TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: David Chantarangsu, AICP, Development Services Director
PREPARED BY: Dennis Watts, Senior Planner
SUBJECT:
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Public Hearing on The Shops at the Triangle: Specific Plan Amendment 2023-00003, Tentative Tract Map 38622 (TTM-2022-2706) Development Plan 2022-2705 and consideration of an Addendum to the previously adopted Subsequent Environmental Impact Report
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RECOMMENDATION
recommendation
Conduct a Public Hearing;
Consider and Approve an Addendum to the Subsequent Environmental Impact Report pursuant to the California Environmental Quality Act Guidelines (Cal. Code Regs. Title 14) Section 15162 and 15164 by adopting Resolution No. 24-4779 entitled: A Resolution of the City Council of the City of Murrieta Approving the Environmental Determination, Development Plan 2022-2705 and Tentative Tract Map 2022-2706 (TTM 38622) for The Shops at the Triangle, a 64.3-Acre Site to be developed with a 279,538 square foot regional shopping center on approximately 36.5 acres and to subdivide the 64.3-acre site into 23 parcels;
Related Improvements for Circulation, Infrastructure, and Landscaping Located southerly of Murrieta Hot Springs Road, East of Interstate 15 and west of Interstate 215 (APN’s 910-390-001 through 910-390-003, 910-390-008 through-018, 910-390-020 through 910-390-022, 910-400-001 through -018) within the Commercial (C) Zone of the Triangle Specific Plan Area; subject to the Conditions of Approval in Exhibit A and Exhibit B; and
Introduce and Conduct the First reading of Ordinance No. 607-24 entitled: An Ordinance of the City Council of the City of Murrieta, California, Approving and Adopting the Triangle Specific Plan Amendment No. 2 (Specific Plan 276 Amendment No. 2 - Formerly named Murrieta Springs Mall) for property located on 64.3 acres southerly of Murrieta Hot Springs Road, East of Interstate 15 and west of Interstate 215 (APN’s 910-390-001 through 910-390-003, 910-390-008 through -018, 910-390-020 through 910-390-022, 910-400-001 through -018) (Planning Case No. SP-2023-00003); subject to the Conditions of Approval in Exhibit A.
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PRIOR ACTION/VOTE
On October 1, 2013, the City Council:
1. Adopted Resolution No. 13-3151, certifying the Subsequent Environmental Impact Report (SEIR) and adopting the Statement of Overriding Considerations, Findings and Facts of Findings, and the Mitigation, Monitoring, and Reporting Program (MMRP) for the Specific Plan Amendment and General Plan Amendment;
2. Introduced an Ordinance amending and restating Specific Plan 276 (Murrieta Springs Mall) to Specific Plan 276 (The Triangle Specific Plan); and
3. Adopted Resolution No. 13-3152 approving Design Guidelines for The Triangle Specific Plan, (Vote: 3-2).
On October 1, 2013, the City Council adopted Resolution No. 13-3153, approving a General Plan Amendment to the Land Use Chapter of the General Plan (Vote: 4-1).
On October 15, 2013, the City Council adopted Ordinance No. 481-13 approving Amendment No. 1 amending and restating Specific Plan 276 (The Triangle, formerly named Murrieta Springs Mall) (Vote: 4-1).
On December 15, 2015, the City Council adopted Ordinance No. 506-15 approving Amendment No. 2 to Development Agreement No. 54 (Vote: 4-0-1).
On July 24, 2024, the Planning Commission held a public hearing and recommended that the City Council approve an Addendum to the SEIR and approve Specific Plan Amendment (SPA) 2023-00003, Development Plan (DP) 2022-2705, and Tentative Tract Map (TTM) 2022-2706 (TTM 38622). Planning Commission Resolution No. PC-2024-XX (Vote: 3-0-1-1).
CITY COUNCIL GOAL
Aggressively pursue economic development.
