element : Final Report Growth Policy : Final Report Though the list is long, it is not meant to suggest that an • exhaustive revamping of planning tools will be accomplished quickly. It does reveal , however, that the goal of a Comprehensive General Plan for the City of Huntington Beach is within reach during the coming months . To facilitate the best possible future for the community, it is essential that the General Plan be completed and applied to daily planning decisions as soon as possible . • Concluding Remarks Just as the city is an ever-changing, vital force so must the planning machinery used to direct it be up to date and flexible . This report has described the new direction the city will embark • upon to bring its planning tools into compliance with state laws and community needs . The reason for this change is obvious : Huntington Beach is now an urban center faced with the composite difficulties of metropolitan life , and dealing with these complicated problems requires the long-range perspective and guidance of a Comprehensive General Plan. Whether or not this • vital document is incorporated as an integral part of the planning • 35 process will depend upon the interest and support received from residents and land owners of the city. It will depend upon government allocation of time, money, and manpower ; and most importantly, it will depend upon the cooperation of all planning actors in concerted efforts to make Huntington Beach a better place in which to live. a • 36 a section 6 appendix 6 IV. GUIDELINES FOR THE GENERAL PLAN ELEMENTS LAND USE ELEMENT 1. AUTHORITY Government Code Section 65302(a) requires a land use element of all city and county general plans, as follows: A land use element which designates the proposed general distri- bution and general location and extent of the uses of the land for housing, business, industry, open space, including agriculture, natural resources, recreation, and enjoyment of scenic beauty, education, public buildings and grounds, solid and liquid waste disposal facilities, and other categories of public and private uses of the land. The land use element shall include a statement of the standards of population density and building intensity recommended for the various districts and other territory covered by the plan. The land use element shall also identify areas covered by the plan which are subject to flooding and shall be reviewed annually with respect to such areas. �. THE SCOPE AND, NATURE OF THE LAND USE ELEMENT A. Identification of land use issues. B. A statement of land use policies and proposals, distinguishing, where appropriate, among short, middle and long-term periods of fulfillment. C. A description of the land uses and land use intensities for the planning i area, including the relationships of such uses to social , environmental and economic goals and objectives. D. The standards and criteria for physical development within each use area with consideration for land capacity. 10 E. A description of the land use pattern, including text and a diagram or other graphic representation such as a map. F. An outline for implementation, including a description of measures necessary to achieve land use objectives and policies and the timing or staging of plan implementation. 3. METHODOLOGY A. Gather and analyze data regarding land use relationships: (1) Social factors and trends, including population and its charac- teristics, growth and institutions; the need for and provision of services; processes of social change. 39 (2) Lconowic factors and trends, including land r.(w,.u1r1ption; economic activities; economic specialization; and the economic condition of the population. (3) Natural physical factors, including: topography, geology, , climate and air quality, hydrology (including areas subject to floodir..g), vegetation and wildlife. (4) Existing land use and circulation, and trends and changes in land use circulation relationships. 1 B. Evaluate land use capacity for development based on physical and social and economic criteria. C. Examine the land use issues and develop appropriate land use policies with the involvement of citizens in the planning area. / D. Develop and define the pattern and categories of land use in consonance with land use policies; test against alternative uses or non-uses. E. Develop standards and criteria for activities and development within land use areas. F. Identify the means of implementation, establish priorities, and, if appropriate, develop staged growth program. 4. DEFINITIONS OF TERMS 1 Land use means the occupation or reservation of land or water area for any human activity or any defined purpose. It also includes use of the air space above the land or water. 1 5. RELATIONSHIPS 1'0 OTHER ELEMENTS In differing degrees all of the elements of the general plan will contain policies or proposals which relate to the land use element. The land use and circulation elements are almost inseparably related. The nature, routing and design of circulation facilities are among the major determinants of the form of human settlement and of the uses of the land. Conversely, land uses create demand for circulation facilities. The safety and seismic safety elements provide information and policies regarding natural and man-made hazards which need to be recognized in the land use element. 1 Together with the open space element, they define lands to be reserved in a natural state and other lands for urban purposes or for production of food, fiber or minerals. Considered along with the conservation element they define criteria and standards and identify programs needed to control the impact of man' s activities on the natural enviror*—nt. 1 1 40 6. 'IMPLEMENTATION A. Specific plans, functional plans, and other special studies leading to • short and intermediate-range implementation programs. B. Control of land development through consistent zoning policies. C. Subdivision ordinances, site development regulations, building code, and housing code; and other local legislation which applies land use • controls to meet local conditions. D. Review of development proposals. E. Review of the capital improvement program. • F. Code enforcement. G. Public acquisition. H. Incentives to the private sector. • I. Public information and education. J. Urban renewal . • • AN • 41 1 CIRCULATION ELEMENT. 1. AUTHORITY 1 Government Code Section 65302(b) requires a circulation element in all city . and county general plans, as follows: A circulation element consisting of the general location and extent of existing and proposed major thoroughfares, transporta 41 - tion routes, terminals and facilities, all correlated with the land use element of the plan. 2. THE SCOPE AND NATURE OF THE CIRCULATION ELEMENT A. Identification and analysis of circulation needs and issues. B. A statement of goals, objectives and policies based on the total circulation needs of the community, including priorities among modes and routes and distinguishing among short, middle and long- term periods of implementation. C. A diagram, map or other graphic representation showing the proposed circulation system. D. A description of the proposed circulation system and the interrelation- ships among system parts. E. Standards and criteria for the location, design, operation and levels of service of circulation facilities. F. A guide to the implementation of the circulation system. 41 3. METHODOLOGY A. Inventory of circulation issues and problems. B. Research and analysis. (1 ) Population, its current and future circulation needs, desires and modal choices; its composition and distribution relating to specific needs, e.g. , transit needs of children and older persons. (2) Community needs, including the need for access and mobility; for legibility and sense of identity; for safety, efficiency and ease; .consideration of the impact of the circulation system on residential livability; consideration of the growth inducing impact of circulation systems. 4 i 1 42 (3) Economic factors: The location, intensity and specialization of economic activities ar,d their required levels and types of services, present inadequacies, and the ability of jurisdictions to finance new or improved services. (4) Physical factors: Consideration to minimize the impact on the environment particularly the soils, hydrology and air quality (see Appendix E regarding the Federal Clean Air Act) . (5) Adequacy of the present circulation system. • C. Develop circulation policies and proposals. D. Evaluate alternative circulation systems. E. Set standards for the coordination, routing, design, operation and • service levels of each circulation mode. F. Establish a time schedule and priorities for implementation of the circulation system. • 4. DEFINITION OF TERMS A. Circulation: For the purposes of these guidelines, circulation is the process whereby people and commodities move in a planning area. Circu- lation may also include the transmission of energy. Circulation may be classified according to what is moved, how it is moved, the channel used, • or-by the ownership of the means of circulation. B. Mode: The particular means or mechanism by which people, commodities, and energy are moved. Circulation or transportation modes include: Land Transportation including: • Transit and rapid transit Railroads Streets and highways Pipelines Nonmotorized (bicycle and pedestrians) Taxis • Air Transportation including: Commercial General aviation Military • Water Transportation including: Harbors (deep draft and small boat) Marine terminals Waterways Terminals and transfer facilities C. Circulation System: The interrelated modes and routes which serve the circulation needs of the planning area. Aft • 43 �. RELATION5111PS OF'IY1E CIRCULATION ELEMENT A. To Other Elements Circulation and land use are closely related elements in the general plan. Circulation facilities must be designed around the plan's pattern of land use. Similarly, the type and intensity of proposed land uses need to be kept in scale with the plan's circulation system. The circulation el.ement is closely related to the scenic highways 41 element, and the local planning agency may wish to consider the simultaneous preparation or combining of these elements. The circulation system is one of the major sources of noise. The circulation system has a direct impact on natural resources, parti- cularly air quality. Factors of safety or seismic safety may affect the location -and design of circulation facilities both in terms of structural safety and the need for evacuation routes. Access by means of the circulation system is a significant factor in the housing element. B. To the Environment: 41 (1 ) Social : The circulation system is a primary determinant of the pattern of human settlement. It has a major impact on the areas and activities which it serves, on community cohesion, and on the quality of human life. The circulation system should be accessible to all segments of the population, parti- cularly the disadvantaged, the young, the poor, the elderly, and the handicapped. (2) Economic: Economic activities normally require circulation for materials, products, ideas or employees, and thus the viability of the community's economy is directly affected by the circulation element. (3) Physical : The circulation system is one of the chief generators of physical settlement patterns, and its location, design and constituent modes has major impacts on air quality, plant and animal habitats, community appearance, and other environmental components. 6. IMPLEMENTATION A. Establish planning liaison with the federal , state and regional agencies concerned with transportation to ensure the coordination of their projects with the policies of the circulation element. B. Designate a local select system of arterial and collector streets to be eligible for State Highway Trust Fund monies. 1 1 44 • C. Investigate the use of grant funds from regional , state and federal agencies such as the Department of Transportation, and the Department of Housing and Urban Development for the provision- of' specialized circulation facilities such as mass transit, hiking, biking and riding trails, and scenic highways. D. Designate rights of ways in advance of development and encourage and require dedication of streets, paths and trails as part of the land development process. * E. Establish special assessment districts for street improvements, construction of bridges, provision of public transit or parking, etc. E. Acquire rights-of-way and easements and directly construct improvements using local sources of funds. • • • • • • 0 45 HOUSING ELEMENT* J. A T11ORI TY 1 Government Code Section 65302(c) requires a housing element of all city and county qeneral plans, as follows: A housing element, to be developed pursuant to regulations 1 established under Section 37041 of the Health and Safety Code, consisting of standards and plans for the improvement of housing and for provision of adequate sites for housing. This element of the plan shall make adequate provision for the housing needs of all economic segments of the community. 1 2. THE SCOPE AND NATURE OF THE HOUSTI.VO ELEMENT— Goals ._ Goals At least four broad goals of a housing element have been identified. The goals listed below may be expanded to include others of local concern and impact. A. To promote and insure the provision of adequate housing for all persons regardless of income, age, race, or ethnic background. 1 B. To promote and insure the provision of housing selection by location, type, price, and tenure. C. To promote and insure open and free choice of housing for all . 1 D. To act as a guide for municipal decisions and how these decisions affect the quality of the housing stock and inventory. .s. METFODOLOC.Y A. Problem The scope of the housing problem, although generally accepted as crit- ical or severe, must be documented for each jurisdiction. The first four categories below each define a specific area of concern. The last category (5) identifies specific need and is used to further determine *Adopted by the Commission of Housing and' Community Development on June 17, 1971 and edited for CIR on September 20, 1973. 