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HomeMy WebLinkAboutLake Elsinore General Plan - Part 3Public Safety and Urban Services Element utilizing available classroom rapacity during summer months, and avoiding double sessions. The prime motivation for implementing the program, however, is a new state law assuring school districts of high placement on priority lists for state construction funds providing it places ten percent or more of its enrollment on year-round schedule by 1990 and thirty percent of enrollment by 1992. 1. EXISTING CONDITIONS The Riverside City/County Library District currently maintains a branch facility in Lake Elsinore, located at 400 West Graham. The Lake Elsinore County Branch Library serves a population of over 15,000 from the Lake Elsinore area as well as the surrounding vicinity. The facility houses approximately 21,760 volumes, with a total annual circulation of 102,431. The present facility is adequate at this time to serve the existing population, although the library does not currently meet the county facilities standard for floor area. The county facilities standard for floor area, as noted in the Riverside County Library Service Standards of January 1989, is S square feet per capita. Based on the approximate population currently served by the library (city and surrounding vicinity), the Lake Elsinore branch should be a 17,000 square foot facility. The total square footage of the library, however, is 5,200 square feet. The materials or volume collection standard is 1.2 volumes per capita. This volume collection standard would equate to approximately 40,800 volumes to serve the current population base. The Lake Elsinore branch, however, contains a collection of 21,760 volumes. In order to meet county facility standards and accommodate the projected future growth in the Lake Elsinore area, a long-range plan to the year 2005 has been developed by the Riverside City/County Library District. The plan includes the provision of a new 20,000 - square foot library facility for the Lake Elsinore branch. The civic center complex has been discussed as a potential location, however, no site has been decided upon at the present time. Although construction of the facility is set for 1991-92 time frame, a lack of funding for the project may result in extension of this date. An application is currently being prepared to the California State Library for funds allocated to library renovation as authorized by Proposition 85. Provisions of the proposition require that the local community provide 35 percent of the [VA EWYJ Public Safety and Urban Services Element L PUBLIC SAFETY AND URBAN SERVICES ELEMENT IMPLEMENTATION PROGRAMS In order to further the goals, objectives and policies of the Public Safety and Urban Services Element, the city should consider the preparation and adoption of the following implementation measures. 1. POLICE/FIRE a. Encourage and support public education programs to enhance public awareness of fire safety and crime prevention. This may include cable television programs, publications, and public workshops. b. Prepare a Fire Prevention Program to reduce the occurrence and the extent of damage resulting from fire. Such a program would provide for the reduction of fuel loading in wildland areas, inspection and abatement of hazardous conditions in and around structures, a regular inspection of commercial and public buildings and access for fire fighting personnel and equipment. Incorporate as appropriate the Riverside County Fire Protection and Emergency Master Plan into the city's Fire Prevention Program. C. Promote neighborhood watch programs in conjunction with law enforcement agencies to encourage community participation in the surveillance of neighborhoods. d. Work with the County Fire Department to review city standards for building design, construction materials, street layout, signage fire sprinkling systems, fuel modification, and other measures for effectiveness in reducing the risk of fire. Identify revisions or additions to city requirements that are appropriate and feasible to reduce fire hazards and improve fire suppression programs. e. Ordinances regarding building and site design standards can specifically address crime prevention utilizing - "defensible space criteria" such as: The use of proper street and walkway lighting; ► Provision of adequate off-street parking; VI - 39 Public Safety and Urban Services Element ► Sufficient access to buildings and public spaces for surveillance; ► The use of burglary -resistant hardware and alarm systems; ► Proper landscaping of residential, commercial and industrial buildings to facilitate surveillance and minimize places for concealment; and ► The location of doors, walkways and windows for residences that permits surveillance from the street. 2. SEISMIC/GEOLOGIC HAZARDS a. Continue to implement the requirements of the Alquist- Priolo Special Studies Zone Act and the Fault Rupture Hazard Overlay District of the Zoning Code to require the preparation of a fault rupture hazard analysis -involving in-depth geologic and soils investigation, recommendations for set -back distances, risk evaluation for the type of proposed development, and mitigation measures to decrease or avoid significant geologic hazards identified in the analysis. b. A city-wide hillside development ordinance, as discussed in the Community Design Element, can incorporate standards for site development, design and drainage, and requires geotechnical investigations for areas of known or suspected geologic hazards. C. A review process which determines the level of geologic risks or hazard associated with the development of structures within specific areas of the city could include: 1) Classification of uses and structures in relation to potential geologic risk including the location of critical facilities (schools, hospitals, communica- tion centers) and geologically vulnerable areas; 2) Minimum requirements for the level of geotech- nical investigation for various combinations of site location and type of structure or development; and VI -40 Public Safety and Urban Services Element 3) Design considerations which can be integrated into the proposed project to adequately mitigate Potential geologic hazards. d. Providing qualified and sufficient personnel to review geotechnical reports and conduct field inspection of grading and construction operations to protect the public's health and safety. e. The Uniform Building Code, specifically Chapter 23, provides for earthquake -resistant design and Chapter 70 provides for excavation and grading. L Conduct a seismic disaster impact analysis of the city's potential seismically hazardous buildings, including all unreinforced masonry building pursuant to the provisions of SB 547. 3. FLOODING a. The U.S. Department of Housing and Urban Development Federal Insurance Administration should update the Flood Insurance Rate Maps (FIRM) for the city upon completion of the lake levee and improvements to the Temescal outflow channel. b. Following updates to the FIRM maps, the city may then review and amend City Ordinance 711, the Flood Damage Prevention Ordinance, to incorporate changes to the floodway and floodway fringe. Following updates to the FIRM maps, the city may then review and amend the Zoning Code and the Zoning Map to reflect changes to the floodway and floodway fringe and to regulate and restrict development in those areas necessary to protect life and property from flood hazards. C. The city will continue its review of flooding hazards as part of the development process and annexation.propos- als within the city shall prepare the following informa- tion relative to flood hazard if applicable: 1) Identification and mapping of floodplain and floodway per FIRM standards; 2) Mitigation measures according to FEMA and city standards; and VI - 41 Public Safety and Urban Services Element 3) Environmental impacts associated with downstream runoff; channel improvements, and other infrastructure improvements required to reduce flood hazards for the proposed development. 4. HAZARDOUS WASTE a. Prepare a city Hazardous Waste Management Plan for the city in compliance with state and federal guidelines. The City of Lake Elsinore's Hazardous Waste Manage- ment Plan will consider the content and implications of the Riverside County Hazardous Waste Management Plan, as approved by the State Department of Health Services. The plan will contain analyses, standards and programs including: ► An analysis of the hazardous waste stream generated in the County; ► A description of existing hazardous waste facilities and their current capacity; ► An analysis of the potential for reducing the volume and hazard of the waste at the source of generation; ► A consideration hazardous waste households; of the need to manage produced by businesses and ► A determination of the need for additional hazardous waste facilities; ► The identification of existing facilities that can be expanded and areas where the siting of new facilities may occur; and ► A statement of goals, objectives and policies for the siting of hazardous waste facilities and the management of wastes through the year 2000, and a schedule for plan implementation. VI - 42 Public Safety and Urban Services Element S. EMERGENCY PREPAREDNESS a. Review and update the city's Emergency Operations Plan (EOP) and disaster response plans on a regular basis, conduct periodic tests of their practicality and effectiveness, and involve residents and businesses in the plan's preparation and testing. Incorporate the following into disaster response plans: hazard mitigation, disaster response and self-sufficiency/mutual support of resi- dents, business and industry. b. Consider various opportunities to inform the public (workshops, mailings, etc.) of the EOP and the proce- dures for disaster response and emergency preparedness. 