EXECUTIVE SUMMARY
The project site is located within The Triangle Specific Plan (SP 276) area. The project proposes to subdivide the property into 23 parcels and to construct a 279,538 square foot retail shopping center in the initial phase on +/- 36.5 acres of a +/- 64-acre property located between Interstate 15 and 215 south of Murrieta Hot Springs Road. The proposal also includes an amendment (No. 2) to The Triangle Specific Plan to revise the list of allowed uses and modify various building and landscape setback requirements.
BACKGROUND
Previous Approvals
Specific Plan 276 was adopted by the County of Riverside in 1990 and has been a part of the City’s General Plan since the City’s incorporation in 1991. The Specific Plan was zoned for commercial/retail uses and allowed approximately 1.7 million square feet of development. In 2013, the City Council approved the first amendment to the Specific Plan (<https://www.murrietaca.gov/DocumentCenter/View/614/The-Triangle-Specific-Plan-PDF>) and updated the environmental analysis with an SEIR (<https://www.murrietaca.gov/DocumentCenter/View/12818/SP-276---Triangle-Specific-Plan-FSEIR---October-2013>). The Specific Plan zoning and maximum square footage did not change.
In adopting the SEIR (City Council Resolution No. 13-3151) for the Project, the City Council determined there were unavoidable and potentially significant air quality impacts, project traffic and circulation impacts, and traffic and circulation impacts when traffic from other projects was added (cumulative impacts) that could not be reduced below a level of significance even with the imposition of feasible mitigation measures; therefore, the City Council adopted Findings for a Statement of Overriding Considerations concluding that the benefits of the project outweigh the unavoidable significant environmental impacts and deeming those unavoidable significant impacts acceptable. Otherwise, all other project impacts associated with Agricultural Resources, Land Use and Planning, Public Services, Utilities and Service Systems, Population and Housing, Noise, Water, Biological Resources, Energy and Mineral Resources, Cultural Resources, Recreation, Aesthetics, Geophysical Hazards, and Hazards were found to be either less than significant or less than significant with the incorporation of mitigation measures.
Project Proposal
Specific Plan Amendment No. 2 - The project before the City Council consists of Specific Plan Amendment No. 2 (SPA No. 2) (Planning Case No. SPA-2023-00003), Tentative Tract Map 38622 (TTM-2022-2706), Development Plan 2022-2705 (DP-2022-2705) and an Addendum under CEQA. There are two versions of the Specific Plan in the agenda packet. Attachment 6 is SPA No. 2 in a strikeout/underline (deleted text is shown in red with a line through the words and added text is shown in blue with an underline) format which shows what the proposed modifications in relation to the adopted SPA No. 1. Attachment 7 is SPA No. 2 in a finished format, assuming all changes are approved. The goal of SPA No. 2 is to provide more flexibility in implementing the SP without requiring additional amendments while still maintaining appropriate development standards consistent with typical development in the City. The request seeks to add new uses and modify the approval authority of several uses within the plan area, to change various development standards and administrative elements. Below is a brief list of the more notable changes.
Changes to the allowed uses in Use Table 2-1
§ Add “Drive-Through Restaurant/Fast Food” uses with the limitation noted below.
o Planning Area 3 - Must be 200 feet back from Murrieta Hot Springs Road
§ Add “Vehicle Rental” as a permitted use, as an office only
§ Add “Golf Driving Ranges” (with or without restaurants) subject to a Minor Conditional Use Permit (Minor CUP)
§ Change “Outdoor Recreation, Commercial” from a Conditional Use Permit (CUP) to a Minor CUP
§ Add “Hospitals”, subject to a CUP
§ Add “Extended Care Facilities” (less than 30 day stay), subject to a Minor CUP.
§ Modify criteria for “Warehouse Retail Stores” to state “greater than 70,000 sf” and subject to a Minor CUP
§ Amend “Veterinary Clinics, Animal Hospitals, Kennels and Boarding Facilities” from a permitted use to a Minor CUP and to remove the restriction that the facility be within a retail business and cannot exceed 40% of the business floor space
The difference between a Minor Conditional Use Permit (MCUP) and a Conditional Use Permit (CUP) is that an MCUP can be approved by the Development Services Director while a CUP must be approved by the Planning Commission.