1 46 1 : obstacles and to prepare the housing work program. (1 ) Inventory of Existing Units, For Example Unit Size Number of Rooms Unit Type Single, Multiple Density Units per Acre Ownership Rental , Homeowner, Abandoned Rent Monthly Rent . Condition Standard, Substandard Location Census District, Assessor Parcel Neighborhood Surrounding Area Public Facilities Water/sewer, Schools, Other Services (2) Inventory of Potential Units, For Example Rehabilitation Code enforcement project and/or supply of units that can be con- served or rehabilitated Special Projects Funded projects under any financial . • method which will add to the housing stock or remove units Housing Authority Applications made for additional units and estimate of funding level • Redevelopment Agency Units removed as-a decrease, and replacement housing to be created as an increase in units (3) Inventory of Existing Sites_, For Example • Vacant Land Suitable for single or multiple dwelling regardless of zoning Potential Adequacy Water, Sewer, Drainage: availability, of Public Facilities cost, nearness to employment, and shopping • Redevelopment Land to be made available through the Redevelopment Agency Environmental Density, open space, air quality, Considerations wooded or recreation land, seismic • quality, and noise pollution • • 47 '4) Population Characteristics The 1970 Census provides much of the following data. It will then become a continuing process to keep it current by integrating new data. Income Household, using census definitions Family Composition Type of head of household, size, ages • Location of Travel from place of residence Employment Race Census Classification (5) Need • Current: by type, size, price, and location. Projected: by type, size, price, and location, using.projections for several years. B. Obstacles The following represent real or potential obstructions which impede attaining the objectives of the housing plan. Political Voter approval • Local governmental approval Neighborhood opposition Schools Real estate and building industry opposition High-rise structure opposition • Discrimination: race, sex, family size, and economic Economic Land cost Tax structures (property-income) Allocation of state and federal • funds Risk vs. return on capital Seed money Increasing construction costs Interest rates • Employment Location Distance traveled, permanent, temporary Aft MOM j • 48 Institutional or Sponsor or developer interest Governmental Processing time - start to finish Building Codes outdated • Union restrictions Zoning Physical Land availability Availability of public services Much of the above, as well as others which may apply to your area, should be analyzed and approached in the housing plan to follow. An honest appraisal at this point can save time and effort when imple- menting the housing plan. C. Intergovernmental, Coordination • Involvement of all local jurisdictions in the housing element planning process is necessary. There should be an ongoing plan to continue in- tergovernmental coordination efforts. (1) A housing element should be prepared by a planning • entity whose jurisdiction incorporates a housing market. (2) Major metropolitan areas require a regional or multi-county approach. In some instances , .a single county will cover a housing market. Cities that comprise part of a housing market should jointly prepare housing elements with the county. (3) Counties that .are situated in' a multi-county housing market should prepare and adopt a housing element based upon and withirn the context of a • regional housing element. (4) In order to avoid irreconcilable differences between the regional and/or county housing plans, the cities and counties within a region should make significant inputs into the regional plan • process. (5) There is a need for "city to city" and "county to county" coordination and cooperation to share the responsibility for housing all segments of the population. D. Interagency Coordination Coordination of plans of local public and quasi public bodies, state and federal agencies which have a local impact, as well as regional regulatory bodies is essential . 1 • 49 1 E. Citizen Participation This is one of the most important of all aspects in the development of a housing element: the direct involvement of a cross section of the citizenry in the planning process. The goals and plat,: must be generated 1 through citizen advisers. A broadly based, cowuanitywidc consumer- producer committee or organization can provide positive input if free of political pressure and harassment. Upon acceptance of,a draft of the proposed housing element, the planning body shall hold hearings to receive input and comment from those not a part of the advisory committee 1 4. �I'L''iIT IO�J OF TERMS Housing Market: A housing market is. a geographical area within which housing activity in one area`-ffects housing activity in another geographic area. In r..ality, the largest; housing market area would be a series of smaller overlapping housing 1 market - small or large - there are trade definitions of submarkets (singla Family, m�.ait;i •family, condominium market areas, etc. ) and also economic. definitions (low- moderate income housing markets) . Consideration of these are necessary in housing element planning. Intergovern- mental coordination of local jurisdictions in a housing 1 mrket-_is—s.ii'tical (see Page IV-11 , 3-C Intergovernmental . Coordination). A study of a particular housing market involves detailed research on types of structures, i.e. , single family, multi-family, mobilehomes, etc. , occupan�:y.characteristics, vacancy rates, area growth rates, tenure preferences and 1 characteristics and other economic and demographic data. TO ")MAW J'!,/1/J 1'Id"MI-"l'/';; A housing element cannot advocate. foals and plans that are foreign to the other general plan elements. A si;ple statement made in the form of an objective to be accomplished through the housing plan may well imply policy determination in other general plan elements. Housing implies people, and people require services; therefore, other general plan elements must be reviewed and any inconsistencies or incompatibilities resolved. Among the more important elements which need to be closely correlated with the housing element are: Land Use Open Space Circulation Conservation Noise Seismic Safety A. The Housing Pro ram The objectives recommended by the advisory committee should become the housing program. Long range and short range objectives should be SO B JF stated in terms of identified need and obstacles to^ overcome. Each objective should be defined in three parts. ( 1 ) Objectives: a. Specific Item - What is to be accomplished by this objective. b. Involvement - Who and/or what groups are to participate and', therefore, become jointly responsible for achievement of the objective. i ! c. Time Frame - Establish- a time framework� to reach the objective and identify landmarks to indicate progress. (2) Alternatives: It is obvious that there may be several paths to the achievement of the objective of a specific item within a specific time frame. The time available may be the reason for selecting one plan over another; however, as time passes alternates should be considered if the prior methods selected are not fully successful . B. Review and Update • (1) Continuing Housing Data Internal Departments. Within each city and county there is a building, housing, community development, or planning department • responsible for issuing building permits , demolition permits , inspection, and other services. That department should be the central source of housing data relating to construction, demolition and rehabilitation. This data, along with information on proposed projects, can be used to update the housing element. We encourage accurate building activity records which can serve to assist the other levels of government to analyze housing needs. City-County-Region-State-Federal . The data required for preparation of a housing element, once assembled, can be used for many purposes. The regional planning agency, the market analysis and forecasts are users of this data. Consumers - Producers. The consumer as well as the producer has the right to know both the current status of housing conditions and programs and plans for the future. A county/city housing element which includes an ongoing information system should supply that need. (2) Annual Citizen Review - Biennial Update The citizen advisers that helped prepare the goals and programs should review on an annual basis the progress toward achieving the objectives, easing of obstacles , and select alternatives if necessary. In addition, a two-year printed update to document changes and progress • and reflect new plans is necessary. This function is performed not only by the planning body, but by those affected by the resulting programs.. • 51 (3) State Department of Housing and Community Development Comment_ on Housing Element and Update It is requested that the draft and final housing element, as adopted, be sent to the Department of Housing and Community Development for review and comment to insure compliance with the mandate contained in the law, and to further allow inte- gration of the data into the State housing element as an ongoing :,function of the department. ! The biennial update will be reviewed by the State Department of Housing and Community Development to determine progress toward achieving the objectives in the housing plan and, in addition, determine areas of needed legislation and provide. a continuing source of housing information for the State. • • • • i I • I 52 � ! CONSERVATION ELEMENT Government Code Section 65302(d) requires a conservation element of all city and county general plans, as follows: A conservation element for the conservation, development, and . utilization of natural resources including water and its hydraulic force, forests, soils, rivers and other waters, harbors, fisheries, wildlife, minerals, and other natural resources. That portion of the conservation element including waters shall be developed in coordination with any county-wide water agency and with all district and city water agencies which have developed, served, controlled . or conserved water .for any purpose for the county or city for which the plan is prepared. The conservation element may also cover: (a) The reclamation of land and waters. (b) Flood control . (c) Prevention and control of the pollution of streams and other waters. (d) Regulation of the use of land in stream channels and other areas required for the accomplishment of the con- servation plan. (e) Prevention, control and correction of the erosion of soils, beaches and shores. (f) Protection of watersheds. (g) The location, quantity and quality of the rock, sand, and gravel resources. >. '.1E 'OPE AND NATURE Of THE CONSERVATION ELEIAENT The conservation element requires an appraisal of the communities' natural resources and the development of policy for their preservation or wise utilization. Not all communities have forests or fisheries and thus not all the subject matter applies. However, all communities have water relationships and need to evaluate ongoing development which affects the supply and utilization of this resource. • A. Identification, evaluation, and analysis of the communities' natural resources: —" (1 ) Water resources: Source and availability of water, flood contro , water pollution, control of erosion, drainage systems, protection of watersheds, weather and climate . (study of water resources and consequent policies should be coordinated with all water agencies in the planning area). , • 53 4' • (2) Vegetative resources: Forests, agricultural areas, water- shed areas , marshes; in urban areas this could encompass street trees, parks and other urban vegetation. (3) Harbors and Fisheries. (4) Wildlife, with particular concern toward endangered species. (5) Minerals: (Note Appendix D, suggested guide for this subsection by the Division of Mines and Geology. ) (6) Soils and soil erosion. (7) Other natural resources such as air. B. Analysis of relationships between resources; identification of areas of critical concern. C. Determination of the development capacity of various. land areas within the planning area with the aim of conserving natural resources, minimizing ecologic disruption and directing development; to lands where such impact � will be negligible. D. Standards and criteria for conservation and utilization of identified resources. E. Program for implementation including priorities. 3. METHODOLOGY A. Inventory, analysis and description (including appropriate maps) of the natural resources and natural processes within the planning area. B. Analysis of the relationships between conservation and development. C. Formulation, with the active involvement of citizen groups, of goals, objectives, policies and priorities with special attention to unique, endangered or critical resources. D. Formulation of criteria and standards for conservation, development and utilization of resources based on goals and objectives. 4. DATINTITON OF TERM. Conservation is the planned management, preparation and wise utilization of natural resources. The objective of conservation is to prevent the wasteful exploitation, destruction or neglect of these resources. The local conserva- tion planning process and program should acknowledge and detail the environ- mental processes relevant to the jurisdiction. AM EMMM 54 b. lils'LATIOPu'S11IPS oF Y'111Z c;ONSErV/1.'I1ON ELEMENT A. To Other Elements : The conservation element provides a major policy input into the land use and circulation elements. Its concerns relate directly, and in fact overlap many of the concerns of the open space, seismic safety and scenic highways elements. For this reason, many communities may wish to combine these elements into a comprehensive environmental resource and management element (ERME). B. To the Environment: The conservation element or ERME can provide the major data and policy baseline necessary to analyze the impact of environmental proposals. 