6. INUNDATION POTENTIAL FROM DAM FAILURE a. Site design, zoning, street design, and other land use decisions shall consider the need for efficient and orderly evacuation within areas of potential inundation from the Railroad Canyon Dam. b. Ensure that emergency preparedness plans and procedures provide for the efficient and orderly notification and evacuation of potential inundation areas below the dam. C. Require information concerning evacuation routes in areas subject to inundation from dam failure, to be incorporated in CC&Rs or disclosure packages for residential and commercial developments. 7. WATER/WASTEWATER a. Evaluate alternative financing mechanisms including the formation of assessment districts to provide adequate water facilities in Country Club Heights. b. Actively support water district programs that promote water conservation and ultimately reduce the demand for peak -hour water supply and wastewater capacity. C. Continue to work with the EVMWD in establishing a reclaimed water distribution system within the service VI - 43 Public Safety and Urban Services Element area to provide reclaimed water for irrigating landscaping along I-15 and to potentially irrigate future community and regional parklands and golf courses. Require development, as a condition of approval, to utilize reclaimed water for such irrigation purposes when reclaimed water becomes available and feasible. d. Coordinate with the water districts during the project review process in locating sewer systems and new water reclamation facilities and in the expansion of existing plants. e. Provide the Elsinore Valley Municipal Water District and Elsinore Water District with periodic building activity reports and projections and assist the Districts in analyzing new capacity requirements to ensure availability and to avoid construction of excessive water and wastewater treatment capacity. f. Encourage additional operational water storage in the Elsinore Water District to accommodate peak -hour demand and provide fire flow in the event of an emergency. 8. SOLID WASTE a. Assist the Riverside County Solid Waste Management Department, when appropriate and feasible, in implementing the objectives and policies of the Solid Waste Management Plan. Support and coordination may involve: • Assisting in identifying the location of convenient, environmentally acceptable, and cost effective solid waste sites, facilities and disposal techniques; ► Establishing a recycling/waste reduction program in concurrence with the County and the incorporated cities to achieve the goal of reducing waste by 25 percent by the year 2001; • Assisting in the development of resource recovery/waste reduction facilities at all future and expanding transfer stations; V1- 44 Public Safety and Vrban Services Element ■ Encouraging wastewater treatment facilities to develop sludge management plans, in conjunction with the County and Regional Nater Quality Control Board; Establishing public service litter group programs to clean-up areas within the city, Encouraging private industry participation in the transportation, disposal and recycling of liquid wastes and sludge; and Assisting in the proper stabilization of the Elsi- nore Landfill site to create an area for future recreational use. 9. EDUCATIONAL FACLTTIES a. Request that school districts indicate the Ievel of facilities presently available to serve development requiring discretionary review before the City of Lake Elsinore. b. Request school districts provide the status of overcrowding of facilities within school district boundaries and identify available classrooms as well as the need for additional classrooms to serve proposed development, status of applications for state funding eligibility for such funding and pending statewide total requests for such funding in relation to authorized state bonds for such funding. C. Request school districts to provide the City of Lake Elsinore with identification of impacts which are anticipated as a result of proposed development. d. Coordinate with developers and school districts to ensure, that school sites are adequately sized, located to meet increases in demand and will be available as needed as part of the phasing of development projects including such school sites. e. Coordinate efforts for public financing by school dis- tricts, the City of Lake Elsinore or both to seek to ensure timely availability of adequate school facilities to VI -45 Public Safety and Urban Services Element the extent state funding or other sources of funds are not assured or received by the school district on a timely basis to provide school facilities for such developments. f. Use general plan amendments and community plan updates, specific plans, changes in land use classifications, development agreements, annexations, public financing and redevelopment proposals as well as applicable determinations of consistency with the general pian to identify the general location of proposed school facilities and other public facilities as well as sources of funding for all such facilities. g. Coordinate the planning and location of schools and other related public facilities at the earliest possible stage of the development process. h. Coordinate the preparation of development and school services data, projections, needs assessments and available financing therefore, including state funding and efforts to achieve the highest possible priority for such funding for Lake Elsinore. i. Applications for 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 be carefully evaluated as to timely availability of adequate school facilities and assurance of funding for such school facilities. Analysis should include existing capacity, future capacity expansion, current demand, and student generation factors to determine project demand on the school districts. k. Work with developers and school districts to assist school districts to seek to assure funding of such school facilities from all sources including possible state funding and establishing maximum priority for such funding and, where feasible, to designate in land use approvals school facilities where most suitable to serve the present and projected future residents of the area. VI -46 10. Public Safety and Urban Services Element 1. Notify, confer and meet on a periodic regular basis with school districts involved in proposed development applications early in the review process in order to allow for adequate response by the school districts. A joint coordinating committee with school districts should be established to meet regularly to consider development proposals submitted to the City of Lake Elsinore and the school district. M. In considering the approval of general plan amendments, changes in land use classifications, development agreements, annexations and public financing proposals or applicable determinations of consistency with the general plan, the City of Lake Elsinore shall review said proposals as to timely availability and assurance of funding for timely and adequate school facilities to serve the proposed development. n. Request notification from school districts regarding the status of available school facilities to serve each pro- posed development. To the extent that adequate school facilities are not available on a timely basis, the City of Lake Elsinore shall seek to assist the school district and developers in arriving at means of providing adequate school facilities, to the extent economically feasible. LIBRARY SERVICES a. Coordinate with the County of Riverside in the location, facilities and services of new branch libraries needed to serve future development. b. Cooperate with the County of Riverside to evaluate the need for and establishment of new library branch facilities in the Wildomar area and Cottonwood Hills project. C. Continue to utilize a developer fee to fund the city's library facility needs. Vl - 47 Community Design Element Community Derign Element VIL DESIGN ELEMENT A INTRODUCTION 1. OVERVIEW The condition of the environment in which an individual lives, works or plays and the experiences of conducting activities within that environment is closely related to an individual's perceived "quality of life." A resident will develop an image of a residential neighborhood by the condition and appearance of other homes, by noise levels of adjacent roads, and by the proximity of the neighborhood to activity centers. A visitor to the lake during the summer will develop an image of the city based on the appearance of uses along the lake edge, the convenience of tourist -oriented commercial uses, traffic, parking availability and directional signage. These experiences of the resident and visitor are a response to Lake Elsinore's urban design. Urban design refers to the form and function of the city which is perceived both physically and psychologically. The design must be efficient, convenient, aesthetically pleasing and responsive to the need for clear identification and orientation. The focus of the Community Design Element is on building design, architecture, streetscape design and circulation. The Community Design Element also 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 decisionmaking with respect to the overall community quality and character. 