Changes to Development Standards (Section 2) and Administrative Matters (Section 4)
§ Change the 60-foot landscape setback along Murrieta Hot Springs Road to 15 feet for parking areas and 25 feet for buildings, with allowances for certain exceptions (For reference, See Exhibit 2-28 through 2-31 and Section 2.5.3-Office, Section 2.5.4-Retail & Restaurant, and Section 2.5.5-Hotel) (Section 2).
§ Reduce various building and landscape setback requirements within the interior of the specific plan area (Section 2).
§ Modify various setback standards as a result of changing the setbacks from the landscape setback to a more conventional method of applying setbacks from property lines (Section 2).
§ Reduce parking garage setbacks from Murrieta Hot Springs Road from 100 feet to 25 feet when less than two stories (Section 2).
§ Include provisions for the replacement of the two existing billboards for two electronic billboards (Section 4).
§ Increase the allowances for additional freeway and pylon signs, increased heights, larger sign area, and larger area for on-site digital signage (Section 4).
§ Authorize the Development Services Director to consider reductions to various setbacks within the specific plan, either through a set 25% reduction, or through specified changes identified as Minor Exceptions (Section 4).
DP-2022-2705 - DP-2022-2705 (See Attachment 8a and 8b) represents the initial Development Plan to approve new construction within The Triangle Specific Plan proposing 279,538 square feet of retail development on 36.46 acres. The development is focused on the northerly portion of the Specific Plan area. Specifically, there is 197,191 square feet of commercial/retail area and 82,347 square feet of food/restaurant uses with 11,100 square feet of outdoor dining areas. There are two primary access points into the center, one at the intersection of future Monroe Avenue (currently Sparkman Court) and Murrieta Hot Springs Road, and the other is located at the intersection of Hancock Avenue and Murrieta Hot Springs Road, both of which will be signalized. An additional minor access point will be provided between the two primary access drives and will be limited to right-in and right-out vehicle turning movements. A total of 1,675 parking spaces are provided, more than the minimum required in the City’s Development Code. The remaining southerly 28 acres of the site are slated for future development that would be approved through the approval of subsequent Development Plan applications and compliance with CEQA. The remaining development capacity within the specific plan area after this initial development phase is approximately 1.4 million square feet of commercial/ retail uses.
Infrastructure improvements consist of widening Murrieta Hot Springs Road primarily to accommodate deceleration lanes into the project site and the installation of traffic signals at the intersection of Murrieta Hot Springs Road at Hancock and Murrieta Hot Springs Road at Sparkman Drive/Monroe Avenue. A sewer line will be extended from the north side of Sparkman Drive (future Monroe Avenue) through the project site under I-15, to connect to an existing sewer line on the west side of I-15. Monroe Avenue on the north side of Murrieta Hot Springs Road will also be realigned and widened to be more perpendicular to Murrieta Hot Springs Road and to accommodate proper lane configuration from the south side. Staff notes Sparkman Drive (Future Monroe Avenue) will be extended north to connect with Los Alamos Road at some point in the future as a City capital improvement project, which should result in a better trip distribution of traffic to and from the project site. There are several documents that make reference to Monroe Avenue (future Monroe), or Sparkman Court or Sparkman Drive and this report will identify the street as “Sparkman Drive/Monroe Avenue” from this point forward as they are the same street.
TTM-2022-2706 - Tentative Tract Map 38622 (see Attachment 8c) covers the entire 64.3-acre Specific Plan area and proposes to subdivide the property into 23 lots/parcels. There are five (5) lettered lots shown on the map that are required to be dedicated to the City as they represent right-of-way (ROW) along Murrieta Hot Springs Road to provide the appropriate road width (150-feet) to meet city standard 102A. Additional width is also necessary in areas where a deceleration lane is designed. The map includes a request for a vacation of a previously dedicated road, Rogers Dale Avenue. An access easement is shown providing appropriate legal and emergency/public access to all lots within the subdivision.
