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HomeMy WebLinkAboutAgenda: Study Session Item a: Potential specific plan application for a medical office building on Santa Anita Racetrack.I..o4w...oa A.RY41 S. 140 � `6 hity TA F u RT Development Services Department DATE: October 2, 2012 TO: Honorable mayor and City Council FROW .mason Kruckeberg, Assistant City Manager /Development Services Director' SUBJECT: STUDY SESSION: REPORT, DISCUSSION, AND DIRECTION CONCERNING A POTENTIAL SPECIFIC PLAN APPLICATION FOR A MEDICAL OFFICE BUILDING ON SANTA ANITA RACETRACK PROPERTY — 285 WEST HUNTINGTON DRIVE Recommendation: Proceed. with Specific Plan process Rr EMMARY The Hale Corporation, in partnership with the Stronach Group, has submitted a conceptual drawing of a new medical office building to be located on the Santa Anita Racetrack property. The General Plan provides very detailed language concerning the type of development desired on the southern portion of the Racetrack property, and requires a Specific Plan be filed. In advance of the official submittal of a Specific Plan and other required entitlements, the conceptual plan is being presented to the City Council to receive direction on the matter. BACKGROUND The General Plan was updated with regard to Santa Anita Park in 1996. At that time, a detailed description was added to the Plan to guide future development of the southern 85 acres of the Racetrack property. A graphic of the General Plan designation and the full text of the Plan on this topic are included as Attachment A. The General Plan outlines the community context of Santa Anita Park and details the vision for proposed commercial uses of the site, important community design elements, circulation and parking issues, public safety concerns, construction phasing considerations, and desired intensity of new development. The General Plan calls for an integrated commercial development on this site, with the following stated purpose: The purpose of designating the area south of the Racetrack grandstands Commercial is to assist in facilitating free market forces to introduce new, compatible uses with complementary market segments to the existing Mali, Downtown, and other commercial areas in the City. Hale Medical Office Building October 2, 2012 Page 2 of 3 The vision for this area is focused on retail and commercial entertainment uses, with the Plan stating that "office uses should, at most, be a minor portion of new development and be supportive of the overall commercial character of the site." Over the years since the General Plan was amended to include this language, the City has received three major applications for development on this site that were based on an overall concept of commercial entertainment and retail uses. Most recently, the Caruso Affiliated project was approved by the City Council in 2007 as a manifestation of the General Plan's vision. In the 2010 General Plan Update, the City Council continued with the same language for this area and the Plan was not modified. The current project is the first proposal that only focuses on a small portion of the overall site. As such, it is important to obtain the City Council's direction on this approach prior to the submittal of entitlement applications. Typically, a Specific Plan requires a property area of 5 acres or more. in this case, however, given the designation of the site, a Specific Plan is required and appropriate for any project. DISCUSSION As proposed, the medical office building will be a four story building of 18,000 square feet per floor for a total floor area of 72,000 square feet. The building is proposed to be located just to the northeast of the existing medical office building addressed as 301 W. Huntington Drive. The building would be located across Huntington Drive from Arcadia Methodist Hospital and, similar to the 301 W. Huntington building, there would be a pedestrian °skybridge" connection to Methodist Hospital. Given that the General Plan requires that development on this site file a Specific Plan for consideration, the zoning, parking, and design requirements will be set through the Specific Plan. As currently proposed, however, it appears that the project would meet current zoning requirements for parking, setbacks, and floor area ratio based on a commercial designation. These, however, are issues that will be fully analyzed at a later date once applications are submitted. Although the General Plan acknowledges the fact that a site of this size will likely be developed in phases, it contemplates an integrated project for the site. The proposed medical office building would be "carved oft' of the site as a whole and this is a departure from previous projects on this property. While it would be ideal to have a single, integrated project on this site, the uncertainty surrounding the commercial (especially retail) sector exists. It makes sense that the site would be used for a mix of uses, and medical office is certainly a viable use in Arcadia. The placement of the building on the site also makes logical sense given the proximity to Methodist Hospital and the 301 W. Huntington building. The purpose for the study session on this topic is for the City Council to consider whether a project like this should be considered in advance of any larger, integrated project for the site. To staff's knowledge, there is no current master plan being developed for the Racetrack property. That being said, a mix of commercial uses is Hale Medical Office Building October 2, 2012 Page 3 of 3 appropriate for the site and a medical office building in this location would not preclude a large integrated project from being constructed at a