2. PURPOSE The City of Lake Elsinore is within one of the fastest growing metropolitan areas in the state (the Riverside/San Bernardino metropolitan area) in terms of population and employment. Lake Elsinore is primarily a residential community with an emphasis on tourism activities and a small, but growing employment center of office and industrial firms. Although Lake Elsinore exhibits many characteristics of its rural heritage, recent and planned development will urbanize large areas and redefine the identity and function of the city within the region. The purpose of the Community Design Element is to guide Lake Elsinore as it seeks to maintain its desirable rural characteristics VII - 1 Community Design Element while gaining those benefits found in urbanized communities. The goals, objectives and policies of the Community Design Element address the evolutionary nature of the city as well as the rural characteristics that have historically contributed to a quality of life that residents seek to preserve and enhance. Large lot residential areas for agriculture and equestrian activities, significant ridgelines that are a scenic backdrop around the community, and the "traditional" downtown area are a few of the rural features that are important to the commu- nity's identity. The Community Design Element assesses the following urban design features that will strongly affect the image of the city: ■ Natural Features and Open Space Scale of Development • Architecture ■ Landscape Architecture • Streetscape Design ■ Circulation System ■ Community Gateways ■ Landmarks The design guidelines will provide a framework to achieve quality and compatibility in the physical design of the developing portions of the city, and to enhance existing developed areas. The design guidelines set forth general criteria for residential, commercial and industrial/manufacturing development, as well as for the down- town area and the I-15 view corridor. The Community Design Element is not intended to be prohibitive and inflexible in nature, nor to discourage design solutions that are creative and appropriate for the use and the site. Rather, the Element is intended to provide direction to landowners, architects, landscape architects and decisionmakers in order to achieve compatible and quality site and building development. The policies and guidelines shall encourage a public/private dialogue whereby creative and innovative design solutions may be realized. At the same time, the Element provides an overall urban design framework that identifies opportunities for the city to enhance the visibility and image of the community. 3. AUTHORIZATION The Community Design Element is not a state required element of the general plan. Government Code Section 65302 allows local VII -2 Community Design Element governments to adopt non -mandated elements which address issues relating to the physical development of a city. Upon adoption, the Community Design Element will have the same force and effect as the mandatory elements of the general plan. B. ASSESSMENT OF URBAN FORM AND FUNCIION 1. INTRODUCTION The City of Lake Elsinore's vision for the future is one which reflects a respect for its many natural and man-made resources. Opportunities for the near- and long-term development of the city are captured within its general plan. To the benefit of current and future residents, the development concept of this general plan is influenced by the following overall considerations: ► A desire to maintain and enhance the character and vitality of the downtown area. ► A recognition of the need to encourage land uses within the city which will reflect a positive annual city cost/revenue balance. A desire to increase recreational and tourist accommodation opportunities within the city to capture a greater segment of the southern California tourism market. ► Maintain and enhance natural features and open space in a manner which is consistent with economic realities. ► To create a high quality environment for residents and employers within the city. ► To take advantage of the economic and market opportunities available to the city by virtue of its geographic location, market conditions, and land availability. ► A commitment to the implementation of the Lake Elsinore Management Plan and associated lakeshore development projects. VII -3 Community Design Element 2. NATURAL FEATURES AND OPEN SPACE To be successful, a comprehensive urban design program must integrate features of both the natural and man-made elements. Recognition of natural characteristics and the relationship of these characteristics to the built environment can avoid the all too common occurrence of a sterile and ecologically insensitive collection of buildings, structures, and paving. Land use and development decisions which capitalize and maintain a respect for the natural assets of a given location have the potential to result in a more enjoyable and satisfying urban environment. Significant natural features in Lake Elsinore include: ► Ridgelines of the Temescal, Santa Ana, and Elsinore Mountains; ► San Jacinto, Wasson Canyon, and Temescal Wash open space corridors; and ► Lake and shoreline. Prominent ridgelines in the northeastern portion of the city and undeveloped hillsides throughout the community contribute positively to the visual character of Lake Elsinore. The topography creates a sense of overall visual relief, diversity and texture. Scenic vistas of the hillsides are available throughout the city to Lake Elsinore's residents and visitors (Exhibit VII -1). In the Lakeland Village area, scenic vistas include views overlooking the lake and views of the Santa Ana Mountains. Residents in the eastern portion of the city have scenic views of the Country Club Heights and a dome formation east of the central business district. Views of the Cleveland National Forest and Temescal Mountains are available from the lake area, most arterials, and many residences in the city. Through the implementation of hillside development standards, the city has an excellent opportunity to ensure that development does not significantly degrade the ridgelines or natural hillside areas. Hillside development standards are intended to encourage innovative site and building design to enhance the visual quality of development, particularly on hillsides that are prominently visible throughout the city. Redistribution of development densities to developable portions of hillsides in order to preserve scenic hillside features or special habitat areas is also encouraged. VII -4 be3 N w N Q w 0) E Y Q > '� Q w4 3 p O CO L) J z CD uj J J Q LU CA w a� 0 :3 LLJU w c5c (A w J x LWJ W } <—j U Community Design Element Open space lands provide public and private areas for rest and recreation and preservation of significant natural resources. To function as positive urban design elements, most open space and water features must be highly visible and/or accessible to the general public. Lake Elsinore's city parks, state parks, the lake, open space corridors along waterways and undeveloped public -lands are strong urban design features. The lake and lake perimeter are particularly valuable design resources in the city. The economic viability and growth of the community over time has been partially dependent upon the recreational uses afforded by the lake and surrounding area. Changes in the lake level can be dramatic, causing recreational use of the lake and tourism within the city to fluctuate in direct correlation with the lake level. Thus, private development and redevelopment of degraded uses around the lake is hampered by a sizable floodplain zone. Upon stabilization of the lake level through construction of a levee system, development opportunities will significantly increase. The form and character of development will be directed by design guidelines adopted as part of the specific plans to be prepared for the lake perimeter and east of the lake. Enhancement of the lake and shoreline through comprehensive design guidelines shall increase tourism, business development, quality housing and public recreational opportunities for residents and visitors. 