Analysis
SPA No. 2 - Retail development has substantially changed over the past three decades due to the advent of e-commerce and changes in consumer shopping trends, which resulted in the closure of tens of thousands of retail stores throughout North America. Retail industry analysts have dubbed the current store closure trend as the “retail apocalypse”. In response, newer commercial retail projects are incorporating more restaurants, fitness, and entertainment uses, and less retail area in projects. The proposed changes to the project are consistent with this evolution, as well as the City’s General Plan Goals and Policies, and will allow more flexibility in implementing the Specific Plan while still maintaining similar development standards that are applied throughout the City. In many cases, the development standards in the Specific Plan contain higher standards than are required in other areas of the City.
Development Plan & Tentative Map - The Tentative Map and Development Plan meet all of the requirements of the Specific Plan in terms of building and landscape setbacks, parking, minimum landscape area, building massing and architecture, refuse/recycling, and fire access. To deviate from several of the Specific Plan requirements (building and/or landscape setback width and percentage of parking at the rear of a building), the applicant requested reductions via a Minor Exception. The Specific Plan allows for a Minor Exception or administrative adjustments, as a deviation from a Specific Plan requirement that falls within a specific range. The minor exception allowances are described in more detail in Section 4.4.2 of the Specific Plan. Staff supports the requested Minor Exception requests as they do not affect fire access, do not pose a health or safety hazard, and still maintain appropriate landscape widths along the project perimeter and internally. A more detailed analysis describing the Development Plan and Tentative Map’s compliance with the Specific Plan and General Plan can be found in the Planning Commission Staff Report (Attachment 5).
Findings and Specific Plan Goals
Specific findings are required to be made for each of the three application types. Staff recommends approval of the project based on the findings made in accordance with MMC section 16.66.080 for the SPA, which is discussed in Section 2 of the Ordinance (Attachment 1). Findings for the TTM pursuant to MMC Section 16.94.080 and Development pursuant to MMC Section 16.56.040 are in the Resolution (Attachment 2).
Section 1.3.2 of the Specific Plan identifies specific project planning goals. Some of the more prominent goals are noted below:
1. “Implement the City of Murrieta General Plan policies and objectives relevant to the site.” The Project is consistent with and implements many of the City’s General Plan goals, policies and objectives.
General Plan Goal LU-1 - “A complimentary balance of land uses throughout the community that meets the needs of existing residents and businesses as well as anticipated growth and achieves the community’s vision.”
• Policy LU-1.2, Ensure future development provides for a variety of commercial, industry, and housing that serve the spectrum of incomes within the region.
• Policy LU-1.3, Establish a range of residential density and non-residential intensities to encourage a wide range of development opportunities.
• Policy LU-1.5, Encourage a wide variety of retail and commercial services, such as restaurants, and cultural arts/entertainment, in appropriate locations.
Goal LU-7 “Economically viable, vital, and attractive commercial centers throughout the City that serve the needs of the community.”
• Policy LU-7.1, Work with property owners of vacant commercially zoned property to develop their sites into appropriate, economically viable projects.
• Policy LU7.5, Provide convenient freeway access for regionally-serving commercial centers to attract a regional customer base.
• Policy LU-7.6, Focus commercial retail centers adjacent to major transportation corridors
• Policy LU-7.8, Encourage consolidation of parking and reciprocal access agreements between adjacent business and commercial center property owners.
• Policy LU-7.9, Encourage opportunities for complementary retail and service uses to serve local residents and the daytime employment population.
• Policy LU-7.10, Encourage a range of retail uses that serve local residents in the region.
Goal LU-8 “A community that provides opportunities for mixed use and/or transit-oriented development.”
• Policy LU-8.1, Encourage integrated development that incorporates a mix of uses (residential, commercial, office) in mixed use or transit-oriented development areas.
