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HomeMy WebLinkAbout2843 Amend Oak/N.Mt. Zoning ORDINANCE NO. 2843 AN, ORDINANCE AMENDING THE COMPREHENSIVE PLAN MAP, ZONING MAP, AND THE DETAIL SITE REVIEW ZONE MAP FOR THE PROPERTY NORTH OF THE RAILROAD TRACKS BETWEEN OAK STREET AND NORTH MOUNTAIN AVENUE. THE PEOPLE OF THE CITY OF ASHLAND DO ORDAIN AS FOLLOWS: SECTION 1. The Comprehensive Plan Map of the City of Ashland is amended .from Indus{rial to Employment and the Zoning Map of the City of Ashland is amended from M-1 to E-1 with a Residential Overlay for the area indicated on attached Exhibit "A". ~ The~Detail Site Review Zone map ~s amended to include the area indicated on attached Exhibit "B". The foregoing ordinance was first read by title only in accordance with Article X, Section 2(C) of the City Charter on the 2nd day of July, 1999, and duly PASSED and ADOPTED this 3rd day of August, 1999. Barbara Christensen, City Recorder SIGNED and APPROVED this 3 day of August, 1999. Paul Nolte, City Attorney Don Laws Council Chairperson Page 1 ~lJe^O le!~uep!seH' L-9 ol L-~ lueuJAOld~U~ o~, le!J~,snpul ,V, ~!q!qxa Exhibit "B" WAY ~ Added to Detail Site Review Zone ASHLAND PLANNING DEPARTMENT STAFF REPORT June 8, 1999 PLANNING ACTION: 99-066 APPLICANT: City of Ashland LOCATION: Approximately 22 acres north of the railroad tracks, east of Oak Street, west of North Mountain Avenue. ZONE DESIGNATION: M-1 COMPREHENSIVE PLAN DESIGNATION: Industrial ORDINANCE REFERENCE: 18.108.060 Type III Procedures REQUEST: Zone change from M-1 to E-1 with a residential overlay and Comprehensive Plan Map amendment from Industrial to Employment. Request also involves amending Chapter 18.72.050 of the Municipal Code pertaining to Site Design and Use Standards to include these properties in the Detail Site Review Zone. 1. Relevant Facts 1) Background - History of Application: This action was initiated by motion of the City Council on April 6, 1999. A copy of the memo from the Planning Director to the Council is included as part of this packet. 2) Detailed Description of the Site: The site encompasses one of the last large parcels of vacant land in close proximity to the downtown. This area has historically served the railroad, and during the height of train usage, the area contained several large structures, including a roundhouse, serving the many locomotives that traveled the Siskiyou Pass daily. The site is relatively flat, by Ashland standards, and the vacant portions contain few remnants of its railroad past. Adjacent to the vacant railroad property, abutting Oak Street on the western edge of the property is a separate parcel owned by Ashland Lumber. It is also zoned M-1 and we propose rezoning this property as well to E-1. Another parcel, adjacent to Hersey Street and Darex, and already zoned E-1, which is also primarily comprised of a wetland, is also proposed to be included in the Detail Site Review Zone. 3. Description of Proposals There are several different facets to this request: First: Rezone of the property north of the railroad tracks that is currently zoned M- 1 to E- 1, and a concurrent change in Comprehensive Plan Designation for the same property from Industrial to Employment. Second: Amend the boundary of the Detail Site Review zone to include all of the property proposed for rezoning, as well as tax lot 1900. Third: Amend the Residential-Overlay boundary to include all of the property proposed for rezoning. II. Project Impact The project impact will be addressed on the basis of the three facets of the proposal. A. Rezone from M-1 to E-l, Comprehensive Plan Map change from Industrial to Employment. In the 1966 Comprehensive Plan, this area of the community was identified as "Heavy Commercial", a classification defined as a "heavy commercial, wholesale and distributive area intended to provide for development of bakery, bottling and cleaning plants, cabinet, machine, plumbing and printing shops and warehousing and wholesale business." In the 1978 Comprehensive Plan, the area was identified for "Industrial" uses, and zoned M-1. This area was identified for heavier industrial development due to its proximity to the tracks and the fact that it was essentially vacant. The area zoned for industrial use included all of the land between the railroad tracks and Hersey Ashia~,d Planning Department Staff Report Plam!ing Action 99-066 Applicator: City of Ashla~d Date: Juae 8, 1999 Page 2 Street. In the 1981 Comprehensive Plan, a new land use classification was developed - Employment (E-l). This zoning allowed for a combination of uses, ranging from commercial to heavy commercial to uses normally seen in industrial zones. The wide variety provided maximum flexibility for a changing economy, as Ashland evolved from a timber community. In this area, the lands adjacent and just south of Hersey Street were rezoned to E-1, while the remainder, generally referred to as the Railroad property, remained in an M-1 zoning. The E-1 zoning has allowed for the development of Darex, the Hersey Business Park, new medical offices along Williamson