3. SCALE OF DEVELOPMENT The relationship of multiple uses within a given area to others in the vicinity is another important urban design consideration. Such relationships can be characterized by the scale and compatibility of developments throughout the city. Scale is not limited to actual physical size and bulk of an individual building but extends to surrounding buildings that are perceived as reference points in a geographic setting. The concept of scale is an important urban design component because of the perception of distances and heights familiar to the viewer in relation -to the environmental setting. The degree to which one perceives individual buildings as "in" or 'but" of scale with the surroundings determines the overall perception of environmental harmony and balance. The design guidelines adopted for the central business district will guide the size and bulk of new development to ensure compatibility with other downtown uses and to avoid domination of buildings over the streetscape. Design guidelines to be adopted in VII -5 CommunhY Design Element specific plans will also address scale, particularly in the lake perimeter areas. Redevelopment of the existing mix of land uses along the west and south shores will involve increasing the density and intensity of use. Given the mixture of uses in the area currently, the transition may be slower and temporary conflicts in terms of scale, style, character and use may be expected. 4. ARCHITECTURE This Community Design Element does not set forth rigid architectural guidelines. Rather, a variety of styles is encouraged with emphasis placed on overall compatibility. The present architectural pattern created in the city is an eclectic collection of varied themes and concepts derived by individual preference and concern relative to economics, function, and current styles. With the exception of two commercial districts in the city, the Railroad Canyon/Mission Trail area and the "Four Corners" area, design compatibility in terms of scale, style, materials, and color between adjacent parcels has not been emphasized. In the Railroad Canyon/Mission Trail area, the city has encouraged the Spanish colonial and Mission Revival style architecture. The area functions as a major commercial district and a key gateway into the community. This area has experienced rapid growth during the last decade, significantly contributing to the economic viability of the community. The architectural style evokes the early California Spanish traditions through the appearance of adobe and the use of stucco or concrete surfaces, scalloped parapet facades, columned or arched porches, and primarily hip and gable roofs. The consistent architectural style clearly defines a commercial district and creates a positive impression for the visitor. The "Four Corners" area is a newer commercial strip along Riverside Drive and Lakeshore Drive. The architectural theme associated with the Four Corners area is a nautical or "Cape Cod" style. This style includes a predominantly linear style of architecture created with wood siding and shingles. Accentuated front gables, wood framed multiple paned windows and chimneys are common features of Cape Cod architecture. Several other stylistic details that are not common to the original Cape Cod style architecture have been included in the design of these structures. This area originally contained incongruous uses and architectural styles. Uses along the immediate lake perimeter in the "Four Corners" area have not been redeveloped and do not exhibit the "Cape Cod" theme. This Four VII -6 Community Design Element Corners area functions as a convenient shopping destination for both residents and visitors. Lake Elsinore's central business area is a traditional "downtown" consisting of retail, civic, office, and some residential uses along Main Street. Most of the structures built along Main Street were constructed in the 1920s and 1930s. Many of the commercial buildings were constructed with unreinforced masonry, are without setbacks from the front or side property lines, and have incorporated classic details on the facades. A significant number of the buildings have been altered from the historic motif of the 1920s. Deterioration of historic buildings has also occurred. Similar to many American cities, residential growth in outlying areas created new commercial nodes and weakened the downtown's status as the main commercial node within the city. In addition, flooding from the Temescal outflow channel in 1980 caused millions of dollars in damage to residences, businesses and some local industry. A redevelopment project area (Project No. 1) which includes the downtown area was established in September 1980 to improve and upgrade areas which suffered damage due to the flood. Redevelopment projects were to revitalize areas of deterioration and economic maladjustment caused by the secondary effects of flooding (loss of population, housing, employment centers). In October 1989, the Lake Elsinore City Council adopted the Historic Elsinore Downtown Plan boundary over the central business area to implement design guidelines. The guidelines seek to ensure that future development and renovation of the area is compatible with the historic motif of the 1920s. The design guidelines address streetscape design, facade treatment, scale, landscaping, and signage which will be applied to all new construction, additions and private property improvements. 5. LANDSCAPE Landscaping is an important aspect of urban form in that it serves to link the city's built environment with the natural environment. For example, the use of a unified landscaping theme can complement the architectural character within development areas to establish and maintain the image of each development area as well as the entire community. The landscape in Lake Elsinore is a mixture of natural vegetation and ornamental plantings in developed areas. Because of the age of many developments in the city, much of the landscaping - installed initially is now mature. In addition to providing visual relief, cleaner air, and serving as a screen or barrier, well planned and VII -7 Community Design Element maintained landscaping serves to increase or maintain property values and enhance the character of the surrounding neighborhood. Landscape design guidelines were adopted by the city in April 1988. These guidelines were established to provide minimum landscape standards for new development, encourage retention of mature vegetation, establish continuity and enhance the aesthetics of the community. 6. STREETSCAPE DESIGN Streetscapes are important image -building components which offer immediate and lasting impressions of Lake Elsinore's overall character. Elements which combine to form the streetscapes include improvements within and adjacent to the roadway and facilities for both vehicular and non -motorized modes of travel. Streetscapes are particularly important in encouraging pedestrian activity and creating a positive experience in walking. The pedestrian's visual and physical experience involves the size and condition of sidewalks, the availability of amenities such as street furniture and drinking fountains, storefront signage, facade details, and the accessibility of street crossings. The motorist's first impression of the community is usually drawn from such streetscape features as parkways, medians, roadway signage, utility lines, and the scale and design of adjacent development. In addition to the visual aspects of the city's street network, the concept also extends to functional aspects including how the streetscape defines a neighborhood or district's identity. Street furniture (benches, trash receptacles, bus shelters, lighting, bollards, water fountains, mail boxes, newspaper racks, telephone booths, and fire hydrants) can be combined with alternative paving materials and street graphics (directional signs, traffic signals, and street signs) to create an enhanced environment that encourages pedestrian activities. Lake Elsinore's existing inventory of street furniture and graphics is extremely limited in terms of variety and quantity. As new development and renovation of existing development occurs throughout Lake Elsinore, the city will have an extensive opportunity to direct streetscape design and implementation. Roadway improvements needed to accommodate new development may incorporate parkways, medians and street furniture to complement the adjacent development and orient the motorist. VII -8 Community Design Element In the Historic Elsinore Downtown, street furniture, graphics, public landscaping and paving treatment will be accomplished concurrently with road improvements to enhance the 1920s architectur- al theme adopted for the area. Streetscape design will also be addressed in each of the city's specific plan areas. Such design guidelines shall complement and enhance existing streetscape improve- ment and amenities, if any, that are adjacent to the specific plan area. Well designed and properly executed streetscape programs can reduce or eliminate many negative images =d offer many benefits. A coordinated program of median and parkway landscaping, street lighting, street furniture and graphics can create a sense of unity along major arterials. Orientation and community identity can be established by variations in the overall streetscape theme (use of alternative species of trees, shrubs, and flowers) along different arterials. Both concepts of unity and identity can be reinforced further by the continuation of the design theme into the onsite landscaping of adjacent developments. Variations to the overall streetscape design concept can also be used to define the city's circulation network. Different street lighting (in terms of height, pole, and design) and landscaping standards (in terms of height, mass, shape, and color) can be developed to distinguish between major, primary, and secondary arterials. 