• Policy LU-8.6, Encourage higher density residential, commercial, and employment development near a future Metrolink or High-Speed Rail Station, along other major public transportation routes, and at other suitable locations.
Goal LU-12 “A focused development and economic development strategy that emphasizes specialized land use policies within identified Focus Areas.”
• Policy LU-12.1, Provide for the highest level of retail and job-creating uses in areas adjacent to the I-15 and I-215 freeways. This includes the North Murrieta Business Corridor, Golden Triangle North (Central Murrieta), and South Murrieta Business Corridor Focus Areas.
Goal ED-1 “A highly visible and attractive commercial mixed-use regional hub located at the confluence of the I-15 and I-215 freeways in central Murrieta” and policies ED-1.1 & ED-1.3.
The project provides the opportunity for a variety of commercial uses, including retail, food/restaurant, and service uses, which are conveniently located near two major freeways that will serve the region and the local residents. The planned additional services, employment opportunities, and potential fiscal revenue sources are intended to bring further balance to the existing and planned future residential uses in the City. The Specific Plan allows for a higher intensity of development and the proposed Development Plan represents an initial phase with additional vacant land remaining for future development.
The Project is also consistent with other specific goals and policies, including: General Plan Goal CIR-1. “A circulation system that serves the internal circulation needs of the City, while also addressing the inter-community or through travel needs and corresponding policies” (Policy CIR-1.1, CIR-1.3, CIR-1.10), Goal CIR-6 “Alternative travel modes and facilities are available to serve residents and employers/employees and reduce vehicle miles traveled”. (Policy CIR-6.8, CIR-6.9, and CIR-6.13).
The project is limited to two main access drives and a restricted turning movement for the third access drive. The project is conditioned to provide a bus stop (turnout), shelter, and bench and is required to provide a Trip Reduction Plan prior to occupancy. Murrieta Hot Springs Road has a bike lane, and the project is designed with bike lanes on the primary drive access. Additionally, a landscaped area will be provided between the road and the sidewalk along Murrieta Hot Springs Road.
The project meets Infrastructure Element Goal INF-1, “New development and redevelopment is coordinated with the provision of adequate infrastructure for water, sewer, stormwater, and energy.” and corresponding policies INF-1.1, INF-1.4, and INF-1.21. The project will construct facilities both on- and off-site to support the area and help protect off-site areas from inundation. These facilities will be constructed by the developer and then dedicated to the appropriate public agency for ownership.
2. “Create project and community identity through thematically coherent and aesthetically eloquent architecture, landscaping, colors, signage, and boundary and entry statements.” The Project would introduce a new shopping center with an architectural design, Modern Farmhouse, that has not been constructed in the city. Additionally, the center would have landscaping along the perimeter of the development, and an enhanced entry drive which would provide an identity to the area.
3. “Locate regional shopping facilities where they are optimally served by the regional transportation system and will have minimal impact on secondary and surface streets.” The Project is located on Murrieta Hot Springs Road and adjacent to Interstate 15 and 215 making the project highly visible.
4. “Consistent with the adopted City General Plan size and phase the regional center development plan to satisfy and be consistent with current and anticipated future regional market demands through the design of an integrated mixed use development of approximately 1,700,000 square feet.“ The Project represents about 280,000 square feet of retail space with approximately 80,000 square feet anticipated as various levels of food services ranging from quick serve, sit-down, and drive through restaurants.
5. “Increase tax revenues to the City of Murrieta by recapturing sales currently “leaking” to other areas, attracting new sales from outside the community, and enhancing other income sources such as property tax, business license fees, and development fees.” The Project would provide additional retail space to allow for businesses that are not currently in the Murrieta market. This new retail space would result in additional property tax, sales tax, business license fees, and development impact fees.
6. “Improve the sub-regional jobs to housing ratio by providing a substantial number of new construction and permanent jobs in the local community.” The Project would add approximately 560 new jobs which would contribute to improving the sub-regional jobs to housing imbalance.
