HomeMy WebLinkAboutLake Elsinore General Plan - Part 1G E N E
i
CITY OF
LAKE ELSINORE GENERAL PLAN
CITY OF LAKE ELSINORE
130 South Main Street
Lake Elsinore, California 92530
(909) 674-3124
Adopted November 27, 1990
Reprinted Mwch 1995
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QTY OF LAKE ELSINORE
GENERAL PLAN
QTY COUNCIL
Gary Washburn, Mayor
Dan Bender, Mayor Pro Tem
Kevin Pape, Council Member
George Alongi, Council Member
Pam Brinley, Council Member
QTY OF LAKE ELSINORE PLANNING COMMISSION
Richard Bullard, Chairman
Al Wilsey, Commissioner
Donald Neff, Commissioner
Daniel Metze, Commissioner
Ericka Matthies, Commissioner
GENERAL PLAN ADVISORY COMMITTEE MEMBERS
George Alongi
Allen Baldwin
Bob Campbell
Daniel De Simone
James F. Dingman
Calvin Foster
Norman David Harris
Richard L. Knapp
Harlis Koger
John Matson
Clyde Jay Palmer
Kevin W. Pape
Bill Saathoff
James Voight
Al Wilsey (Alternate)
Prepared with the Assistance of:
Phillips, Brandt, Reddick, Inc.
Wilbur Smith Associates, Inc.
Robert Bein, William Frost and Associates
Mestre-Greve Associates
Castaneda and Associates
LAKE ELSINORE GENERAL PIAN
TABLE OF CONTENTS
I. INTRODUCTION
A.
Overview
I-1
B.
Purpose of the General Plan
I-3
C.
General Plan Document Organization
I-8
D.
The General Plan Process
I-11
II. GOALS, OBJECTIVES AND POLICIES
II -1
III. LAND USE ELEMENT
III -1
A.
Introduction
I11-2
B.
Development Concepts
III -4
C.
Existing Conditions
III -11
D.
Issues and Opportunities
III -15
E.
Land Use Plan
III -37
F.
Land Use Element Implementation Program
IV. OPEN SPACE/CONSERVATION ELEMENT
A-
Introduction
IV -1
B.
Biological Resources
IV -3
C.
Water Resources
IV -24
D.
Energy Conservation
IV -27
E.
Air Resources
IV -28
F.
Cultural Resources
IV -38
G.
Open Space Resources
IV -46
H.
Mineral Resources
IV -54
I.
Soil Resources
IV -58
J.
Open Space/Conservation Element Implementation Program
IV=60
j
V. PARKS AND RECREATION ELEMENT PUL Na.
A. Introduction V-1
B. Existing Conditions V-2
C. Issues and Opportunities V-11
D. Parks and Recreation Element Implementation Program V-13
VI. PUBLIC SAFETY AND URBAN SERVICES ELEMENT
A.
Introduction
VI -1
B.
Fire Hazards
VI -2
C.
Crime Prevention Services
VI -5
D.
Geologic and Seismic Hazards
VI -6
E.
Flood Hazards
VI -11
F.
Hazardous Waste
VI -20
G.
Emergency Preparedness
VI -22
H.
Water and Wastewater Services
VI -24
I.
Solid Waste
VI -31
J.
Educational Facilities
VI -34
K.
Library Facilities
VI -37
L.
Public Safety and Urban Services Element
VI -39
Implementation Program
VII. COMMUNITY DESIGN ELEMENT
A.
Introduction
VII -1
B.
Assessment of Urban Form and Function
VII -3
C.
Community Design Element Implementation Program
VII -11
VIII. CIRCULATION ELEMENT
A. Introduction VIII -1
B. Existing Conditions and Issues VIII -3
C. The Circulation Plan VIII -13
D. Alternative Modes of Transportation VIII -33
E. Circulation Element Implementation Program VIII -35
ii
IX. HOUSING ELEMENT
A. Introduction
B. Housing Needs Assessment
C. Inventory of Resources and Constraints
D. Progress Report
E. Goals, Quantified Objectives and Policies
F. Housing Program
G. General Plan Consistency
X. NOISE ELEMENT
A. Introduction
B. Inventory of Current and Forecast Conditions
C. Findings
D. Noise Element Implementation Program
TECHNICAL APPENDICES
1. Biological Study
2. Traffic Study Update (March 1994)
3. Noise Appendices
The Technical Appendices reports are under separate cover on file at the Planning Department.
iii
Page No.
IX -1
IX -5
IX -30
IX -45
IX -46
IX -52
IX -61
X-1
X-2
X-4
X-6
I W&R-10611IM4 11, 11
Exhibit
Follows
Number
-
Page No.
I-1
Regional Study Area
I-1
I-2
Study Area
I-2
III -1
Specific Plan Areas
III -25
111-2
Rancho Laguna Redevelopment Project Areas
III -39
IV -1
Existing Vegetation
IV -3
IV -2
Species/Communities of Concern
IV -11
IV -3
Hydrology
IV -24
IV -4
Cultural Resources
IV -38
IV -5
Open Space/Conservation Plan
IV -47
IV -6
Agricultural Resources
IV -52
IV -7
Mineral Resources
IV -56
V-1
Existing and Future Recreational Facilities
V-5
VI -1
Public Services
VI -2
VI -2
Geologic Conditions
VI -6
VI -3
Flood Sources Studied by FEMA
VI -12
VI -4
Flood Zones
VI=17
VI -5
Flood Plain Section
VI -18
VII -1
Aesthetic Resources
VII -4
VIII -1
Riverside County Transportation Improvement Program
VIII -13
VIII -2
Level of Service Diagram
VIII -14
VIII -3
Roadway Classification Map
VIII -15
VIII -4
Circulation Element Roadway Cross -Sections
VIII -19
VIII -5
Bikeway Plan
VIII -34
X-1
Existing Noise Contours
X-4
X-2
Future Noise Contours
X-4
Land Use Plan (Full -Size)
Back Pocket
iv
9
LIST OF TABLES
Table
Number
Ll�
Page No.
III -1
1987 Existing Land Use Distribution
111-6
III -2
Population Trends 1970-1990
11I-9
1II-3
Lake Elsinore General Plan Land Use Plan
III -15A
Statistical Summary (1990)
III -4
Floor Area Ratio Example
III -17
III -5
General Plan/Zoning Compatibility Matrix
III -38a
IV -1
Fish of Lake Elsinore
IV -10
IV -2
Ambient Air Quality
IV -32
IV -3
Ambient Air Quality Standards
IV -33
IV -4
Project -Generated Total Emissions
IV -38
V-1
Existing Park Land
V-2
V-2
Future Park Land
V-3
VI -1
Lake Elsinore Seismic Events
VI -8
VI -2
Daily Water Consumption Factors
VI -28
VI -3
Daily Wastewater Generation Factors
VI -30
VI -4
Existing Educational Facilities
VI -34
VI -5
Student Generation in the Study Area
VI -36
IX -1
Composition of Housing Stock
IX -6
IX -2
Changes in the Housing Supply, 1980-1990
IX -7
IX -3
Owner/Renter Ratios by Housing Type
IX -8
IX4
Existing Housing Need by Income and Tenure (1987)
IX -10
IX -5
Age Distribution of Persons 65+ (1980)
IX -13
IX -6
Number of Seniors in the Labor Force (1980)
IX -13
IX -7
Household Incomes
IX -14
IX -8
Monthly Housing Costs of Senior Homeowners
IX -14
IX -9
Income Distribution of Overcrowded Households
IX -16
IX -10
Distribution of Farmworkers (1980)
IX -16
IX -11
Status of Female Persons (1980)
IX -17
v
vi
LIST OF TABLES (cont'd)
Pace N
IX -12
Household Size (1980)
IX -18
IX -13
Number of Respondents for 1987 Survey of Homelessness
IX -19
IX -14
Homelessness Respondents by Subgroups
IX -20
IX -15
City of Lake Elsinore Population Trends (1980 - 1988)
IX -22
IX -16
Regional Housing Needs Assessment City of Lake Elsinore
IX -25
IX -17
City of Lake Elsinore Land Use Plan
IX -31
IX -18
City of Lake Elsinore Zoning Requirements
IX -35
IX -19
Planning Fees
IX -39
IX -20
City of Lake Elsinore - Apartment Housing Costs
IX43
IX -21
City of Lake Elsinore Disposition of Loan
IX43
Applications 1990 and 1991
IX -22
City of Lake Elsinore Summary of Loan Applications
IX -44
IX -23
City of Lake Elsinore Quantified Objectives (1989-1996)
IX -51
IX -24
City of Lake Elsinore Housing Program 1989 to 1996
IX -54
X-1
Noise and Land Use Compatibility Matrix
X -6a
X-2
Recommended Interior and Exterior Noise Standards
X -6b
vi
Introduction
Introduction
I. INTRODUCTION
A- OVERVIEW
The City of Lake Elsinore is undergoing a transition from a
small, semi -rural recreation town to an urbanized community. The city
is situated within Riverside County, which is the fastest growing county
in the state as of January 1, 1990.1 In recent years, Riverside County
has experienced an influx of residents from Orange and Los Angeles
counties, and to a lesser degree, from San Diego County. As a result
of the completion of Interstate 15, comparatively lower real estate
costs, and the attraction of the lake, the Lake Elsinore area is a prime
target for growth.
The City of Lake Elsinore was incorporated in 1883 and is the
oldest city in Riverside County. The city is located approximately 22
miles southeast of Corona, 73 miles east of Los Angeles, and 74 miles
north of San Diego (Exhibit I-1). The community is bounded by the
Cleveland National Forest on the south, the San Jacinto Mountains on
the north, the Temescal Valley on the west, and the Sedco Hills on the
east. The natural landforms, the lake, and scenic beauty of this region
are major attractions to both residents and visitors. Access to Lake
Elsinore is possible through two highway corridors: Interstate 15 (I-15)
and State Route 74 (SR -74), also known as Ortega Highway.
The population of Lake Elsinore has surged 170 percent since
1980 to an estimated 15,971 residents.2 Population growth has
occurred from both development within the city and the annexation of
residential uses. The majority of citizens are year-round residents.
During the summer months and holidays, the community experiences
a weekend influx of 5,000 to 10,000 tourists primarily seeking lake -
oriented recreation. Recreational opportunities such as camping,
horseback riding, hiking, and water sports, including fishing, boating,
and waterskiing, continue to bolster city growth. The State of
California owns and maintains Lake Elsinore which covers over 3,000
acres in the central part of the city and provides for most of the
recreational opportunities.
The city is approximately 35 square miles with a sphere of
influence covering over 82 square miles of largely undeveloped
State Department of Finance, Demographic Research Unit, Population
Estimates for California State and Counties, January 1990.
State Department of Finance, Demographic Research Unit, Annual Population
Estimates for January 1, 1990.
I-1
Introduction
territory. The city's sphere of influence, adopted by the Riverside
County Local Agency Formation Commission (LAFCO), represents the
probable ultimate boundaries and service area of the city. The general
plan addresses the city's corporate boundaries, the sphere of influence,
as well as additional unincorporated territory that may in the future
become part of the sphere or incorporated area. The total area
addressed by the general plan is referred to as the Study Area and is
approximately 118 square miles (Exhibit I-2).
Lake Elsinore's local economy is largely based on tourist -
oriented trade and services, and light manufacturing. The city has
been successful in attracting a growing retail and office base as well.
The city's relatively low land costs, diversely skilled labor force, and
accessible location to all major southern California markets continue
to act as incentives to future economic development.
It is the spirit and intent of this general plan to achieve and
sustain a high quality of life for residents and visitors, which is
expressed in the following general goals:
► Encourage economic growth and development which
supplies jobs and economic self-sufficiency for existing and
future residents and maintains the city's ability to finance
public improvements and human services;
► Ensure that growth and development occurs in an orderly
fashion in accordance with adopted policies and procedures
governing the use of land, provision of services, and balance
of jobs and housing;
► Preserve the natural environment of Lake Elsinore by
adopting policies and programs for open space preservation
and management of the environment;
► Encourage the development of cultural, educational and
recreational facilities and activities, ensuring their
availability to all segments of the population; and
► Ensure the development of quality commercial, industrial
and residential uses to enhance the image of the community.
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Introduction
B. PURPOSE OF THE GENERAL PLAN
A general plan is an officially adopted statement of local policy
concerning a community's long-term development. A general plan is
a city's statement of its vision for its own future. This vision of the
future is a compilation of basic community values, ideals, and
aspirations as to how the city's natural and man-made environments
should be organized and managed.
The general plan functions as a guide for local government
decisionmakers as well as the development community with respect to
future land use and development. The plan expresses, in report and
map form, the organization of physical, economic, and recreational
activities sought by the community to create and maintain a functional,
healthful, and desirable place in which to live. The plan is thus a tool
for the management of resources and future development and is the
foundation upon which all land use decisions are based.
The major purposes of this general plan are:
► To articulate goals and objectives for the future physical
development of the city of Lake Elsinore;
► To define public policies and guide decisionmaking to
attain community goals; and,
► To provide the basis for informed decisionmaking and
to establish a foundation for subsequent planning efforts
such as the preparation of specific plans.
As Lake Elsinore continues to develop and expand its corporate
boundaries, the general plan will direct the distribution of future land
use, both public and private. The general plan will also provide policy
direction for the wise management of natural resources, the provision
of adequate housing and efficient transportation, the provision of
adequate urban services, as well as address safety issues within the
community.
1. LEGAL AUTHORITY AND REQUIREMENTS
State Law (Section 65300) requires each city to adopt a
comprehensive, long term and internally consistent general plan for the
physical development of the city and any land outside the city's
boundaries which is felt to bear relation to the city's planning. The
I-3
Introduction
state requires cities to adopt general plans based on the belief that the
future growth of the state is determined largely through local actions.
State policies pertaining to general plans can be summarized as
follows:
► To improve the quality of life in California by preserving
and using the resources of the land in economically and
socially desirable ways. (Adapted from Government Code
Section 65030.)
► To maintain, improve, and enhance the quality of air, water,
and land according to state and national standards and local
needs. (Adapted from Public Resources Code Sections
21000 et seq.)
► To ensure the provision of "decent housing and a suitable
living environment for every California family." (Adapted
from Health and Safety Code Section 37112 and
Government Code Section 65580(a).)
► To conserve water, air and energy by considering the effect
of future development on these resources and by
encouraging new development which uses public facilities
currently available and minimizes the need to travel.
(Adapted from Public Resources Code Section 21001.)
To provide transportation facilities and services that are
adequate and efficient and that significantly reduce hazards
to human life, pollution, noise, disruption of community
organization, and damage to the natural environment.
(Adapted from Government Code Section 14000.)
To identify and reduce hazards to health and property from
natural and man-made conditions, including floods, fires,
landslides, soil erosion, seismic activity, airplane crashes,
excessive noise, hazardous wastes, and congested and
unsanitary living conditions. (Adapted from Water Section
Code 8401, Government Code Section 26215, Public Utility
Code Section 21670, and Health and Safety Code Sections
25101, 33071, and 37121.)
To use reasonable and practical means in carrying out the
general plan so that it will serve as a pattern and guide for
orderly physical development and the preservation and
1-4
Introduction
conservation of open space land and as a basis for the
efficient expenditure of public funds. (Adapted from
Government Code Section 65400(x).)
► To ensure that land use decisions are made with full
knowledge of the long- and short-term economic and fiscal
implications, as well as environmental effects. (Adapted
from Government Code Section 65030.2.)
The Study Area for the Lake Elsinore General Plan as noted
above, includes the incorporated City of Lake Elsinore, its adopted
sphere of influence, and additional unincorporated areas which
influence city planning and future development. The Study Area
provides a reasonable measure of the city's present region of interest.
The goals, objectives, policies and implementation programs of the
general plan are enforceable only in the city of Lake Elsinore.
However, the city intends to utilize the general plan to review
proposed development within the sphere of influence and to evaluate
annexation proposals.
The planning horizon for the Lake Elsinore General Plan
extends from 1990-2010 or 20 years. However, the general plan should
be reviewed regularly, and revised as new information becomes
available and as community needs and values change. State law
requires the Housing Element to be updated every five years. A
detailed discussion of the general plan amendment procedures is
provided in a separate section of the Introduction.
Since all elements of the general plan have equal stature, no
element may supersede another element. Therefore, as required by
Government Code 65300.5, the general plan must comprise an
integrated, internally consistent, and compatible statement of policies
and objectives for the adopting agency. Each element's data, analysis,
goals, policies and implementation programs within the Lake Elsinore
General Plan are consistent and complement one another.
2. RELATIONSHIP TO OTHER PLANNING DOCUMENTS
In order to link the long-range comprehensive planning of the
general plan to the day-to-day actions of the city, the state requires
consistency of certain local actions with the general plan. Some state'
statutes which do not mandate consistency with the general plan, still
require findings or a report on whether proposed actions conform to
the general plan. The state considers an action, program, or project
to be consistent with the general plan if it furthers the objectives and
I-5
Introduction
policies of the general plan and does not obstruct the attainment of
these objectives and policies. _
Following is a list of provisions in state law that require local
actions and documents to be consistent with the general plan.
a. Zonin
Government Code Section 65860 requires that the zoning
ordinances of general law cities be consistent with the
general plan. The city of Lake Elsinore is a general law
city.
b. Sphdivisions
Government Code Sections 66473.5 and 66474 require that
subdivision and parcel map approvals in all jurisdictions be
consistent with the general plan.
c. Reservations Qf land Wi h Subdivi i ns
Government Code Section 66479 requires that reservations
of land for parks, recreational facilities, fire stations,
libraries, and other public uses within a subdivision conform
to the general plan.
d. Open Epace
Government Code Section 65566 requires that acquisition,
disposal, restriction, or regulation of open space land by a
city or county be consistent with the Open Space Element
of the general plan.
Government Code Section 65567 prohibits the issuance of
building permits, approval of subdivision maps, and
adoption of open space zoning ordinances that are
inconsistent with the Open Space Element of the general
plan.
Government Code Section 65910 requires that every city
and county adopt open space provisions in their zoning
ordinances consistent with the Open Space Element of the
general plan.