7. CIRCULATION SYSTEM As discussed in the previous section on streetscapes, most observations of the city are made as people move along walkways, streets or freeways. The major paths by which people move through Lake Elsinore are the I-15 freeway and Ortega Highway via Riverside Drive. Other principal paths that serve -local and through traffic include Lakeshore Drive, Grand Avenue, Mission Trail, Railroad Canyon Road and Lucerne Street. Conditions in the circulation system that introduce conflicts or points of directional confusion detract from the community's overall image. These conflicts can confuse motorists, restrict the smooth flow of traffic, and create dangerous zones for pedestrians and motorists. One conflict area exists south of the Railroad Canyon Road interchange. The high traffic volumes combined with poorly spaced signalized intersections and a lack of visible street and directional signage make travel difficult and confusing. Another area of directional confusion is the transition of Lakeshore Drive from a two- way to a one-way road. Other points of conflict can be found at the VII -9 Community Design Element Highway 74 detour at Collier Avenue and along the narrow, circuitous dirt roads in Country Club Heights. In the Railroad Canyon/Mission Trail area and along Riverside Drive, the dominance of the automobile coupled with minimal pedestrian orientation in site development, makes walking or cycling undesirable modes of transportation. These areas capture the majority of neighborhood shopping by residents and yet have been developed with few pedestrian facilities and amenities. Continuous sidewalks or paths linking developments, well located and 'riser friendly" street crossings using special paving materials, benches and other street furniture at key locations, would substantially improve the image of existing and future commercial and office centers. Bicycle safety is an issue on streets adjacent to the lake, as well as other roads lacking a designated bike trail. Hazards exist on most roads where the cyclist must negotiate right-of-way between motorists and unimproved parkways. The lake and other aesthetic natural features attract bicyclists to the area. Cycling for recreation or trips to shops and work is an alternative transportation mode for residents that shall be encouraged by the city through enhanced design and improvements. Future road improvements shall incorporate bike trails as identified in the Circulation Element. 8. COMMUNITY GATEWAYS "Community Gateways" are defined as major entrances to the city which provide visitors with first impressions of Lake Elsinore. Land uses at key gateways can enhance or detract from the image or "first impression" of the city. These entrances present significant opportunities to project a positive image of the community and welcome visitors. Most of Lake Elsinore's visitors enter the city on Highway 74 at Grand Avenue and the I-15 corridor at Railroad Canyon Road, Main Street or Chaney Street. Minor entrances are along Lakeshore Drive and Mission Trail. These entrances are not highlighted by special features (ie., distinctive landscaping or monument signs) designed to offer a sense of arrival to the visitor. Vacant land and poorly maintained residential uses along the northern end of Main Street at the I-15 freeway do not provide a strong "gateway" into the downtown area. The Land Use Plan encourages the area adjacent to the freeway at Main Street as tourist commercial to attract motorists and provide a higher intensity, more exciting gateway. A specific plan area for commercial office and recreational uses has been designated at the south end at the lake VII - 10 Community Design Element edge. The city's future civic center is anticipated to be a focal point of the specific plan area. These future projects will anchor the southern end of the downtown'area and enhance the Main Street area as a primary gateway to the community. Downtown entry monuments at Graham and Kellogg and along Lakeshore Drive shall also be provided to direct and orient motorists traveling from other areas of the community. 9. LANDMARKS Landmarks are prominent natural or man-made features that are highly visible and easily recognizable because of size, architectural style, form, or socio -cultural characteristics. Quite often, landmarks provide important reference points for orientation purposes or provide a certain identity to a district or area within the community. Visitors may identify the community in terms of a landmark when a landmark makes a lasting impression and symbolizes a "sense of place." The lake is the main landmark of Lake Elsinore. Other natural features which serve as points of reference include the hillsides of Country Club Heights and the mountains of the Cleveland National Forest. Several man-made structures are landmarks in Lake Elsinore, including the Chimes Building, the old country club, the church on Main Street, Lake Elsinore Junior High School, and the old military academy. The Chimes Building is on the National Register of Historic Places. The other landmarks are locally historic and are easily recognized because of their architectural style and prominence with respect to the development in the city. Exhibit IV4 identifies historic resources, and the Cultural Resources component of the Open Space/Conservation Element provides further discussion of the city's historic resources. C. CO DESIGN ELEMENT IMPLEMENTATION PROGRAM In order to further the goals, objectives and policies of the Community Design Element, the following Design Guidelines are intended as a general framework for the design and review of public rl and private projects. The purpose of these design guidelines is to: Enhance the continuity and compatibility in the physical design of the community. VII - 11 Community Design Element ► Provide guidance in the planning and design of projects to builders, engineers, architects, landscape architects and other design professionals. ► Provide guidance to the City Planning Commission and the City Council in the design review process. ► Encourage developers to achieve excellence in the implementation of projects within the city. CITYWIDE DESIGN GUIDELINES a. Rtsi_dmi al 1) Design Layout/Siting ► Residential units should vary in height and orientation as allowed by the underlying zone to create a variety in scale. ► Residential units should be oriented on the site to allow entries to be visible from the street. Avoid long, unbroken building elevations and make offsets in the plan an integral part of the design plan. Structural projec- tions/features should be incorporated to create visual interest. Maximize indoor/outdoor design features, including patios, balconies and entry porches. Vary streetscape by utilizing varied setbacks, alternating unit types and reversing model plans. ► Design details such as monumentation, special paving textures, accent flowers and shrubs, should be incorporated into the design of major intersections to maximize visual interest. VII - 12 Community Design Element 2) Architecture ► Architectural mass and form in addition to lot size should be compatible with the adjacent structure. ► Rear residential elevations facing the road right-of-way or major public use should re- ceive special architectural treatment. ► Architectural design should be compatible with adjacent development so that design of new development does not conflict with neighborhood character. ► Visual appearance of pipes and mechanical equipment should be minimized. When equipment is located on the roof, equip- ment should be screened from view. 3) Circulation A curvilinear street plan should be utilized to create visual interest. Street alignments should adapt to topographic conditions. Establish consistent streetscape standards including right-of-way widths, setback re- quirements, median design, landscape and pedestrian/bicycle path dimensions. 4) Parking Adequate distance between the sidewalk and the garage should be provided to allow for parking in the driveway without extend- ing into the sidewalk area. Sufficient off-street parking should be provided to prevent traffic congestion and allow for on -street guest parking. Off-street guest parking should be encouraged in medium to high density VII - 13 Community Derign Element residential at a ratio of .25 parking spaces per dwelling unit. S) Open Space to Maximize residential view opportunities while maintaining the character of surrounding natural topography through the site plan review process. Consider views from offsite public areas and residential uses. ► Buffer residential uses from noise - generating or non-residential uses through the use of open space, slopes, landscaping, and fencing treatments. ■ Along view corridors or adjacent to open space or park areas, utilize open fencing to maximize view opportunities. 6) Landscape ► For each project, except applications for one residential single family detached unit, the developer should prepare a landscape plan and select a landscape palette for all areas not devoted to structures. Special landscape attention should be given to project entries and areas adjacent to public streets. The landscape plan shall be consis- tent with the city's adopted landscape guidelines. 