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Resolution - 6605RESOLUTION NO. 6605 RESOLUTION OF THE CITY COUNCIL OF THE CITY OF WEST COVINA CERTIFYING THAT THE CITY COUNCIL HAS REVIEWED AND CONSIDERED THE INFORMATION CONTAINED IN THE FINAL ENVIRONMENTAL IMPACT REPORT FOR THE PROPOSED DEVELOPMENT OF THE VINCENT-GLENDORA CENTER SITE LOCATED WITHIN THE CENTRAL BUSINESS DISTRICT REDEVELOPMENT PROJECT; MAKING CERTAIN FINDINGS REGARDING THE ENVIRONMENTAL IMPACT OF THE PROPOSED DEVELOPMENT; AND ADOPTING A STATEMENT -OF OVERRIDING CONSIDERATIONS WHEREAS, the Redevelopment Agency of the City of West Covina ("Agency") proposes to purchase certain real property known as the Vincent -Glendora Center Site (the "Site") for redevelopment pursuant to the Redevelopment Plan for the Central Business District Redevelopment Project; and WHEREAS, the Agency has caused to be prepared an Environmental Impact Report covering the development of the Site and other discretionary actions necessary to the development of the Site in implementing said Redevelopment Project; and WHEREAS, a Final Environmental Impact Report ("EIR"), relating to the proposed development of the Site has been prepared and certified by the Agency; and WHEREAS, the Agency and the City Council have held a duly noticed joint public hearing to consider the proposed Disposition and Development Agreement by and between the Agency and Equidon Investment Builders for the development of the Site; and WHEREAS, the Agency and the City Council has reviewed and considered the information contained in said Final Environmental Impact Report with respect to development of the Site pursuant to said Agreement; NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of West Covina as follows: 1. The City Council hereby certifies that the information contained in the Final Environmental Impact Report has been reviewed and considered by the Council. 2. The City Council hereby finds with respect to the adverse environmental impacts detailed in the Final Environmental Impact Report: a. That the adverse environmental impacts of the proposed development set forth in the Final Environmental Impact Report, including those raised in comments on the Draft Environmental Impact Report, have been considered and recognized by the City Council. Res. No. 6605 October 4, 1982 • b. That based on information set forth in the Final Environmental Impact Report, the City Council finds. and determines that measures have been required in or incorporated into the project which mitigate or avoid each of the adverse environmental impacts identified in the Final Environmental Impact Report, relating to aesthetics (pp. 21-23), stationary source emissions (pp. 60 & 64), roadway, freeway and interior building noises (pp. 70-75), public services and utilities (pp. 76-82). C. That the adverse environmental impacts identified in the Final Environmental Impact Report and set forth in Section I of Attachment A (attached hereto and incorporated herein by this reference) relating to land use (EIR; pp. vi & 13-20), traffic/circulation (EIR; pp. vii-viii, 24-50 & Appendix C), air quality (EIR; pp. viii-ix, 51-65 & Appendix D), energy (EIR; pp. ix, 66-68 & Appendix E), and demolition and construction noise (EIR; pp. x, 70 and Appendix F) cannot be entirely mitigated or avoided if the project is implemented. d. That no additional adverse impacts will have a significant effect or result in a substantial or potentially substantial adverse change in the environment as a result of the proposed development. 4. The City Council hereby finds and determines that all significant environmental effects identified in the Final Environmental Impact Report have been reduced to an acceptable level in that: a. All significant environmental effects that can feasibly be avoided have been eliminated or substantially lessened as determined through the findings set forth in paragraphs 3.b and 3.c of this Resolution. b. Based upon the Final Environmental Impact Report and the documents in the record referenced therein, and upon Section II of Attachment "A", specific economic, social or other considerations make infeasible the project alternatives identified in said Final Environmental Impact Report. C. Based upon the Final Environmental Impact Report and the documents in the record referenced therein, all remaining, unavoidable significant effects of the proposed development, as set forth in paragraph 3.c of this Resolution are overridden by the benefits of the project as described in Section III of Attachment "A", and the City Council hereby approves and adopts said Section III of said Attachment "A" as a Statement of Overriding Considerations for the proposed development project and implementing actions. 