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Introduction
Government Code Section 51084 requires cities and
counties accepting or approving an open space easement to
make a finding that preservation of the open space land is
consistent with the general plan.
e. Capital Improvements
Government Code Sections 65401 and 65402 require a
review and report on the consistency of proposed city,
county, and special district capital projects, including land
acquisition and disposal, with the general plan.
f. Development Azreements
Government Code Section 65867.5 requires that devel-
opment agreements between developers and local
governments be consistent with the general plan.
g. Special Housing Programs
Health and Safety Code Section 50689.5 requires that
housing and housing programs developed under Health and
Safety Code Sections 50680 et seq. for the developmentally
disabled, mentally disordered, and physically disabled be
consistent with the Housing Element of the general plan.
h. Parking Authority Projects
Street and Highway Code Section 32503 requires that
parking authorities, in planning and locating any parking
facility, are "subject to the relationship of the facility to any
officially adopted master plan or sections of such master
plan for the development of the area in which the authority
functions to the same extent as if it were a private entity."
The location of a parking facility, therefore, must be
consistent with the general plan.
i. Pr 'e t R view nder E A
Title 14, California Administrative Code Section 15080
requires examination of projects subject to the provisions of
the California Environmental Quality Act for consistency
with the general plan.
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Introduction
j. Mineral Resource5
Public Resources Code Section 2763 requires that city and
county land use decisions affecting areas with minerals of
regional or statewide significance be consistent with mineral
resource management policies in the general plan.
k. Transmission Lines
Public Utilities Code Section 12848.5 requires cities and
counties approving electrical transmission and distribution
lines of municipal utility districts to make a finding
concerning the consistency of the lines with the general
plan.
1. Hazardous Waste Management
Chapter 1504 of the Statutes of 1986 (Tanner Bill) requires
each county to prepare a county -wide hazardous waste
management plan. Each county plan is then to be
incorporated into the general plans of all cities within the
county's jurisdiction.
3. ENVIRONMENTAL ASSESSMENT
The California Environmental Quality Act (CEQA) requires that
environmental issues related to the adoption of a general plan be
addressed whether in the general plan itself or through the preparation
of an Environmental Impact Report (EIR). As defined by Section
15206 of the State CEQA Guidelines, a proposed general plan shall be
considered as a project of statewide, regional, or areawide significance
and shall be subject to review by state agencies if it requires the
preparation of an EIR. Pursuant to CEQA, an EIR was prepared for
the 1990 Lake Elsinore General Plan which is under separate cover.
C. GENERAL PLAN DOCUMENT ORGANIZATION
Section 65302 of the California Government Code requires that
a general plan contain the following seven elements:
► Land Use Element
► Circulation Element
► Housing Element .
► Conservation Element
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Introduction
► Open Space Element
► Noise Element
► Safety Element
Although inclusion of each of these elements is mandatory, they
may be combined at the discretion of the city as long as the city
complies with all requirements governing the content and adoption of
mandatory elements. Moreover, California Government Code Section
65303 provides local governments with the option to adopt other
elements which relate to the physical development of the city as
deemed appropriate. The city of Lake Elsinore has elected to include
a Parks and Recreation Element and Community Design Element
within the general plan. The city has also elected to include the
discussion of water and wastewater services, solid waste management,
emergency preparedness, crime prevention services, and school and
library facilities within the Public Safety and Urban Services Element,
although not mandated by State law.
Each element includes a discussion of existing conditions and
relevant issues within the Study Area. Each element also analyzes
impacts associated with buildout of the general plan and evaluates
possible methods of accommodating and regulating the anticipated
growth. The general plan identifies goals, objectives, policies and
implementation measures for each element, as well as establishes
procedures to govern public decisions and private actions within the
city.
Goals, stated in broad terms, represent a constant challenge or
endeavor for city decisionmakers. In the general plan, goals represent
community values in terms of the quality of life wanted for the city.
Objectives are attainable by the city. Objectives more specifically
address city issues and are the basis for establishing city policies.
Policies are action -oriented statements, which are intended to achieve
city objectives. Implementation measures are specific actions,
procedures, or programs that may be undertaken by the city to carry
out public policy.
The general plan is divided into nine major sections.
Appendices are available under separate cover which contain technical
background reports and the Final EIR.
The nine major sections of the general plan include:
Introduction: Describes the purpose and organization of the
general plan.
I-9
Introduction
Land Use Element: Establishes the framework for the principal
development within the Study Area. The element describes
existing land use characteristics and development patterns. It
contains general development standards and guidelines for
regulating future development, and defines the general location
and development intensity for a variety of land uses in the
planning Study Area.
Circulation Element: Establishes the transportation network
needed to support the travel demands of existing and future
land uses provided in the Land Use Element, at desired levels
of service. The element evaluates the existing transportation
network, projects future traffic volumes, and contains plans for
the general location and classification of proposed transporta-
tion routes.
Housing Element: Defines local housing problems and needs
and identifies necessary mitigation measures and improvements.
The goal of this element is to aid in providing decent housing
and suitable living environments for each family in the commu-
nity (in accordance with the Government Code Section 65580
and the Health and Safety Code Section 37112).
Open Space/Conservation Element: Identifies natural and man-
made resources within the city, as well as establishes policies
and implementation programs to encourage the conservation,
protection, and proper management of these resources.
Noise Element: Identifies noise sensitive land uses and noise
sources, and defines areas of noise impact for the purpose of
developing programs to ensure that Lake Elsinore residents will
be protected from excessive noise intrusion.
Parks and Recreation Element: Is intended to identify both
existing and future parks, and other recreational resources in the
city and sphere area. The element also recommends ways in
which these resources should be preserved, enhanced, or
expanded. This element is to be used as a guide for the
acquisition and development of a city-wide system of parks and
recreation areas.
Public Safety and Urban Services Element: Documents
potential hazards that must be considered in planning the
location, type, and density of development. This element also
provides information on the ability of the city and other service
I-10
Introduction
providers to offer services and operate facilities at acceptable
standards. The element discusses services and facilities such as
fire protection, water supply, geologic and seismic hazards, as
well as school and library facilities.
Community Design Element: Addresses the design features of
Lake Elsinore that contribute to the. community's image and
perceived "quality of life." The overall intent of this element is
to establish a framework for public and private sector decision-
making with respect to the overall community quality and
character.
D. THE GENERAL PLAN PROCESS
1. PREPARATION PROCESS
The Lake Elsinore General Plan is the product of a team effort
involving the citizens of Lake Elsinore, the City Council and Planning
Commission, city staff, and a multidisciplinary team of consultants.
The first step. in the preparation of the general plan was to establish
a clear understanding of community concerns and analyze the issues
and existing conditions that would shape the city's future. Next, goals
and objectives were formulated which represent the community's
values and establish the direction for growth and development.
Alternative land use plans were then developed and evaluated by the
team and a preferred land use plan was selected. Finally, policies and
implementation programs were formulated for each element to
respond to the issues and provide direction for achieving the city's
long-term goals.
a. Q!2mmunily Partici ati n
Community input has been an integral part of preparing the
Lake Elsinore General Plan. Citizen participation in the
process was essential to the identification of community
values and goals, which served as the foundation of the plan.
Prior to formal initiation of the general plan revision effort,
the City Council appointed a fourteen -member General
Plan Advisory Committee (GPAC) to review, comment and
provide input throughout the process. A total of nine
GPAC workshops were held. GPAC members were asked
to participate in the identification of issues, formulation of
goals and objectives, and development of policies and
programs. Several GPAC meetings focused exclusively on
Introduction
the evaluation of land use alternatives and the selection of
a preferred land use plan. The GPAC members contributed
significantly to the general plan preparation process.
In addition to the GPAC meetings, the city conducted five
Town Hall meetings. The Town Hall meetings were
designed as a forum for public review and discussion of the
general plan work effort. At the first Town Hall meeting,
the general plan process was presented, community issues
were addressed, draft goals and objectives were reviewed,
and land use alternatives were evaluated. The focus of the
second Town Hall meeting was the Land Use Plan, existing
traffic conditions, and the proposed circulation plan needed
to support future development. Both Town Hall meetings
were attended by approximately 70 people, including city
residents, residents within the sphere of influence, and other
interested landowners. The last three Town Hall meetings
were held following the completion and distribution of the
draft general plan and draft EIR. Dozens of questions were
responded to at the Town Hall meetings, and recommenda-
tions were reviewed and evaluated during preparation of the
final general plan and accompanying EIR.
b. Land Use Alternatives
Three alternative scenarios for the buildout of the city of
Lake Elsinore and sphere of influence were examined
during the preparation of the general plan. Conceptual land
use plans were prepared which designated the general
distribution, location, and extent of housing, business,
industry, open space, public facilities, and other public and
private land uses. The land use alternatives were used to
help establish priorities between competing community
values and to determine the long-term direction desired for
future growth and development. The land use alternatives
were analyzed and evaluated in terms of environmental
constraints, social and economic factors, urban design,
infrastructure availability, and the stated goals and
objectives of the general plan. Based on substantial
community input, as well as city staff and consultant
evaluation, a composite land use plan was derived. This
land use plan served as the basis for preparing the elements
of the Lake Elsinore General Plan.
I-12
Introduction
2. GENERAL PLAN IMPLEMENTATION
The city of Lake Elsinore has numerous tools available to
implement the adopted goals and objectives of the general plan. The
policies for each element are the specific actions to be taken by the
city in an effort to achieve the goals and objectives. Furthermore,
within each element is an Implementation Program which contains a
range of options for carrying out city policies. The implementation
measures are derived from the city's corporate and police powers
granted by state law. The adoption of a zoning ordinance, for
example, is the city's principal instrument for implementing the general
plan and is derived from the police power given to the. city. The
ordinance regulates land use by dividing the city into zones and
specifying permitted uses, allowable development intensities, minimum
lot size, building height and setback limits, and other development
parameters within each land use zone.
Other implementation measures derived from the city's police
power include the city's power to regulate subdivisions, to adopt
specific plans, to enforce building and housing codes, to establish park
dedication requirements, and to utilize environmental and design
review procedures when considering development proposals.
Corporate power is the authority to collect money through
bonds, fees, assessments, and taxes. Furthermore, corporate power
enables the city to spend such revenues on facilities and services
including the construction of streets, water and sewer facilities, the
acquisition and development of parkland, the acquisition of sites for
low-income housing, and the acquisition of land for permanent open
space. Specific implementation measures derived from the city's
corporate and police powers are incorporated into the general plan.
3. GENERAL PLAN AMENDMENT PROCEDURE
The Lake Elsinore General Plan is a dynamic document because
it is based on community values and an understanding of existing and
projected conditions and needs, all of which change continually. The
State General Plan Guidelines, therefore, recommend that, Me entire
plan, including the basic policies, should be thoroughly reviewed at
least every five years and revised as necessary to reflect new condi-
tions, local attitudes and political realities." Furthermore, state law
requires local governments to "provide an annual report to the
legislative body on the status of the plan and progress in its implemen-
tation" (Government Code Section 65400(b)).
I-13
Introduction
Amendments to any one of the mandatory elements of the
general plan are limited to four times in one calendar year
(Government Code Section 65358(b)). This limitation does not apply
to the following, which are relevant to Lake Elsinore:
a. Amendment of optional elements (Parks and Recreation
Element, Community Design Element);
b. Amendments requested and necessary for affordable
housing;
c. Amendments necessary to comply with a court decision
involving the legal adequacy of the general plan; and,
d. Amendments after January 1, 1984 to bring a general plan
into compliance with an airport land use plan.
Every general plan amendment must be consistent with the rest
of the general plan and appropriate changes in other elements should
be made to maintain consistency. An amendment to the general plan
constitutes a "project" under the California Environmental Quality Act
and therefore, the amendment must be evaluated for environmental
impacts. The procedures for amending the general plan are outlined
in Government Code Section 65350 et seq.
I-14
Goals, Objectives
and Policies
71S
Goals, Objectives, Policies
II. GOALS, OBJECITVES, POLICIES
LAND USE ELEMENT
GOAL 1.0 To achieve the development of a well-
balanced and functional mix of residential,
commercial, industrial, open space,
recreational and institutional land uses.
OBJECTIVE 1.1 Encourage the development and maintenance
of a broad range of housing types for all
income groups and age categories.
Policy 1.1.1 The city shall encourage planned residential
and/or planned unit developments, through
the use of specific plans and zoning, that
promote innovative site design; preserve
natural features; and provide open space,
recreational facilities, and other amenities and
facilities.
Policy 1.1.2 The city shall utilize a density bonus concept
to encourage redevelopment and
rehabilitation and the provision of affordable
housing.
Policy 1.1.3 The city shall evaluate land use compatibility,
noise, traffic and other environmental hazards
when making residential and land use
decisions.
Policy 1.1.4 The city shall establish a wide range of infill
development incentives and designate
appropriate areas within the city to apply to
such incentives.
OBJECTIVE 1.2 Encourage the development of commercial
land uses and the revitalization of existing
commercial uses that strengthen the city's
economic base and offer a range of
enterprises that serve the needs of residents
and visitors.
Policy 1.2.1 The city shall evaluate the need for day-to-day
shopping, which includes convenience goods,
Goals, Objectives, Policies
food and personal services, when residential
land use decisions are made.
Policy 1.2.2 The city shall encourage the location of new
neighborhood commercial uses in
consolidated centers served by major traffic
ways.
Policy 1.2.3 The city shall allow specialty commercial, high
activity land uses within specific areas along
the lake perimeter.
Policy 1.2.4 The city shall encourage revitalization of the
Historic Elsinore Downtown Area.
OBJECTIVE 1.3 Encourage industrial land uses to diversify
Lake Elsinore's economic base.
Policy 1.3.1 The city shall encourage the location and
development of industrial, manufacturing and
office uses along the 1-15 corridor.
Policy 1.3.2 The city shall establish business park
development standards that provide for a
compatible mix of office, light indus-
trial/assembly, research and development and
service use.
Policy 1.3.3 The city shall utilize those tools available to
public agencies to assist the private sector in
the development of projects which will
increase employment opportunities within the
city.
OBJECTIVE 1.4 Provide for open space and recreational land
uses to meet the needs of the community.
Policy 1.4.1 The city shall require the dedication- of open
space and parkland and encourage private
open space and other recreational amenities
within proposed development.
Policy 1.4.2 The city shall require private parkland and
private open space areas to be operated and
II -2
Goals, Objectives, Policies
maintained by the landowner, a homeowner's
association or other private entity.
OBJECTIVE 1.5 Provide for institutional land uses to meet the
social, economic, cultural, spiritual and
educational needs of the residents.
Policy 1.5.1 The city shall provide zoning provisions
allowing institutional land uses including
publicly owned facilities and schools,
churches, synagogues, hospitals, and medical
centers.
OBJECTIVE 1.6 Encourage a jobs -to -housing balance of one
job for every .82 households by the year 2010.
Policy 1.6.1 The city shall periodically review and update
the land use plan to strive to achieve and
maintain the desired balance between
employment and housing opportunities.
GOAL 2.0 To maintain the city's role as a year-round
resort destination.
OBJECTIVE 2.1 Provide for new development around the lake
that offers increased recreational activities for
residents and tourists.
Policy 2.1.1 The city shall participate in the
implementation of the Lake Elsinore
Management Project.
Policy 2.1.2 The city shall utilize the specific plan concept
around the lake to guide and encourage
recreational uses including golf courses, parks,
marinas, trails, and beaches.
Policy 2.1.3 The city shall study the feasibility of devel-
oping and promoting the geothermal
resources in the downtown area for recre-
ational/tourism activity.
OBJECTIVE 2.2 Ensure that new development provides open
space, parkland, and amenities that contribute
II -3
Goals, Objectives, Policies
to a high quality of life for residents and
tourists.
Policy 2.2.1 The city shall require that specific plans
include design guidelines for architecture,
landscape architecture, site planning and
streetscapes.
Policy 2.2.2 The city shall evaluate the provision of public
access to the lake and open space areas when
making land use decisions.
GOAL 3.0 To achieve a physical environment in which
development of the land respects the city's
natural environment.
OBJECTIVE 3.1 Ensure the consideration of environmental
and geologic features in the planning process.
Policy 3.1.1 The city shall use the specific plan as a tool to
examine and plan closely for environmental
features.
Policy 3.1.2 The city shall establish hillside grading
standards that naturalize the effects of
grading, require preservation of unique
natural features and encourage a broad range
of hillside architectural and site planning
solutions.
Policy 3.1.3 The city shall consider public views of the
lake as a standard development evaluation
criteria.
Policy 3.1.4 The city shall utilize the information provided
by the computerized Geographic Information
System (GIS) in reviewing and preparing
plans for new development.
OBJECTIVE 3.2 Require physical and visual buffers between
land uses characterized by differing functions
and density to ensure land use compatibility.
II -4
Goals, Objectives, Policies
Policy 3.2.1 The city shall require parcels developed for
commercial or industrial use to incorporate
buffers which minimi?e the impacts of noise,
light, visibility of activity and vehicular traffic
on residential uses.
Policy 3.2.2 The city shall require that onsite lighting be
located so that only the intended area is
illuminated, offsite glare is minimized, and
safety is provided.
GOAL 4.0 To provide infrastructure and services to
support existing and future land uses.
OBJECTIVE 4.1 Ensure that impacts on infrastructure from
new development do not exceed the city's
ability to provide essential facilities and
services; and plan for the correction of
existing infrastructure and service deficiencies.
Policy 4.1.1 The city shall develop five-year capital
improvement programs for the improvement
of existing public facilities and development
of new facilities.
Policy 4.1.2 The city shall establish benefit assessment
districts where appropriate for installation and
maintenance of sewer, water and flood control
facilities and road improvements.
Policy 4.1.3 The city shall continue to require that
development proposals be fully responsible
for meeting public facilities and services
requirements.
OPEN SPACE/CONSERVATION ELEMENT
GOAL 1.0 To identify, protect and conserve natural
resources.
OBJECTIVE 1.1 Preserve important biological habitats and
protect plant and animal species of concern.
II -5
Goals, Objectives, Policies
Policy 1.1.1 The city shall require development proposals
to identify significant biological resources, and
provide mitigation measures to impacts
including adequate buffering, selective
preservation, the provision of replacement
habitat, the use of sensitive site planning
techniques and other appropriate measures.
Policy 1. 1.2 The city shall preserve and enhance
significant biological resources in areas within
the public domain.
Policy 1.1.3 The city shall coordinate with other agencies
to adopt and implement a Santa Ana River
Habitat Conservation Plan as a planning and
policy guide for projects that would affect the
endangered Least Bell's vireo and its habitat.