6. IMPLEMENTATION • A. Zoning: Flood plain zoning, open space zoning. B. Subdivision controls, grading ordinances, hillside ordinances. C. Acquisition of significant natural areas. • D. Capital improvements for water quality control . E. Regulations for mineral extraction, regulations to control water quality. • F. Corrective programs where action is needed to correct or reverse conditions causing environmental damage. These may be public, private or joint public-private programs. Actions to remedy erosion through special planting, reforestation, retention basins to prevent siltation, fish ladders, special protection for endangered species • are but a few examples. G. Education and information. Afflhk • • • 55 - - - -- - OPEN SPACE ELEP OT J 1. AYTHORITY , I Government Code Section 65302(e) and 65560 et seq. requires an open space element in all city and county general plans. Section 65563: On or before December 31 , 1973 every city and county shall DrFDare. a adopt, and submit to the Secretary of the Resources Agency a. local open space plan for the comprehensive and long-range preservation and conservation of open space land withir; its jurisdiction. Section 65562: It is the intent of the Legislature in enacting this article: (a) To assure that cities and counties recognize that open-space land is a limited and valuable resource which must be conserved wherever possible. (b) To assure that every city and county will prepare and carry out open-space plans which, along with state and regional open-space -plans, will accomplish the objectives of a comprehensive open-space program. (Added by Stats. 1970, c. 1590, p. 3316, Section 15) Section 65561 : The Legislature finds and decll--:res as follows: (a) That the preservations of open space land, as defined in this article, is necessary not only for the main- tenance of the economy of the State, but also for the assurance of the continued availability of land for the production of food and fiber, for the enjoyment of scenic beauty, for recreation and for the use of natural resources. (b) That discouraging premature and unnecessary conver- sion of open space land to urban uses is a matter of public interest and will be of benefit to urban dwellers because it-will discourage noncontiguous development patterns which unnecessarily increase the costs of community services to community residents. (c) That the anticipated increase in the population of the State demands that cities, counties, and the State at the earliest possible date make definite plans for the preservation of valuable open space land and take positive action to carry out such 56 plans by the adoption and strict administration of laws, ordinances, rules and regulations as authorized. w by this chapter or by other appropriate methods. (d) That in order to assure that the interests of all its people are met in the orderly growth and development of the State and the preservation and conservation of its resources , it is necessary.to provide for the development by the State, regional agencies, counties and cities, including charter cities, of statewide coordinated plans for the conservation and preservation of open space lands. (e) That for these reasons this article is necessary for the promotion of the general welfare and for the pro- tection of the public interest in open space land. • (Added by Stats. 1970, c. 1590, p. 3315, Section 15) ' 2. . SCOPE AND DEFINITIONS Open space uses are defined in Section 65560, as follows: • (1 ) Open space for th6 preservation of natural resources including, but not limited to, areas required for the preservation of plant and animal life, including habi:at for fish and wildlife species; areas required for the ecologic and other scientific study pur- poses; rivers, streams, bays and estuaries; and coastal beaches, • lakeshores, banks of rivers and streams , and watershed lands. (2) Open space used for the managed production of resources, in- eluding but not limite to, forest lands, rangeland, agricultural lands and areas of econom c importance for the production of food or fiber; areas required nor recharge of ground water basins; • bays , estuaries, marshes, rivers and streams which are important for the management of commercial fisheries; and areas containing major mineral deposits, including those in short supply. (3) Open space for outdoor recreation, including but not limited to, areas of outstanding scenic, historic and cultural value; areas particularly suited for park and recreation purposes , in- cluding access to lakeshores, beaches , and rivers and streams ; and areas which serve as links between major recreation and open-space reservations , including utility easements , banks of rivers and streams, trails, and scenic highway corridors. • (4) Open si:►,we for_j)ubl i c health and safety, including but not limited to, areas which require special management or regu- lation because of hazardous or special conditions such as earthquake fault zones , unstable soil areas, flood plains, watersheds, areas presenting high fire risks, areas required AtIft • 57 for the protection of water quality and water reservoirs and areas required for the protection and enhancement of air quality. An additional category that may be considered is the designation of areas , necessary to control urban form and prevent inefficient patterns of devel - opment. Section 65561 (b) speaks to the benefits of open space that "will discourage noncontiguous development patterns which unnecessarily increase the costs of community services to community residents. " To channel urban growth either within already built-up areas or immediately adjacent to them may require time-phased plans. Such plans will benefit from studies , to evaluate the costs to the community of permitting scattered development as opposed to timed development based on the need for additional land. ' Economic studies are useful to determine the overall costs to communities of preserving open space versus permitting its development. Recent studies such as the Palo Alto Foothills Environmental Design Study have indicated that it may be economically more desirable for a city to preserve open , space than to permit its development. Specifically, the open space element may include: A. Analysis of open space areas; B. Open space policies and objectives; C. Standards and criteria for the preservation of open space; D. Definition of local open space categories; E. Description in text and diagram of areas designated for permanent open space and method of preservation; F. Action program for implementation (Section 65564) including the preparation of an open space zoning ordinance (required by December 31 , 1973, Section 65910). !-ETHODOLOGY A. Inventory and analysis of open space areas, analysis of environmental data relating to open space. -41 B. Analysis of community needs for open space for recreation, for health and safety. C. Analysis of urbanization and land needs for projected future urhanization. D. Definition of open space land use categories. Local comnunit.ie-; may specify more detailed open space categories' than those outlined in the law to meet local conditions. For example, lands might he categorized 58 according to topography such as hillsides , marshlands, coastline, stream corridors , etc. The community might then make specific land use regulations for each category. E. Citizen involvement in open space planning is vital at all stages. Citizen groups organized around open space and environmental issues ofter. .have thorough knowledge of specific aspects of the local -natural envirbnment. Additionally, they may provide-private resources for the implementation of open space plans as' well as the local support necessary in open space preservation. F. Development of open space plan and policies . G. Designation and description of proposed areas to remain open; the basis for their designation; the timing of the designation, i .e. , whether permanent or reserved for future development. • H. Preparation of an action program for implementation. RELATIONSHIP TO OTHER ELEMENTS • The open space element is a primary tool for the protection of the communities' natural environment, providing critical input into the preparation of the land use and circulation elements. The seismic safety, conservation, and scenic highways element provide direct input to this element and for this reason the community may wish to combine these elements into an environmental resource and management element (ERME) . • 5. IMPLEMENTATION A. Approval of development -based on consistency with the open space plan. Section 65567 states : • No building permit may be issued, no subdivision map approved, and no open space zoning ordinance adopted, unless the proposed construction, subdivision or ordinance is consistent with the local open space plan. • B. Preparation and adoption of an "open space zoning ordinance" icy December 31 , 1973 as required by Section 65910. Several thorough guides to the implementation of open space plans have been written and should be consulted (see Bibliography) for more specific quidancp regarding the following implementation actions: C. Regulations: Zoning ordinances, subdivision ordinances, with open space land dedications and other development conditions , density transfers and planned unit development, special land management zones. • i • 59 0. Open space reserves under the Williamson Act. E. Acquisition. F. Scenic easements and the purchase of development rights G. Controlled growth policies and regulations. XMIL 60 1 , SEISMIC SAFETY ELEMENT nZITHORITY A. Authority Government Code Section 65302(f) requires a seismic safety element of all city and county general plans, as follows: r A seismic safety element consisting of an identification and appraisal of seismic hazards such as susceptibility to surface ruptures from faulting, to ground shaking, to ground failures, or to the effects of seismically induced waves such as tsunamis and seiches. The seismic safety element shall also include an appraisal of mudslides, landslides, and slope stability as necessary geologic hazards that must be considered simultaneously with other hazards such as possible surface ruptures from faulting, ground shaking, ground failure and seismically induced waves. The effect of this section is to require cities and counties to take seismic hazards ' into account in their planning programs. All seismic hazards need to be considered, even though only ground and water effects are given as specific examples. The basic objective is to reduce loss of life, injuries, damage to property, and economic and social .dislocations resulting from future earthquakes. B. Background Earthquake losses in California through the remainder of this century, assuming that additional significant counter-measures are not taken, have recently been estimated at approximately $20 billion (Urban Geology Master Plan, California Division of Mines and Geology) . Estimates of potential loss of life for this period range well up into the thousands and most of this loss is preventable. The most widespread effect of an earthquake is ground shaking. This is also usually (but not always) the greatest cause of damage. Structures of all types, including engineered structures and public utility facilities , if inadequately constructed or designed to withstand the shaking force, may suffer severe damage or collapse. The vast majority of deaths during earthquakes are the result of structural failure due to ground shaking. Most such deaths are preventable, even with present knowledge. New construction can and should be designed and built to withstand probable shaking without collapse. The greatest existing hazard in the State is the continued use of tens of thousands of older structures incapable of withstanding earthquake forces. Knowledge of earthquake-resistant design and construction has increased greatly in recent years, though much remains to be learned. ALJIRJL 61 • A second effect of earthquakes is 2notTd failure in the form of land- slides , rock falls , subsidence and other surface and near-surface ground movements. This is often the result of complete loss of strength of water-saturated sub-surface foundation soils ( "liquefaction") , such as occurred near the Juvenile Hall in the 1971 San Fernando • earthquake, and in the massive Turnagain Arm landslide in Anchorage, during the 1964 Alaska earthquake. Most such hazardous sites can be either avoided or stabilized if adequate geologic and soil investigations are utilized. Another damaging effect of earthquakes is _qround displacement (surface • rupture) along faults. Such displacement of the earth's crust may be vertical , horizontal or both and may offset- the ground by as much as 30• feet (as in 1857 in Southern California) . It is not economically feasible to design and build foundations of structures (dams , buildings , bridges , etc. ) to remain intact across such zones. Fault zones subject to displacement are best avoided in construction. In addition to regional investigations necessary to the basic understanding of faults and their histories, detailed site investigations are needed prior to the approval of construction in any suspected active fault zone. Utilities, roads ,. canals and other linear futures are particularly vulnerable to damage as the result of ground displacement. • Other damaging effects of earthquakes include tsunamis (seismic sea waves , often called "tidal waves") , such as th.e one which struck Crescent City and other coastal areas in 1964; ,,and seiches (waves in lakes and reservoirs due to tilting or displacement of the bottom or margin) . The failure of dams due to shaking, fault displacement or overtopping (from seichF or . massive landsliding into the reservoir) can be particularly disastrous. Most modern dams are. designed and constructed to be earthquake-resistant; some older dams were not. In addition to man-made dams, temporary darns may be created by earthquake-triggered landslides. Such inadvertently created dams are certain to fail within a relatively short time. TFl r .COPE AND NATURE OF THE SEISMIC SAFETY ELANENT � A. A general policy statement that: 1 . Recognizes seismic hazards and their possible effect on the community. 2. Identifies general goals for reducing seismic risk. 48 3. Specifies the level or nature of acceptable risk to life and property (see safety element guidelines for the concept of "acceptable risk") . 4- Specifies seismic safety objectives for land rise. 5. Specifies objectives for reducing seismic hazard as related to existing and new structures. D. Identification, delineation and evaluation of natural seismic hazards. C. Consideration of existing structural hazards. Generally, existing substandard structures of all kinds (including substandard dams and public utility facilities) pose the greatest hazard to a community. 