5. The City Council hereby authorizes and directs that a Notice of Determination with respect to the Final Environmental Impact Report pertaining to the approval of the proposed Disposition and Development Agreement for the development of the Site and all other Agency actions taken in furtherance thereof be filed. ATTEST: City Clerk IA�- , Mayor -2- Res. No. 6605 October 4, 1982 I HEREBY CERTIFY that the foregoing Resolution No. 6605 was duly adopted by the City Council of the City of West Covina at an adjourned regular meeting thereof, held on the 4th day of October 1982, by the following vote: AYES: Councilmen: Bacon, Shearer, Chappell, Tice NOES: Councilmen: None ABSENT: Councilmen: Tennant ABSTAIN: Councilmen: None APPROVED AS TO FORM: "LC "10- ener 1 C unsel is -3- .0ty Cler 120/6-8 ATTACHMENT "A" SIGNIFICANT ADVERSE ENVIRONMENTAL EFFECTS, MITIGATING MEASURES, INFEASIBILITY OF PROJECT ALTERNATIVES, AND STATEMENT OF OVERRIDING CONSIDERATIONS, RELATING TO THE PROPOSED DEVE- LOPMENT OF THE VINCENT-GLENDORA SITE I. SIGNIFICANT ADVERSE ENVIRONMENTAL EFFECTS WHICH CANNOT BE ENTIRELY MITIGATED OR AVOIDED A. Land Use I. Environmental Impacts The development of the Site will change existing community -oriented commercial land uses to a regional center. However, the Site is designated regional commercial by the General Plan and zoning, and has been identified as one of the highest priorities for redevelopment. Thus the proposed land use is consistent with the City's planning policies and objectives. The primary land use impact will be the displacement of existing tenants which may possibly result in various personal hardships, including the total closure of a business. (EIR, pp. 18-19) 2. Mitigation Measures The West Covina Redevelopment Agency will adopt and implement the Relocation Plan prepared by the Agency to minimize the hardship of relocation to existing tenants and business owners. This Plan has been designed to at least partially mitigate the costs, inconvenience and hardship caused by displacement. Each tenant and owner will be considered individually and accommodated adequately according to the Relocation Plan. (EIR, pp. 19-20) B. Traffic/Circulation 1. Environmental Impacts The traffic study estimates that the completed development will generate a total of 13,480 externally oriented trips per day. Completion of Phase 1 will generate 7,380 vehicle trip -ends, divided evenly between inbound and outbound movements. Completion of Phase 2 will add an additional 22% of the total external site traffic, making the combined traffic generation of Phases 1 and 2 an estimated 91560 vehicle trips per day evenly divided between inbound and outbound movements. Phase 3 will generate the remaining 29% of Site traffic for the cumulative total of 13,480. (EIR, p. 30). In addition to the proposed development, other approved and conceptual developments in the Project area would generate additional estimated daily vehicle trips to Project area roadways of 2,680 and 2,780 respectively. (EIR, pp. 30 & 34.) The traffic study shows that all key Project intersections are currently operating at a satisfactory level of service (LOS C or better). Five intersections are operating at LOS A, while one intersection (Vincent Avenue at South Garvey Avenue) is operating at LOS C. With the growth of existing volumes and inclusion of the approved general office complexes (ambient), no change in service level will occur. Seven intersections will continue to operate at LOS A, while the two remaining intersections will show an incremental increase, but will remain within LOS C. (EIR, P.38) With removal of existing Site land uses, although the intersection service levels will remain essentially the same or vary slightly, eight of nine intersections will experience a decrease in their Intersection Capacity Utilization (ICU) values, with the greatest improvement occurring at State Street and East Garvey Avenue South as well as at the Glendora Avenue/East Garvey South intersection. The remaining key project intersection of Vincent Avenue and South Garvey Avenue would remain unchanged. (EIR, pp. 38 & 41) 2. Mitigation Measures Prior to approval of development permits, the Developer shall develop a Transportation Management Program (TMP) for approval by the Redevelopment Agency. The TMP will identify methods which may be employed to reduce traffic and vehicle miles traveled. The goal of the TMP will be to reduce traffic on adjacent roadways and thereby reduce traffic congestion, energy consumption, and air quality impacts. Specifically, the TMP shall address ride -sharing programs, shuttle service between Fashion Plaza and City and County facilities, and employee incentive programs. The TMP should be a cooperative effort of the Developer, the City of West Covina, and the Southeren California Rapid Transit District. (EIR, p. 49) The Developer and the City of West Covina shall enter into a cooperative roadway improvement agreement to provide certain roadway improvements, including the following: a. Installation of a traffic signal at the intersection of the eastbound I-10 off -ramp and Vincent Avenue. (EIR, p. 49) b. Garvey Avenue South. (1) From State Street to approximately 300 feet southwest of State Street (in three -lane sections), improve existing roadway to minor arterial standards. Requires improvement to north side. (2) At Vincent Avenue, modify existing pavement legends for westbound traffic to include one left -turn lane, one through/optional-right-turn lane, and one right -turn lane. (EIR, p. 49) C. Glendora Avenue - Monitor intersection with West Covina Parkway for future satisfaction of signal warants based on actual traffic volumes. (EIR, p. 49) -2- d. Site access points. (1) Provide two entering and two exiting lanes at all locations. (2) Utilize street connection