Policy 1.1.4 The city shall coordinate with other agencies
to adopt and implement a Habitat
Conservation Plan for the Stephens' kangaroo
rat.
OBJECTIVE 1.2 Increase and preserve natural and planted
vegetation on public and private lands.
Policy 1.2.1 The city shall retain and improve the quality
of existing landscaping in par",ays, parks,
civic facilities, rights -of -ways and other public
open areas.
Policy 1.2.2 The city shall encourage developers to
incorporate mature trees and other significant
vegetation which may exist on a site into the
landscape design for new developments.
OBJECTIVE 1.3 Promote water conservation and ensure that
the quality of water resources is not degraded
as a result of urbanization of the city.
Policy 1.3.1 The city shall require new developments to
incorporate water conservation measures into
project design.
U-6
Goals, Objectives, Policies
Policy 1.3.2 The city shall implement the use of reclaimed
water for irrigation of parks, golf courses,
publicly landscaped areas and other feasible
applications when reclaimed water becomes
available from the Elsinore Valley Municipal
Water District.
Policy 1.3.3 The city shall require adequate erosion
control and water runoff measures of
development projects that may otherwise
impact water resources adversely.
Policy 1.3.4 The city shall regulate and manage lands
adjacent to or affecting the lake and other
waterways as stipulated by the Regional
Water Quality Control Board.
Policy 1.3.5 The city shall properly manage the use of
limited groundwater to supplement the water
supply required for present and future needs
within the Study Area.
Policy 1.3.6 The city shall coordinate with the water
districts to preserve appropriate floodplain
and aquifer recharge areas to provide a long-
term groundwater supply.
OBJECTIVE 1.4 Promote the conservation of scarce resources
and reduce the community's reliance on
traditional energy resources.
Policy 1.4.1 The city shall develop a program to explore
the opportunity and feasibility of
implementing a citywide program to recycle
household paper, glass and aluminum.
Policy 1.4.2 The city shall encourage the incorporation of
energy conservation features in the design of
all new construction.
GOAL 2.0 To achieve and maintain state and national
ambient air quality standards.
H-7
Goals, Objectives, Policies
OBJECTIVE 2.1 Promote land use patterns that reduce daily
automotive trips and reduce trip distance for
work, shopping, school and recreation.
Policy 2.1.1 The city shall locate new neighborhood
commercial facilities close to the residential
areas served to increase pedestrian and
bikeway travel.
Policy 2.1.2 The city shall encourage office, industrial and
commercial development to improve the jobs -
to -housing balance in the region and reduce
the length of home -to -work trips by local
residents.
Policy 2.1.3 The city shall encourage the financing and
construction of park-and-ride facilities.
OBJECTIVE 2.2 Reduce air pollutant emissions.
Policy 2.2.1 The city shall cooperate with and facilitate
the efforts of the California Air Resources
Board, the South Coast Air Quality
Management District, Southern California
Association of Governments and the County
of Riverside to establish and implement
regional air quality control measures.
Policy 2.2.2 The city shall carefully consider the location
of manufacturing and extraction facilities with
potential air pollution impacts as part of the
development review process.
GOAL 3.0 To prevent the loss of significant historical
and cultural resources.
OBJECTIVE 3.1 Identify and promote the preservation and
conservation of paleontological and
archaeological sites.
Policy 3.1.1 The city shall require sites proposed for
future development to be evaluated through
a literature search or survey by certified
archaeologists and/or paleontologists in
II -8
Goals, Objectives, Policies
accordance with the California Environmental
Quality Act.
Policy 3.1.2 The city shall establish a method by which
either the preservation of identified
archaeological sites or the professional
retrieval of artifacts occur prior to
development of the site.
OBJECTIVE 3.2 Assure the recognition of the city's heritage
through preservation of the city's significant
historical sites and structures.
Policy 3.2.1 The city shall consider acquisition and
preservation of historic buildings for public
facility uses.
Policy 3.2.2 The city shall support the rehabilitation, reuse
and maintenance of significant architectural,
historical and cultural buildings.
GOAL 4.0 To identify and preserve open space areas for
public safety, recreation, scenic quality and
preservation of natural resources.
OBJECTIVE 4.1 Preserve quality public views of the lake and
ridgelines.
Policy 4.1.1 The city shall identify significant viewsheds
associated with proposed projects that may be
preserved through appropriate grading, site
design and building techniques.
Policy 4.1.2 The city shall pursue the dedication of open
space in hillside development proposals that
offer view opportunities from transportation
corridors and surrounding development.
Policy 4.1.3 The city shall seek from new development the
incorporation of views from roadways and
other public spaces to provide residents and
tourists with scenic vistas to the water,
marinas and lakeshore activities.
II -9
Goals, Objectives, Policies
OBJECTTVE 4.2 Promote the establishment of permanent open
space areas and the preservation of significant
physiographic features.
Policy 4.2.1 The city shall encourage the preservation of
watercourses, steep canyons, major ridgelines
and rock outcroppings.
Policy 4.2.2 The city shall work with county, state and
federal agencies to acquire significant habitat
areas for permanent open space including
riparian areas along the San Jacinto River
and Temescal Wash.
Policy 4.2.3 The city shall ensure that passive and active
open space uses are incorporated into the
development of specific plan areas.
Policy 4.2.4 The city shall establish a plan for a trail
network to public open space areas intended
for active or passive use.
Policy 4.2.5 The city shall encourage the use of clustered
development and other site planning
techniques to maximize the preservation of
open space.
GOAL 5.0 To encourage the conservation and efficient
production of lands with mineral deposits.
OBJECTIVE 5.1 To the extent consistent with other land use
goals and objectives and where compatible
with neighboring land uses, protect the
viability of resource production in state -
designated, regionally significant resource
areas.
Policy 5.1.1 The city shall evaluate development that
would preclude or threaten potential mineral
extraction, particularly in areas designated as
regionally or state significant consistent with
state guidelines.
Policy 5.1.2 The city shall encourage industries to locate
in Lake Elsinore that will take advantage of
II -10
Goals, Objective. Policies
the resources in the area, including clay, sand,
and gravel.
Policy 5.1.3 Mineral resource extraction should be
performed in areas designated as containing
significant mineral deposits, but where
appropriate and consistent with other
objectives and goals of the general plan, such
areas may be appropriately developed for
residential, commercial, or other approved
uses.
OBJECTIVE 5.2 Control the extraction of mineral resources to
ensure minimal disturbance to the
environment and surrounding land uses.
Policy 5.2.1 The city shall review proposed mining
operations and require reclamation pians for
mining sites to ensure mitigation of identified
environmental impacts, especially pertaining
to water quality, habitat preservation, traffic,
noise and visual impacts.
GOAL 6.0 To identify, protect and preserve prime
agricultural land from premature conversion
to urbanized areas.
OBJECTIVE 6.1 Encourage continued production of prime
agricultural soils, groves and other agriculture
activity.
Policy 6.1.1 The city shall ensure land use policies and
standards which protect viable agricultural
uses and lands, particularly for lands in the
sphere of influence to be annexed into the
city.
GOAL 7.0 To protect against loss of soils from wind and
water erosion.
OBJECTIVE 7.1 Control the loss of soils through the use of
best management practices designed to mini -
Goals, Objectives, Policies
mize erosion and sedimentation during grad-
ing and construction.
Policy 7.1.1 The city shall require grading and construc-
tion erosion, siltation and dust control plans
to reduce potential short-term loss of exposed
soils.
Policy 7.1.2 Erosion control landscape plans shall be
required to provide for re-establishment of
vegetation on exposed slopes.
PARKS AND RECREATION ELEMENT
GOAL 1.0 To provide a range of recreational
opportunities for all residents and visitors.
OBJECTIVE 1.1 Provide a combination of local park acreage,
park facilities and parks and recreation
programs to serve the different needs of the
community.
Policy 1.1.1 The city shall adopt a parks master plan for
local and community parks, recreation
facilities and city beaches.
Policy 1.1.2 The city shall pursue the funding of
acquisition, development, maintenance of
parkland and recreational program
administration.
Policy 1.1.3 The city shall use park design and site
development to enhance and preserve
significant natural features, including riparian
areas, rock outcroppings, ridgelines and
viewpoints.
Policy 1.1.4 Tle city shall require developers of
residential projects of greater than fifty
dwelling units to dedicate land based on the
park acre standard of five (5) acres to one
thousand (1,000) population or the payment
of in lieu fees.
11-12
Goals, Objectives, Policies
Policy 1.15 The city shall pursue joint use of public lands
and school facilities available and suitable for
recreational purposes including land under
the jurisdiction of other governmental and
quasi -governmental agencies.
OBJECTIVE 1.2 Provide parkland and recreational
opportunities to complement the tourist
orientation of the community.
Policy 1.2.1 The city shall preserve and develop the city's
public beach lands and recreational facilities
to complement the state and county recre-
ation system.
Policy 1.2.2 The city shall pursue the acquisition of Lake
Elsinore from the State Department of Parks
and Recreation and shall initiate cooperative
agreements ' with the State for the use of
beach land, the provision of concessions,
recreation facilities, security patrol and the
sharing of operation and maintenance costs.
OBJECTIVE 1.3 Encourage the development of private
recreational facilities in Take Elsinore.
Policy 1.3.1 The city shall encourage the development of
private recreational facilities within residential
and mixed use developments, with appropriate
mechanisms to ensure that such facilities are
properly maintained and that they remain
available to residents in perpetuity.
Policy 1.3.2 The city shall consider amending its Resolu-
tion No. 89-44 to allow private park acreage
to fulfill up to 25 percent of the public park
dedication requirement for residential pro-
jects, when a private park complies with city
public park standards.
OBJECTIVE 1.4 Establish a primary trail network of equestri-
an and hiking trails that interfaces with other
trails (i.e., bikeways) and links city, County of
H-13
Goals, Objectives, Policies
Riverside and state park and recreation facili-
ties.
Policy 1.4.1 The City shall locate riding and hiking trails
in appropriate areas identified as permanent
open space, agricultural edges, development
edges, public utility ROW s and easements,
flood control channels, and areas designated
for rural and estate density.
Policy 1.4.2 The City shall encourage the development of
a trail system that will not create unsafe
situations for users or residents of the City;
motorized vehicles and cycles shall be prohib-
ited from using the trail system.
Policy 1.4.3 The City shall encourage the location of
equestrian boarding centers to provide easy
access to the system, and shall require these
centers to meet all minimum public health
standards for food, shelter, and hygiene.
Policy 1.4.4 At the time of precise alignment studies, and
in conjunction with the required environmen-
tal assessments, the City shall review trail
proposals to determine the likelihood of
potential impacts upon existing and planned
development. Mitigation measures or alterna-
tives will be implemented where appropriate
and feasible.
Policy 1.4.5 The city shall adopt a trails master plan.
PUBLIC SAFETY AND URBAN SERVICES ELEMENT
GOAL 1.0 To ensure a high level of public safety for the
community.
OBJECTIVE 1.1 Provide effective and cost-efficient police, fire
and emergency medical service to the city to
miniarnize potential injury, loss or destruction
of persons and property and to provide a safe
and secure environment for the city's
residents and visitors.
II -14
Goals, Objectives, Policies
Policy 1.1.1 The city shall strive to attain an ISO rating of
"4" through the establishment of a fire preven-
tion program, achieving standard response
times and a staffing objective of one fireman
per 1,000 persons.
Policy 1.1.2 The city shall ensure that new developments
shall be approved only after it is determined
that there is adequate water pressure to
maintain the required fire flow. The city shall
also work with the local water districts to
achieve required pressure levels, where cur-
rently deficient, in the developed portions of
the city.
Policy 1.1.3 The city shall coordinate with the County of
Riverside and the California Forestry Division
to minimize potential fire hazards in areas of
special concern, including the Cleveland
National Forest- and areas served below the
acceptable fire response time.
Policy 1.1.4 The city shall coordinate with the County of
Riverside to provide police service aimed at
a ratio of one and one-half police officers per
1,000 persons.
Policy 1.1.5 The city shall incorporate defensible space
considerations in site building design to
discourage crime and improve surveillance of
property by police.
Policy 1.1.6 The city shall promote the establishment of
neighborhood watch programs in conjunction
with law enforcement agencies to encourage
community participation in the surveillance of
neighborhoods.
OBJECTIVE 1.2 Minimize the risk of loss of life,- injury,
property damage, and economic and social
displacement due to seismic and geologic
hazards resulting from earthquakes and
geologic constraints.
II -15
Goals, Objectives, Policies
Policy 1.2.1 The city shall ensure that seismic and geologic
hazards are identified through the develop-
ment review process, including the develop-
ment of standards and requirements for
critical land uses/facilities and geologically
vulnerable areas.
Policy 1.2.2 The city shall require all new development
projects to comply with the most recent
Uniform Building Code seismic design
standards.
Policy 1.2.3 The city shall establish programs when
feasible to assist in the seismic upgrading of
buildings to meet building and safety codes.
Policy 1.2.4 The city shall require that surface fault rup-
ture hazards and potential secondary seismic
shaking hazards (such as liquefaction, seismi-
cally induced settlement, or ground lurching)
be geotechnically investigated wherever
deemed necessary by the City Engineer based
on state and local requirements, geologic
constraints mapping or other relevant geologic
data. Such investigations may cause alter-
ations in the location of permitted land uses
and/or modifications to their structural re-
quirements.
OBJECTIVE 1.3 Minimize the risk of injury to residents and
visitors and of property damage due to
flooding.
Policy 1.3.1 The city shall pursue the construction of a
levee and improvements to the inflow and
outflow channels to reduce flood hazards.
Policy 1.3.2 The city shall request the U.S. Department of
Housing and Urban Development Federal
Insurance Administration to update the Flood
Insurance Rate Maps (FIRM) for the city
upon completion of the lake levee and
improvements to the Temescal outflow
channel.
II -16
Goals, Objectives, Policies
Policy 1.3.3 The city shall require drainage improvements
as a condition of project approval as deemed
necessary by the City Engineer.
Policy 1.3.4 The city shall ensure that flooding hazards are
evaluated during the development review
process, including placement of restrictions on
development within floodplain areas in accor-
dance with FEMA requirements and consider-
ation of potential Railroad Canyon Dam
failure inundation impacts as required by the
city's subdivision code.
OBJECTIVE 1.4 The city shall work towards reducing the level
of risk to persons and property from
hazardous waste within the city.
Policy 1.4.1 The city shall adopt a hazardous waste
management plan that provides guidelines and
standards for siting facilities, waste
generation, treatment and disposal, and other
land use criteria.
OBJECTIVE 1.5 Coordinate with the County of Riverside and
other appropriate agencies to provide
effective response to an emergency; minimize
property damage in a disaster; and enhance
citizen awareness of evacuation routes and
actions to be taken in the event of an
emergency through education.
Policy 1.5.1 The city shall maintain and update the
Emergency Preparedness Plan programs to
respond effectively to and recover from a
hazardous event.
GOAL 2.0 To ensure public infrastructure supports
existing and future land uses.
OBJECTIVE 2.1 Coordinate with the water districts to provide
domestic water supplies and fire flow water
requirements to meet existing and future
demand.
11-17
Goals, Objectives, Policies
Policy 2.1.1 The city shall continue to work with the
EVMWD in establishing a reclaimed water
distribution system within the service area to
provide reclaimed water for irrigating
landscaping along 1-15 and potentially to
irrigate future community and regional parks
and golf courses.
Policy 2.1.2 The city shall, prior to the issuance of
building permits, require landowners to
demonstrate that adequate water capacity
exists or will be provided to serve the
proposed development.
Policy 2.1.3 The city shall provide the Elsinore Valley
Municipal Water District and Elsinore Water
District with periodic building activity reports
and assist the districts in analyzing new
capacity requirements to ensure availability
and to avoid construction of excessive water
capacity.
OBJECTIVE 2.2 Ensure that wastewater/sewer flows are
accommodated and provide facilities to meet
existing and future development.
Policy 2.2.1 The city shall, prior to the issuance of
building permits, require landowners to
demonstrate that wastewater/sewer flows will
be accommodated for the proposed
development.
Policy 2.2.2 The city shall provide the Elsinore Valley
Municipal Water District and Elsinore Water
District with periodic building activity reports
and assist the districts in analyzing their
capacity requirements to ensure wastewater/ -
sewer treatment facilities are available to
accommodate proposed development.
OBJECTIVE 2.3 Coordinate with the County of Riverside in
the establishment of a long-term solid waste
management plan.
II -18
Goals, Objectives, Policies
Policy 2.3.1 The city shall encourage the County of
Riverside to provide and expand service for
the collection, storage, transportation,
recovery, and disposal of solid waste to meet
the needs of the city.
OBJECTIVE 2.4 Coordinate planning and development
proposals including general plan amendments,
changes in land use classifications,
development agreements, annexations, public
financing and redevelopment proposals as
well as applicable determinations of
consistency with the general plan with the
school district serving the planning area in an
effort to assist the school district in providing
school facilities to meet the needs of the
community in a timely manner.
Policy 2.4.1 The city in considering general plan
amendments, changes in land use
classifications, development agreements,
annexations, public financing and
redevelopment proposals as well as applicable
determinations of consistency with the general
plan shall consider adequacy of school
facilities or available means of financing
school facilities to meet the needs and
demands of new development proposed to be
approved by the City of Lake Elsinore.
Policy 2.4.2 The city. shall coordinate land use planning
with planning, financing and construction of
school facilities for development proposed for
approval by the City of Lake Elsinore.
Policy 2.4.3 The city shall review proposed development
in the context of adequacy of present and
future required school facilities and seek to
assist school districts in providing adequate
school facilities and consider such needs
relative to proposed general plan
amendments, changes in land use
classifications, development agreements,
annexations and public financing and
redevelopment proposals, as well as any
II -19
Goals, Objectives, Policies
applicable determination of consistency with
the general plan.
OBJECTIVE 2.5 Ensure that adequate electrical, natural gas
and telecommunication systems are provided
to meet the demand of new and existing
development.
Policy 2.5.1 The city shall coordinate with the responsible
agencies to provide for the continued
maintenance, development, and expansion of
electricity, natural gas and
telecommunications systems to serve residents
and businesses.
OBJECTIVE 2.6 Encourage the County of Riverside
County/City Public Library System to provide
sufficient library services and facilities.