62 D. Evaluation of disaster planning program For near-term earthquakes, the most immediately useful thing that a community can do is to plan and prepare to respond to and recover from an earthquake as quickly and effectively as possible, given the existing condition of the area. The seismic safety element can ' provide guidance in disaster planning. r E. Determination of specific land use standards related to level of hazard ani risk. As an initial step, it may be helpful to detr_rmine what aspects of the element need greater emphasis. If a community is largely developed, emphasis on struc- tural hazards and disaster planning would be most appropriate. This would also be the ca_,e for communities whose greatest hazard will be from ground s!-,aking. On the other hand, communities with extensive open areas and areas subject to ;urbanization may wish to focus on natural seismic hazards and the formulation of land use policies and development regulations to insure that new devr�'Iopment is not hazardous. • Addit ;onally, local planning agencies may wish to consider the preparation of the element or portions of the element in joint action. This would be. particularly practical for the study of natural seismic hazards . A. Initial organization (1 ) Focus on formulating and adopting interim policy based on very general evaluation of earth science information readily available. (2) Evaluate adequacy. of existing information in relation to the identi- fied range and severity of problems. (3) Define specific nature and magnitude of work program needed to complete the element in a second stage. B. Identification of natural seismic hazards - 0 ) General structural geology and geologic history. (2) Location of all active or potentially active faults, with evaluation regarding past displacement and probability of future movement. (3) Evaluation of slope stability, soils subject to liquefaction and differential subsidence. (4) Assessment of potential for the occurrence and severity of damaging ground shaking and amplifying effects of unconsolidated materials. (5) Identification of areas subject to seiches and tsunamis . . (6) Maps identifying location of the above characteristics. C. Identification and evaluation of present land use and circulation patterns should. be recognized in the formulation of seismic safety-land use policies. D. Identification and evaluation of structural hazards relating structural characteristics , type of occupancy and geologic characteristics in ord(,r to formulate policies and programs to reduce structural hazard. A!Wk 63 i t � E. Formulation of seismic safety policies and recommendations. F. Formulation of an implementation program. OF _TEP141,13 A. Acceptable risk: The level of risk below which no specific action by local government is deemed necessary, other than making the risk known. • Unacceptable risk: Level of risk above which specific action by government is deemed necessary to protect life and property. Avoidable risk: Risk not necessary to take because the individual • or public goals can be achieved at the same or less total "cost" by other means without taking the risk. B. Technical Terminology: Tsunamis: Earthquake-induced ocean waves , commonly referred to as tidal waves. Seiches: Earthquake-induced waves in lakes or ponds. Seismic: Pertaining to or caused by earthquake. Soil Liquefaction: Change of water saturated cohesionless soil to • liquid, usually from intense ground shaking; soil loses all strength. Tectonic forms, forces, and movements resulting from deformation of the earth s .crust: Movement may be rapid resulting in eart qua e, or slow (tectonic creep) . • Fault: A plane or surface in earth materials along which failure has occurred and materials on opposite sides have moved relative to one another in response to the accumulation of stress in the rocks. 48 Active Fault: A fault that has moved in recent geologic time and which is likely to move again in the relatively near future. (For geologic purposes, there are no precise limits to recency of movement or probable future movement that define an "active fault". Definitions for planning purposes extend on the order of 10,000 years or more back and 100 years or more forward. The exact time limits for planning purposes are usually defined in relation to contemplated uses and structures. ) Inactive Fault: A fault which shows no evidence of movement in recent geologic time and no evidence of potential movement in the relatively near future. IVAN, 64 Seismic Hazards: Hazards related to seismic or earthquake activity. Ground Failures : Include mudslide, landslide, li(luefaction, subsidence. Surface. ru tures from faulting: Breaks in the ground surface resulting from fault movement. 5. i'F:'�yi 10,11SHI) • A. To Other Elements: The seismic safety element contributes information on the comparative safety of using lands for various purposes , types of structures , and occupancies. It provides primary policy inputs -to the land use, housing, open space, circulation and safety elements. , r Because of the close relationship with the safety element the local planning agency may wish to prepare these two elements simultaneously or combine the two elements into q single document. If combined, the required content and policies of Bach element should be clearly identifiable. The local jurisdiction may wish to include the seismic safety element as a part of an environmental resources management element - ERME - as discussed previously. B. To Environmental Factors: (1 ) Physical : Geologic hazards can be a prime determinant of land use capability. (2) Social : May provide basis of evaluating costs of social disruptions , including the possible loss of life due to earthquake and identifies means of mitigating social impact. (3) Economic: Cost and benefits of using or not using various areas related to potential damage or cost of overcoming hazard. (4) Environmental Impact Report: Provides basis for evaluating environ- mental impact of proposed projects in relation to slope stability, possible structure failure, etc. C. To Other Agencies: The State Geologist is required by Chapter 7.5, Division 2 of the Public Resources Code to delineate by December 31 , 1973, special studies zones encompassing certain areas of earthquake hazard on maps and to submit such maps to affected cities , counties, and state agencies for review and. comments. By December 31 , 1973, the Division of Mines and Geology will have delineated the special studies zones encompassing all potentially and 65 i recently active traces of the San Andreas ; Hayward, and San Jacinto faults. The special studies zones will b,, delineated on' U.S. Geological Survey quadrangle sheets. The listed in Appendix F will be included in the initial distribution whicir will begin on or about October 1 , 1973, and be completed by Decerrl) r 31 , 197.1. In addition to the faults named above, all active or poten". .j1ly active faults within the quadrangles listed will be zoned. Thu inns-s arN ordinarily about one-quarter mile in width. The State Mining and Geology Board is requirf!d by Chapter 7.5, Division 2 of the Public Resources Code to develop policies and criteria by December 31 , 1973, concerning real estate developments or structures to be built within the special studies zones. Gr,r.ENTATION � A. Concurrent or subsequent revision of other general plan elements to give specific recognition to seismic safety .::sic Gs and criteria. B. Inclusion of appropriate requirements and procedures in zoning, sub- division and site development regulations and building codes. esignation of special zones with special land development regulations such as "seismic hazards management zones". C. Preparation of renewal plans for areas where a change in use and devel- opment pattern is necessary because of major se;:mic damage or extreme hazard. D. Building inspection program to identify unsafe structures and instigate necessary corrective measures. E. Inclusion of potential earthquake destruction in contingency plans for major disasters and emergencies. Review and liaison with Emergency Preparedness Organizations and Police Departments of overall plans and major public facilities proposals as to their adequacy in emergency . situations. F. Educational programs to develop community awareness of seismic hazards. G. Updating the building code to reflect changes in technology. NOTE: These guidelines drew extensively from: Su ested [nterim Guidelines for the Seismic Safety Element in General Plans, prepared by the Governor's art n-taaTce' Council Draft Guidelines for the Seismic Safet Element, Prepared by AdviSrrry Group -on—Land Use Planning for Joint Committer on Safe: .v, California State Legislature, September, 1972. Seismic Safe_y Concerns in CIR/OIM Program_ prepared for William Spangie & Associates, March W,?. unpublished. 66 NOISE ELEMENT 1. AUl'HORITY Government Code Section 65302(g) reouires a noise element of all city and county general plans, as follows: A noise element in quantitative, numerical terms, showing contours of present and projected noise levels associated with all existing and proposed major transportation elements. These include but are not limited to the following: (1 ) Highways and freeways . (2) Ground rapid transit systems (3) Ground facilities associated with all airports operating under a permit from the State Department of Aeronautics. . These noise contours may be expressed in any standard acousti- cal scale which includes both the magnitude to noise and frequency of its occurrence. The recommended scale is sound level A, as measured with A-weighting network of a standard sound level meter, with corrections added for the time duration per event and the total number of events per 24-hour period. Noise contours shall be shown in minimum increments of five decibels and shall be continued down to 65 db(A) . For regions involving' hospitals, rest homes, long-term medical or mental care, or outdoor recreational areas, the contours shall be continued down to 45 db(A). Conclusions regarding appropriate site or route selection alternatives or noise impact upon compatible land uses shall be included in the general plan. The state, local , or private agency responsible for the construction or maintenance of such transportation facilities shall provide to the local agency producing the general plan, a statement of the present and projected noise levels of the facility, and any information that was used in the development of such levels. THE; SCOPE AND NATURE OF THE NOISE ELEMENT A. A statement of general policy indicating the local jurisdiction's general intentions regarding noise and noise sources in the community. i 67 D. f r-Jred maximum noise levels b,y land use catognrip', . C. Standards and criteria for noise 'emissions frr;1 ti-ar. on I facilities. (It should be noted that control of some noise sources has been pre-empted by State and Federal q .v_,rnments. ) D. Standards and criteria for compatible noise levels for local ' fixed-point' noise sources. E. Guide to implementation. F. Appendix describing methodology of preparation and sources of data. � !, ,�iOD LOGY A. Preliminary identification of problem noise areas. B. Collect data on existing and proposed transportation noise sources. Such transportation noise data is to be pro v-'�dedi by the agency con- structing and operating the facilities. Such data may be expressed in the acoustical scale recommended in Section 65302(g) , or any professionally acceptable acoustical scale used consistently through- out the preparation of the noise element. C. Collect data on general noise levels throughout the community related to types of use. In collecting data, the differences among kinds of noises should be recognized. The impact of noise on the individual varies with its frequency, pitch, duration and cyclic consistency; the presence of masking noises in the environment; and the sound' s familiar i ty. D. Review information from published sources regarding effects of noise on people' s activities, health and well being. E. Establish committees or other procedures for developing citizen input and awareness of problems, issues and opportunities. F. Survey noise control regulations from other ,jurisdictions giving special attention to regulations from jurisdictions with- character- istics similar to the local community. G'. Formulate general policy statements responsive to local issues and problems. H. Prepare standards and criteria relating noise levels to types of use and environmental factors. I. Set measurable goals for the reduction of noise in problem areas. 