Way, and recently the development of a retail furniture store at the intersection of Oak and Hersey. This evolution in land uses provides the impetus for the change in zoning for the remainder of the property. From the current Economic Element of the Comprehensive Plan comes the following: "Establishment of light manufacturing firms with high value-added components should be especially encouraged.., knowledge intensive manufacturing such aa' computer software and medical specialty businesses.., educational facilities and professional services are other types of businesses that could be expected to locate and.flourish in Ashland." Given the recent types of commercial and light industrial development that have occurred in Ashland over the last several years, the demand is clearly stronger for E-1 land than for heavy industrial M-1 land. In fact, over the last 10 years, the only use that has requested M-1 land has been the relocation of Oak Street Tank and Steel out to Washington Street near the freeway. Further, as "A" Street and the Railroad District has developed and redeveloped, it has provided a possible template for the future of economic development in Ashland - mixed use development. And as recognized in the Transportation Element of the Comprehensive Plan: "Few areas exist with 'mixed uses' in which a blend of residences, offices, and retail services ia' available. Separation of uses through single-use zoning has resulted in residents' need to drive longer distances to work or for services. Compatible mixed-use zoning would provide services in residential areas and offer housing in commercial areas. These mixed uses would reduce both the number and length of trips for goods and services." Ashta~d Planning Department Staf¢ Report Planlqng Action 99-06¢'; Applicant: City o¢ Ashiaf~d Date: JU~eS, ~999 Page 3 Policy: Provide zoning that allows for a mix of land uses and traditional neighborhood development which promotes walking and bicycling. Within the City's existing land use classifications, only the Employment zone allows for the opportunities for the widest range of uses, with the possibility of including housing in the mix. Further, as development of the adjacent areas has occurred in compliance with the comprehensive plan, it has become more apparent that industrial development is likely incompatible with the adjoining residential uses, either along Williamson Way or North Mountain. Regarding the City's inventories, as part of the Buildable Lands project, we have also examined the utilization of E-1 and M-1 lands currently vacant within the City. From 1990-1998, approximately 35 acres of E-1 land was developed for new uses, while only 1 acre of M- 1 land was used. Further, during this time, Croman Corporation has effectively ended their operation in Ashland, leaving a large area (greater than 70 acres) essentially vacant for M-1 purposes, although the Commission may see a similar request to rezone that area as well based on market demand. Realistically, Ashland's economy has evolved to where it is unlikely the City will see any new large industrial users locate here. Within the region, we must also compete with White City, Grants Pass, and Medford for larger industrial developments, and honestly, we do not compete well. Land costs, nearby residential uses, and general community values are not "open arms" for many large industries. In fact, from the Economic Element, comes the following: "The City a) is clearly unsuitable for the Jbllowing types of businesses: Businesses which use large amounts of water, especially when Ashland's water needs peak. Businesses that emit significant amounts of air pollution Businesses that create toxic wastes that require specific disposal techniques not available locally" From these quotes of the comprehensive plan, it is clear that the Employment land use classification is the most appropriate classification for a large parcel of land near a national register historic district and within walking distance of the downtown core. Further, from our inventories, it is clear that demands are greatest for E- 1 lands as opposed to M- 1, and that in the long run, there will be a greater need for vacant E-1 lands. Ashla!~d Plarming Department Staff Repoct Plant, in9 Action 99-066 Applicant: City of Ashland Date: June a, 1999 Page 4 B. Inclusion of the area proposed for rezone, and tax lot 1900, in the Detail Site Review Zone. As this area is proposed for rezoning from the land use classification with the least restrictions on design (M-l) to E-l, it is staff's opinion that higher standards for site design need to be included. As stated above, this area has the potential to provide for a wide range of uses, similar to those seen along "A" Street (which is currently in the Detail Site Review zone). To a lesser degree, development could also follow the designs seen along Hersey Street and Williamson Way. In both instances, high quality new development has occurred, with significant investments by the developers. To ensure that those investments are protected and to provide for