Policy 2.6.1 The city shall continue to measure the impact
of development on library services.
CONWUNITY DESIGN ELEMENT
GOAL 1.0 To develop and reinforce an image of the city
related to its regional and natural setting and
its tourist orientation.
OBJECTIVE 1.1 Encourage the preservation of the countryside
retreat image.
Policy 1.1.1 The city shall develop landscape standards for
new development that encourages an
informal, "country" image.
Policy 1.1.2 The city shall identify opportunities to
maintain open space features on developed
property.
GOAL 2.0 To preserve, strengthen, or develop the
positive qualities of individual districts or
neighborhoods and enhance their image and
function.
I1-20
Goals, Objectives, Policies
OBJECTIVE 2.1 Encourage new residential development to
establish identifiable neighborhoods.
Policy 2.1.1 The city shall utilize the location of open
space/recreational buffers, and distinctive
streetscape designs to create strong
neighborhood boundaries.
Policy 2.1.2 The city shall require the preparation of
specific plans for large undeveloped areas to
establish cohesive, identifiable neighborhoods.
Policy 2.1.3 The city shall establish standards for
neighborhood entries and signage.
OBJECTIVE 2.2 Promote and strengthen business and
commercial center identity through
architecture, landscaping, and signage.
Policy 2.2.1 The city shall strengthen and enhance
business districts through the use of facade
themes and signage.
Policy 2.2.2 The city shall require commercial property
landscaping to use the major elements of the
streetscape.
GOAL 3.0 To preserve elements of the natural
environment in the community.
OBJECTIVE 3.1 Promote site design and building construction
that preserves significant landforms.
Policy 3.1.1 The city shall encourage development
patterns that preserve natural landforms.
Policy 3.1.2 The city shall encourage preservation of
major landforms, such as streams, steep slopes
and rock structures to provide neighborhood
character boundaries.
GOAL 4.0 To develop a circulation system that creates
community image and identity.
II -21
Goals, Objectives, Policies
OBJECTIVE 4.1 Establish methods to maintain a country road
image in developed areas.
Policy 4.1.1 The street right-of-way and property adjacent
to it should be used harmoniously to create
attractive streetscapes.
Policy 4.1.2 The city shall require the consideration of the
streetscape as it relates to front yard setbacks.
Policy 4.13 The city shall promote a citywide street tree
and median planting program. The principal
street system in planned communities shall be
placed in open space corridors.
OBJECTIVE 4.2 Identify the principal gateways of the
community and establish arrival statements in
the landscape and architectural setting.
Policy 4.2.1 The city shall establish gateway signage.
Policy 4.2.2 The city shall preserve natural features that
create a gateway feeling.
Policy 4.2.3 The city shall allow for development standard
variations to create gateways.
GOAL 5.0 To protect and enhance public views of
significant natural features and of developed
land.
OBJECTIVE 5.1 Establish practices that ensure development
features enhance public views.
Policy 5.1.1 The city shall maintain view opportunities
from public areas to the surrounding hillsides,
the lake and other significant features through
design standards and the design review
process.
Policy 5.1.2 The city shall encourage street alignments and
site design to avoid views of backyards,
service areas, expanses of paved surfaces, or
monotonous architectural forms.
II -22
Goals, Objectives, Policies
Policy 5.1.3 The city shall ensure that signage and street
graphics are functional and in character with
the design of the land use.
Policy 5.1.4 The city shall place utility lines underground.
OBJECTIVE 5.2 Encourage developments to locate public
streets and public facilities to take advantage
of views of natural features.
Policy 5.2.1 The city shall use the specific plan process to
achieve access to significant natural features.
GOAL 6.0 To remove visual blight.
OBJECTIVE 6.1 Continue and improve efforts to upgrade the
visual qualities of developed property.
Policy 6.1.1 The city shall continue to require removal
and/or screening of undesirable land use
activities, property maintenance programs and
control of the location of outdoor storage
activities.
Policy 6.1.2 The city shall promote the rehabilitation of
commercial properties.
OBJECTIVE 6.2 Identify and encourage preservation of areas
or structures with historic significance.
Policy 6.2.1 The city shall work to identify neighborhood
character that can serve as the basis of
design/image guidelines.
Policy 6.2.2 The city shall encourage active uses for
historic properties.
CIRCULATION ELEMENT
GOAL 1.0 To provide a street network to move people
and goods safely and efficiently throughout
Lake Elsinore.
II -23
Goals, Objectives, Policies
OBJECTIVE 1.1 Strive to maintain a minimum Level of Ser-
vice "C` at all intersections during non-peak-
hours
on-peakhours and Level of Service "D" (volume/capa-
city ratio of 0.90 or less) at all intersections
during peak hours to ensure that traffic delays
are kept to a minimum.
Policy 1.1.1 The city shall establish street standards, and
all new road facilities shall be constructed or
upgraded, where feasible, to meet city stan-
dards.
Policy 1. 1.2 The city shall require new developments to be
served by roads of adequate capacity and
design standards to provide reasonable access
by car, truck, transit, and bicycle.
Policy 1.1.3 The city shall require an adequate evaluation
of potential traffic impacts associated with
proposed new developments prior to project
approval. Further, the city shall require the
implementation of appropriate mitigation.
Policy 1.1.4 The city shall pursue measures to reduce
congestion at intersections and maintain
identified levels of service.
Policy 1.1.5 The city shall cooperate with Caltrans to
implement necessary improvements at inter-
sections where the agencies have joint juris-
diction.
Policy 1.1.6 The city shall endorse and support the I-15
Freeway interchange improvement projects,
with minimal environmental impact, that
provide more direct regional access to the
Lake Management Plan area, as well as other
developing areas within the city and sphere.
Policy 1.1.7 The city shall encourage development of
roads parallel to the I-15 Freeway and at a
suitable distance from the I-15 Freeway to
provide adequate intervals between intersec-
tions.
H-24
Goals, Objectives, Policies
Policy 1.1.8 The city shall use the Circulation Element
Roadway Classification Map to guide detailed
planning and implementation of the city's
roadway system.
Policy 1.1.9 The city shall periodically update 'build -out"
traffic forecasts using the Lake Elsinore
Traffic Model to monitor the impact of devel-
opment approvals and the adequacy of the
Circulation Element Roadway Classification
Map.
Policy 1.1.10 The city shall evaluate the incremental addi-
tions to the circulation system through utiliza-
tion of the Lake Elsinore Traffic Model.
Policy 1.1.11 The city shall prohibit parking on all urban
arterials and major roadways to increase the
traffic capacity of these roadways.
Policy 1.1.12 The city shall identify the major intersections
requiring special design treatment to increase
their vehicular capacity.
Policy L1.13 The city shall minimize the number, properly
space, and interconnect traffic signals in order
to maximize progression and minimize the
acceleration/deceleration that produces signif-
icantly higher vehicular emission and noise
levels.
OBJECTIVE 1.2 Establish adequate measures to ensure traffic
safety.
Policy 1.2.1 The city shall enforce speed restrictions
throughout the city.
Policy 1.2.2 The city shall require that future roads and
improvements to existing roads be designed to
minimize conflicting traffic movements such
as turning, angle parking, uncontrolled access,
and frequent stops.
Policy 1.2.3 The city shall ensure that the development of
new private driveways does not pose signifi-
II-25
Goals, Objectives, Policies
cant traffic conflicts for major arterials and
residential collector roads.
Policy 1.2.4 The city shall require that pedestrian and
vehicular traffic are separated to the maxi-
mum feasible extent.
Policy 1.2.5 The city shall establish an ongoing mainte-
nance program to ensure the safety of the
city's roadway system.
OBJECTIVE 1.3 Preserve the quality of residential
neighborhoods by maintaining the legally
enforceable speed limits and by discouraging
the flow of truck traffic and through traffic.
Policy 1.3.1 The city shall enforce speed limits of 25 miles
per hour in those areas defined by the Cali-
fornia Vehicle Code as residential neighbor-
hoods.
Policy 1.3.2 The city shall establish signed truck routes,
where necessary, on streets traversing through
residential neighborhoods.
Policy 1.3.3 The city shall maintain its level of service
objectives on major city streets in order to
avoid diversion of through traffic into residen-
tial neighborhoods and maintain adequate
levels of safety.
OBJECTIVE 1.4 Establish financing programs which incorpo-
rate adequate funding to construct and main-
tain the city's roadway system.
Policy 1.4.1 The city shall establish a city-wide circulation
system phasing and financing program for the
orderly implementation of system improve-
ments identified in the Circulation Element.
Policy 1.4.2 The city shall identify and evaluate potential
revenue sources for financing roadway system
development and improvement projects.
II -26
Goals, Objectives, Policies
Policy 1.4.3 The city shall pursue a Bridge and Major
Thoroughfare Fee Program in order to meet
funding needs.
Policy 1.4.4 The city shall only implement street widening
when Transportation System Management
strategies, such as the removal of on -street
parking, lane restriping, etc., have been ex-
hausted.
GOAL 2.0 To promote a public transportation system
that is safe, convenient, efficient, and meets
the identified needs of the Lake Elsinore
Valley.
OBJECTIVE 2.1 Require dedication and/or construction of
appropriate facilities in support of a public
transportation system.
Policy 2.1.1 The city shall require construction of bus
turnouts adjacent to new developments where
transit demand levels may be sufficient in the
future to warrant such accommodations.
Policy 2.1.2 The city shall support improved transit
services for elderly and disabled persons.
Policy 2.1.3 The city shall work with RTA in pursuing
additional transit routes in the city as well as
adjacent cities.
Policy 2.1.4 The city shall review site plans to determine
if pedestrian access from the interior of new
residential areas to public transit stops will be
direct and convenient.
Policy 2.1.5 The city shall strive for reasonable and practi-
cal means through current technology to find
transit solutions which are economically
feasible not only in terms of ridership fees,
but also in terms of city support for investiga-
tion and promotion.
II -27
Goals Objectives, Policies
GOAL 3.0 To promote alternatives to motorized
transportation that meet the needs of all city
residents.
OBJECTIVE 3.1 Provide a circulation network that accommo-
dates the safe and efficient movement of
cyclists.
Policy 3.1.1 The city shall implement a continuous system
of bicycle lanes within the street right-of-way
to meet the needs of both the local and
commuter cyclist. The lanes shall be designed
for the safety of the cyclist.
Policy 3.1.2 The city shall use the Circulation Element
Bikeway Plan to guide detailed planning and
implementation of the city's bicycle route
system. The city shall further encourage the
integration of this system with other trails
(equestrian, hiking) wherever possible to
facilitate multi-purpose use of the city's recre-
ational corridors.
Policy 3.1.3 The city shall encourage the provision of
bicycle lanes, in addition to those identified
on the Circulation Element Bikeway Plan,
along all roadways within Specific Plan areas
and other major planned developments.
Policy 3.1.4 The city shall provide for a safe interface with
vehicular travel including adequate traffic
control devices at bicycle crossings and ade-
quate traffic signal phasing for bicycle turning
and straight -through movements.
Policy 3.1.5 The city shall consider the provision of facili-
ties that foster usage of bicycle routes includ-
ing signage, connections to the park system
and other modes of transportation (e.g., bus
stops, carpool lots), bike racks, and resting,
parking and restroom shower facilities along
identified bikeways.
Policy 3.1.6 The city will actively seek federal and state
funds for the construction of bikeways identi-
II-28
Goals, Objectives, Policies
fied on the Circulation Element Bikeway
Plan.
Policy 3.1.7 The city shall conduct a public information
program to increase public awareness of
bicycle safety.
OBJECITVE 3.2 Provide a system of sidewalks or pathways in
residential and commercial areas that pro-
vides a safe environment for pedestrians.
Policy 32.1 The Main Street area and future mixed-use
developments shall contain an internal system
of walkways or trails linking schools, shopping
centers, and other public facilities with resi-
dences.
Policy 3.2.2 The city shall promote the design and location
of future land uses to encourage access by
non -automotive means.
Policy 3.2.3 The city shall review site plans to determine
if shopping areas are designed for pedestrian
access.
Policy 3.2.4 The city shall require the installation of
wheelchair ramps on all new sidewalks and
shall encourage their installation in older
neighborhoods.
GOAL 4.0 To provide an adequate supply of private off-
street and public parking to meet the needs of
residents and visitors to the city.
OBJECTTVE 4.1 Enforce and periodically update the zoning
ordinance which specifies minimum parking
requirements for various types of land use.
Policy 4.1.1 The city shall enforce its parking ordinance
and standard requirements such as necessary
design features, the number of required
handicapped parking spaces, etc., in conjunc-
tion with the parking ordinance.
II -29
Goals, Objectives, Policies
Policy 4.1.2 The city shall pursue methods of encouraging
the provision of increased on-site parking
supply through a range of techniques includ-
ing redevelopment activities.
OBJECITVE 4.2 Provide joint -use and public parking facilities,
where needed, by special assessment districts
or other mechanisms.
Policy 4.2.1 The city shall require developers to provide
adequate on-site parking and/or to contribute
to a program to acquire and/or maintain off-
site facilities.
Policy 4.2.2 The city shall work cooperatively with devel-
opers and the business community to develop
funding mechanisms for the construction of
future parking facilities.
Policy 4.2.3 The city shall encourage joint development of
parking facilities (e.g.; joint use of parking
facilities) in activity centers where feasible to
maximize the efficient use of available park-
ing.
GOAL 5.0 Manage peak hour traffic flow and change
demand on the circulation system to reduce
traffic congestion where necessary and feasi-
ble.
OBJECTTVE 5.1 Provide for the development and monitoring
of Transportation System Management (TSM)
and Travel Demand Management (TDM)
programs which are focused on reducing
vehicular travel at locations where trip -making
is concentrated.
Policy 5.1.1 The city shall continue to implement and
monitor the performance of its TDM ordi-
nance.
Policy 5.1.2 The city shall require the development and
implementation of Transportation Manage-
ment Plans for key industrial and office areas.
II -30
Goals, Objectives, Policies
These plans shall be designed to reduce peak
hour traffic and vehicle miles of travel.
Policy 5.1.3 The city shall support programs with the
objective of increasing the vehicle occupancy
rate.
Policy 5.1.4 The city shall secure public support for the
development of a balanced circulation system
through a well -organized public relations
program.
Policy 5.1.5 The city shall encourage the development of
Park -and -Ride lots near freeway interchanges
in conjunction with Caltrans policies.
HOUSING ELEMENT
GOAL 1.0 To provide decent housing opportunities and
a satisfying living environment for residents of
Lake Elsinore.
OBJECTIVE 1.1 Achieve the construction of 1,500 new housing
units during the Housing Element program
planning period (1989-1996), including ap-
proximately 400 units over the remainder of
the planning period 1994-1996.
Policy 1.1.1 The city shall monitor new construction on a
yearly basis and prepare annual reports for
review by the City Council in order to evalu-
ate progress on meeting housing production
objectives.
Policy 1.1.2 The city shall conduct periodic market surveys
to collect data on the prices and rents of
housing that has been recently constructed in
order to monitor progress on meeting housing
needs.
OBJECTIVE 1.2 Provide an inventory of land sufficient to
accommodate the "share of regional housing
needs" at varying densities over the next five
years.
H-31
Goals, Objectives, Policies
Policy 1.2.1 The city will complete annually a survey of
vacant land suitable for residential develop-
ment and inform the Planning Commission
and City Council and make the information
available to the development community.
Policy 1.2.2 The city shall develop a complete data base
dealing with new construction needs and
constraints and transmit that information to
the Southern California Association of Gov-
ernments for the next Regional Housing
Needs Assessment update.
OBJECTIVE 1.3 Provide adequate housing sites in relation to
housing production needs and consistent with
the Land Use Element.
Policy 1.3.1 The city shall prepare information on the
availability of public services and facilities and
any infrastructure constraints to residential
development.
GOAL 2.0 To conserve and improve the condition of the
existing affordable housing stock.
OBJECTIVE 2.1 Achieve the conservation of existing afford-
able rental housing throughout the city, in-
cluding dwellings occupied by households
assisted through the local State or Federal
programs.
Policy 2.1.1 The city shall participate in programs to
preserve the existing housing stock in sound
condition and correct neighborhood
conditions which cause blight and
deterioration.
Policy 2.1.2 The city shall continue to use code enforce-
ment to improve and conserve existing hous-
ing throughout Lake Elsinore neighborhoods.
Policy 2.1.3 The city shall maintain and upgrade existing
neighborhood infrastructure including, but not
limited to, sidewalks, parkways and waterlines.
II -32
Goals, Objectives, Pohdes
OBJECTIVE 2.2 Maintain the existing housing stock through
rehabilitation where needed, and achieve the
rehabilitation of 50 dwelling units during the
program planning period (1989-1996).
Policy 2.2.1 The city shall allocate a portion of the city's
share of CDBG funds to the financing of
housing stock improvements in the city's
neighborhoods.
Policy 2.2.2 The city shall evaluate on a continuous basis
additional means of meeting the city's housing
conservation, maintenance and improvement
goals, including the removal of governmental
constraints; and utilization of State and Fed-
eral programs, as appropriate.
GOAL 3.0 To assist in the development of adequate
housing to meet the needs of low and moder-
ate income households.
OBJECTIVE 3.1 Facilitate the development of at least 30
dwelling units during the remainder of the
program planning period (1994-1996) to
further assist in providing the city's fair share
of low and moderate income households in
accordance with Article 10.6 of the California
Government Code which defines low and
moderate income families and households,
relative to the share of affordable housing
provided elsewhere in the County.
Policy 3.1.1 The city shall facilitate the development of
new housing to meet the needs of first-time
buyers with two working adults and other
special needs groups, as appropriate.
GOAL 4.0 To address, and where appropriate and legally
possi-ble, constraints to the maintenance,
improvement and development of housing.
OBJECTIVE 4.1 Promote reasonable processing time and fees
and encourage incentives for the provision of
quality.housing opportunities.
II -33
Goals, Objectives, Policies
Policy 4.1.1 The city shall consider fee waivers and
accelerated processing as methods of
facilitating the production of affordable
housing.
OBJECTIVE 4.2 Promote methods of enhancing land availabil-
ity within the framework of the Land Use
Element and Zoning Ordinance.
Policy 4.2.1 The city shall utilize Specific Plans and other
land planning concepts to encourage a diversi-
ty of housing.