rather than "dustpan" design, incorporating 25-foot curb return radius. • (3) Post stop sign on all exiting movements. (EIR, pp. 49 & 50). e. Internal circulation and parking. (1) Confirm circulation adequacy for service vehicles (trucks) and large fire apparatus during continuing Site plan refinements. (2) Confirm internal circulation and access adequacy of the Site's parking structure as refined structure plans become available. (3) Provide a total of at least 2,785 onsite parking spaces. (EIR, p. 50). The City and the Developer shall enter -into a monitoring program to evaluate the effectiveness of the four-way stop sign at State Street and East Garvey Avenue South, and the westbound optional right turn lane at the Vincent/Garvey Avenue South intersection. Should the monitoring show these improvements to be inadequate, the City and Developer will enter into a cooperative agreement to provide the required additional improvements recommended by the City Engineering Department. (EIR p. 50). C. Air Quality • 1. Environmental Impacts Demolition and construction activities during the development of the Site will generate fugitive dust and combustion emissions. (EIR, pp. 55 & 56) The greatest project -related air quality concern stems from an increase in vehicle miles traveled (VMT) from 10,000 to 120,000 which will add to the approximately 200 million VMT driven within the air basin each day. (EIR, p. 56) 2. Mitigation Measures In accordance with AQMD Rule 403 (fugitive dust), a dust control program shall be implemented during construction. (EIR, p. 64) In addition compliance with measures contained in the Public Services and Utilities (pp. 81-82), Traffic/Circulation (pp. 49-50), and Energy (p. 68) sections of the EIR will also reduce impacts on air quality. In particular development of a Transportation Management Program will reduce vehicle miles traveled and thus vehicular emissions. (EIR, p. 64) -3- D. Energy 1. Environmental Impacts Onsite consumption of non-renewable energy resources will increase; however, due to stricter conservation standards, this increase will not be proportionate to the increase in intensity. • Automotive energy consumption will increase due to the development of the Site. 2. Mitigation Measures ' Solar -assisted heating/cooling systems and natural heating and cooling building design using glass, overhangs, and landscaping shall be considered and incorporated wherever feasible at precise site plan review. Low -energy fluorescent and high-pressure sodium lighting shall be used where possible and demonstrated at the time of precise site plan review. Lighting for decorative purposes shall be minimized. Development of a Transportation Management Program will reduce vehicle miles traveled and thus reduce gasoline consumption. E. Noise 1. Environmental Impacts Demolition and construction activities will cause a short term impact on ambient noise levels. Noise generated by construction equipment and construction activities can reach high levels. However, no noise sensitive land uses exist adjacent to the Site. Therefore, the development should not result in any significant construction noise • impacts. Limiting the hours of construction to normal weekday hours (7 a.m. to 5 p.m.) should help minimize noise impacts. (EIR, p. 70) Other noise generating activites (i.e. roadways and freeway) will not result in significant impacts or can be mitigated to insignificant levels. (EIR, pp. 70-73) 2. Mitigation Measures Construction activites shall be conducted in accordance with local procedures and ordinances. The orientation of the hotel shall be designed in such a way as to shield its recreational areas from freeway noise. Prior to the issuance of building permits, the Developer shall submit evidence to City staff that architectural plans comply with the State of California interior noise standard. At that time, any additional measures (thicker glazing, sound absorption material, or shielding of vents) to further attenuate the noise to acceptable levels shall be required. Windows are assumed to be closed; therefore, adequate ventilation (mechanical ventilation or cooling) must be provided. -4- II. INFEASIBILITY OF PROJECT ALTERNATIVES A. No Project Alternative The "No Project" alternative included in the EIR is socially and economically infeasible as it would prevent the carrying out of the Redevelopment Plan for the Central Business District Redevelopment Project adopted in December 1971 and • amended in May 1977 and July 1981. The Vincent -Glendora Site is located within the Central Business District Project area. The objective of the Redevelopment Plan is to eliminate blighted areas by replacing existing underutilized or deteriorating land uses within the downtown area with land uses consistent with the environmental, economic and social needs of the community. The goal of the Redevelopment Plan is to revitalize the commercial care of the City to be more productive and economically viable through increased sales and business tax revenues, thus . reducing the cost of providing city services and creating new jobs for area residents. The redevelopment of the Project area pursuant to the Redevelopment Plan has been determined to be necessary to promote the public peace, health, safety and welfare of