development of a high standard valued by the community, we would recommend that the entire area be included in the Detail Site Review zone. As the area develops, the Transportation Plan calls for a connecting street running parallel to the railroad tracks between Mountain and Oak. The development standards along this street will set the stage for the style of ultimate construction - mixed use, appropriate scale, etc... The goal of the Economic Element is as follows: "To ensure that the local economy increases in its health, and diversifies in the number, type and size of businesses consistent with the local social needs, public service capabilities, and the retention ora high quality environment." (underline added) While the rezoning from M-1 to E-1 addresses many parts of the goal, the change to include this area in the Detail Site Review zone ensures the retention of a high quality environment. C. Amend the Residential-Overlay boundary to include all of the property proposed for rezoning. The option of allowing for residential uses subservient to the primary commercial use on property has been tremendously successful within Ashland. "A" Street provides the closest example of upstairs apartments over downstairs commercial uses, although the mixed use pattern is found elsewhere. It is even seen on Williamson Way, where studio apartments are located above a plumbing contractors business location. In looking at the future for this area, it is Staff's opinion that the greatest variety in uses be allowed, and the opportunity for residential as a secondary use to commercial uses may provide not only affordable housing opportunities, but perhaps the difference between a successful Ashla,~d Plan¢~ing Department Staff Report Plantfing Action 99-066 Applicant: City of Ashland Date: June 8, ~999 Page 5 development and a marginal one. It has been seen in Ashland that the demand for housing can help "carry" a commercial building during down times, and allowing for the option can only be seen as a positive influence. Further, the opportunity to live and work in the same location, or at least only take a short stroll to you place of employment is a benefit to the city's overall transportation needs. The idea of mixed use is supported throughout the Comprehensive Plan, as stated earlier in the Transportation Element, but also in the Economic Element: "The City shall design the Land Use Ordinance to provide for: Commercial or employment zones where business and residential uses are mixed. This is especially appropriate as buffers between residential and employment or commercial areas and in the Downtown." As the Commission is aware, this policy has been very successful in the downtown area, creating a 24-hour neighborhood. This is opposed to a business park development where there is no activity after 5pm. The benefits are not only transportation related, or affordable housing, but also include business safety and property management. Again, given the location that is within walking distance of the downtown, many potential employers, and a variety of services, the benefits of mixing housing with potential new commercial development are many. III. Procedural - Required Burden of Proof From section 18.108.060 regarding Type III procedures: Zone changes, zoning map amendments and comprehensive plan map changes subject to the Type III procedure as described in subsection A of this section may be approved if in compliance with the comprehensive plan and one of the following conditions exist: a. a public need, supported by the comprehensive plan b. the need to correct mistakes c. the need to adjust to new conditions d. where circumstances relating to the general public welfare require such an action. As indicated in thc previous sections, there arc numerous policies and statements within the Comprehensive Plan to support the public need for additional E-1 zoned land, as well Ashland P[annir~9 Depad~ment Staff Report Ptannin9 Action 99-066 Applicant: City of Ashland Date: June 8, 1999 Page 6 as the need for enhanced site design standards and the options for mixed uses. Further, it must also be recognized that Ashland is much changed since the zoning for this area was first adopted in the 1960's, then amended in the 1970's and 1980's. Our economy has diversified to a variety of medical, tourist, manufacturing and retailing uses, and the need for a zoning classification that accepts a wide variety of uses is now necessary. IV. Conclusions and Recommendations Staff recommends approval of the zone change from M-1 to E-l, and the concurrent comprehensive plan map change from Industrial to Employment. Further we recommend amendment of the Detail Site Review zone to include the rezoned property, as well as the adjacent parcel 1900 which is already E-1 zoned. And finally, we recommend that the entire area have a residential overlay to allow for the options for mixed use development, strongly encouraged throughout the comprehensive plan. Ashla~*~d P~anning Department Stair¢ Report Plam'dn9 Acton 99~066 AppBca~t:: City of Ashland Date: J~me 8, !999