68 9. Uls'i'INITION OP TERM"' Sound intensity: A measure of the loudness of sound. Noise contour: A line on passing through points where the same sound intensity level prevails. Contours form bands of varying width emanating from a noise source. Decibel : A unit for measuring the relative loudness of sounds • detectable by the human ear. �TIONSH CP OF THE NOISE ELEMENT A. To other elements: • The noise element is related most closely to the circulation, land use and housing elements, since it provides noise level standards related to the compatibility of land use, of which residential use will be a highly important component. Noise level standards thus can be the decisive factor in locating transportation facilities (or their design) in relation to existing or planned land use. Consideration should be given to the adverse effects of noise on activities taking place both in the out-of-doors and in structures not insulated against sound. The noise element is also closely related to the open space element since noise can adversely affect the enjoyment of quiet pursuits in open space. Conversely, open space can' be employed to buffer noise sources from sensitive uses through distance and extensive tree planting. B. To environmental impact questions: Social : Excessive noise is socially disruptive, and may be physically and psychologically damaging. Economic: Excessive noise adversely affects property values and levels of productivity. In the past the costs of excessive noise from trans- portation facilities have been passed on to those in the vicinity rather than being borne by the producer of the noise. C. To other agencies: . The law requires state, local or private agencies responsible for the construction and maintenance of major transportation facilities, provide present and projected noise levels for their facilities. This includes (but is not limited to) : State Department of Transportation Regional Transit Authorities J Local Public Works Departments " Rapid Transit Districts Airport Ground Facilities Private Air Carriers Private Freight Carriers Railroad Companies Run MIMM MAN • 69 + . IMPLEMENTATION A. Noise ordinances and regulations. The zoning ordinance may be utilized since it can vary levels of permissible noise by zoning district-relating noise level to type of use and situation: B. Maintain liaison with transportation agencies regarding reduction in noise from existing facilities and control of noise through design and location and new facilities. C. Revise other elements of general plan as appropriate to give rec- ognition to noise level/land use relationships and other relevant matters. Revise circulation element to divert through traffic from residential streets. D. Revise building code to reduce noise transmission in or from building and provide for additional sound insulating in high noise areas. E. Liaison with. health departments in the preparation of standards and ordinances and for assistance in on-site measurements of noise level . F. Construct sound barriers, particularly surrounding noise intoler- ant areas such as between residential areas and freeways. .1 1 I i 70 1 SCENIC HIGHWAYS ELEMENT ' '!v;I,i;i;'r Government Code Section 65302(h) requires a scenic highways element of all city and county general plans, as follows: The plan shall include a "scenic highway element for the development, establishment, end protection of scenic highways pursuant to the provisions of Article 2.5' (commencing with Section 260) of Chapter 2 of Division 1 of the Streets and Highways Code." SCOFE- AND NATURE OF THE SCENIC HIGHWAYS ELEMENT This element provides for the local planning for official and unofficial scenic - highways. Official scenic highways are so designated by the State Scenic High- way Advisory Committee after plans have been adopted and submitted by the local jurisdiction. Highways eligible for such designation are listed in the Streets and Highways Code Section 263. Official County Scenic Highways are also designated by the State Scenic Highway Advisory Committee upon application -From the local jurisdiction. Standards for official designation of scenic highway rest on the analysis, planning and protection of the scenic corridor through which the highway traverses The Department of Transportation has prepared a guide on official scenic highway designation which is available at their local district offices. The scenic highways element is the initial step leading toward the official designation as a scenic highway. As such, the element provides the basis for the preparation of specific scenic corridor plans. The element is not a scenic highway corridor study, but rather provides the basis for scenic corridor studies by the Department of Transportation or by the local jurisdiction. For cities and counties in which a scenic corridor study has been completed, the element may be a more specific plan or set of policies to protect and enhance the scenic corridor. Although the emphasis of the scenic highway element is on the designation of state highway routes as "scenic" routes, this does not preclude local_ agencies from developing and adopting local scenic routes. A. Identification and evaluation of scenic corridors in the planning area, consideration of special features such as entryways, river or bay front highways, park drives, and similar important natural or landscaped and beautified arterials. Inclusion of a bikeway system within the scenic a highway corridor may be considered. B. Statement of policy with diagram-map indicating the communities scenic highway system and the routes therein. C. Guide to implementation measures. 71 10, A. Identification and analysis of scenic resources in the vicinity of streets and highways particularly those routes eligible for official scenic route designation. B. Identification of scenic corridors. C. Development of policies and programs to enhance and protect the scenic corridors. D. Consultation with the District Director of Transportation for assistance in initial corridor survey and identification. E. Consultation with organizations, individuals and residents in the scenic corridor to incorporate their suggestions regarding the proposed routes and to develop support for adopting measures to protect the route. 1. l)EFINIT.101, OF TERMS Scenic Corridor: The visible land area outside the highway right-of-way and generally described as "the view from the road Official State Scenic Highway and Official County. Scenic Highway: Scenic highways officially designated by the Scenic Highways Advisory Committee after application from local jurisdictions and only if on list of-eligible highways found in Section 263 of the Streets and Highways. Code. Rural Designated Scenic Highway: A route that traverses a defined corridor within which natural scenic resources and aesthetic values are protected and enhanced. Urban Designated Scenic Hi hwa : A route that traverses 'a defined .visual color which offers an unhindered view of attractive: urban scenes. W—LAT IONUIM' TO OTHER 1%I;I;N11s'N'l' The scenic highways element relates directly to the open space and the circu- lation element and indirectly to the land use element. It relates as well to a non-mandatory element - the community design or urban design element. Its strongest relationship is with the open space element inasmuch as the scenic corridor, by definition, will transverse significant natural and urban open space areas. For this reason, the community may wish to make the scenic high- ways element a part of an environmental resources and management element. It also could be combined with the circulation element. MI1LI,J'4ANTAT ION A. Ap1,14caI--ion, for official designation to the District Director of T61isportation. Q. Sp#..r:ifi: (.-jrridur studies, plans and programs. 1 1 72 C. Regulation of land use and density of development within the _scenic corridor. D. Purchase of scenic easements. E. Controls on outdoor advertising. F. Landscaping where desirable. G. Marking the scenic highway with the official "poppy sign" or a local sign system, such as the signs with seagulls denoting "49 mile drive" in San Francisco. s • • a s I • 73 SAFETY ELEMENT 1. AUTHO":TTY Government Code Section 65302.1 requires a safety element of all city and county general plans, as follows: - A safety element for the protection of the community from fires and geologic hazards including features necessary-for such pro- tection as evacuation routes , peak load water supply .requirements , minimum road widths, clearances around structures, and geologic hazard mapping in areas of known geologic hazard. S 2. THE SCOPE AND NATURE OF THE SAFETY ELEMENT The objective of this element.is to introduce safety considerations in the planning process in order to reduce loss of. life, injuries, damage to property, and economic and social dislocation. resulting from fire and dangerous geologic occurences. a A. General policy statement that: (1) Recognizes safety hazards (2) Identifies goals for reducing hazard (3) Specifies the level of acceptable risk (4) Specifies objectives to be attained in reducing safety hazards as related to existing and new structures. (5) Sets priorities for the abatement of safety hazards, recognizing the variable frequency and occurrence of hazardous events. B. A map showing the location and extent of known geologic hazards. . C. Standards and general criteria for land use and circulation relating to: ( 1) .-Fire prevention and control (2) Geologic hazards D. Consideration may he given to the crime prevention aspects of land i,5e development such as planning for "defensible space". ML,:Y71000LU('.Y i A. Identification, mapping and evaluation of existing and potential hazards , both as to severity and frequency of occurrence. Analysis of hazardous land use relationships. I 74 B. , With maximum citizen input "acceptable risk" should be determined. In making this determination, it should be kept in mind that any attempt to develop the appropriate planning response to potential hazard involves a judgement, either explicit or implicit, of how much risk is acceptable. There is no such thing as a perfectly hazard-free environment. Natural and man-made hazards of some kind and degree are always present. However, efforts can be productively undertaken to try to mitigate the consequences of known hazards. In the context of the Safety Element, the problem of risk is one of public policy and the appropriate allocation of public resources to mitigate hazards. The central question is, "how safe is safe enough?" ' The planner's responsibility is to provide a framework in which a communitywide, as opposed to an individual , response to the question can be meaningful. The first of several essential steps is the rec- ognition of the presence of a hazard. Much of the planning of the past has proceeded without enough knowledge of the natural forces at play in a given area. Once a problem has been recognized, considerable effort is required to evaluate its likely severity, frequency, and the characteristics of the area involved. This step should take into account the bene- fit/cost ratio of reducing hazard, acknowleding the intangibles in- volved, and comparing it with that of other projects. The factors of voluntary and involuntary exposure to risk must be considered in reaching a decision. C. Define nature and magnitude of effort required to correct or mitigate hazards. D. Define general nature of regulations and programs needed to prevent or mitigate the effects of hazards in the developed and natural environments. E. Exchange information and advice with fire, police and public works departments, other agencies , and specialty personnel in the formu- lation of the element. 'I. DEFI.NL-TION OF TERMS Acceptable Risk_: The level of risk below which no specific y action by local government is deemed to be necessary. Unacce}�table Risk: Level of risk above which specific action by government is deemed to be necessary to protect life and property. t Avoidable Risk: Risk not necessary to take because individual iR 75 or public goals can be achieved at the same or less total "cost" by other means without taking the risk. Defensible Space: Concept of urban space designed to inhibit crime by .utilizing the proprietary concerns of residents. Key ingredients in designing defensible space include: improving the natural capability of residents to visually ' survey the public areas of their residential environment; enhancing spheres of territorial influence within which residents can easily adopt proprietary attitude; and enhancing safety through the strategic geographic loca- tion of intensively used community facilities. , 5. RELATIONSHIPS OF THE SAFETY ELEMENT A. To Other Elements: (1 ) The Safety Element contributes to developing land use standards and � policies. These will relate type and intensity of use to the level of risk from fire and geologic hazard, to the effect of development upon that risk, and to the availability of services and facilities to combat them. The Safety Element also contributes basic standards and requirements to the circulation and optional public utilities elements, and will have important implications for the open space and conservation elements. i (2) Because of the strong relationship with the Seismic Safety Element, the local planning body may wish to prepare these two elements simul- taneously or to combine the two elements into a single document. B. To Other Factors: i (1 ) Social : The element is directed at reducing social costs due to injury, loss of life, or public or private dislocations increasing the sense of community security and well-being. (2) Economic: The element should be directed at reducing costs of direct propo rty loss and economic dislocation. (3) Lnvironmental impact: The Safety Element provides the policy directives; 1 fur.. reducing adverse impacts on both the built and natural environments of major lakAy hazards. C. fo Other Agencies: (1 ) The preparation of the Safety Element would also be facilitated by identifying, and securing the cooperation of major Federal , state regional and private owners of land in a largely natural state, which Adft 76 affects the potential fire hazard. Such agencies Would include, for example, the national and state park. services. (2) Local planning bodies are encouraged to enter into joint planning and the execution of mutual assistance pacts related to safety hazards materially affecting more than one planning jurisdiction. 6. IMPLEA NTATION A. Concurrent or subsequent revision of other general plan elements to incorporate safety policies and criteria. B. Addition of capital improvements as may he necessary for the mitigation and control of safety hazards to the capital improvt:.ment program. C. Review and possible amendment of zoning, subdivision and site development regulations to incorporate safety provisicin;. D. Formulate building and fire safety inspection programs of buildings and premises to identify fire and other safety hazards. E. Provide input to contingency plans for majrtr disaster or emergencies. F. Provide for ongoing review of major public and private development proposals by fire and police departments to insure compatibility with safety objectives. 77 i e HUNTINGTON BEACH PLANNING DEPARTMENT KENNETH REYNOLDS Director EDWARD SELICH Senior Planner DAVE EADIE Assistant Planner MEL TOOKER Assistant Planner FRED RITTER Assistant Planner MAUREEN WILD Assistant Planner f MONICA FLORIAN Assistant Planner STEVE KELLOGG Assistant Planner DAN BRUENING Planning Aide SERGIO MARTINEZ Planning Aide SAVOY BELLAVIA Planning Aide DICK WINCHELL Planning Aide ALBERT MONTES Planning Aide THOM JACOBS Illustrator 'a BOB SIG3ION Planning Draftsman ALAN LEE Planning Draftsman GEORGE ERMIN Planning Draftsman JOHN BURGE Planning Draftsman JUNE ALLEN Administrative Secretary JANA HARTGE Principal Clerk SUSAN PIERCE Secretary-Typist GISELA COMPAGNE Secretary OVIARY CARDINAL Clerk-Typist `Participating Staff REPORT WRITTEN BY: MONICA FLORIAN NOVEMBER 1973 0 N 1_� F1 ri , rt C a P) O Fl G C �Q La n En n a rr, - ►-h 0 U rt LO I O O err Staff file with ERB and a� ERB post for public input _ o Staff introduce elements 1 N to Planning Commission 1 0` a ro a c cn Staff present elements to 1 1 m 0 Ping. Comm. and ERB at PC 0 study session ` ►- Transmit prelim. _ 1 z document to �3 Oj City Council I I rt n for review 0 PC discussion at regular i 1 m meeting. Any ERB comments a o submitted. for considera- ID c tion a rt I I 0 City Council and PC discus- 1 1 1 sion on. elements-afternoon F_ 3 or early evening PC open (D public hearing at evening 1 1 G rt meeting I I I 0 .. 