later date. FISCAL IMPACT At this point, a fiscal impact cannot be accurately estimated. If the project returns to the City Council as a Specific Plan and Zone Change, a full analysis of the project will be provided and the anticipated fiscal impact will be included. It is recommended that the applicant proceed through the required Specific Plan process. APPROVED BY: Dominic Laz aretto City Manager Attachment A: Text of Arcadia General Plan concerning Santa Anita Park The Santa Anita race track is a key community feature and an important component of Arcadia's character. The retention of live horse racing at this facility and the ongoing economic vitality of the race track are part of Arcadia's plan for a strong economic base. Since the advent of off -track wagering facilities and a long -term downturn in the racing industry, attendance at the Santa Anita race track has declined. As a result, it is no longer necessary to reserve both of the race track's large open parking areas exclusively for race track event parking. The combination of lower attendance and the potential availability of a portion of the race track's parking areas for other uses have given rise to much community discussion regarding the positives and negatives of permitting new uses within the race track's parking areas. I 6 � rrj'f{ I �. �" kGnTwledR i I — I y � ^. s a /// Cammacd (0.5 FAR1 f i" Florso Racing /� %Y!; SanlaAMp Commeroal {0.3 FART i FIGURE LU -17: SANTA ANITA PARK Arcadia's long -term vision is to retain live horse racing at the Santa Anita race track, and to preserve the existing grandstand structure. The opportunity also exists to create a development of urban intensity on the race track's southerly parking lot which responds to the unique attributes of the race track to the north and the shopping mail to the west, and to cultivate this unique combination of regional attractions into a cohesive center. The City's goal is to ensure that new commercial development within the southerly race track parking area is respectful of Arcadia's existing community character, one of well - preserved, peaceful, and safe ;.�RCADia G EZRAL PLAN - NOVZMBEP 2010 LAND USE AND COayiI -WHITV GESItrw 1 2 -65 residential neighborhoods. Because future development within the southerly race track parking lot has the potential for impacting the community, future development must address the following needs: L Achieving land use compatibility with, and a logical physical relationship to the adjacent mall and residential uses Retaining the ability of area roadways to maintain Level of Service D (Level of Service C on local residential streets), as outlined in the Circulation and Infrastructure Element C Providing sufficient on -site parking so as not to exacerbate existing problems of race track patrons parking offsite Maintaining architectural compatibility with the existing race track grandstands Preserving important community views of the existing race track grandstands such that the race track grondstands remain recognizable from locations along Huntington Drive Providing sufficient on -site security so as not to impact the services of the Arcadia Police Department The purpose of designating the area south of the race track grandstands Commercial is to assist in facilitating free market forces to introduce new, compatible uses with complementary market segments to the ekisting mall, Downtown, and other commercial areas within the City. Overall, the Commercial designation of the southerly race track parking lot is intended to assist in achieving the City's mission and the related economic development and public infrastructure goals that are included in the Mission Statement. By reinforcing the need to establish linkages between new uses and existing ones, and between the race track and mall, the General Plan also seeks to create a synergistic economic relationship between the mall, race track, and new commercial uses in the race track's southerly parking area. New development within the portion of the race track designated Commercial is to be implemented through a specific plan pursuant to the California Government Code or an equivalent master planning process adopted by the City, and is to be consistent with the following provisions. Community Contexi: Santa Anita Park is a vital component of the community's identity, its cultural heritage, and its economic well - being. Further, it is a bonafide regional destination, drawing visitors from throughout Southern California. The race track is one of three major live horse racing venues in Southern California, and possesses a distinct cultural heritage and recreational identity. It consists of the grandstands, track, paddock area, stables, other ancillary buildings, and two large surface parking areas, one to the north and one to the south of the track itself. The southerly surface parking area provides a unique physical opportunity for master planned infill development which builds upon the site's regional identity and central location. Development within the site's southerly parking area needs to be carefully planned so as to avoid or minimize adverse impacts to existing and established neighborhoods-and commercial areas within Arcadia. %•64 1 LAND USE AND CCyMP4UM'i Y DESIGK ARCADIA GgNEi2AL PLAN - t30VEM13E3i 2010 Located immediately southwest of the race track, the regional shopping mall is Arcadia's primary retail sales tax generator, it consists of approximately 1.4 million square feet with three major anchors. It serves Arcadia residents, as well as residents from surrounding communities. Although the race track and mall are contiguous to each other, each has a large common boundary, and shares