7) Lighting ► All lighting should be designed and located in a manner that does not disturb residents, but provides public safety. All residential unit addresses should be illuminated. VII - 14 Community Design Element 8) Signs ► Signs shall be limited to sales, political, subdivision monumentation and home occupations and be small in scale and size, as defined in Section 1.7.94 of Title 17, City Municipal Code. b. Commercial/office 1) Design Layout/Siting ■ Each site should provide a well -articulated, identifiable entry sequence from street to building. Entry on to the site and connec- tions with buildings should be enhanced through landscape, hardscape and architec- tural design. ► A varied street setback is preferred to encourage creative building orientation. ► Vary and articulate shapes and forms of buildings and other structural elements to create visual interest. ► Reduce massing and scale of buildings along streets, open space areas, and between buildings in order to reduce physi- cal and visual impact. ► Avoid long, straight, continuous stretches of any one structural or planning element, such as building facade or parking. IN. Buildings should be sited to allow for clear visibility of structures from the street for public safety. ► Building entrances should be a clearly defined and visibly inviting extension of the arrival sequence from street to building. Entries should be integrated within the overall building form such as recessed or protective doorways to add articulation. VII - 15 Community Design Element Entries should also be highlighted with textured hardscape and coordinated land- scaping. ► Adequate vehicular and pedestrian access should be provided to commercial sites, consistent with the criteria set forth in the Circulation Element. 2) Architecture ► One dominant material should be selected. Use of materials which convey permanence, substance, timeliness and restraint should be encouraged. Accent materials will be coordinated to achieve a continuity of design with the overall structure and surrounding development. Architectural interest should be created by reducing the appearance of excessive mass- ing and visually articulating exterior build- ing walls by: design of smaller or multiple structures or masses in a similar plane; landscaping and landform manipulation; and clustering small-scale elements such as planter walls around the major form. Colors utilized on commercial /office struc- tures should be complementary yet create visual diversity from other commercial or office centers and should enhance architec- tural effects. The colors and textures should not contrast with surrounding devel- opments and should be complementary to the natural landscape and rural character of Lake Elsinore. Roof planes should be used to articulate and reduce building mass. Roof planes can VII - 16 Community Design Element be gable, hip, shed, flat and simple or harmonious combinations of each. 3) Circulation ► Street alignment should adapt to topographic conditions. ► Establish consistent streetscape standards including right-of-way widths, setback re- quirements, median design, landscape and pedestrian/bicycle path dimensions. 4) Parking ► Off-street parking should be accommodated without sacrificing street character. ► Parking areas should be screened from view from public streets by means of grad- ing and landscaping. ► Designated spaces should be provided in convenient locations for handicap, carpool, motorcycle and bicycle parking. Bicycle parking areas are to be provided with racks and locking capabilities. ► Where parking is oriented to the site exte- rior, it should be designed as follows: - The use of moderately scaled parking courts with buildings clustered about is preferred over large, unbroken, mass parking. - Long, straight driveways should be divided up into limited views, either through the use of curved drives or a series of shorter, straight links. Bicycle parking areas are encouraged. ► Parking areas shall be well lit to provide for public safety. VII - 17 Communify Design Element 5) Open Space ► Buffer areas should be provided between commercial/office development and other land uses to screen the development and create noise attenuation. 6) Storage/Service Areas ► Exterior storage should be fully screened by walls. The height should be adequate such that no materials will be visible above the wall. Wall screening should be accom- panied with a combination of vines, shrubs and trees to soften the visual impact. ■ All outdoor refuse containers should be screened visually within an enclosure so as not to be visible from adjacent lots or sites, neighboring properties or streets. ■ Refuse collection enclosures should be de- signed of durable materials with finishes and colors which are unified and harmonious with the overall architectural theme. ► Refuse collection areas should not be directly visible from scenic corridors or collector roads. Refuse enclosures should be sited for the least visibility (such as adjacent to side and rear lot lines, and toes of slopes). ► Refuse collection areas should be located upon the lot so as to provide clear and convenient access to refuse collection vehicles as well as convenience to depositors. 7) Loading ■ Provisions should be on each site for any necessary vehicle loading and no on -street vehicle loading should be permitted. VII - 18 Community Design Element ► No loading doors should be located on a street frontage building facade or be within view of public roadways or buildings on adjacent sites. 8) Utilities/Mechanical Equipment ► All exterior onsite utilities, including but not limited to drainage systems, sewers, gas lines, water lines, and electrical, should be installed and maintained underground. ► Onsite underground utilities should be de- signed and installed to minimize the disrup- tion of offsite utilities, paving, and land- scape during construction and maintenance. ► Antennae or other devices for transmission or reception of signals, including but not } limited to telephone, television, and radio, should be screened from public roadways. ► Exterior mechanical equipment should be screened from view from public right-of- ways. ► Transformers that are separate from the building and may be visible from a public street should be screened with either plant- ing or a durable, non-combustible, theme style wall. Transformers attached to struc- tures should be designed of durable materi- als with finishes and colors which are uni- fied and harmonious with the overall archi- tectural theme. ■ Electrical equipment should be mounted on the interior of a building wherever possible. When interior mounting is not practical, electrical equipment should be mounted where it is substantially screened from } public view. Exterior electrical equipment 1 should not be mounted on the street side of any building. VII - 19 Community Design Element 9) Landscape ► All open areas not covered by structures or paving should be planted with trees, shrubs, and groundcovers or acceptable landscape treatment in a fully integrated landscape design. ► Planting should be provided in parking lots to create shade and visual interest. These planted areas should be protected by curb- ing. ► Landscape design at building entrances should be coordinated with structure design to provide an attractive and well defined entrance. ► Berms within setbacks should be encouraged. All landscape berms should be designed to be easily maintained. ► All landscape areas should be provided with automatic sprinkler systems. ► All new development or projects requiring design review in commercial areas shall provide landscape which is consistent with the city's adopted landscape guidelines. 10) Lighting Exterior lighting shall be provided to en- hance the safety and security of motorists, pedestrians and cyclists. Where possible, Iight fixtures should be incorporated into the building elements to provide for public safety/security. They should be appropriate for the architectural design and should be energy efficient. ► Exterior lighting with the source visible from adjacent parcels is not desirable. Indirect lighting in planting and small-scale Community Design Element bollard lights are preferred over taller, more conspicuous light standards. ► General lighting should not cast any glare onto adjacent lots and streets in such a manner as to decrease the ambience of adjacent areas or the safety of pedestrian and vehicular movement. ► Pedestrian lighting should provide for area illumination for entryways, courtyards and other such areas. Point-to-point lighting should be provided for pedestrian walkways. 11) Signs ► Signs should maintain proportion and be compatible with the architectural form. Signs within shopping centers should be designed to create an integrated appearance throughout the center. All signs shall conform to Section 17.94 of the Lake Elsinore Municipal Code. C. Business Park Industrial 1) Design Layout/Siting ► Site planning is to emphasize a clean, contemporary "high-tech" environment and compatibility with adjacent sites. Spacious setbacks should be provided along street frontages which provide visual space, landscaping, and buffers between the roads, the use onsite and pedestrian circulation areas. Buildings should be located to enhance project visibility and identity, while maintaining compatible relationships with adjacent projects and street frontages. VII - 21 Community Design Element ► Buildings should be arranged to provide convenient access to entrances and efficient onsite circulation for vehicles and pedestri- ans. ► Vehicular access points to individual sites should be limited to minimize disruption of traffic flow. 2) Architecture ► Architecture design should express the character of high technology in a manner which is both progressive and enduring. ► Building design should employ clean, sim- ple, geometric forms and coordinated massing which produce unity, scale and interest. ► Building color and material should be defined by function and structure and should be compatible with the building's form and pattern. Materials should be smooth and clean with a composition that is easy to maintain and ages well. ► Pedestrian building entries should be well identified. 