the City and to effectuate the public/purposes of the California Community Redevelopment Law. The Vincent -Glendora Site has been in decline for a number of years, and as is discussed below, has been the subject of numerous attempts by the City to rehabilitate and revitalize the area. The existing land uses on the Site consists of approximately 200,000 square feet of commercial retail and service uses. T ere are approximately 65 businesses with 9 vacant stores on the Site. A study estimates that existing uses employ 300 persons, and generates approximately $95,000 per year in sales tax based on 1980-81 fiscal year sales tax receipts, and about $6,000 per year in business license fees. The major source of sales tax generated by the existing center is from the auto dealerships and auto -related businesses, with these uses generating about 70% of the total sales tax/in 1980 to 1981. The analysis of the Vincent -Glendora Site development projects permanent employment at completion to be approximately 3,855 persons. In addition, 1,530 person -years of construction employment will be required to complete the development throughout all its phases. In terms of revenues to the City of West Covina, the analysis projects approximately $246,000 a year in bed tax to the City of West Covina resulting from completion of a 250-room hotel in fiscal year 1985-86. Expansion of the hotel to 350 rooms would increase projected annual bed tax revenues to about $344,000. In terms of sales tax, the study projects the generation of approximately $85,700 by fiscal year 1987-88 in revenue to the City from sales tax generated by the retail businesses and restaurants proposed for the development. The study notes that the sales tax estimates can be enhanced if the existing automobile dealerships can be relocated within the City of West Covina. Relocation within West Covina would allow the City fo continue to receive approximately $65,000 a year in sales tax generated from these operations. -5- In addition to the economic impacts from the proposed development, the City of West Covina has identified certain other economic benefits to the City resulting from the development. These include one-time municipal revenues of an estimated $450,000 in building permit fees and $225,000 per year in business license fees. B. Rehabilitation Alternative Economic considerations and the inability of the Agency to obtain the interest and cooperation of property owners and tenants in prior attempts to rehabilitate the existing development on the Site makes the "Rehabilitation" alternative included in the EIR infeasible. As shown in the EIR, previous rehabilitation programs over a ten-year period, even with financial assistance from the Agency, have been unsuccessful. The Vincent -Glendora Site has been the object of several studies and rehabilitation attempts since 1971, all of which have been unsuccessful. In 1973, the first definite action proposed for the Site was a program to remodel the existing businesses and store fronts. This program required full participation of property owners and tenants and would have utilized only private funds, but it never materialized. In 1974, a questionnaire was circulated at an all -day conference conducted with property owners and merchants to gain their input into the Site's improvement. A schematic plan and designs were then developed to rehabilitate the Site and a contractor was retained. However, this plan also failed. In 1975, an attempt to revitalize the previous year's plan was unsuccessful. Finally, in 1976, a City -assisted revitalization program which included some public money and low -interest loans was introduced. City staff developed minimal plans for this program, which also failed to rehabilitate the Site. The economic study of the -Site shows that even if rehabilitation were accomplished under the best possible scenario, the financial benefits to the City would be less than estimated revenues resulting from the proposed development. This alternative assumed demolition of approximately 8,000 square feet of existing building space, upgrading another 183,000 square feet of space, construction of approximately 29,000 square feet of new single -story retail space, and reconfiguration of the Site's interior street pattern and parking facilities. This alternative assumes retention of the auto dealerships, with the balance of the rehabilitated space devoted to specialty retail uses. This alternative has an estimated cost of $10 million. Employment at such a rehabilitated center would rise from the estimated 300 employees at the present time to 500 employees at the rehabilitated center. The additional employment would be the result of the addition of 20,000 square feet and and the increased intensity of use as special retail uses become established. The rehabilitation alternative would generate an estimated 190 person years of construction employment under a best -case scenario. The study assumed that specialty retail uses would occupy approximately 75% of the space in the center, with the balance in services and institutional uses. In addition, this alternative also assumes retention of the existing automobile dealerships. Based on retention of the automobile dealerships, 75% of center square footage utilized for