a common set of access roadways, there are no common activities or functional linkages between these two uses. A chain link fence topped with barbed wire currently separates the southerly parking lot of the race track from the easterly mall parking area. Large arterial roadways separate the race track /mall complex from adjacent uses. These roadways, Baldwin Avenue and Huntington Drive, are wide with landscaped medians, and represent the public /private edge for the race track and mall, Both the race track and mall are set for back from Huntington Drive and Baldwin Avenue, minimizing visual impacts. The location of the race track parking areas to the north and south of the race track and grandstands has increased the visibility of these features. The unique architecture of the southerly grandstand facade has become an important community landmark. Views of this facade are an important attribute of the site that needs to be protected in planning for development of the southerly parking area, such that the grandstands remain a recognizable community feature, The architectural design of commercial buildings that are introduced to the southerly race track parking area needs to be compatible with existing race track architectural design, and functionally build upon the race track's attributes. The mall has a significant setback with a fairly dense landscaped buffer at the roadways' edge, limiting visibility of the mall, particularly from Baldwin Avenue. Of utmost concern to the City is the continued success of the mall and race track. t5roposed Conirnercial Wes The approximate 85 -acre development area within the southerly portion of the Santa Anita race track is strategically located between an established commercial use (race track) and commercial retail use (mall). The mix of uses within this development area should add to and enhance the range of existing retail in the City, and provide uses which can draw from and contribute to existing patronage at the mall and race track. The mix of uses and the design of new commercial development should work together to create a place where people can and will want to come for shopping and enjoyment. A wide range of compatible land uses is desired that will increase the area's retail sales potential by bringing more activity and buyers to the area. Thus, the retail component of new development within the southerly portion of the race track should provide a unique shopping experience, emphasizing a mix of general retailing and specialty goods. Attracting a wide variety of sit -down restaurants and other types of eating establishments is important to the success of establishing a functional link between the mall's commercial uses and the race track's entertainment identity. A variety of entertainment experiences are desired to support the dominant commercial use of the site, and to increase patronage of the area's retail sector without creating a "theme park" or "amusement park." xi CADIA GZ"NI°CUL PLAID - NOWNUER 2010 LAND U.rmiAND C01 ,41 JUXITYDrSIGI ~ 1 ?.�� Desirable entertainment uses include both ticketed and non - ticketed venues. Office uses should, at most, be a minor portion of new development, and be supportive of the overall commercial character of the site. It is understood that, although market forces will bring an array of new and unique uses to the area, other uses will invariably compete with existing commercial areas in the City. Emphasis should be placed upon new uses and uses either having complementary market segments or a different scale and character than those currently existing within the City of Arcadia, Community Design There are several strong existing attributes that influence the potential new Commercial area's design. At this time, the mall and race track are two separate entities with no physical or commercial linkage. Development of new commercial uses in the southerly portion of the race track property represents a potential third major entity in the center of Arcadia. In order to benefit from the locale of the two existing regional attractions, and to maximize potential economic benefits, new commercial uses should be designed to establish linkages with the two existing major attractions (mall and race track), rather than simply create a third entity in the some area. The intent of such linkages is to facilitate each attraction's ability to draw patronage from, as well as contribute patronage to the other attractions, thereby increasing the success of the mall, race track, and new commercial development. New commercial buildings and structures in the southerly portion of the race track property need to respect the architectural and cultural heritage represented by existing race track buildings. Because any proposed development would be located closer to Huntington Drive than the existing race track structures, potential visual impacts of new development must be carefully analyzed. An appropriate building setback buffer and /or public edge landscape treatment needs to be provided to minimize potential visual impacts along Huntington Drive, and new development needs to protect public views of the race track grandstands. While it is not possible for new development south of the grandstands to preserve unobstructed views of the entire grandstand structure, it is important that the grandstands remain recognizable from key locations along the perimeter of the race track. Key views which merit preservation include the first views travelers get of the grandstands from Huntington Drive /Colorado Place, directly east of the track (Gate 5) and views of the unique architecture of the southerly grandstand facade, particularly those of architectural