10. Exterior building walls should avoid an overwhelming massive appearance by: - fragmenting into smaller or multiple structures or masses in a similar plane; - wall texture placement; clustering small-scale elements such as planter walls around the major form; and creation of shadow lines and patterns 3) Circulation ► Street alignment should adapt to topographic conditions. VII -22 Community Design Element ► Establish consistent streetscape standards including right-of-way widths, setback re- quirements, median design, landscape and pedestrian/bicycle path dimensions. 4) Parking ► Sufficient onsite parking must be provided to accommodate all vehicles associated with the use of each site. On -street parking should be discouraged. Designated spaces should be provided in convenient locations for handicap, carpool, motorcycle and bicycle parking. ■ Parking areas for motorcycles and bicycles are to be designed for orderly, uncluttered parking. Bicycle parking areas are to be provided with racks and locking capabilities. Parking areas should be screened from view from public streets by means of grad- ing and landscaping. ► Parking areas shall be well lit to provide for public safety. 5) Open Space ► Buffer areas should be provided between business park, manufacturing or industrial development and other land uses to screen the development and create noise attenuation. 6) Storage/Service Areas Service, storage, maintenance, loading and refuse collection areas should be located out of view of public roadways and buildings on adjacent sites, or screened by dense landscaping and/or architectural barriers. VII - 23 Community Design Element ► Service areas should not extend into required setback zones. ► Service areas should be located so that service vehicles have clear and convenient access and do not disrupt vehicular and pedestrian circulation. Loading or unloading should not be permitted from public streets. ► Solid screening should be required for all service and loading areas and exterior storage. 7) Loading ► Provisions should be made on each site for any necessary vehicle loading and no on - street vehicle loading should be permitted. No loading doors should be located on a street frontage building facade or be within view of public roadways or buildings on adjacent sites. 8) Utilities/Mechanical Equipment ► All exterior onsite utilities, including but not limited to drainage systems, sewers, gas lines, water lines, electrical, and telephone wires and equipment, should be installed and maintained underground. ► Onsite underground utilities should be designed and installed to minimize the disruption of offsite utilities, paving and landscaping during construction and main- tenance. Antenna or other devices for transmission or reception of any signals including but - not limited to telephone, television, and radio should be screened from public road- ways. VII - 24 j Community Design Element ► Electrical equipment should be mounted on the interior of a building wherever possible. When interior mounting is not practical, electrical equipment should be mounted where it is substantially screened from public view. Exterior electrical equipment should not be mounted on the street side of any building. ► Exterior mechanical equipment should be screened from view from public right-of- ways. Transformers that are separate from the building and may be visible from a public street should be screened with either plant- ing or a durable, non-combustible theme style wall, Transformers attached to struc- tures should be designed of durable materi- als with finishes and colors which are uni- fied and harmonious with the overall archi- tectural theme. 9) Landscape All open areas not covered by structures of paving should be planted with trees, shrubs and groundcovers or acceptable landscape treatment in a fully integrated landscape design. All landscaping shall be consistent with the city's adopted landscape guidelines. Planting should be provided in parking lots to create shade and visual interest. These planted areas should be protected by curb- ing. ► Landscape design at building entrances should be coordinated with structural de- sign to provide an attractive and well de- fined entryway. VII - 25 Community Design Element ► Berms within setback areas are encouraged. All, Iandscape bermes should be designed to be easily maintained. 01 All landscape areas should be provided with automatic sprinkler systems. 10) Lighting Exterior lighting shall be provided to en- hance the safety and security of motorists, pedestrians and cyclists throughout each project. ► Where the potential for land use conflict exists, all exterior lighting should be shielded and confined to the site boundaries. No direct rays or glare should shine onto adjacent properties. ► To reinforce identity and unity, all exterior lighting should be generally consistent throughout in height, spacing, color and type of fixture. 11) Signs ► Signs shall be compatible with the architectural theme of the structure and conform to Section 17.94 of the Lake El- sinore Municipal Code. 2. SPECIAL PURPOSE DESIGN GUIDELINES Entryways to the City of Lake Elsinore are one of the most important factors in the community design strategy. These major entries provide a Hirst impression of the community's identity to visitors. The entries to the city should be enhanced and strengthened. At present, entries to the city are poorly defined. Most of Lake Elsinore's visitors enter the city on High- way 74 at the Grand Avenue entrance, as well as the I-15 VII - 26 Community Design Element corridor and Railroad Canyon Road entrance. Other entry points to the city include Main Street at the I-15 freeway, Bundy Canyon Road at the I-15 freeway, and Mission Trail. All these streets are public right-of-ways. Entry treatment may include improvement on private property adjacent to intersections as well as infrastructure improvements. 1) Design ► Entries to Lake Elsinore should be designed as special accent points which announce community entry and establish a unique theme. ► The character and concept of entry ground signs should provide an initial impression and image of the community. The scale, form and materials of signing used in the entry areas should be unique while creating some form of continuity throughout the community. ► Monumentation, special paving features, flowering accents, specimen trees and shrubs should be used to generate interest. A hierarchy of streets should be defined based on function and level of service. The scale of streetscape design should be pro- vided based on this hierarchy. b. Hillside Devclopment The purpose of incorporating hillside development guide- lines is to encourage the preservation and maintenance of the natural character of the hillsides and of significant resources such as sensitive vegetation and wildlife, geological features, natural drainage canyons and steep slopes. The city's current zoning code contains a hillside development ordinance which pertains to an overlay district area designation on the zoning map. The overlay district area primarily encompasses the Country Club VII - 27 Community Design Element Heights development area. But other hillside areas east within the planning area. Thus, a hillside development ordinance should be established to address all hillside areas within the planning area. The hillside development ordinance will be implemented through the discretionary process. Approval of a tenta- tive tract map or a site plan review in accordance with applicable laws and ordinances will constitute formal compliance with the requirements of these guidelines. The city will further implement these guidelines through the incorporation of a hillside development ordinance to Title 17 of the city's municipal code. This ordinance will provide for materials to be submitted and procedures to be followed. 