30 day posting on EIR I I 1 expires ERB adopts EIR at morning m meeting-PC adopts elements _r � ,r 00 H at evening meeting i CC adopts elements at ^' o special meeting I i 1 1 O 1 N Staff compile L adopted documents � 1< i x State deadline for w `4 n adoption 'J C1 rt P- aw n rr rt 0 RESOLUTION NO. 1129 C A RESOLUTION OF THE PLANNING COMMISSION OF THE CITY OF HUNTINGTON BEACH ADOPTING THE LAND USE ELEMENT TO THE GENERAL PLAN. WHEREAS, the Planning Commission of the City of Huntington Beach desires to establish the Land Use Element as an integral part of the comprehensive General Plan, and WHEREAS, the Land Use Element is part of the effort the City is making to define, evaluate, and expand the concept and utilization of the City' s General Plan, and WHEREAS, a public hearing on adoption of said element was held by the City Planning Commission on December 11, 1973, in accordance with provisions of the State Government Code, and WHEREAS, the Planning Commission of the City of Huntington Beach is adopting said element in order to: 1. Promote the health, welfare, and convenience of the general public; ( 2. Serve as a general guide for the development of public and private lands; 3. Provide an authentic source of information for residents and investors of the City and; 4 . To obviate the menace to public safety and property values resulting from inadequate coordination and planning. NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission of the City of Huntington Beach hereby adopts said Land Use Element to the General Plan of the City of Huntington Beach. BE IT FURTHER RESOLVED, that said Land Use Element of the General Plan of the City of Huntington Beach is recommended for adoption by the City Council of the City of Huntington Beach as the official Land Use Element of said city. PASSED AND ADOPTED by the Planning Commission of the City of Huntington Beach, California, on the 18th day of December, 1973, by the following roll call vote: l - f AYES: Geiger, Bazil, Kerins, Wallin, Boyle, Porter NOES: None ABSENT: Higgins ABSTAIN: None ATTEST: K. A. Reynolds Edward H. Kerins Secretary Chairman 1 12/11/73 LAND USE ELEMENT TO THE GENERAL PLAN • PHASE I - - AMENDMENTS S. 2 . 1 Planning Area (p. 2 . 1) to read as follows : The planning area is generally defined as the area bordered by the San Diego Freeway on the north , Santa Ana River on the east , the Pacific Ocean on the south, and the city limits of Seal Beach on the west. The planning area includes the unincorporated lands of Bolsa Chica, the unincorporated community of Sunset Beach and all the area incorporated as the City of Huntington Beach (Figure 2 . 1) . The total planning area encompasses approximately 29 . 2 square miles or 18,690 acres. The existing city limits of Huntington Beach accounts for 26. 5 square miles or 16,970 acres . * The unincorporated portion of the Bolsa Chica area and the community of Sunset Beach accounts for approximately 1 ,625 and 115 acres , respectively. *Based on staff land use inventory , September 1973. S. 4 . 2. 2 (p. 4. 3) to read as follows : 3. Bolsa Bay 0 In 1973 an agreement was reached between Signal Bolsa Corporation and the State of California on the Tidelands in Bolsa Bay. The agreement provided for the possibility of an ocean access point at Pacific Coast Highway within 14 years . If this access point is to be used for watercraft, a crossing at Pacific Coast Highway .may be . unfeasible . Thus major coastal traffic corridor would effectively be cut off and some alternative needed. S. 4. 2 . 2 (p. 4 . 3) to read as follows : S. County Transportation Corridor Study In July of 1973 the Orange County Board of Super- visors gave approval to a county-wide transportation corridor story. The deleted Route 1 Freeway has been designated as being within a transportation corridor and cities lying within its route are participating in the study. The county has been divided into zones and the area between the San Diego Freeway and the coastline has been designated as the Coastal Zone and is a top priority. G S. 4. 2. 3 (p. 4. 5) to read as follows : • 3. Bolsa Chica Within the planning area is a large land area , consisting of approximately 1 ,625 acres , that has not yet been annexed to the City. Known as the Bolsa Chica, much of this area is currently being used for oil production. Improvement of this area rests primarily with two developers, the Signal Bolsa Corporation and the State of California Resources Agency. Certain problems and questions that are inherent in• the development of this area should be addressed and answered prior to proceeding with annexation. It is the Planning Commission ' s position that the best approach, then, would be for City staff to prepare , with input from the Signal Bolsa Corporation and the State a comprehensive master plan prior to any annexations . Reasons for the Planning Commission' s position regarding development of the Bolsa Chica was stated on February 2 , 1973. a. This is the last large area within the City' s sphere of influence that can be . master planned prior to development. b. Annexation of an area encompassing a portion of the Bolsa Chica mesa would bring the property into the City as R- 1 , single family residential , and said zoning may be detrimental to the future comprehensive master plan. C. Zoning must be in accord with the master plan as per a State mandate , effective January 1 , 1974. Allowing this property to be annexed as R- 1 might not be in concert with the master plan that is being developed by staff. The Planning Commission also expressed a need to evaluate and answer the problems and questions in the Bolsa Chica, including the ratio of multifamily uses, an environmental impact report, a cost/revenue analysis , traffic circulation, effect of the Coast Freeway deletion, archaeological considerations , the ocean cut , the State ' s 530 acre ecological reserve , and the realignment of Pacific Coast Highway. �1► S G I 4.2. 3 (p. 4. 5) to .read as follows: 4. Civic Center The Huntington Beach Civic Center and adjacent areas have been the subject of considerable study. Although this area has been designated as a government center on the land use plan, the concept for the area has been chosen. The direction chosen is that defined in the "Civic Center Impact Study" as a high activity level. This policy alternative means that the Civic Center will serve as a focus for governmental, business and commercial activities. Surrounding residential uses will be low to medium density. This area will be ready for refinement and the preparation . of an implementation program subsequent to the preparation of the Phase I Land Use Element. b S. 4 . 3. 1 (p. 4. 7) to read as follows : RESIDENTIAL NEIGHBORHOOD STANDARDS I. Avg. Population - 2,S00 people. 2. Avg. Area = 160 acre. 3. Arterial Streets do not pass through neighborhoods but provide boundaries. 4. Interior streets should be short and curvilinear, utilizing cul-de-sacs and other design principles to preserve the residential atmosphere. S. Parks, Elementary Mchools and other neighborhood facilities should be within walking distance. 6. Pedestrian and vehicular access to arterial streets should be limited. S. 4.3.4 Public Uses $ Facilities Subsection S . Underground Utilities (p . 4 . 13) Updating the criteria for underground utility standards will require additional research. Thus , this amendment will be submitted as soon as this research is completed. • S. 4 . 3. 4 Public Uses $ Facilities Subsection 7 . Special Facilities (p. 4. 16) to read as follows : SPECIAL FACILITIES CATEGORY SIZE POPULATION LOCATION FUNCTION TYPICAL SERVED FACILITIES HUNTINGTON 200 Total Near geo- Serves all Lakes & natural CENTRAL to City graphic Cen- neighborhoods areas, informal PARK 400 Population ter of City, in the city. leisure areas, Acres accessible Regional $ other faci.li- to freeway nature, ties not dup- & arterials. community licated in scope. community parks. �► n � . 4 . 21 4. 4 . 2 Land Use Area Summary (Incorporated area) Land Use Category Acres ( r-13 ) 1 . Residential Low Density 7 ,024 Medium Density 872 Medium High Density 328 Mobile Home 254 Sub Total 8 , 478 2. Commercial Retail 993 Office R7 Sub Total 1, 080 3. Industry Light Industry 1' 555 Public Uti .] ity 252 Sub Total 4 . Transportation Railroad R/Ii 4 6' Transportation Corridors F, Freeway 29n Sub Total '136 5 . Public 1; Quasi -Public Uses F, Facilities Schools Number Elementary Schools (51 ) 592 Elementary (Admi.ni - st rat ion Office) ( 1) 10 Junior High Schools ( 5) 63 High Schools ( S) 2S2 Junior College ( 1) 120 Sub Total 1 , 037 Parks Neighborhood (47) 142 Conunun i t y ( 4) 05 II. B. (ventral Park 312 Sup Total 519 w� V Recreational t; Special facilities Golf Course ( 2) 245 Ne.ighhorhood Beach l City Beach 50 State Beach. 410 Marina ZL Sub Total 709 Public Facilities Fire Stations ( 7) 10 Harbors & Beaches Fire Facility ( 1) 4 Post Offices ( 3) 9 Libraries ( 3) 4 City Yard ( 1) 15 Sub Total 42 Institutional Church (49) 45 Cemetery (31) 48 Meeting Hall. , bodge ( 8) 12 Private Schools (12) 11 Sub Total 116 Other Waterways 228 Water Reservoir 9 Drainage Channels 263 Edison R/W 1lnleased 143 Edison R/W Leased 21 Buffer 16 Sub Total 680 6 . Special Planning Areas Planning Reserve 522 Government Center 113 Tow nlot 310 Destination Resort 285 Planned Community 434 Old Town 502 Sub Total 2,166 TOTAL ACRES (GROSS) 16, 970 Adft G p. 4 . 23 494 . 3 Land Use Area Summary (Unincorporated Areas) Category Acres (Gross) 1 . Bolsa Chica Planning Reserve 1 ,095 Ecological Reserve 530 Sub Total 1 , 625 2. Sunset Beach Residential : Medium High 100 Commercial : Community 15 Sub Total 1 , 730 0 1 12/18/73 LAND USE ELEMENT TO THE GENERAL PLAN PHASE I -- AMENDMENTS S. 2. 3. 4 (p. 2. 11) to read as follows: 3. Utilities Public utilities such as streets, water service, and sewage disposal are provided by the City. Electricity, gas, and telephone are provided by private companies. Trash collection is contracted out to a private firm. S. 2. 3. 4 (p. 2. 11) to read as follows: 4. Libraries The library system consists of four main elements: a central library; three branches; several outlets, distribution points or stations; and a bookmobile. The central library is located at Talbert Avenue and Goldenwest Street (in Huntington Central Park) . This facility is currently under construction and when completed, will serve as the central repository and administration headquarters of the library system. Three branch libraries will be strategically located throughout the City and will provide a basic level of service to neighborhoods. The three proposed sites will be at Springdale Street and Heil Avenue (Carr Park) , Main Street (in the present civic center) , and Magnolia Street and Hamilton Avenue (Edison Park) . The existing Main Street facility is presently serving as the main library until the new library at Goldenwest Street and Talbert Avenue is finished. Currently, an alternative plan for the library system is being studied on a staff level. The alternative primarily consists of a joint agreement between school districts and the City to provide public library facilities at both Marina and Edison High Schools. Thus, with the exception of the existing Main Street library facility, the remaining proposed branch library sites may be changed. 12/18/73 S. 2. 3. 5 (p. 2. 13) to read as follows: 3. Public Transportation Public transportation in Huntington Beach is minimal because of two primary considerations: dependency on the automobile as the primary mode of transportation and lack of a population density sufficient to support a public transportation system. In the past, inter-city bus service was available, but these routes did not penetrate the City to any extent. One company provided minimal inter-city service between Huntington Beach and Santa Ana. Due to economic difficulties and lack of ridership, this service was discontinued in April 1971. Orange County Transit District is an agency that will provide for a mass transit system serving all communities in the County. Initially this system consists of buses. In the first phase of development several inter-community routes have been established. Service was inaugurated on several of these routes beginning in January 1973. Bus service in Huntington Beach began in April 1973. The remainder of the inter-community routes will be in service by 1980. Ultimately this agency plans to provide inter- and intra-community service to communities in the County. Two routes which affect Huntington Beach are those that service Beach Boulevard and Adams Avenue. Fare is 25 cents and frequency is 30 - 60 minutes. S. 2. 4. 5 (p. 2. 20) to read as follows: 1. Earthquake Hazard The main trace of the Newport-Inglewood Fault runs directly through the City of Huntington Beach. Within recorded history, several epicenters with a magnitude of over 4.0 on the Richter Scale have been identified near the City on this active fault. One such epicenter was several miles offshore from the mouth of the Santa Ana River. Leighton and Yen, seismic consultants, have completed a first draft of a seismic research report for the City which will include a seismic and geologic inventory of the City and maps of geologic conditions, expansive collapsible soils, active faults, liquefaction, and ground response spectra zones as well as guidelines for risk analysis. This data will reveal the greatest potential hazards within the City in terms of geologic and seismic conditions and provide the basis for a "Se' 'c Safety Element" which will ,Y 12/18/73 seek to alleviate potentially hazardous conditions. S. 2. 5. 4 (p. 2. 30) to read as follows: 1. Findings of the Surveys Three percent or 165 of the 5300 structures surveyed were found to be substandard, i.e. , economically unfeasible for rehabilitation. The problem of substandard housing in this community, then, is not considered to be acute, as only 165 units in the entire City were thought to be substandard. However in terms of one of the goals set forth in the 1968 Federal Housing Act, ". . .a decent home and a suitable living environment for every American family. . . " the problem must be recognized. v J LAND USE ELEMENT TO THE GENERAL PLAN PHASE I -- AMENDMENTS S. 4.3.4 (p. 4.13) to read as follows: S. UNDERGROUND UTILITIES UTILITY LINE TYPE COST MISCELLANEOUS DISTRIBUTION Qomonunication Telephone Developer and telephone Telephone Co. establish- Co. funds. es its own priorities; telephone lines usually undergrounded jointly with electric co. lines Electrical Over Not applicable No undergrounding re- 34.5 KV quired. EXISTING On-site 12 - 34.5KV Electric Co. funds and Electric Co. responsi- underground utility bility to underground district assessment fee. feeder lines property owner responsibility to provide laterals. less than Developer and Electric When there is an in- 12 KV Co. funds. crease in service with additional overhead lines utilities are required to be installed underground. Off-site 12 - 34.5 KV Electric Co. funds within Priorities established underground utility include: district. 