GOAL 5.0 To promote housing opportunities for all
persons regardless of rase, religion, sez, mari-
tal status, ancestry, national origin, or color.
OBJECTIVE 5.1 Provide residents of Lake Elsinore the oppor-
tunity to seek housing in a neighborhood of
their choice.
Policy 5.1.1
The city shall coordinate with state and coun-
ty agencies involved in ensuring compliance
with fair housing laws.
GOAL 6.0
To encourage the incorporation of energy
conservation features in the design of all new
housing development and the installation of
conservation devices in existing developments.
OBJECTIVE 6.1
Promote the conservation of scarce energy
resources and reduce the community's reli-
ance on traditional energv resources.
Policy 6.1.1
The city shall encourage the incorporation of
energy conservation features in the design of
all new construction, including but not limited
to, thermal insulation, sealed gas lines and
solar energy systems.
Policy 6.1.2 The city shall encourage the use of passive
design concepts that make use of the natural
climate to increase energy efficiency.
II -34
Goals, Objectives, Policies
NOISE ELEMENT
GOAL 1.0 To reduce noise impacts from transportation
sources.
OBJECITVE 1.1 Reduce transportation noise through a variety
of methods, including coordination with
various agencies, proper design of
transportation facilities, and coordination of
traffic routing.
Policy 1.1.1 The city shall construct barriers to mitigate
sound emissions where necessary or where
feasible.
Policy 1.1.2 The city shall actively participate in the devel-
opment of noise abatement plans for high-
ways.
Policy 1.1.3 The city shall coordinate with Caltrans to
ensure the inclusion of noise mitigation
measures in the design of new state highway
projects in Lake Elsinore.
Policy 1.1.4 The city shall ensure the effective
enforcement of city, state and federal noise
levels by all appropriate city divisions.
Policy 1.1.5 The city shall undertake the Federal Aviation
Administration's master plan process for
Skylark Airport.
Policy 1.1.6 The city shall investigate methods for
controlling motor boat noise on Lake Elsi-
nore.
GOAL 2.0 To incorporate noise considerations into land
use planning decisions.
OBJECTIVE 2.1 Establish acceptable limits of noise for
various land uses throughout the community.
11-35
Goals, Objectives, Policies
Policy 2.1.1 The city shall ensure acceptable noise levels
near schools, hospitals, convalescent homes,
and other noise -sensitive areas.
Policy 2.1.2 The city shall establish standards for all types
of noise not already governed by local
ordinances or preempted by state or federal
law.
Policy 2.1.3 The city shall encourage acoustical design in
new construction.
Policy 2.1.4 The city shall require that noise reduction
features be incorporated during site planning
to minimize anticipated noise impacts on
affected noise -sensitive land uses.
GOAL 3.0 To develop measures to control non -
transportation noise impacts.
OBJECTIVE 3.1 Reduce noise generated by non -transportation
sources.
Policy 3.1.1 The city shall limit the hours of construction
activities in residential areas.
Policy 3.1.2 The city shall minimize the development of
commercial and industrial land uses adjacent
to noise sensitive land uses.
Policy 3.1.3 The city shall establish one agency within the
city to review all noise conflicts and develop
coordination among the city agencies involved
in noise abatement.
Policy 3.1.4 The city shall establish a Community Noise
Ordinance to mitigate noise conflicts.
II -36
Land Use Element
Land Use Element
ITL LAND USE ELEMENT
A INTRODUC'T'ION
1. OVERVIEW
The Land Use Element for the City of Lake Elsinore establishes
the framework for the principal development within the Study Area.
The city is experiencing significant growth opportunities in terms of
new development and redevelopment. Although nearly 50 percent of
the city is currently vacant, the majority of this acreage is either under
construction, approved for construction or being planned for develop-
ment? Moreover, proposed projects adjacent to the city limits, within
the sphere area are increasingly being reviewed and annexed into the
city. It is the city's intent to guide new development and redevelop-
ment by a set of coherent development policies in order to achieve the
implementation of projects that contribute positively to all sectors of
the community.
The Land Use Element describes existing land use characteris-
tics and development patterns in the Study Area. The Land Use
Element contains general development standards and guidelines,
including goals, objectives, policies, and specific implementation
mechanisms for guiding future development. The Land Use Element
also contains a description of the Land Use Plan (see back pocket)
which defines the general location and development intensity for a
variety of land uses in the Study Area. The Land Use Plan is intended
to be consistent with the overall community goals as well as reflective
of the physical and environmental constraints affecting land use.
2. PURPOSE
The Land Use Element is intended to reflect the values of the
community with respect to development, redevelopment, and preserva-
tion of public and private properties within the Study Area through the
year 2010. The element encourages future urbanization while
preserving the environmental characteristics which contribute to a
quality of life that attracts residents to the community. The element
sets forth policies and defines land uses to achieve a balanced
community, which offers a wide range of housing types, full-service
business and commercial centers, and a sufficient employment base to
reduce the commute for residents. While it can be expected that some
3 Based on 1987 Existing Land Use Inventory prepared by city staff. See Table
III -1.
Land Use Element
- existing development may not be consistent with the development
policies promoted by the Land Use Element and other general plan
elements, new and future development is required by law to be
consistent with the general plan.
The Land Use Element encompasses the goals, objectives,
policies and programs of the other elements of the general plan. The
Land Use Element provides city officials with a comprehensive basis
for decisionmaking and provides citizens with an understanding of the
long-range intentions of the city concerning future growth and
development.
3. AUTHORIZATION
California planning law requires every city to adopt a Land Use
Element that provides for the long-term physical development of the
community. Government Code Section 65302(a) requires the General
Plan to include:
A Land Use Element which designates the proposed general
distribution and general location and extent of the uses of the
land for housing, business, industry, open space, including
agriculture, natural resources, recreation, and enjoyment of
scenic beauty, education, public buildings and grounds, solid and
liquid waste disposal facilities, and other categories of public
and private uses of land. The Land Use Element shall include
a statement of the standards of population density and building
intensity recommended for the various districts and other
territory covered by the plan. The Land Use Element shall also
identify areas covered by the plan which are subject to flooding
and shall be reviewed annually with respect to those areas.
B. DEVELOPMENT CONCEPTS
Lake Elsinore was originally noted for its agriculture and mining
activities as well as tourism, which was centered around the natural
setting of the lake. However, over the last decade, the city has strived
to become a balanced community by encouraging development of a
wide range of housing types, full-service business and commercial
centers, and a regional employment base of office, industrial and
manufacturing firms.
Today, a motorist entering the city from the Elsinore Mountains
on Ortega Highway (SR -74) is rewarded by a spectacular view of the
lake, Sedco Hills and the Perris Valley uplands which surround the
111-2
Land Use Element
northwestern and northeastern part of the community. Driving through
the city imparts a sense of history through such landmarks as the old
military academy, 1920s style buildings in the downtown area, the turn -
of -the -century lamp posts in the Country Club Heights area, and the
Victorian and California bungalow style homes in the older residential
districts.
Major factors contributing to Lake Elsinore's surge in develop-
ment activity are its central location along the I-15 corridor, construc-
tion of a levee to stabilize the lake level, and regional growth patterns.
Lake Elsinore is located on the fringe of urbanizing areas in Riverside,
Orange and San Diego counties. Consequently, Lake Elsinore's lower
land costs (than in neighboring areas of Riverside, Orange and San
Diego counties) and the completion of Interstate 15 has attracted in -fill
and large tract residential development. Seven planned residential
communities and commercial developments have been approved by the
city. These specific plan areas are Ramsgate, Tuscany Hills, Cotton-
wood Hills, Summerhill/Canyon Creek, Lake Elsinore Outlet Center,
Lakeshore and Alberhill Ranch. Several other large specific plan areas
within the city are designated for future residential and commercial
development."
In response to the increase in a range of housing in the area, a
concentration of commercial activities has recently emerged around the
Ortega Highway (SR -74)/I-15 interchange, the Railroad Canyon
Road/I-15 interchange and along Riverside Drive, west of the lake.
The city has taken a progressive role in fostering the development of
revenue -generating uses and employment opportunities within the
community. Largely due to the assistance of the Lake Elsinore
Redevelopment Agency, retail, industrial, manufacturing and business
park development is occurring near Collier Road, within the I-15
corridor.
Stabilization of the lake level will allow the city to reclaim large
areas for development around the lake. The lakeshore is to be
planned comprehensively in three specific plans. The intent of these
specific plan designations is to achieve a mixture of housing and
tourist/resort-oriented development and to increase public access to
the recreational opportunities in and around the lake.
The city may further enhance its role as a recreation/tourist
center by taking advantage of its geothermal resources in the down-
town area. In the 1880s, hot -mineralized water from a spring in the
downtown area prompted the growth of a bath house industry that
complemented the recreational activities associated with the lake.
1II-3
Land Use Element
Since 1926, the city has drilled several wells and developed a small
distribution system in the downtown area to provide hot mineral water
to nearly two hundred residences and the Community Center.
Although most of the system is currently closed, there is an opportunity
for the city to develop the geothermal resources for recreational use.
Hot mineral waters for public enjoyment may be part of an overall
tourism concept involving the lake recreation area and the revitalized
historic downtown.
Lake Elsinore's sphere of influence covers over 82 square miles
of primarily undeveloped, rugged terrain. The present communities
within the sphere area include Horsethief Canyon, Lakeland Village,
Sedco Hills, and The Farm. With the exception of the Lakeland
Village community and The Farm Specific Plan Area, development is
characterized by rural, large -lot residential uses, mobile home parks,
mining lands, and scattered agricultural and commercial activities. The
specific plans for the planned community projects allow for significant
residential development and support commercial uses. As develop-
ment occurs in these projects and other proposed specific plan areas
in the sphere, the demand for community. level and regional level
commercial and office development is expected to increase within Lake
Elsinore.
C. EXISTING CONDITIONS
LOCAL AND REGIONAL SETTING
The City of Lake Elsinore encompasses about 35 square miles
in the western portion of Riverside County. The city was founded in
1883 and incorporated in April of 1888. Lake Elsinore is the oldest
city in Riverside County. The city is located approximately 75 miles
east of Los Angeles, 35 miles south of the City of Riverside, and
approximately 22 miles southeast of the City of Corona. The city is in
the Lake Elsinore Valley bounded by the Elsinore and Santa Ana
Mountains on the southwest and the hills and low mountains of the
Perris Valley uplands to the northeast. Within the valley floor lies
Lake Elsinore, the largest natural lake in southern California. The
lake is approximately five miles long, two miles wide, and contains a
surface area of approximately 6,200 acres. The Railroad Canyon
Reservoir is the primary source of water to the lake. Elevations within
the city range from a low of 1,230 feet at the lake surface to a high of
over 2,000 feet in the mountains to the south and west. The crest of
the Elsinore Mountains in the city's sphere area averages about 3,000
111-4
Land Use Element
feet in elevation with the high point of Elsinore Peak cresting at 3,600
feet.
The natural topography of rolling hills and tributary canyons has
historically focused growth in the city on more level areas surrounding
the lake. Initially, agricultural activities developed around the lake and
were followed by resort and residential development. The historic
downtown area developed in the early 1900s to serve Lake Elsinore's
residents and tourists. Residential development presently represents
the primary development activity within the city. The existing pattern
of land uses in the city can be traced to the influence of geographic
constraints.
As previously noted, with the exception of Lakeland Village and
The Farm, development in the sphere area is characterized by rural,
large -lot residential uses, mobile homes, mining lands, and scattered
agricultural and commercial activities. Lakeland Village contains a
mixture of residential and commercial land uses. Some of the
development areas on the lake side of Grand Avenue in Lakeland
Village are in deteriorating condition. New, quality residential tract
development -is occurring on the west side of Grand Avenue offering
views to the lake and the Elsinore Mountains. The Farm is a low
density residential planned community of mobile homes east of Bundy
Canyon Road. The planned community of Horsethief Canyon is
currently under construction in the Temescal Valley, south of the Lee
Lake area. The sphere area also contains nearly 3,280 acres of the
Cleveland National Forest. The area within the National Forest
boundaries includes a mix of both public lands and private in -holdings.
Access to the city is possible through two highway corridors:
Interstate 15 (I-15) and State Route 74 (SR -74). Interstate 15 connects
to Interstate 10 in San Bernardino County and extends into San Diego
County through the City of Escondido. Ortega Highway provides an
important link from Orange County through the Cleveland National
Forest to the City of Perris and Interstate 215. Interstate 15 attracts
the majority of through traffic and commuter type traffic and is the
primary access to the city.
Skylark Airport is a privately owned and operated aviation
facility located at the south end of the lake within the city limits off of
Corydon Street. The airport is not used for commercial airline travel
but instead supports a variety of recreational air sports activities.
Operations and activities at the site are regulated by both state and
city permits and approvals. The airport has been a fixture in the
111-5
Land Use Element
community for several years and is within the boundaries of the future
East Lake Specific Plan area..
2. LAND USE INVENTORY
In 1987, a land use inventory was undertaken by the city to
determine the location and acreage of general land use types in the
city. Table III -1 presents the approximate distribution of land use
within the city as surveyed in 1987. The land use allocation is based
on the predominant use of land within a given area. For example,
residential development is scattered among thousands of vacant lots in
the Country Club Heights areas. Where development is relatively
concentrated, the acreage has been allocated to the single family use
category.
Table III -1
City of Lake Elsinore
1987 EXISTING LAND USE DISTRIBUTION
Percent of Developed Area does not include vacant land which is potentially
developable. Developed area is approximately 8,688 acres.
Source: City of Lake Elsinore Planning Department
Residential uses in Lake Elsinore are primarily composed of
single family detached units on standard subdivision lots. Single family
uses are concentrated on and around the downtown area west of
Riverside Drive and around Terra Cotta Road. In the Country Club
Heights areas, lot size and configuration as well as infrastructure
constraints (roads, sewer, water) have resulted in the construction of
less than 1,000 dwelling units out of more than 6,500 lots. The
111-6
Percent of
Percent of
Land Use
Acres
City (%i 1
d Ar •
Single family residential
2,867
17
33
Multifamily residential
146
1
2
Mobile home park
94
1
1
RV park
9
.05
.1
Commercial
299
2
3
Industrial/manufacturing
137
1
2
Public/institutional
664
4
8
Agriculture/mining
558
3
5.9
Floodplain
154
1
2
State park
2,973
17
34
Right-of-way
787
5
9
VacantL9
49
_
TOTAL
17,083
100
100
Percent of Developed Area does not include vacant land which is potentially
developable. Developed area is approximately 8,688 acres.
Source: City of Lake Elsinore Planning Department
Residential uses in Lake Elsinore are primarily composed of
single family detached units on standard subdivision lots. Single family
uses are concentrated on and around the downtown area west of
Riverside Drive and around Terra Cotta Road. In the Country Club
Heights areas, lot size and configuration as well as infrastructure
constraints (roads, sewer, water) have resulted in the construction of
less than 1,000 dwelling units out of more than 6,500 lots. The
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Land Use Element
Country Club Heights areas are a unique planning issue which is
addressed in greater detail under the discussion of Specific Plan Areas.
Approximately eight percent of the residential development land
area is in multifamily housing and mobile homes. Multifamily uses are
located in the downtown area and in several large complexes west of
Riverside Drive. One mobile home park exists in the downtown area,
and several others are located west of the lake. The State Department
of Finance estimates that there are 407 mobile homes within the city.
The amount of commercial development in the city has
increased significantly over the last few years. The type of develop-
ment is predominantly strip commercial along the major traffic
corridors of Railroad Canyon Road, Mission Trail, Main Street, and
Riverside Drive. Regional commercial centers are located outside the
Study Area in the cities of Corona, Riverside and Temecula.
Industrial and manufacturing uses presently consist of two
percent of the developed area of the city. Located almost exclusively
northwest of the central business district, the types of uses range from
the production of tile, fiberglass, and nylon products to aerospace
components. Flooding from Temescal Wash has been a constraint to
industrial development in this area.
Public/institutional uses comprise four percent of the city area.
These uses consist of schools, parks, public utility and facility sites and
publicly owned vacant land.
As shown in Table III -1, nearly one-half of the city is vacant.
The areas that are primarily undeveloped are the hillsides and canyons
in the north and west end of the city, and the 100 -year floodplain areas
surrounding the lake. Seven specific plans have been approved within
the city. These projects encompass a total of approximately 4,600
acres, which are currently identified as vacant land. Development of
these projects is anticipated to occur over a 5 -to 10 -year period.
(Refer to the Land Use Designation section for discussion of all
approved and proposed specific plans.)
II1 -7
Land Use Element
3. POPULATION AND EMPLOYMENT CHARACTERISTICS
As of January 1, 1990 the population in the city was estimated
at 15,971 persons.' As shown on Table III -2, growth in the city of
Lake Elsinore surpassed the growth rate in all Riverside County during
most of the years between 1980 and 1990. Overall, population within
the city increased by 324 percent between 1970 and 1990. By
comparison, Riverside County's population increased by 142.9 percent
during that period.
Since 1980, the population of Lake Elsinore has increased an
average of 10.2 percent annually. The absolute growth rate during the
1985 to 1990 period was more than double the growth rate between
1980 and 1984. The current population estimate is a. 6.8 percent
increase over the city's 1989 population. Population growth occurred
in two forms: growth from development within the city and growth
from annexation of residential development. Since 1981, the city has
annexed nearly 5,000 acres of which the vast majority has been in
residential land uses.
In 1980, the city's housing inventory included 2,518 dwelling
units. Between April 1980 and January 1989, the stock increased by
4,126 dwelling units for a total of 6,644 units either built or currently
under construction . -5 Construction of single-family residential repre-
sents the majority (57 percent) of the increase, while construction of
multifamily units accounted for 43 percent of the gain in housing. The
Housing Element provides additional statistics on the existing and
projected housing stock within Lake Elsinore. The State Department
of Finance currently estimates that the average household size in Lake
Elsinore is 2.78 persons per unit.6
The most recent employment estimate for the City of Lake
Elsinore is 5,505 persons employed in 1987.' An economic develop-
ment study for the years 1980-1990 was conducted by the State of
California for Riverside and San Bernardino counties. This study
indicated a substantial increase in the number of employed residents
and a decline in the rate of unemployment. These changes have
resulted in continued expansion in the city economy. The city economy
has been largely based for many years on tourist -oriented and
4 State Department of Finance, Demographic Research Unit, Annual Popula-
tion Estimates for January 1, 1990.