Planning Commission Recommendation (July 24, 2024)
The project was considered by the Planning Commission at a public hearing. During the public notice period for the hearing, no public comments (written, or in person) were received. On July 24, 2024, the Planning Commission opened the public hearing, and no members of the public spoke on the project. The Planning Commission asked several questions related to road and other infrastructure improvements, sales tax leakage, traffic, and public safety. The Planning Commission recommended approval of the project with an added recommendation that the City Council require the developer to provide an interior space within the center and a dedicated parking space for the Police Department. Details of size, location, and specifics are to be worked out between the developer and the Police Department per recommended Condition of Approval No. 42.
See Attachment 4 for the Planning Commission Resolution.
Department Recommendation
Along with the approval of the project’s CEQA document, as described below, the Development Services Department recommends approval of the proposed project subject to the conditions of approval. Attachment 1 introduces Ordinance No. 607-24 to amend the Triangle Specific Plan (SP 276), representing the second amendment. Attachment 2 is the resolution to approve Development Plan 2022-2705 (DP-2022-2705) and Tentative Tract Map 38622 (TTM-2022-2706). Based on the recommendation from the Planning Commission, staff has added condition of approval No. 42 to require the developer to provide an interior office space within the shopping center with a size and location to be coordinated with the Police Department, prior to building permit issuance. A marked parking space for Police vehicles shall also be provided in close proximity to the office space.
CEQA Review & Environmental Determination
As documented in the Background Section of this agenda report, an EIR and a SEIR were previously adopted in connection with the Specific Plan and Specific Plan Amendment No. 1. Staff recommends that the City Council approve an Addendum as a result of minor technical changes occurring to the Project as described earlier in the report, such as changes in setbacks and other development standards, the administrative development approval process, and the expanded permitted and conditionally permitted commercial uses consistent with a retail/commercial center. The Addendum concludes that the Project falls within the scope of the previously certified SEIR as none of the following criteria under CEQA Guidelines Section 15162 have occurred. For example, the 2013 SEIR contemplated approximately 1.7 million square feet of development. The proposed Project does not modify the buildout area anticipated under the Specific Plan.
Hence, staff recommends that the City Council determine that the Addendum to the SIER prepared for SPA No. 2 is appropriate pursuant to CEQA Guidelines 15162 and 15164. The Project is subject to the previous Mitigation Measures identified in the Monitoring and Reporting Program (MMRP). More information on the CEQA review and analysis can be viewed in the Planning Commission Staff Report (Attachment 5). The proposed Addendum is included as Exhibit C to Attachment 2.
Noticing
The public hearing for the project was noticed in compliance with Chapter 16.76 of the Development Code. The City posted two signs along Murrieta Hot Springs Road on the property, mailed notices to property owners within a 300-foot radius, and advertised in the newspaper a minimum of 10 days prior to the hearing. Notice was also provided to agencies/associations representing blind, aged, and disabled persons pursuant to Government Code Sections 65090(d) and 65091(d).
FISCAL IMPACT
The development of the project will increase the amount of retail development occurring within the city, which is anticipated by and consistent with the General Plan. The demand for City services will increase proportionally with the addition of commercial development. The new development will result in increased property and sales tax.
ATTACHMENTS
1. Ordinance No. 607-24
Exhibit A-Draft Conditions of Approval for SP-2023-00003
2. Resolution No. 24-4779
Exhibit A -Draft Conditions of Approval for DP-2022-2705
Exhibit B -Draft Conditions of Approval for TTM-2022-2706
Exhibit C- Addendum to the SEIR
3. Vicinity Map
4. Draft Planning Commission Resolution (July 24, 2024)
5. Planning Commission Staff Report (July 24, 2024 - without attachments)
6. Draft Specific Plan Amendment (Strikeout/Underline Version)
7. Draft Specific Plan Amendment (Clean Version)
8. Project Plans
8a. Development Plan (Site Plan, Architecture, Preliminary Grading, Preliminary Landscape)
8b. Preliminary Photometric Plans
8c. Tentative Tract Map 38622
9. Draft Notice of Determination