1. Vicinity of Hunt. Central Park 2. Vicinity of new civic center less than Not applicable No such line type in 12 KV City R NEW On-Site 12 - 34.5 KV Developer and Electric Developer must under- and Co. funds. ground all lines giving less than 12KV him primary benefit. Applies to all land uses. Off-Site 12 - 34.5 KV Electric Co. funds. To property line - Electric Co. must under- ground all lines. less than Not applicable No such line type in 12 KV City. community Television Developer and cable All lines are required Antenna Cable T.V. Co. funds. to be underground. AWF A: • EnVIROnMEnTAL REVIEW BOARD CITY OF HUNTINGTON BEACH-CALIFORNIA • P.O. BOX 190 92648 i TO: Honorable Mayor and City Council FROM: Environmental Review Board DATE: December 19 , 1973 SUBJECT: EIR 73-25 (Land Use Element) APPLICANT : City of Huntington Beach LOCATION: City of Huntington Beach The Environmental Impact Report for the Land Use Element of the General Plan is transmitted so that the City Council may consider approval of said element . BACKGROUND: Phase I of the Land Use Element is the first step in the effort to redefine , reevaluate , and expand the concept and utilization of the City's General Plan. Its purpose is to consolidate and expand past land use plans into new directions and areas of emphasis . This EIR, as prepared by the Planning Department , was filed with the City on November 16, 1973 , and distributed to the City Council on December 13, 1973 . The project was posted for public review on November 16 , 1973 , and a public hearing was held by the Envir- onmental Review Board on December 18 , 1973. ADOPTION: The Environmental Review Board adopted the EIR on the Land Use Ele- ment on December 18 , 1973. ERB Discussion: The Environmental Review Board entered into many areas of inquiry, as can be witnessed by the attached doc- uments. However, the scope of the element is so broad and general that it is an almost impossible task to go into all of , . Land Use Element Page 2 the consequent adverse impacts and offer mitigating measures to those impacts . Until the City has compiled data and pro- vided implementing tools and regulatory measures , it is difficult to visualize the specific adverse effects which may occur. MITIGATING MEASURES : 1. The economic impacts of differing land uses should be thoroughly investigated and documented. 2 . A thorough analysis of the compatibility of differing uses should be made , and development standards should be provided which would eliminate any possible intrusion of a particular use upon the environment of abutting uses . a ADDITIONAL INFORMATION: 1 . It is of special interest to the Board that the EIR on Phase II of the Land Use Element go into detail on the concerns which have been expressed by the review process on Phase L. 2 . The Land Use Element should take into consideration the pro- visions of the Growth Policy of the City. 3. The City Council should pursue a method whereby this element does not create a moratorium upon those areas designated by the element at this time as Planning Reserves . 4 . The Board would like to see the Phase II of the element make greater use of the agricultural zoning within the city for an interim period of time ; and recommends that the city pursue provisions which would make the use of land for agricultural purposes economically feasible, both for the city and for the landowner, by all possible methods available. S . Whenever possible , environmental resources should be categor- ize d and qualified for Phase II of the element: r='4; 6. A priority list should be prepared, in order to determine :,.. which policies should take precedence. ; ; . 7. The Board recommends that the City Council pursue preparation �k* of the Noise Element as soon as possible, so that the infor- mation and data compiled therefrom can be used in preparing v Land Use Element Page 3 more specific development standards to mitigate the impacts of land uses as contained within the Land Use Element. CONCLUSION: It was the consensus of the Board that there may be a significant adverse effect from the overall uses provided for by the element , r as well as certain specific uses as may be permitted. However, s the Board felt that a thorough analysis of all provisions of Divi- sion 9 (to eliminate those specific uses which may create an -ad- verse effect upon the environment) and amendments to the develop- ment standards therein could properly mitigate these adverse effects . The Board further recommends that the implementing tools and the regulatory provisions which may accompany Phase II provide provi- sions to eliminate the environmental intrusion of one use upon another; i..e. , industrial adjacent to Central Park without proper setbacks and landscaping, commercial upon abutting residential without proper environmental considerations, and heavy industrial uses within an industrial park. The Board therefore recommends that the City Council adopt the Environmental Impact Report No. 73-25 and proceed with Phase II of the Land Use Element. ames W. Pal'in, Chairman Environmental Review Board Attachments: 1) Amendments to the Phase I Land Use Element 2) Comments from the Environmental Council 3) Comments from the Environmental Review Board with responses thereto from the Planning Department ® ' EnviROnMEnTAL REVIEW BOARD ® 'd CITY OF HUNTINGTON BEACH•CALIFORNIA • P.O. BOX 190 92648 TO: Planning Commission' FROM: Environmental Review Board DATE: December 18 , . 1973 SUBJECT: EIR 73-25 (Land Use Element) APPLICANT: City of Huntington Beach LOCATION: City of Huntington Beach The Environmental Impact Report for the Land Use Element of the General Plan is transmitted so that the Planning Commission may consider approval of said element . BACKGROUND: • Phase I of the Land Use Element is the first step in the effort to redefine , reevaluate , and expand the concept and utilization of the City' s General Plan. Its purpose is to consolidate and expand past land use plans into new directions and areas of emphasis . This EIR, as prepared by the Planning Department , was filed with the City on November 16 , 1973 , and distributed to the Planning Commis- sion on November 23 , '1973. The project was posted for public re- view -on November 163, 1973 , and a public hearing was held by the Environmental Review Board on December 18 , 1973 . ADOPTION : The Environmental Review Board adopted the EIR on the Land Use Ele- ment on December 18 , 1973 . MITIGATING MEASURES : 1 . It is of special interest to the Board that Phase II of the Land Use Element go into detail on the concerns which have been expressed on Phase I . • 2 . The economic impacts of differing land uses should be thoroughly investigated and documented. Land Use Element Page 2 3. A thorough analysis of the compatibility of differing uses should be made , and development standards should be provided which would eliminate any possib16 intrusion of a particular use upon the environment of. abutting uses . 4 . The Land Use Element should take into consideration the pro- visions of the Growth Policy of the City. 5. The Planning Commission should pursue a method whereby this element does not create a moratorium upon those elements desig- nated as Planning Reserves at this time . 6 . The Board would like to see the Phase II of the element make greater use of the. agricultural zoning within the city for an interim period of time ; .and recommends that the city pursue provisions which would make the use of land for agricultural purposes economically feasible , both for the city and for the landowner, by all possible methods available. • 7 . Whenever possible , environmental resources should be categor- ized and qualified for Phase II of the element . 8 . A priority list should be prepared, in order to determine which policies should take precedence. 9. The Board recommends that the Planning Commission pursue pre- paration of the Noise Element as soon as possible , so that the information and data compiled therefrom can be used in prepar- ing more specific development standards to mitigate the impacts of land uses as contained within the Land Use Element . ADDITIONAL INFORMATION: 1 . The scope of the element is so broad and general that it is an almost -,mpossible task to go into all of the consequent ad- verse impacts and offer mitigating measures to those impacts . Until the City has compiled data and provided implementing tools and regulatory measures , it is difficult to visualize the specific. adverse effects which may occur . • CONCLUSION: The Board finds that certain land uses do create substantial adverse impacts upon the environment . The element is so general in Land Use Element Page 3 • nature that specifics are impossible at this time ; however, the Board would recommend that the Planning Commission thoroughly analyze all provisions of Division 9 and eliminate those uses that would create an adverse effect upon the environment. The Board further recommends that implementing tools and regulatory provi- sions of Phase II be amended to eliminate the environmental in- trusion of abutting uses wherever possible . It was the consensus of the Board that there may be some sig- nificant adverse effects from the overall uses ; but through the use of implementing tools the Board feels that these can be properly mitigated. Therefore , . the Board recommends that the Planning Commission adopt EIR 73-25 and proceed to Phase II of the Land Use Element . • I�Jmes Palin, C nairmavironmental Review Board Attachments ; 1) Amendments to the Phase I Land Use Element 2) Comments from the Environmental Council 3) Comments from the Environmental- Review Board with responses thereto from the Planning Department Tos Carol. Schwartz, Environmental Review Board Froms EIR Review Committee of the Environmental Council Dates December 6, 1973 • Topics Comments on the Land Use Element Phase I The EIR Review Committee has reviewed the EIR on the Phase I Land Use Element dated November 20, 1973• The comments below reflect the EIR 'alone, not the entire element. It is recom- mended that there be more thorough discussion of the Land Use Element as it relates to the Growth Policy--perhaps that the . Growth Policy be accepted as policy before this Land Use Element be adopted--certainly before a Phase II element be proposed. General Until a Growth Policy has been thoroughly reviewed and accepted, decisions for Land Use are premature. , Alternative #3, Section 6.5.4 might well be a better alternative, but could not be designated such until reviewing the accepted population limit. Air Resources In describing air resources (Section 6.4.3) and those sources of pollutants found or generated in Huntington Beach, numerous ad- ditions are recommended: the largest stationary source of N0X pollutants in the county, and the source of other localized pol- lutants, the Southern_ California Edison plant; chlorine and various organic odors noticeable regularly for many square blocks around the sewage treatment plants (Plants 1 and 2) ; hydrogen sulfide and organic odors around the many oil wells; and auto emissions from the large numbers of beachbound cars during certain seasons. Huntington -Beach must show some concern for the Clean Air Act by limiting the sources of air pollution that could affect others "downwind". The first sentence, ;•rhile true, is ludicrous, especially being given priority by being the lead sentence. Biological Resources In describing biological resources (`section 6.4.4) , of sighi-fi- cant importance is the large number of migratory birds that spend many months each year in Bolsa Bay and Slough, Santa. -Ana River area, the beaches, and various flood .-.ontrol channels and marshes. Cultural Resources While some of the larger parks and pr aserves are identified on the map, hour are the vista points, some of which were mentioned, to be selected for future generations to enjoy? Economic Resources Environmental costs and benefits trust be more thoroughly evaluated in Section 6.4.6. In describing Huntington Beach as accounting for 55 of the total Orange County labor market, what is our percentage of the population? Is 516 good or bad? Is labor the • only thing to be compared--why not sales, or parks, or density? Growth-Ir_ducinp: Impact : F Section 6. 5.7 needs expansion. The first sentence is inaccurate. If a .population limit had been established for Huntington :peach (which it has not) , and if this Land Use Element proposed de- velopment that would not exceed this number, this statement mould be OK. But designating AIW areas not presently developed for � i• residential use of any density would increase the population, F ' hence be growth-inducinS because development is inevitable. lEr�! :•' IEr . L- ti- t x i � F-: L t- 4_ t. - S - 1 { • 2 P j,. a Y -' t+'. i, — i • F i ' Environmental Impact Report Land Use Element: Phase I Addendum Reply to ERB Comments dated December 7, 1973 10. COAMENT The whole area of the economic impact should be included in both the open space element and the land use elements. What effect will the removal of land for open space have on the tax base and the sales tax revenue of the City? In respect to the land use elements a study should be included on t e revenue vs . expenditure ot the various Uensities of development ermitte -(Palo A to, or instance as found that it would actually be cheaper for the City to acquire land and maintain it as open space than it would be to allow certain kinds of development to take place on it . ) REPLY Because this request is beyond the scope of the Phase I Land Use Element , a, cost/benefit analysis will be included in the Phase II Land Use •Element. i ' Reply to ERB Comments dated December 12 , 1973 a 1 . S. 6. 2 (p. 6. 