details toward the center and easterly portion of the grandstands. Views of these key architectural details from locations along Huntington Drive should be preserved. Exposed elevations of new commercial buildings to Huntington Drive, the race track, and the mall should avoid long, uninterrupted planes, using articulated components such as staggered setbacks for different building levels, recessed windows, projecting balconies, arcades, etc. The design of the rear of buildings and loading or service areas should be cognizant and respectful of adjacent uses, and the need for establishing viable linkages with the mall and race track. The size and design of exterior building and project signage exposed to public roadways for new development within 2 -66 1 LAND USii AND CS9 -11- IUNITY OSSIGN ARCADIA 0045 iAL PLAX - WOYEMBEA 2010 the southerly portion of the race track needs to be compatible with the immediately adjacent architecture, Thus, while signage is important to assist visitors to the site, signs should not be the dominant visual feature of the built environment. Landscaping for new commercial development should establish a project identity along the public edge and at the entries, and identify the vehicular roadways, pedestrian walkways, building entries, and plazas. Development of this site should also provide the opportunity to construct an integrated and consistent landscape treatment along Huntington Drive. The General Plan acknowledges that new commercial development south of the race track grandstands will introduce a new and potentially substantial source of nighttime lighting. Lighting needs to be integrated into project design, and not appear to be tacked on as an "afterthought." Lighting structures need to be in scale with the surrounding buildings. Also, while on -site lighting needs to be bright enough to promote the general safety of new uses, great care must be taken to prevent "spillage" of lighting and glare into nearby residential neighborhoods. Circulation and Pariring Given the potential intensity of new development south of the race track grandstands, new commercial uses could generate a substantial amount of traffic. Because of the key location of the commercial development area, and its proximity to two major traffic generators (race track and mall), if not properly managed, traffic from new commercial development could result in traffic congestion. ' 1 } Arboretum Santa Anita J Rare Track � � o o� c Z CENTER a V ENTRY z potential y Santa Anita j� j� Development Fashion Parkti�ltl� Arca m (Mall) a Legend z C�ia�uG� Potential Linkage 'J Locations Race Track Gate Numbers 1=4DI4 GEM2 2AI. PLAt - MOVEMbrin 20IG LAXID USE ANO COP9MUHITY DESIGp,, 1 2 -67 Traffic resulting from new commercial development needs to be analyzed and mitigated from both a roadway capacity perspective (both average daily traffic and peak -hour traffic), and from a land use compatibility perspective. Thus, new commercial development must not exceed the roadway performance capacity thresholds identified in the Circulation and Infrastructure Element. In addition emergency response vehicle access, and to the maximum possible extent, commercial traffic needs to be accommodated on existing roadways serving commercial uses. Existing residential neighborhoods and the hospital should not be adversely affected by new commercial traffic. These neighborhoods and their established character need to be protected from adverse traffic impacts generated by potential commercial development. Because access points are well established and appropriately spaced, the internal circulation system for new development south of the race track grandstands should be connected to existing points of ingress /egress. Because commercial uses are often characterized by significant pedestrian traffic, the internal circulation system of any new commercial project (or increment thereof) needs to assign a high priority to pedestrian movement in terms of ease, safety, and legibility. As the result of new development, on -site merging of race track related traffic with traffic from new commercial uses and the moll will occur. It is the intent of the General Plan that patrons of the race track, mall, and new commercial development be able to walk between these uses, and that automobile traffic between these uses not be forced to use the external public roadway system as the only means of access between them. The General Plan recognizes that, by encouraging development within an 85 -acre area south of the race track grandstands, a substantial amount of race track parking will be diverted from the track's southerly parking area to its northerly parking area on a daily basis. Because of the proximity of residential neighborhoods north of the race track, race track - related traffic increases onto Colorado Place need to be limited. Thus, access to the race track parking area needs to continue to be provided from Huntington Drive and Baldwin Avenue. At the some time, it is important that the internal circulation system south of the race track efficiently move traffic from parking entries along Baldwin Avenue and Huntington Drive through or around new commercial development into race track parking areas, and that traffic queuing up to enter race track parking areas not block entries into the commercial area parking or uses. It is also important that an efficient system of pedestrian access routes connecting mall and commercial parking and uses be provided, and that safe crossings of vehicular access routes are provided. All requisite parking for new commercial uses must be accommodated on site. The net effect of the physical arrangement of commercial, race