S State Department of Finance, Demographic Research Unit, May 1, 1990.
6 State Department of Finance, Demographic Research Unit, June 1990.
Southern California Association of Governments, June 1990.
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Land Use Element
Table III -2
POPULATION TRENDS
1970-1990
City of Lake Elsinore!
Estimated Annual Annual
Year Population Growth Growth Rate
1970
3,530
—
—
1980
5,982
245
6.9%
1981
6,137
155
2.6%
1982
7,739
1,602
26.09c
1983
7,945
206
3.09c
1984
8,517
572
7.2%
1985
9,425
908
11.0%
1986
10,915
1,490
16.017c
1987
12,253
1,338
12.3%
1988
12.790
537
4.4%
1989
14,950
2,160
16.9%
1990
15,971
1,021
6.8%
Riverside County'
Year
Estimated
Population
Annual
Growth
Annual
Growth Rate
1970
456.914
—
—
1980
663,199
206,285
4S%
1981
681.591
18.392
2.8%
1982
707,084
25,493
3.7%
1983
731.173
24,089
3.4%
1984
757,470
26297
3.6%
19x5
800,949
43,479
5.7%
1986
838.652
37,703
4.7%
1987
986-241
47589
5.7%
1988
946,074
59,833
6.8%
1989
1,014,800
689726
7.3%0
1990
1,110,021
95221
9.40
'Source: US. Census of Population and Housing, 1970 and 1980; State Department
of Finance, Population Research Unit, Annual Population Estimates for
January 1, 1981 through January 1, 1989.
I1I-9
Land Use Element
agricultural uses. Over the last decade, however, service, light
manufacturing and trade uses have increased within the local economic
base. There are currently thirteen manufacturing plants in the
community. The leading products manufactured include brick, tile and
clay products. Pacific Clay Products is the largest manufacturing
employer in the area (100 employees). Major non -manufacturing and
primarily service-oriented employers within the Lake Elsinore area
include K -Mart (150 employees), Albertsons (120 employees), Sirzler
(100 employees) and Stater Brothers (96 employees).
4. JOBS/HOUSING BALANCE
The "jobs/housing" balance concept is based on the premise that a
reduction in commute distances and travel time as well as the
consequent reductions in emission of air pollutants can be achieved
when sufficient jobs are available locally to balance with the employ-
ment demands of the community. The reduction in travel can further
be reduced when commercial services are convenient to residential
areas.
The Southern California Association of Governments (SCAG)
adopted the Growth Management Plan (GMP) in February 1989. The
GMP establishes performance goals for a jobs/housing balance for
each subregion in the six county SCAG region. The Study Area is
located in SCAG's Central Riverside subregion. According to SCAG's
housing and employment figures for Central Riverside, the forecasted
jobs -to -housing balance for this subregion will be .70 by 2010. In 1987
(the latest year for which there is an employment estimate for the city),
the City of Lake Elsinore was estimated to have a jobs/housing ratio
of .6, which is a slightly lower ratio than that of the subregion in which
it is located.
According to SCAG's 1989 Growth Management Plan, each SCAG
subregion is considered balanced if its ratio of employment to housing
matches the region's. Since the regional jobs/housing balance is
forecasted to be 1.22 by 2010, then each subregion should match this
ratio to be considered balanced. "Job rich" subregions have ratios
greater than the regional average, and "housing rich" subregions have
ratios lower than the regional average. As the Central Riverside
subregion's jobs/housing balance is projected to be .70 by 2010, this
region is considered "housing rich." The city should strive to attain a
jobs/housing balance of 1.22 for the total Study Area since this ratio
is the regional goal.
111-10
Land Use Element
D. ISSUES AND OPPORTUNITIES
S
1. LAND USE COMPATIBILITY CONSIDERATIONS
Compatibility between adjacent land uses in the Study Area is
essential to achieve a safe, efficient, and well -organized community.
The issues involved in examining compatibility of proposed projects
include, but are not limited to, traffic generation, access locations,
noise generation, public service demands, siting and visual appearance,
and public safety.
The Land Use Plan addresses the issue of land use compatibility.
Industrial uses are grouped along the I-15 corridor to encourage
development of industrial parks that improve efficiency in terms of
circulation and access; the provision of public services and facilities;
the design of common open space; and the coordination of site design
among individual projects. Business Park and Freeway Business uses
are similarly consolidated in the Land Use Plan. General Commercial
uses have been concentrated at specific locations to create centers that
invite pedestrian travel, utilize common site design requirements such
as walkways and parks, and provide coordinated architectural and
signage treatments. Office and high density residential often serves as
a buffer in the Land Use Plan between lower density residential and
commercial or industrial uses. It is important to buffer all residential
development in terms of light, noise, traffic impacts and negative visual
impacts when located adjacent to commercial and other non-residential
land uses. The provision of an adequate circulation system and
sufficient parking for commercial areas are also measures that protect
the quiet nature of residential neighborhoods.
Land use compatibility between residential projects of different
densities is also an issue in Lake Elsinore. The development of higher
density single family tracts, for example, may be out of scale and
incompatible with adjacent one -acre estate lots that offer a rural
atmosphere that existing residents seek to preserve. The scale of the
project and site planning techniques within and adjacent to existing
residential development is a key consideration. Site design that
involves a gradual transition of densities within a project or transitional
buffer areas to improve compatibility with adjacent lots are measures
that may be required by the city.
The future compatibility of new development upon sites of mineral
deposits or adjacent to mineral extraction areas, is an issue within the
Study Area. The State Mining and Reclamation Act of 1975 requires
Land Use Element
Sam
the city to review the compatibility of proposed projects on or adjacent
to mineral lands in accordance with guidelines set forth in the Act.
Potential incompatibilities between land uses can also be minimized
by precluding "piecemeal" development of large sites. This can be
accomplished by requiring the preparation of specific plans or by
encouraging planned unit developments at appropriate locations in the
city.
2. PHYSICAL CONSTRAINTS
The Study Area contains a number of physical constraints affecting
potential land development. Flood hazards, unstable slopes, poorly
consolidated alluvial soils, significant biological resources and active
faults are the principal constraints to development. Flooding from the
San Jacinto River, Rice Canyon and McVicker Canyon, for example,
creates a flood hazard that presently limits the extent of urban
development in floodplain around the lake and Temescal Wash. The
lake is broad and gently sloping, which creates a floodplain area that
ranges from several hundred to several thousand feet. Improvements
to reduce the existing flood hazards associated with the lake are
scheduled to be completed by the end of 1991. The Lake Elsinore
Management Project involves the construction of a levee at the east
end of the lake, lowering of the Temescal Wash elevation, and
construction of a new inlet channel for the San Jacinto River. These
and other improvements to address flood hazards are described in the
Public Safety and Urban Services Element.
The potential for new development is also constrained within or
adjacent to areas containing plant or wildlife species which are listed
as endangered or threatened by the U.S. Fish and Wildlife Service and
the California Department of Fish and Game. The Stephens'
kangaroo rat, the least Bell's vireo, and the slender -horned spineflower
are listed species in the Study Area. The Open Space and Conserva-
tion Element addresses the future management of the habitat area for
these species.
Potential geologic hazards associated with active faults and unstable
slopes are present in the Study Area. These potential geologic hazards
restrict the location of buildings and increase the cost of construction
to avoid or mitigate the hazard. The Elsinore Fault Zone is one of
three major fault zones in southern California and is comprised of the
Willard fault, the Glen Ivy fault, the Wildomar fault and other minor
faults. An Alquist-Priolo Special Studies Zone has been designated for
the Wildomar fault which prohibits development within 50 feet of fault
Land Use Element
lines. Geologic studies also indicated that potential landslide areas
exist in the Alberhill area, in the southwest area of the city's sphere of
influence, and in _areas of steep topography (slopes greater than 30
percent).
Construction on alluvial soils increases the potential for seismic -
related hazards including groundshaking, lurching, and liquefaction.
Alluvium is located extensively throughout the city and increases the
cost of development in terms of design and construction methods.
Geologic risks within the Study Area are further addressed in the
Public Safety and Urban Services Element.
3. PUBLIC SERVICE AND FACILITY CONSTRAINTS
The potential for land use intensification and new development in
Lake Elsinore is subject to constraints imposed by the ability of public
service agencies and utilities to provide adequate levels of service and
facilities. New development places additional demands upon the
county sheriffs department, the county fire department, the school
districts, the water districts and other service providers. Roads, parks,
public parking sites and other public facilities are also impacted by
new development. It is important that the city monitor growth and
development in relation to the ability of local agencies to provide
essential services and facilities. The city may levy growth impact fees
or public facility impact fees on a fair share basis to finance the capital
facilities needed to accommodate new development. The authorization
and criteria for establishing impact fees is contained in Assembly Bill
1600 and is outlined in the Implementation Program for the Land Use
Element.
The Public Safety and Urban Services Element provides an analysis
of future growth impacts on public services and facilities. Develop-
ment outside the urbanized sections of the Study Area will most likely
require the extension of water lines, sewer lines, electrical lines and
natural gas lines. The key constraints to development in relation to
public safety and urban services are the circulation system, school
facilities, and sheriff and fire service.
Most of the arterial roadways in the city have not been constructed
to ultimate width based on the city -adopted highway classifications.
Many of these roadways are currently experiencing heavy traffic
volumes during the peak -hour period. Future land uses anticipated in
the Study Area will require the widening of existing roads and bridges
as well as significant construction of new roads to serve development.
111-13
Land Use Element
The Circulation Element establishes the future circulation system
required to accommodate the traffic generated by new development
pursuant to buildout of the General Plan. The phasing of such road
improvements with development to ensure acceptable levels of service
is a key consideration in the review and approval of projects.
The construction of new school facilities has had difficulty keeping
pace with the students being generated by new development.
Overcrowding of schools has caused the Lake Elsinore Unified School
District to conduct double sessions and provide temporary classroom
facilities. The current method of funding school facilities using state
funds and developer fees is inadequate to fund and complete construc-
tion in a timely manner. The dedication of land and construction of
improvements by' developers is one option the city may choose to
exercise.
Police services currently provided to the city, as contracted with the
Riverside County Sheriff Department, are below the city's goal of
providing police protection at a ratio of 1.5 officers per 1,000 popula-
tion. Buildout of the general plan will further impact the existing
services. ?he sheriffs department typically responds to growth by
hiring and assigning additional officers to geographical areas in direct
proportion to increases in population. Accordingly, the need for
augmented law enforcement services can be met by increasing the
number of officers available to the city. Methods of funding additional
services should be explored, as the provision of police service is tied
to the city's ability to fund the service.
The city's goal is to provide fire protection services at a ratio of
one full-time firefighter per 1,000 persons. Anticipated growth in the
current city limits at buildout of the general plan will result in an
increase in demand for services and require approximately 130 full-
time firefighters with additional staffing required for buildout within
the sphere area.
Recommendations for fire protection services were provided in the
Fire Protection Study Report and Area Specific Master Plan prepared
by Rex Griggs in November 1989. This report does not address
general plan buildout, but does address fire and emergency services for
the year 2400. Recommendations of this report include the provision
of at least three new fire stations and additional paramedic services.
The report also recommends alternate locations for additional fire
stations, additional apparatus/vehicles, and projects estimated
personnel operating costs. These recommendations along with
contracting with the Riverside County Fire Department for fire
Land Use Element
prevention program activities (ie., annual fire safety inspections for
businesses and weed abatement programs) will help to meet demand
for fire services upon buildout of the general plan.
4. GEOGRAPHIC INFORMATION SYSTEM (GIS)
The city is currently in the process of preparing a computerized
geographic data base which will provide citizens, staff and decision -
makers with a comprehensive set of data regarding physical consider-
ations of all properties within the city and its sphere of influence. This
GIS should be utilized by landowners, staff and decisionmakers when
preparing and reviewing plans for new development. The GIS
provides a more specific level of analysis than that considered when
preparing the general plan. It is logical and probable that the
"application" of the GIS to specific areas will result in the identification
of opportunities and constraints which may alter development expecta-
tions of landowners and the city.
E. LAND USE PLAN
The Land Use Plan defines the general location of residential,
commercial, industrial, open space and all other land uses desired for
the Study Area. The Land Use Plan is intended to reflect local and
regional growth trends, provide a sufficient jobs to housing balance,
and provide adequate open space to protect the environmental and
aesthetic resources that contribute to the unique setting of the
community. The Land Use Plan also reflects the land uses adopted by
the County of Riverside Board of Supervisors for the Southwest Area
within the city's sphere of influence. The Land Use Plan serves as a
long-range guide for Lake Elsinore's future growth and development.
The Land Use Plan is contained in the back pocket of this document.
Table III -3 is a summary of the probable level of development
buildout within both the city and sphere of influence. At probable
buildout, the number of dwelling units anticipated within the total
Study Area is 103,395 units. The population is projected to be
approximately 287,400 persons. Over thirty-five million square feet of
commercial uses and thirty-seven million square feet of industrial uses
are anticipated (city and sphere) under the Land Use Plan. These
projections are based on mid-range densities for residential uses and
probable floor area ratios (FAR) for commercial and industrial uses.
With buildout, the city will achieve a jobs/housing balance in excess
of 1.4, while that of the entire Study Area will be somewhat less. The
III - 15
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Land Use Element
city should, at a minimum, strive to attain the regional jobs/housing
goal of 1.22 for the total Study Area.
1. LAND USE DESIGNATIONS
The following section describes the intent of each of the land use
categories found on the Land Use Plan map. The purpose is to
describe the general character and type of land uses intended within
each category. In addition, population and building intensity standards
are specified in accordance with the State General Plan Guidelines.
Each of the residential use classifications indicate a maximum
density of development. The maximum density defines the maximum
number of units per gross acre at which residential development can
occur within a given area. Determination of precise density, develop-
ment location, and lot coverage on any residential property is a
function of:
Opportunities and constraints presented by natural, cultural
or scenic features;
► Policies and implementation measures of the general plan
intended to maximize public safety; achieve high quality site
planning and design; provide sufficient levels of public
service; avoid disorderly development patterns, and
Zoning ordinance provisions and building and subdivision
codes.
Residential uses are intended to be the principal and dominant use
within each of the residential designations. Civic uses and institutional
uses such as churches and certain home occupations may be consistent
with these designations. Certain commercial or quasi -commercial uses
may be permitted in residential areas including small day care facilities
and residential care facilities. Other uses include country clubs, golf
courses, recreational vehicle parks, riding stables and other private
recreational facilities.
Each of the non-residential designations specifies the building
intensity according to a floor area ratio (FAR). A floor area ratio for
a project is the ratio of gross floor area within a structure to total site
area. Floor area does not include area within parking structures. An
] example of the building intensity or square footage allowed under
�J various floor area ratios is provided below in Table III -4.
Land Use Element
Table IH -4
FLOOR AREA RATIO EXAMPLE
SITE SIZE - 1 ACRE (43,560 SQUARE FEET)
One -Story BuOding Tw
ry Building
1. .25 FAR
Building gross sq. ft.
10,890 sq. ft.
10,890 sq. ft.
Building footprint
10,890 sq. ft.
5,445 sq. ft.
Parking and landscape
32,670 sq. ft.
38,115 sq. ft.
2. SO FAR
Building gross sq. ft.
21,780 sq. ft.
21,780 sq. ft.
Building footprint
21,780 sq. ft.
10,890 sq. ft.
Parking and landscape
21,780 sq. ft.
32,670 sq. ft.
a. (MMountainous (l dwelling unitllQ acres maximum)
This designation is intended for residential development in
areas containing steep slopes, rugged terrain, limited or no
access, and limited public services and utilities.
Residential uses would be characterized by large rural estate
lots, with significant permanent open space areas due to
slope gradient constraints, soil and geotechnical hazards, fire
hazards, access and public service constraints, and other
environmental concerns. This designation has primarily
been applied in the mountainous terrain within the city's
sphere of influence. The population density for this catego-
ry would be approximately .2 persons per acre based on an
average household size of 2.8 persons per dwelling unit.$
b. (VI -D) Very Low Density (_5 Owe] lingynit , acre maximum)
This designation is intended for residential development in
a rural setting and is characterized by single family homes
on two -acre or larger lots. Clustered single family develop-
ment is also intended within this category to allow a project
to be responsive to the natural terrain and minimize grading
State Department of Finance, Demographic Research Unit, June 1990.
Figure of 2.8 is rounded for calculation purposes from state estimate of
2.78.
Land Use Element
requirements and impacts to environmentally sensitive areas.
This designation is also consistent with large lot residences
that keep horses and other animals, as well as maintain
orchards and other agricultural uses. The population
density for this category could be as high as 1.4 persons per
acre, assuming an average household size of 2.8 persons per
dwelling unit.
C. (LD) Law Density Q dwelling units/sere maximum
This designation is intended for residential development
characterized by quality single family homes on large lots at
least one-third of an acre in size. Clustered single family
development may also be encouraged within this designation
to minimize grading requirements and impacts to environ-
mentally sensitive areas. Low Density residential has been
located on the Land Use Plan in some areas where services
are not immediately available but can extended without
causing substantial over-extension of facilities. The popula-
tion density within this category could be as high as 8.4
persons per acre, based on an average household size of 2.8
persons per unit.
d. (LMD) Low Medium _Density (fi dwelling units/acre
maximum
This designation is for quality single family homes in either
standard subdivision form or innovative designs which utilize
clustering, zero lot line, or planned development features.
This designation is intended for areas of generally level
topography with available public services and infrastructure.
Low Medium Density has been located in some areas where
services are not immediately available but can be extended
without causing substantial over-extension of facilities. The
population density within this category could be as high as
16.8 persons per acre, based on an average household size
of 2.8 persons per unit.
e. (MD)Medium Density (12 dwelling unitsjacr�,-_maximum�
This designation is intended for a wide range of residential
development types including attached and detached single
family units at the lower end of the range and multiple
family units at the higher end of the density range. Medium
Density residential is located to provide a transitional buffer
III - 18
Land Use Element
between Low Medium Density and High Density or Com-
mercial and Office uses. Medium Density is located in
some areas where services are not immediately available but
can be extended without causing substantial aver -extension
of facilities. Based on an average household size of 2.8
Persons per unit, the population within this category could
be as high as 33.6 persons per acre.