specialty retail uses, and an assumed sales volume of $150 per square foot, the center would generate approximately $24 million in annual sales and, in turn, approximately $240,000 in sales tax receipts for the City of West Covina. Annual license fees would be $12,000 and one-time municipal revenues for building permit fees would be about $66,000. -6- The study points out that these assumptions may be unrealistic. "In this economy plus the tract record of existing specialty retail complexes, this concept is a very ambitious one that would have substantial market risks." C. Hiaher Intensitv Alternative A higher intensity development of a total of 1.2 million square feet of office • retail and hotel development, as opposed to the 950,000 square feet of the proposed development, was considered. It was determined that a higher intensity development would generate basically the same environmental impacts as the proposed development, but at a slightly increased level. It was further determined that traffic generated by the development and added to other anticipated growth in the vicinity would cause a significant impact on existing roadways and require extensive roadway modification. It was decided that the traffic impacts could not be adequately mitigated without extensive improvement costs. Therefore, the scale of the proposed development was reduced to help mitigate negative impacts from the development of the Site. • D. Alternative Sites In 1977 an economic and development consultant was retained to do an economic analysis of 14 potential sites in West Covina. This study identified the Vincent -Glendora Site as the prime site in terms of market potential, as it is particularly well suited to creative, large -project development because of its size, Central Business District location and freeway exposure. It was determined that redevelopment would be required for a unified project and that a minimum five to eight -acre first phase of development with a master developer would be most desirable. The study also revealed the lack of City. Sites outside the City would not m opportunities and financial benefits for Economic Benefits Analysis completed feasibility of a development on the Site positive impact to the City. alternative sites of adequate size within the eet goals pertaining to expanded economic the City. Both the 1977 study and the in 1982 support economic and financial of the magnitude proposed as a viable and III. STATEMENT OF OVERRIDING CONSIDERATIONS The proposed development of the Vincent -Glendora Site may have significant or certain adverse environmental impacts on the environment as discussed hereinabove. Thus, the benefits of the proposed development have been balanced against the unavoidable environmental effects identified in the EIR and set forth in Section I above, and the Agency and City makes the following statement of overriding considerations. 1. The proposed development Site is located in the Central Business District Redevelopment Project and implements the Redevelopment Plan for said Project adopted in December, 1971 and amended in May, 1977 and July of 1981. 2. The reasons for the selection of the Project area for redevelopment was its unusually high accessibility from a large surrounding region because of its access from the San Bernardino Freeway and several other major arterial roads making the area of substantial value for development of commercial uses to serve the large region; the Ah -7- elimination of blighted and declining areas; to replace existing underutilized or deteriorating land uses in the downtown area with land uses consistent with the environmental, conomic and social needs of the community; and to revitalize the commercial core of the City to be more productive and economically viable. The proposed development alleviates those conditions and supports the reasons for selection of the Project area. 3. The proposed development implements the uses for the Site designated in • the Redevelopment Plan. 4. The proposed development will provide short term construction employment opportunities and permanent employment at completion for approximately 3,855 persons in office, hotel, commercial and related uses. 5. The proposed development will develop the Site in accordance with the Redevelopment Plan for a higher and more productive use. 6. The proposed development maximizes utilization of the existing infrastructure (i.e. electricity, gas, telephones and sewer facilities). 7. The proposed development will provide to the City increased annual revenues from sales taxes ($85,700 by fiscal year 1987-88, and an additional $65,000 if existing automobile dealerships are relocated within the City); hotel bed taxes ($246,000 in fiscal year 1985-86 for a 250 room hotel, and $344,000 upon expansion of the hotel to 350 rooms); business license fees of $225,000; and one-time building permit fees of $450,000 and other miscellaneous public income. 8. The proposed development will provide office space and hotel accommodations to meet a local and regional demand and commercial establishments to serve local residents and highway commuters. 9. The Agency and the City, after repeated efforts, have been unable to accomplish the rehabilitation and revitalization of the Site by any other means. • ME