4) COMMENT Summary of major environmental issues : Statement is made "Phase I :of .the element will produce fewer adverse environmental impacts than- would its development under the two alternatives". How is this 'being accomplished? The report should address itself to that question. t REPLY This Phase I Land Use Element will produce fewer adverse environ- mental impacts than would development under either of the other c; alternatives. This is because the Phase I element represents a logical choice between the extremes of a "no control," plan and a r "preserve all" plan. This element weighs cultural , social , and economic values and priorities against physical and environmental ! values and priorities. It also examines trade-offs between ;the two sets of values. After weighing both sides , this element reaches a balance between the two alternatives. N , This Phase I Land Use Element considers all these values while the "no control" alternative lets market demand dictate the outcome at the expense of physical or environmental values. The "preserve all" alternative restricts development in favor of physical and environ- mental values at the expense of cultural , social , and economic . values. In time these alternatives may deny present and future residents of Huntington Beach the right to the full range of benefits and amenities available from urban living. 2. S. 6. 1 (p. 6. 3) COMMENT "Nature of General Plan". What does Phase I really mean? We question the statement made in the third paragraph from the bottom of p. 6 . 3 "documents to guide subsequent specific actions". REPLY In response to the "meaning" of Phase I , this Land Use Element is part of an effort to consolidate and unify past policies regarding land use master planning and to fit these past policies into the - framework of a general plan. It is a reorientation in the sense that in the past it was unwritten policy that the Land Use Element had. the status of being the general plan. Now it .is being empha- sized as a component or a part of the general plan. In response -to the Board' s questioning the statement "documents to guide subsequent specific actions" it should be noted that -this statement refers to the fact that each of the elements of the general plan is a "document" in itself. The sum total of these "documents" or individual elements is the comprehensive general plan. It is this comprehensive general plan that will guide subsequent actions or developments. .3. S. 6. 5. 3 (p. 6. 15) COMMENT "No mitigation measures for the impact" -- Board found the meaning of this statement unclear. REPLY Specific mitigating measures for the impact of the Phase I , Land Use Element are beyond the scope of this document. Such measures are forthcoming in the Phase II element. However, generally speaking , when adverse impacts are found result- ing from such situations as incompatible or conflicting land uses N� or zones in proximity to each other or the visual intrusion of one use upon another, the zoning ordinance should be amended to alleviate the possibility of ,these situations from recurring. . 4 . S. 6. 5. 2 (p. 6. 15) C0�U-ENT "No significant adverse impacts" Discussion here: "did the Commission delete from the Master Plan the portions of the trans- portation corridor? That in itself may have quite a substantial environmental effect." Suggestion: That the Planning Commission thoroughly analyze its actions in deleting the transportation corridor along the Coast Route freeway because of the possible implications of that deletion. ` REPLY z The Planning Commission did not delete the transportation corridor. Although this is primarily the concern of the Circulation element it is addressed in the Land Use Element since there are significant interrelationships. The Planning Commission deleted only the graphic presentation of portions of the corridor on the Land Use k; diagram. It is still clearly defined in the text (which is part of the element) and is graphically represented in part on the Land Use diagram. 5. S. 6. 4 . 4 (p. 6. 10) COMMENT :'Cultural or biological environmental effects. " Suggest a summary list of flora and fauna affected by the element. REPLY ,fl t; .A 'suggested summary list of flora and fauna affected by this element is forthcoming in the Phase II Land Use Element . 6. S. 6. 4 . 7 (p. 6. 12) COMMENT Suggestion to strike from paragraph #1 of Social Resources "famous asset" reference. ` REPLY This paragraph is amended to read as follows : Z r The spectacular growth rate of the past decade has given Huntington Beach a valuable human resource. It is a young, healthy, concerned, and well-educated population that currently resides in the City. 7 . S. 6. 5. 1 (p. 6. 13) C0: -1ENT Environmental impact of the proposed element "This element is the first time that the land use plans have been pulled together into one single plan with a supporting document, " "Comprehensive total evaluation of the planning areas - promoting a more satisfactory base." "This document provides (over the previous fragmented approach. " Does this document pull everything together? Haven' t seen that tact. If Phase II is .going to pull it all together, then they should say so. Doesn ' t really designate areas ; does not do what is stated in paragraph #2 . Suggestion: Maybe they could say "the procedure including Phase I and Phase II will provide for . . related factors - Board felt that possibly what was meant. was relateT elements have been pulled together into a single plan. Suggestion: To delete sentence #1 and go into sentence #2 and say "Phase I and Phase II of the plan will allow for the comprehensive and total evaluation and study of the planning area, thus promoting a more satisfactory base for consideration. " REPLY This Phase I Land Use Element does "pull everything together" into a single plan with a supporting text or documentation. In past approaches the City was divided into several artificially defined study areas . Each study area was looked upon as a separate entity ' and never really related to other study areas or to the whole City. Reasons which gave the impression that the Land Use Element was the general plan included: f a. The fragmented approach to land use planning described above. b. The fact that there was no supporting text to the past land �a . use element ; and 'i C . The overwhelming attention paid for importance given to the past land use element over other elements of the general plan. - �'. :x r This Phase I element then, does "pull everything together" because in this element the. City is being viewed as a cohesive unit (i. e. , within the confines of the sphere of influence) instead of in separate study areas. A supporting text has also been added. This element does allow "for the comprehensive and total evaluation of the planning area", as per the above discussion, "thus promoting a 'more satisfactory base for consideration of resource planning and consideration". 8 . S. 6. 5. 7 (p. 6. 17) C01MENT Board discussed the Environmental Council ' s comments at the Commis- sion meeting. Jim said that the land use element does serve to limit and guide growth and is in concert with the Growth Policy. He felt that the Environmental Council comment was incorrect. REPLY The Phase I Element is in concert with the Growth Policy which is under consideration by the Planning Commission. As Phase I , the element leaves a number of options open for resolution in develop- ing the Phase II or final plan. 9. CO,,1MENT The Board felt that the report should contain information on types of construction and development which are advantageous to the City, both economically and environmentally. Possible recommendations in t" the plan that certain types which are found to be very detrimental in the above areas not be allowed to be constructed within the City. REPLY This request of the Environmental Review Board is beyond the scope of the Phase I Land Use Element. Such information is forthcoming in the -Phase II element. 10. S. 6. 4. 2 (p. 6. 9) CONVENT Domestic water : Question on the fact that they had water supply, drainage, and flooding all in the same paragraph. These are separate items of concern and should be treated as such. Updated information is provided in the attached communication regarding water (this was obtained from the Department of Public Works) . It contains information on water sources, importation of water, auxiliary supplies , treatment , .Fluoridation, storage and distribu- tion, maintenance and operation, and geological and hydrological descriptions of underground wate ,r 'f N. ' !43- REPLY r For organizational -purposes, environmental setting is described in , terms of seven general resource categories. It is apparent that water supply, flooding, and drainage are all related to seater resources . The organizational scheme is not meant to imply that these items are not of special concern individually.. While most of the information presented in the attached communique from the Department of Public Works should be contained in the Phase II Land Use Element instead of the Phase I Element, the text relating to domestic water should be revised to reflect this latest information: "Tile City maintains eight wells which vary in depth from 206 to 904 feet . Capacity varies from 450 to 4,000 gallons per minute. Additionally, the City has three connections from Municipal Water District of Southern California and four reservoirs with a storage capacity of over 41 million gallons. " P, i i r ,t 8 w4 a. Replies to Comments by M. Carlberg dated December 7 , 1973 : 1 . COMMENT A minor but significant error on page 21 should be corrected to read "Santa Ana River Greenbelt" . REPLY Correction noted. 2 . COMMENT Consider modification of value on matrix on page 34 item N4 as "significant importance" natural resources, since it is irreplace- able, and perhaps modify "outdoor recreation" for the historic/ landmark sites to "moderate importance". REPLY The relative values presented for open space and conservation resources in the .Phase I Element represent preliminary staff judg- ments. After additional research is concludeResource Technical `F Reports will be published which carefully define the rating system and present, Lor close scrutiny and revision, the value judgments made by staff. It is during consideration of these. detailed r technical reports that resource ratings could best be altered in `. preparation for Final flan development . 3. COMMENT i. . . 1 question listing Huntington Harbour (p. 40) for undeveloped region ? with marshlands , tidal flats , since nearly all the remaining land there is approved for residential development . Water recreational ,t. resources are an•'appropriate listing, however , REPLY The undeveloped Huntington Harbour area offers valuable resources 4 for the Open Space and Conservation Program. Since this area is ` . not now developed , the Open Space and Conservation Plan could perhaps prevent its Destruction from fature urban expansion if it was -the C-ity ' s intent to do so . It is the purpose of this Phase I Element to identify significant resource. areas regardless of existing plans for development . 4 . Ct)AMENT `s Might I suggest a major addition to the matrix for Resources for Conservation on page 41 (and the summary on 43) to add "Permanence" =.r r4� �j or a similar category to designate irreplaceable resources , renewable ones, improving, degrading quality, depleting , improving; or degrading ' with development , and such. This would increase conservation value ! for archaeological and historical sites , for example, and for- vistas, IK- and would help relate resource values in yet another framcworl. . w' ,r "' REPLY Tnis is an excellent suggestion which will be taken into considera- tion during final resource• evaluation effort-; and, hopefully , incorporated in the Resource Technical Report, to be published soon. 5. COME ti T j On the matrix mentioned in #4 , my "ratings" would be a little different in a few cases : Health and safety role, marshes and lakes should be moderate (predators , mosquitoes ) , wildlife should be moderate (same reason) , and recreation should be moderate (definite health value) ; Ecological role , topography to moderate, climate should be moderate, parks should be significant ; f:conomic role:, how is ocean significant -- is fish industry that large here? Amenity role, with oil the major "mineral" , does significant indicate the I many oil wells are attractive? REPLY Same as 02. COMENT �. On the City L'fficacy Table (page 44 ) , Air Quality should not be slight , but moderate. Cite can and should enforce nuisance ordinances (as for oil odors ) , develop or support stricter ordinances (as for APCO emissions , or for controlling gas pump leakage) , reduce growtn and thus the number of cars , develop mas; transit - - all to upgrauc the; air quality in our city and other parts of the basin downwind . REPLY Same as K2 . 7 . COMMENT Suggest minor modification, on page 45 , to add to blood Plains "limit building in critical areas", and add to `•firteral Resources "encourage cleanup of Lna,, t ivc well areas". REPLY These actions are covered under the general category of "minimizo risk to private and public sectors" and "prevent blight" . The !•inal Upen Space and Conservation Flement is intended to spell out priori - ties in a more precise manner as suggested in this comment . S . COMMENT I urge that the Gity strongly supports a program for regional planning, as suggested on page 52 . ItEPLY No reply. 9. COIN(MENT Suggest modification on page 59 since plans at this stage for the Ecological Preserve are still so indefinite that the 4th line under Bolsa Chica should read " . . . State has plans to establish an ecological preserve on 400 acres and ultimately develop an additional . . . " REPLY While final plans for the restoration of the Bolsa Chica marshlands have not been developed , the State is committed to the program. Even without the ecological preserve , however , the resources harbored by the Bolsa Chica give it excellent potential as an Open Space - Conservation node . 10. COMENT Similarly, the implementation plan for vie Recreational 'Trails should be included since they are to be developer] starting January 1 . This is far more certain and immediate than the Bolsa Chica development . REPLY Implementation of the Recreation Trails plan would be part of the proposed linkage system suggested in S. a . ? . a . Reference to this on-going program is also ,Wade in S . 4 . 3 . 4 (Continue Existing Open Space and Conservation Programs) ,