track, and mall parking must not exacerbate the problem of race track patrons parking off site. A number of race track patrons use public transit. This mode of transportation needs to be preserved and enhanced through the provision of safe and adequate staging areas for buses as determined by the Foothill *x_66 1 LAND USE; AND CCSP9;wUKiTY DESION ARCADIA GIMZ12t %At4 — ld01 MM'SER 2010 Transit District and the Metropolitan Transportation Authority, and through the provision of safe and convenient pedestrian access from these staging areas to the race track and commercial uses. Public Scif efy An important objective and benefit of new commercial development is municipal revenue generation. However, there are often significant public safety demands and costs associated with these types of projects. Large commercial venues have the potential to generate large numbers of people within a relatively small area. While this may be an objective of the new commercial development, the maintenance of a high level of public safety within the commercial area and surrounding lands is imperative. New commercial development south of the race track grandstands will be required to maintain an adequate level of security and fire protection as determined by the City of Arcadia Police and Fire departments, Phasing and Intensify The commercially designated portion of the race track's southerly parking lot is large (85 acres) and potentially able to accommodate significant new development. It is thus likely that new development will occur in a number of increments. Individual development increments need to yield a cohesive, viable mix of uses, and should not be predicated upon the construction of a subsequent increment. Thus, with the completion of any individual development increment, the whole of the commercial area needs to appear to be "complete." Simultaneously, each development increment needs to represent a rational step that provides linkages to previous commercial development within the race track, as well as to subsequent development increments, the mall, and to the race track itself. In addition, this guideline will minimize visual impacts on the public roadways. In order to ensure that new commercial development is respectful of Arcadia's existing community character, and is compatible with the community's well preserved, peaceful, and safe residential neighborhoods, new commercial uses south of the race track grandstands are to be concentrated away from existing residential uses along Huntington Drive, although small freestanding pads may be located along the Huntington Drive frontage. As development approaches exterior portions of the site nearest to existing residential uses, the intensity of new commercial uses needs to be significantly reduced. 1 ufure of the naze f rack Arcadia remains firmly committed to the continuation of a thriving horse - racing enterprise at Santa Anita Race Track. Given the long-term trends in the sport, which has seen many venerable courses closed in recent decades, it is prudent to address the possibility that horse racing will cease to be viable at Santa Anita at some point over the life of this plan. The site offers tremendous potential due to its size, access, and central location in the San Gabriel Valley; because of this, any use in the Horse Racing designated portion of the property must meet the following performance criteria: PCAD14 G .'NE AL PL&K - XOY —RMBER 2010 i..A'z1 D U5E AiID 0014 U141lY Di:SIG1✓: 1 2-69 The appropriate uses will be determined through an extensive process of citywide community engagement. The uses will be a major and continual revenue source for the City, comparable to the race track in its heyday. e The uses will be world class in scope and appeal, with a regional draw, appropriate to the scale and unique nature of the site The uses will be compatible with the character of the Arcadia community, which is made up of safe and attractive residential neighborhoods. The uses will complement existing major activity centers throughout the City. 4 The existing grandstand will be preserved to the maximum extent feasible, Design will put a priority on creating public gathering spaces, especially ones that are designed to be used by Arcadia residents. Planning will incorporate educational and civic uses (e.g. museums and school facilities). r The uses will not place an additional burden on the City's water supply. Development will preserve views of the mountains and views of the grandstand from surrounding streets and from within the site. r Site design and uses will accommodate alternative modes of transportation, and will be linked with transit and the Gold Line station. G:;.:G. "a: .... ..... `.'L �!F .._. ".a�. ..4++ n;` .,w..s.4�'.':�:4.,.Ti..i�a�3✓'. •., ..34 ..» . u- Ja".. .«.+. w :�''iu_s?.i,::..:C6r.1u.r+,v - - ..r..:: °.w.i: Qi 01 Maintenance of the many benefits -- cultural, fiscal —that live horse racing at Santa Anita Park brings to Arcadia Policy LU -15.1: Promote continued economic viability of the Santa Anita Park race track by providing opportunities for compatible commercial uses. Policy LU -15.2: Recognize that Santa Anita Park and live horse racing are historically and commercially important to the community, and that the race track facility —and the grandstand in particular — is a significant community feature worthy of preservation. Policy LU -15.3: In the event that horse racing is no longer a viable option at Santa Anita Park, any future alternative use of the site will meet the performance criteria set forth above in this Element for reuse of the site. 2 -70 1 LAND Use ANIG3 COIAHUPI'TY DSSIG14 ARCADIA GENERAL FLAX - WOVE 1ucR 2010