£ MHD Medium HiRb Den itv U dwelling nit acr
cp
maximum)
This designation is intended for multiple family attached
units. Medium High Density residential is located in some
areas where services are not immediately available, yet may
be extended without causing substantial over-extension of
facilities. Based on an average household size of 2.8
persons per unit, the population within this category could
be as high as 50.4 persons per acre.
g. HD Hi h Density 24 dwelling units acre maximum
This designation is intended for multiple family attached
units at the lower end of the density range and apartment
or condominiums at the upper density range. Properties
within this category are intended to utilize innovative site
planning and design techniques to be sensitive to the
character and density of surrounding residential. Such site
design techniques should also be used to minimize noise,
light and other impacts from nearby non-residential activi-
ties. Areas developed under this designation should contain
adequate access to streets of collector capacity. High
Density residential developments should provide on-site
recreational amenities and common open space. This
category is located in close proximity to major community
facilities, business centers, transit systems and required
infrastructure. Assuming an average household size of 2.8
persons per unit, areas in this category could contain as
many as 67.2 persons per acre.
h. Mixed Use
This designation is intended to provide for a creative mix of
commercial and residential uses to encourage a healthy
urban environment in the more urban and redevelopment
areas. The Mixed Use designation will provide for approxi-
111-19
pproxi-
III-19
Land Use Element
mately 60 percent residential uses (not to exceed 24 dwell-
ing units per acre), and approximately 40 percent commer-
cial uses (at a probable floor area ratio of SO and a maxi-
mum floor area ratio of .75).
i. ]neighborhood Commercial
This designation includes neighborhood shopping centers
and small convenience centers which provide for the
day-to-day retail goods and services required by residents in
the immediate vicinity. The Neighborhood Commercial
designation is intended to provide a concentration of retail
uses including, but not limited to, personal services, food
and general merchandise stores, eating establishments, and
repair stores. Neighborhood Commercial centers should be
compatible in design and scale with adjacent residential
districts. Allowable development intensities in Neighbor-
hood Commercial areas would be up to 13,068 square feet
per acre or a floor area ratio of 30 percent.
j.
Tow-ist Commercial
This designation is intended to provide strategically located
commercial and recreational centers to meet the needs of
tourists and recreation enthusiasts. Tourist Commercial
uses would include restaurants and convenience stores,
rental shops, motels, boat sales establishments, museums,
gift shops and entertainment centers. The Tourist Commer-
cial designation on Main Street at the I-15/Main Street
interchange is specifically intended to be a "gateway" into
the city with uses that are oriented to the needs of freeway
travelers and tourists. Development within this category
could reach densities of 15,246 square feet per acre or a
floor area ratio of 35 percent.
k. Qeneral Commercial
This designation is intended to provide for a wide range of
retail and service activities including department stores,
restaurants, hotels, theaters, offices and specialized services.
General Commercial has been located to encourage
consolidated centers of activity with direct access to major
roads and freeway interchanges. General Commercial areas
are intended to be of high quality design and pedestrian
oriented and shall contain sufficient off-street parking. The
III -20
Land Use Element
maximum density of development under this designation is
17,424 square feet per acre or a floor area ratio of 40
percent.
1. ommercialOffice
This designation is to primarily provide for office and
administrative uses. Limited commercial activities including
art galleries, restaurants, office support services, and medical
clinics would be compatible with this designation if design
and operation are harmonious with the character of an
office environment. The Commercial Office designation has
been located to provide a transitional buffer between
residential districts and commercial or industrial districts.
The maximum density of development under this designa-
tion is 21,780 square feet per acre or a floor area ratio of 50
percent.
M. Freewav Business
This designation provides for large floor area uses including
office or commercial and manufacturing uses that require
large display or storage areas. Uses intended under this
designation include home furnishing and improvement
centers, industrial supply businesses, equipment sales and
service, auto dealerships, large office buildings, and regional
commercial developments. Limited manufacturing and
wholesale distribution centers are also compatible with this
designation. Freeway Business has been located to mini-
mize truck traffic on collector or local streets, provide good
access to I-15 and provide good visibility for the commercial
aspects of the businesses. The maximum allowable densities
under this land use category would be 32,670 square feet
per acre or a floor area ratio of 75 percent.
n. Limited Industrial
This designation establishes limited industrial areas where
uses such as manufacturing, assembly, electronics, warehous-
ing, machine repair shops and other non -hazardous and low
nuisance industrial uses are appropriate. Limited Industrial
areas are to be protected from intrusion by housing,
non -supporting commercial activities and other inharmoni-
ous uses. Special landscaping to screen or buffer outdoor
storage areas and appropriate development criteria for a
Land Use Element
quality appearance is intended for this designation. Indus.
trial areas have been grouped in the city and sphere to
minimize infrastructure costs and to encourage the growth
of secondary support services. Limited Industrial areas are
located close to major transportation facilities and should
be developed with an efficient internal circulation system of
industrial streets. Maximum allowable densities for Limited
Industrial areas are 15,246 square feet per acre or a floor
area ratio of 35 percent.
o. Business Park
The primary purpose of areas designated Business Park is
to provide for light industrial, research and development,
support service uses and office -based firms seeking an
attractive environment and a prestigious location. This land
use category permits a limited amount of business, commer-
cial, and personal services that directly serve the users and
employees of the Business Park. The Business Park is not
intended to include uses that generate noise, odor, glare or
negative visual impacts that cannot be mitigated, or other
effects that could be harmful to life or nearby property. It
is intended that allowed uses and storage of supplies,
equipment or materials be contained within an enclosed
building. Landscape, site design and architectural standards
are to provide for a high quality business environment that
attracts stable employers to the city. The city shall encour-
age site design to include common open space areas for
outdoor activities, and a pedestrian trail system to minimize
travel by car. Maximum allowable densities for Business
Park areas are 17,424 square feet per acre or a floor area
ratio of 40 percent.
p. Public/Institutional
This designation indicates areas owned and maintained by
public agencies such as school districts, water districts, utility
companies, the County of Riverside and the city. Appropri-
ate uses for this designation include schools, roads, utility
substations, sewage treatment plants, civic facilities and
cemeteries. Although churches and civic uses have not been
designated on the Land Use Plan map, these uses are
appropriate, subject to a Conditional Use Permit, within the
residential, commercial and commercial office designations.
111-22
Land Use Element
The maximum density for Public/Institutional uses is 8,712
square feet per acre or a floor area ratio of 20 percent.
The Open Space designation is intended for public and
private areas .of permanent open space including, state and
local parks, Bureau of Land Management lands, the Cleve-
land National Forest and golf courses. In addition, this land
use category indicates lands acquired by exaction, easement,
fee and other methods sanctioned by state and federal law
to preserve areas of biological and cultural significance and
areas with development constraints due to topography,
geologic instability, flooding and other hazards. Only
accessory buildings or those structures related to public
parks and recreation facilities are intended for open space
lands under the city's jurisdiction. Although no maximum
building density is defined for these areas, any structures
constructed should be at a scale that is compatible with the
recreation site.
r. Floodway
The Floodway designation within the Land Use Element
and as depicted on the Land Use Map is applied to specific
areas primarily in the downtown core area of the city which
either currently serve as, or have approved improvement
plans for, flood control/lake management facilities. The
purpose of designating these areas as "Floodway" is to
identify only those facilities within the area which have
concentrated previous floodplain into an improved ultimate
100 -year flood facility, allowing reclamation of previously
impacted existing and proposed adjacent developments.
These areas include improvements such as the Temescal
Wash outflow channel, located behind the central business
district, and the San Jacinto River inlet channel and levee
located along the south end of the lake.
The areas designated "Floodway' on the Land Use Map are
distinguished from several other floodplain areas located
within the Study Area. According to the Federal Emergen-
cy Management Agency (FEMA), these other floodplain
areas currently still.pose potential flood hazards to adjacent
properties due to the lack of either improved or approved
future flood control facility projects. These unimproved
111-23
Land Use Element
floodplain areas are mapped in the Public Safety and Urban
Services Element, which collectively categorizes these areas
as "floodways" as defined by FEMA or as unmapped
drainage courseways. Future developments proposed within
these areas will need to address flood hazards, and will need
to have consistency findings made by the city with the goals,
objectives and policies relating to floodway hazards within
the Public Safety and Urban Services Element of the
General Plan.
There is no development density or intensity assigned to the
Floodway designation on the Land Use Map since these
areas are planned as permanent flood control facilities.
S. Specific Plan Areas
This designation requires the preparation of a specific plan
that is consistent with the requirements of Section 65451 of
the California Government Code which defines a specific
plan to include "all detailed regulations, conditions, pro-
grams and proposed legislation which shall be necessary and
convenient for the systematic implementation" of each of the
mandated elements and any optional elements adopted by
the city as part of the general plan. The section goes on to
require that a specific plan include "regulations, conditions,
programs and proposed legislation" regarding:
10. The location of and standards for land uses and
facilities;
► The location of and standards for streets, roads and
other transportation facilities;
► Standards for population density and building intensi-
ty and provisions for supporting services;
► Provisions for implementing the Open Space Ele-
ment; and
Other appropriate measures.
The Land Use Element specifies the uses that are intended
for each Specific Plan Area. Specific Plan Areas designated
for residential are encouraged to incorporate neighborhood
commercial centers or general commercial, if market
111-24
Land Use Element
supported, to serve the residents of the area. Natural open
space, developed park Iand, trails, and public facilities shall
also be provided in accordance with the general plan
policies and zoning code regulations.
As is required by state law, all specific plans shall be
consistent with the General Plan. Revisions or amendments
to adopted specific plans which are in substantial confor-
mance with the intent of the General Plan will not require
a General Plan Amendment. All proposed specific plans,
and revisions or amendments to adopted specific plans shall
prepare and submit a General Plan consistency analysis to
the city for evaluation.
The city shall encourage the preparation of specific plans for
areas which may not be designated as a Specific Plan Area
on the Land Use Plan, but are deemed appropriate for
specific plan requirements.
1) Adopted Specific Plan Areas
The approved specific plans within the Study Area
include the following:
► Ramsgate Specific Plan
► Alberhill Ranch Specific Plan
► Cottonwood Hills Specific Plan
► Summerhill /Canyon Creek Specific Plan
► Tuscany Hills Specific Plan
► Lakeshore Specific Plan
► Lake Elsinore Outlet Center
► North Peak Specific Plan
► Horsethief Canyon Specific Plan (County)
► The Farm Specific Plan (County)
The specific plan documents are available for refer-
ence at the City Planning Department. The location
of each Specific Plan Area is shown on Exhibit III -1.
In addition to approved specific plans, the city has
also adopted a plan for the Historic Downtown
Elsinore Area. This area is one of the oldest, most
established parts of the city. A land use plan and
design guidelines for the Historic Downtown Elsinore
Plan were adopted by the City Council in October
111-25
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Land Use Element
1989. The city has been preparing revisions to the
adopted Plan and Guidelines for future adoption.
Copies of the documents are available at the City
Planning Department.
The adopted Historic Elsinore Downtown Plan
guides the redevelopment of the downtown area
through land use and design controls. The Plan
applies to all new construction and additions to
private property. The design guidelines are intended
to preserve and enhance the character of downtown
Lake Elsinore, by encouraging good design and
creative solutions to improvements, additions, or
alterations.
As adopted, the land uses in the Historic Elsinore
Downtown Plan area will include Neighorhood
Commercial, Tourist Commercial, Commercial
Office, Public/Institutional, and a range of residential
uses. Neighborhood Commercial is intended to be
the predominate use 'along Main Street from
Lakeshore Drive to Pottery Street. North of Pottery
Street to the I-15/Main Street interchange, visitor -
serving (tourist) commercial uses will be allowed.
Professional office uses on Main Street may be
integrated with commercial uses or located behind
commercial uses along Spring Street. The conversion
of existing residential uses along Graham Avenue to
commercial and office uses is encouraged by the
plan. High density residential is most appropriate
bordering the commercial /office. Residential densi-
ties progressively decrease away from the commercial
core.
2) Future Specific Plan Areas
The city has designated a number of areas within the
Study Area as Future Specific Plan Area. The
location of each Future Specific Plan Area is shown
on Exhibit III -1. The general character of develop-
ment within each Future Specific Plan Area is
defined below. Some of the major issues to be
addressed in the future specific plans are identified
as well. Unless specified otherwise, no new develop-
ment will be permitted within any Future Specific
111-26
Land Use Element
Plan Area until a Specific Plan is adopted and all
necessary development permits are obtained.
a) Specific Plan Area A - Laguna Heights
The proposed Specific Plan Area is located
west of the lake within the city's sphere of
influence. Access will be from the future
Grand Avenue extension. McVicker Canyon
runs through the northwestern edge of the
property. The residential land use density for
the 1,240 -acre Specific Plan Area will be a
maximum of 3 du/acre. The specific plan for
Laguna Heights should address such issues as
potential flooding from McVicker Canyon;
visual impact of hillside development; the
management of biological communities of
concern including alluvial sage scrub and
coastal oak habitat found onsite; and the loss
of significant mineral deposits designated by
the State of California. Clustering of develop-
ment is encouraged. Non-residential uses
should be limited to neighborhood commer-
cial if supported by a market study, open
space, recreational uses, and any public facili-
ties necessary to support the project.
b) Specific Plan Area B - La Laguna Estates
The proposed Specific Plan Area is located
on the western edge of the city and is bisected
by McVicker Canyon. Rice Canyon borders
the northern edge of the property. A residen-
tial density of a maximum of 3 du/acre will
be allowed for the 489 -acre Specific Plan
Area. The Specific Plan should address such
issues as the compatibility of development
with adjacent mining activities; the loss of
significant mineral deposits as defined by the
state; flood hazards from McVicker and Rice
Canyons; the provision of adequate fire pro-
tection; and the impacts of development on
threatened and endangered species potentially
Iocated onsite including the orange -throated
whiptail and northern harrier. Clustering of
111-27
Land Use Element
development is encouraged. Non-residential
uses should be limited to neighborhood com-
mercial if supported by a market study, open
space, recreational uses, and any public facili-
ties necessary to support the project.
c) Specific Plan Area C - Temescal Ranch
The proposed Specific Plan Area is located
north of I-15 and Temescal Canyon Road
outside of the city's current sphere of influ-
ence. The residential land uses for the 1,000 -
acre Specific Plan Area will be a maximum
density of 23 du/acre. Other uses may in-
clude neighborhood commercial development
if supported by a market study, open space,
recreational uses, and any public facilities
necessary to support this project. The Specif-
ic Plan for this area should address such
issues as wildlife hazards; the provision of
police and fire service; and the impact of
development on species and communities of
concern located onsite.
d) Specific Plan Area D - North Alberhill Ranch
This proposed Specific Plan Area is located
within the project area of the approved Alber-
hill Ranch Specific Plan. While the Alberhill
Ranch Specific Plan has been adopted, an
adjacent 925 -acre area, herein referred to as
North Alberhill Ranch, has not received ap-
proval. That area will be the subject of a
subsequent Specific Plan. The North
Alberhill Ranch Specific Plan should address
such issues as the reclamation of mining sites
adjacent to or for development; visual impacts
of hillside grading; and the impact of develop-
ment on the biological resources along the
Temescal Wash. Residential development
may be permitted at a density of 3 du/acre
maximum. Non-residential uses should be
limited to neighborhood commercial if sup-
ported by a market study, open space, recre-
III-28
Land Use Element
ational uses, and any public facilities neces-
sary to support the project.
e) Specific Plan Area F - To Be Named
The proposed Specific Plan Area is located
adjacent to the approved Ramsgate Specific
Plan Area within the city's sphere of influ-
ence. The 184 -acre Specific Plan Area will
accommodate residential development at a
maximum density of 6 du/acre. Issues to be
addressed include hillside grading impacts;
compatibility of development to adjacent uses;
and project impacts on biological resources
including potential Stephens' kangaroo rat
habitat. Non-residential uses should be limit-
ed to neighborhood commercial subject to
market analysis, open space, recreation, and
any public facilities necessary to support the
project.
f) Specific Plan Area G - To Be Named
The 651 -acre proposed Specific Plan Area is
located north of the I-15 and west of the Tus-
cany Hills Specific Plan Area. A residential
land use at a maximum density of 3 du/acre
will be accommodated. In preparing the
Specific Plan, the issues to be addressed
should include the visual impact on hillside
grading and development from the I-15 and
the lake area; and the impact to threatened or
endangered species, including the orange -
throated whiptail and Cooper's hawk, as well
as communities of concern located onsite.
Non-residential uses shall be limited to tourist
commercial, neighborhood commercial if
supported by market analysis, open space,
recreation, and any public facilities necessary
to support the project.
g) Specific Plan Area H - East Lake
The proposed Specific Plan Area is bordered
by the eastern edge of the lake, Mission Trail,
111-29
Land Use Element
Lakeshore Drive and Rome Hill. Develop-
ment of this 3,030 -acre area will be feasible as
a result of the lake stabilization project which
involves construction of a levee on the
northern and western edge of the project area
to control runoff from the San Jacinto River.
Upon completion of the levee and
improvements to the outflow channel, the
land in the Specific Plan Area may be
reclaimed from the lake's floodplain area for
development. The Specific Plan Area is
intended to provide a range of housing types,
tourist -oriented uses, regional and local
commercial activities, and a variety of
recreational uses, including private air sport
activities at Skylark Airport.
Interim Development Requirements: Prior to
the preparation and adoption of the Specific
Plan, the current municipal codes, including
zoning, subdivision, building and construction,
streets and sidewalks, and public health and
safety shall apply to proposed projects. In
addition to other application requirements, a
conditional use permit shall be required.
h) Specific Plan Area I - Lake Edge
The proposed 1,600 -acre Lake Edge Specific
Plan Area encompasses the area from the
lake edge to Lakeshore Drive, Riverside
Drive and Grand Avenue. Preparation of the
specific plan will be a joint city/county effort.
The Specific Plan Area is currently charac-
terized by older residential development along
Grand Avenue; trailer parks, a state park, and
scattered commercial uses along Riverside
Drive; and a small number of residences
along Lakeshore Drive. The primary goals in
implementing a specific plan for the lake edge
include increasing public access to the lake;
comprehensively planning for tourist -oriented
uses; providing for additional housing that is
designed to maximize views and recreational
opportunities afforded by the lake; and imple-
III - 30
Land Use Element
menting design standards to improve the
urban form and aesthetics along the lake
edge. Development within the Specific PIan
Area will be feasible as a result of the lake
stabilization project which wiII allow land to
be reclaimed for development from the flood-
plain area. The issues to be addressed in-
clude implementation and coordination be-
tween jurisdictions; upgrading of water and
sewer service; urban runoff into the lake;
public access and recreation; and the manage-
ment of significant biological resources found
within the littoral shoreline habitat.
Interim Development Requirements: Prior to
the preparation and adoption of the Specific
Plan, the current municipal codes, including
zoning, subdivision, building and construction,
streets and sidewalks, and public health and
safety shall apply to proposed projects. In
addition to other application requirements, a
conditional use permit shall be required.
i) Specific Plan Area J and K - Country Club
Heights
The proposed Specific Plan is applied to the
two areas known together as Country Club
Heights, located northwest and east of the
central business district. Area J at 1,312 acres
and Area K at 161 acres are both character-
ized by multiple ownerships, steep slopes,
unstable soils, and infrastructure constraints
including an inadequate sewage disposal
system, inadequate water pressure in some
areas, a currently inadequate water supply
and an undeveloped and poorly designed
circulation system. Many of the infrastructure
constraints are a result of the antiquated
subdivision pattern, established in the 1920s,
that has precluded orderly and substantial
development in the area under existing zon-
ing, grading and building requirements.
111-31
Land Use Element
The future Specific Plan(s) are intended to
provide for a range of housing densities and
some limited commercial and industrial uses.
Residential development patterns and densi-
ties will be determined by the specific plan(s)
with regard to the physical constraints here
noted as well as the feasibility of lot consoli-
dation. Consolidation of multiple lots into
viable building sites is to be an objective of
the Specific Plan(s). The average residential
density will be 6 du/acre. The two areas of
Country Club Heights may be treated as inde-
pendent Specific Plans or as a single overall
Specific Plan.
Medium density residential in clustered or
multifamily development is an appropriate use
along Riverside Drive and Lakeshore Drive.
No direct access to dwelling units should
occur from these arterials. Commercial uses
may be allowed. along Riverside Drive, Lake-
shore Drive and Strickland Avenue. Com-
mercial development shall be evaluated based
on compatibility with surrounding residential,
traffic impacts, sewage disposal, and other
criteria deemed appropriate by the City Plan-
ning Department. Limited Industrial is an
appropriate use along areas of Strickland
Avenue between Chaney Street and Riverside
Drive, provided that site orientation minimiz-
es negative visual impacts to nearby residents,
adequate buffering is provided; and noise,
odor and other potential environmental im-
pacts are mitigated. The significant habitat
areas and biological resources within the area
including the least Bell's vireo habitat shall be
protected as required by state and federal
law.
j) Specific Plan Area L - Marina Village
This 71 -acre multiple ownership Specific Plan
Area is located at the southern end of the
downtown area. The Specific Plan is intended
to provide for a comprehensively planned
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Land Use Element
development permitting public/institutional
uses, commercial, tourist commercial, and
residential uses not to exceed a maximum
density of 18 du/acre. The issues to be ad-
dressed in the Specific Plan include the inter-
face between the office development and
existing senior citizen center, urban runoff
into the lake, public access and recreation,
and the realignment of Lakeshore Drive.
Floor area ratios would be permitted up to a
maximum of SO FAR for office and and .40
FAR for commercial uses.
k) Specific Plan Area M - To Be Named
This Specific Plan Area is located adjacent to
and north of the I-15 corridor. The 50 -acre
area is well suited to freeway business uses at
.75 FAR and commercial office uses at .50
FAR. Issues to be addressed within the
Specific Plan are public access, visual quality,
compatibility with adjacent uses and flooding
potential.
1) Specific Plan Area N - Santa Rosa
This Specific Plan Area is an 18 -acre site
consisting of two parcels, nine acres each in
size, bisected by Orange Grove Way and
fronting on Robb Road. This site is adjacent
to Terra Cotta Junior High School and a
single-family neighborhood. The Specific Plan
prepared for the Santa Rosa project must
demonstrate considerable sensitivity to the
adjacent uses and the routes to school of the
surrounding neighborhood children. No com-
mercial uses on this site shall be adjacent to
the school or residences. The Specific Plan
shall specify the range of acceptable land uses
for this site. Uses allowed will be those that
have minimum physical impact on this other-
wise residential setting. The maximum devel-
opment intensity shall not exceed .40 FAR for
non -'residential uses and 12 du/acre for resi-
dential uses.
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Land Use Element
m) Specific Plan Area P - To Be Named
This Specific Plan Area is a 115 -acre site
located just west of the lake and fronting
Grand Avenue and Machado Street. The
development of this property may consist of a
wide range of land uses. General Commer-
cial and Tourist Commercial uses may be
appropriate for the Riverside Drive frontage,
while single-family use would be most appro-
priate along Machado Street. Multiple family
housing, at a density not exceeding 18 du/ -
acre, may be appropriate if access is feasible
along Riverside Drive.
n) Specific Plan Area Q - To Be Named
This 64 -acre Specific Plan Area consists of
multiple landowners. The site is located
along the south side of Lakeshore Drive
between Riverside Drive and Machado Street.
The development of this Specific Plan may
consist of a community commercial shopping
center at the east end of Riverside Drive, and
along Machado. In between the commercial
uses may be a,series of multifamily residential
projects, some of which may have maximum
densities of 18 du/acre.
o) Specific Plan Area R - To Be Named
This 840 -acre site is located in the hillside
area north of Interstate 15 in the Temescal
Valley. The development intensity shall be a
maximum of three dwelling units per acre.
The Specific Plan shall address the need for
sensitive grading so as to minimize negative
impacts on the topography and visual promi-
nence of this area.
p) Specific Plan Area S - Pacific Clay
This 1,460 -acre site is located on the Pacific
Clay property west of Lake Street and south
of Interstate 15. When this mining area is
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Land Use Element
completed the reclamation and ultimate use
of this area will be a planned residential
community. The development intensity of this
area shall be a maximum of 6 du/acre. Also
included may be non-residential land uses
such as Neighborhood Commercial and others
suited to the freeway access and proximity.
The resource mining and related manufactur-
ing activities will be permitted uses in the
Specific Plan.
q) Specific Plan Area T - To Be Named
This 163 -acre area, while currently v1thin a
floodplain zone, has some development poten-
tial for Limited Industrial use. The Specific
Plan for this area will have to address meth-
ods of land development that can be sensitive
to the wetland features and flooding condi-
tions of this site.
r) Specific Plan Area U - To Be Named
This 15.4 -acre site is located at the southwest
corner of Grand Avenue and Ortega Highway
(SR -74). The land use most appropriate for
this site is Neighborhood Commercial, howev-
er, some Tourist Commercial or multifamily
use may also be considered. Any proposed
multifamily development should either be
tourist oriented (condominiums), retirement,
or senior citizen housing. Multiple family
housing should be designed with primary
access from Grand Avenue and integrated
with the site's commercial uses. Maximum
development potential for commercial uses
shall be .40 FAR and a maximum of 18 du/ -
acre for residential uses.
s) Specific Plan Area V - To Be Named
This site is approximately 264 acres located
north of Rice Canyon and south of the Pacific
Clay Specific Plan Area. The development
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Land Use Element
intensity for this area shall not exceed 3 du/acre.
t) Specific Plan Area W - To Be Named
This 575 -acre site is located along the Temes-
cal Wash, immediately north of Lee Lake.
The development intensity of the site shall
not exceed 3 du/acre for residential use.
Non-residential uses ranging from Neighbor-
hood Commercial to Limited Industrial may
be appropriate if compatibility with adjacent
land uses can be demonstrated. This site is
varied in terrain and prominent in view from
Interstate 15, thereby warranting careful
methods of grading and site planning.
2. RESOURCE PROTECTION, PUBLIC SAFETY AND
COMMUNITY DESIGN OVERLAYS
As part of the general plan process, information concerning
resource protection, public safety and community design has been
mapped and incorporated into the appropriate elements. These maps
serve as overlays or supplements to the Land Use Plan. The purpose
of the overlays is to ensure that natural and man-made features,
hazards and conditions of importance found within the Study Area are
adequately incorporated into the land use planning process. The
information provided in the overlay maps may lead to the restriction
or conditioning of particular land uses designated by the Land Use
Plan. The overlay zoning districts shall be used by the city in conjun-
ction with the Land Use Plan to make determinations regarding the
consistency of development proposals with the general plan.
The following maps of the general plan constitute the overlay
system:
► Open Space and Conservation Element maps:
Mineral Resources
Cultural Resources
Existing Vegetation
Species/Communities of Concern
Hydrology
Open Space/Conservation Plan
Parks and Recreation Element maps:
Existing and Future Recreational Facilities
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Land Use Element
► Public Safety and Urban Services maps:
Geologic Conditions
Flood Zones
Public Services
► Community Design Element map:
Aesthetic Resources
► Circulation Element maps:
Roadway Classifications Map
Bikeway Plan
The overlay system in conjunction with the Land Use Plan,
provides the city with an information base to assist in:
► Evaluating development proposals on a site specific basis;
and,
Determining appropriate overlay zoning to be superimposed
upon the base districts of the Zoning Map.
F. LAND USE ELEMENT IMPLEMENTATION PROGRAM
1. ZONING
Zoning is the primary instrument for implementing the general
plan. Lake Elsinore's General Plan is a 20 -year plan, while the zoning
code and zoning map respond to shorter -term needs and conditions.
The city zoning ordinance regulates land use by dividing the commu-
nity into districts or "zones" and specifying the uses which are to be
permitted and prohibited within each district. Zoning maps and
regulations must be consistent with the land uses, objectives, policies
and implementation measures of the general plan.
Following adoption of this general plan, the city shall undertake
a comprehensive review and revision of the zoning map and regula-
tions. The timing of the rezoning is linked to the general plan policies
regarding growth and economic development. Such timing is particu-
larly important in rural areas designated for future urbanization.
Rezoning should be accomplished in stages corresponding to renewal,
public improvements, major developments and other appropriate
conditions that allow for orderly growth and encourage preferred
commercial and business activities.
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Land Use Element
The establishment of the following new zones is recommended:
Mountainous Residential, Very Low Density Residential, Low Density
Residential, Medium High Density Residential, Mixed Use, Business
Park, and Freeway Business.
It is also recommended that the city adopt by ordinance a
Planned Unit Development (PUD) district. This district is intended to
be a floating zone that is not given a specific location on the zoning
map until a property owner or developer applies for the designation.
PVDs are usually characterized by comprehensive planning of site
development, clustering of structures, and a mixture of housing types
and land uses. Density may be transferred within a PUD area
provided it conforms to the goals, objectives and policies of the Land
Use Element. Density bonuses may also be allowed through the PUD
ordinance provided at least one of the following criteria are met:
► A public amenity or facility is provided, preserved or
enhanced which would otherwise require public funding; or
A public or quasi -public amenity or facility is provided
above and beyond normal requirements or expectations.
In addition, the city shall evaluate the existing overlay districts
in the zoning code and revise or add new overlay districts to achieve
consistency with the general plan.
Table III -S is the General Plan/Zoning Compatibility Matrix
that identifies the zoning districts that are compatible with the general
plan use designations. More than one zoning classification may be
consistent with any one of the general plan's land use categories. The
matrix can be used as a guide to determine the appropriate zoning for
an area and uses that should be subject to a conditional use permit or
other restriction.
2. PREZONING
The city may prezone territory adjoining city property within the
adopted sphere of influence. Although prezoning has no regulatory
effect until the property is annexed, it is a measure to encourage
annexations and to logically plan land use and development activities.
Prezoning is subject to the same requirements applicable to zoning in
the city including the requirement for consistency with the general
plan.
111-38
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3. REDEVELOPMENT
Redevelopment, which combines police and corporate powers,
is one of the most powerful tools available to the city for implementing
the general plan. The City Council has been established as the
Redevelopment Agency and three Redevelopment Project Areas have
been adopted in accordance with the California Redevelopment Law
(Health and Safety Code, Sections 33000 et seq.).
Project Area No. 1(Exhibit III -2) was adopted September 1980
and amended in July 1981. Project Area No. 2 was adopted in June
1983. Project Area No. 3 was established in September 1987. Over 80
percent of the city is contained within a Redevelopment Project Area.
The plans for each project area contain land use and development
standards and provide for the acquisition of land, management of
property, rehabilitation of structures, relocation of people and
businesses, preparation of sites, and the development of buildings or
facilities as necessary to achieve the redevelopment plan goals. In
addition, each plan contains financing methods and relocation or
replacement housing plans. The purpose of the redevelopment plans
are to revitalize blighted areas, improve development potential, and to
restore or increase the economic vitality of Lake Elsinore.
The city should review the Redevelopment Plans for Project
Areas 1, 2 and 3, and update regulations and procedures to implement
and establish consistency with the general plan.
4. CAPITAL IMPROVEMENT PROGRAMS
The general plan identifies major capital improvements that will
be needed in the future. A comprehensive program of public
investment related to these needs is essential to assure that expendi-
tures are properly related to community development issues. The city
prepares Capital Improvement Budgets on an annual basis for
acquisition, construction, rehabilitation and replacement of public
buildings and public facilities including sewer and water, street lights
and parks. The city should prepare and review all Capital Improve-
ment Budgets for consistency with the general plan.
A three- or five-year capital improvement program for street
improvements which prioritizes road projects will be prepared for the -
fiscal year 1990. This long-range program will include a priority rating
for each project based on general plan considerations, growth factors
and needs.
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Land Use Element
5. FUNDING SOURCES
To implement the facilities and provide services specified by the
general plan, the city has five principal funding sources: taxes,
exactions, fees and assessments, and bonds. The city may control the
timing, type and quality of development by exercising its authority to
finance and construct public facilities.
a. Taxes: Taxes are generally levied to raise revenue for
general government purposes. The range of city taxes
includes property taxes, sales and use taxes, occupancy and
hotel room taxes, property transfer taxes, utility users taxes,
vehicle license taxes and business license taxes. The city
may also create community facilities districts in accordance
with the Mello -Roos Community Facilities Act of 1982, to
levy special taxes within districts to finance new public
improvements, police and fire protection, and school
construction.
b. Exactions: Exactions are dedications of land, improvements
or in -lieu payments that are imposed on new development
for the construction of capital facilities. As part of the city
subdivision requirements, exactions are imposed for roads,
sewers, parks and other facilities. The city may require
developers of residential projects to dedicate land or pay in
lieu fees for classroom facilities when a school district is
unable to alleviate existing overcrowding in the schools
(Government Code Sections 65970 et seq.).
c. Impact Fees: Impact fees are levied to finance specific
activities, facilities or services that confer a "direct and
identifiable" benefit to those paying the fees. Prior to
establishing and imposing new fees or increasing existing
fees, the city must comply with the following requirements
set forth under AB 1600:
Identify the purpose and use of the fee;
Demonstrate a "reasonable relationship" or "nexus"
between the use of the fee and type of development
on which the fee is imposed. A reasonable relation-
ship must also be determined between the amount of
the fee and proportionate cost of the facility or
service to be funded by the development;
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Land Use Element
► Segregate fees collected from the General Fund; and,
Make "findings" annually with respect to any unex-
pended balance.
The city may also levy fees to recover the cost of processing
development permits and other entitlements. In addition,
the city may charge for sewer and water connections as
authorized by the Health and Safety Code.
d. Special Assessments: Special assessments may be used by
the city to fund construction of sidewalks, sewers, streets,
storm drains, lighting, flood control and other capital
facilities -provided that a direct benefit can be demonstrated
for the property owners being assessed. The city may also
issue special assessment bonds that are secured solely by the
benefitting properties to finance such capital facilities.
e. n ral Obligation Bond : The city may issue General
Obligation Bonds and levy a property tax above the one
percent Proposition 13 limit upon approval by two-thirds of
the voters. General Obligation Bonds may be a viable
source of revenue for funding schools, fire stations, and
government offices. Revenue bonds provide another
significant opportunity to finance the construction of
hospitals, parking facilities, bridges, auditoriums, and other
facilities. The repayment of revenue bonds is the revenue
generated by the newly constructed or rehabilitated facility.
6. ANNEXATION
The procedure of annexing property into the City of Lake
Elsinore involves the preparation of a Request for Annexation by a
landowner which is to be submitted to the city together with a General
Plan Amendment and Prezoning application. The city reviews the
proposal and completes the Certificate of Filing once the Request for
Annexation is accepted. Prior to City Council action, the Planning
Commission conducts a duly noticed public hearing and forwards its
recommendation to the City Council. If approved by the City Council,
an annexation request is forwarded to LAFCO.
Within 30 days of receipt of the annexation application, a
determination of completeness or incompleteness is made by the
LAFCO executive office. Provided the application is complete, the
Land Use Element
LAFCO hearing on the request is scheduled to be held within 90 days
of issuing the Certificate of Filing.
State law requires LAFCO to consider several factors when
reviewing annexation requests. Factors to be considered by LAFCO
(California Government Code Sec. 54796) include the following:
► Population, density, land area and land use, per capita
assessed valuation, topography, natural boundaries, drainage
basins, proximity to populated areas, likelihood of significant
growth during next ten years.
Need for organized community services, present cost and
adequacy of government services and controls, probable
future needs, probable effect of change of organization and
or alternative courses of action on the cost and adequacy of
services and controls in the area and adjacent areas.
► The effect of the proposed action and or alternative actions
on adjacent areas, on mutual social and economic interests
and on the local governmental structure of the county.
► Conformity of the proposal and its effects with commission
policies on providing planned, orderly, efficient patterns of
urban development and with state policies and priorities on
conversion of open -space lands to other uses.
► Effect of the proposal on maintaining the physical and
economic integrity of lands in an agricultural preserve in
open -space uses.
► Definiteness and certainty of the boundaries of the territory,
the nonconformance of proposed boundaries with lines of
assessment or ownership, the creation of islands or corridors
of unincorporated territory, and other similar matters
affecting the proposed boundaries.
Conformity with appropriate city or county general and
specific plans.
► The sphere of influence of any agency which may be
applicable to the proposal being reviewed.
III -42
Land Use Element
If an annexation request is approved by LAFCO, LAFCO files
all necessary documents with state and county agencies and transmits
a Notice of Completion to the city.
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Open Space/
Conservation Element