1) Design Layout/Siting Hillside development should be designed to blend proposed structures with the natural environment. The scale, form and surface texture of architecture should complement the character of the hillside and when possible, the design of structures should incorporate the sloped terrain into the design of the structure. The design of sites should minimize re- quired setbacks and evaluate the potential to reduce street width to minimize grading. Because hillside conditions are so varied, flexibility should be afforded to the developer through the site plan review process in siting structures within a hillside development in order to achieve the most sensitive design. ► In large developments, either large lot, low density development or high density, clus- tering is encouraged. ► Development should provide for the natural preservation of ridgelines. Development should not project above the ridge silhouette as defined by the hillside VII -28 Community Design Element development ordinance. Development should further provide for the preservation of sensitive biological resources, geologic features, natural drainageways, rock outcrops and other natural amenities as determined appropriate by the city through the hillside development ordinance. ► Uniform stair -stepping of building pads is discouraged. ► Clustered development is encouraged to preserve slopes at 25 percent grade or higher. 2) - Architecture ► Colors of structures should blend within the natural colors of the hillsides. However, a harmonious combination of color and material should be used. Surface textures should be rough to blend with the coarse- ness of the natural vegetation. ► Roof colors should be darker tones. Bright colors should be avoided. ► Fence and wall design should be coordinated with the design of structures within the development and should be consistent throughout each project. 3) Circulation ► Roads should be designed to reflect natural grades where feasible. Long stretches of straight roads should be avoided. ► The reduction of grading should be evaluated in designing the alignment and widths of roadways. Split roadway sections may be appropriate. VII - 29 Comms nhy Design Element • Disruption of environmentally sensitive sites for roadway crossings should be mini- mized. 4) Parking Flexibility in the provision of parking will be allowed since the reduction, of street parking may reduce road width in critical grading issue areas. Collective offstreet parking areas may be more appropriate or parallel parking on only one side of the street. 5) Open Space and Views Panoramic views from hillside development and hillside roads should be encouraged. Trees within the proposed landscape design for development should be positioned to allow selective views while partially screen- ing buildings. Scenic pocket views of hillside development should be created from Iower elevations of the community. These views should be visually pleasing. Sensitive slope areas, landslide areas or areas of biological and aesthetic sensitivity should be maintained as natural open space. 6) Structure Placements/Slope Maintenance Placement of structures should respond in general to the natural topography. Structures should be placed on a site to provide a variety of roof pitches to avoid monotonous application. 10. Establishment of a homeowners association to be responsible for the maintenance of slope areas which are utilized as permanent open space or public view areas. VII -30 Community Design Element 7) Grading Rounded and smooth transition forms should be encouraged. When slopes can- not be rounded during slope reconstruction, vegetation should be utilized to reduce the potential sharp or angular appearance of the restored slope. ► Manufactured slopes should be varied to avoid flat -planed surfaces. 8) Landscape ► Manufactured slopes should be landscaped by the developer prior to completion of the project. Plant materials to be utilized in slope planting should be drought -tolerant or native plant species as defined by the hillside development ordinance. These materials should be in compliance with the r' city's adopted landscape design guidelines. Plant material should be placed in broad informal masses to reduce the impact of grading. Landscaping should be located in a manner which allows for views from houses within the development while softening the ap- pearance of grading, roads and structures from the community's view. C. The 1-15 View Corridor The views from the I-15 corridor as motorists pass through Lake Elsinore present a significant opportunity to project the positive image of quality development. The relatively undeveloped I-15 corridor allows for the implementation of design guidelines to ensure that future public and private improvements are sensitive to public views. The freeway interchanges are gateways to the community that should attract and welcome visitors. VII - 31 Community Derign Element 1) Architecture The architecture of development visible from the I-15 freeway should be visually pleasing. Building design should incorporate features which create changing shadow lines and colors of buildings should be reviewed by the city to ensure that visually obtrusive color schemes are not implemented. If the back of non-residen- tial buildings face the freeway, the color, texture and architectural treatment should be consistent with the front of the building. 2) Parking Parking lots should be discouraged adjacent to the I-15 freeway. ■ Parking lots which may be visible from the I-15 freeway should be screened from view. 3) Views Provide for the preservation of significant views to the lake and the mountains surrounding Lake Elsinore. ■ Unattractive uses within close proximity to I-15 (200 feet or less), including outdoor storage areas, should be screened. Development which is visible from the free- way (70-200 feet) should screen all roof - mounted equipment. 4) Noise Attenuation Placement of noise sensitive land uses adja- cent to the freeway should be avoided or otherwise properly mitigated. Structures adjacent to the freeway should be oriented away from the freeway to decrease noise impacts. Structures adjacent VII -32 Community Design Element to the freeway should utilize landscaping between the structure as noise attenuation. ► Noise attenuation walls should be constructed only when appropriate. Wall designs should incorporate visually aesthetic designs which may include sandblasting and bush hammering. Edge and berm landscape areas adjacent to walls should be provided. 5) Landscape ► A natural landscape theme should be uti- lized within the I-15 corridor that will be sympathetic to the surrounding environment while providing Lake Elsinore with a unique image. ■ The landscape plan should capitalize on off -ramp descents. ► Indigenous plant materials should be used to reduce water consumption requirements. ► Rhythms in landscape design should accentuate change of direction in the road- ways. ► In constructing additions to the freeway, cut and fill slopes will require short- and long- term planting application. 6) Signs ► Billboards should be prohibited along the I-15 corridor. Any other monumentation or sign proposed should be reviewed through the site plan review process and legislative body review. d. Hisloric Elsinore D wn own As mentioned previously, Lake Elsinore's central business area was constructed in the 1920s and 1930s. VII - 33 Community Design Element Several commercial buildings were constructed with unreinforced masonry and contain classic design details on the facades. Alteration to the traditional and historic design to general structures has occurred while other structures have deteriorated. In 1980, flooding from the Temsecal outflow caused millions of dollars in damage to businesses and adjacent residences. A redevelopment project area which includes this area was established in 1980 to improve and upgrade areas which suffered flood damage. As an implementa- tion tool to foster redevelopment of the downtown area, the city adopted design guidelines in October 1989. The following guidelines should be used in conjunction with the guidelines established by the city in 1989. 1) Design Layout/Siting ► Buildings should be located as close to the street as possible and up to the front prop- erty line, to enhance the existing spatial quality. Residential uses along adjacent streets should be in compliance with the zoning regulations of the community. On corner lots, buildings should be sited to the front corner of the lot with continuous elevations on the full length of the primary street and major portion of the secondary street. ► On double frontage lots, the building should be sited toward the primary street(s). 2) Architecture ► All new construction and remodels within the central business district should be within the traditional and historic architectural style. Wood facade corners and other materials which do not reflect the original character should be removed. VII - 34 Community Design Element Natural brick should be the primary material used. ► To enhance the traditional theme, buildings should be oriented to the dominant street by orienting door and window openings to that street. ► Demolition or alteration of historically significant structures should be discouraged. ► Buildings on a given street should demonstrate compatibility in materials and consistency in style throughout all elevations. Warm earth tones should be used which will create the visual character of the build- ing's original traditional theme. The num- ber of exterior colors should be limited to two or three colors. ► The type and color of structures and roof- ing materials is subject to review and ap- proval by the city. ► Use of traditional windows such as dormer windows, wood framed windows, double hung windows, vertical proportion and lintels should be encouraged. ► Building height variations within the development are encouraged. • The use of canvas awnings over doors and windows is encouraged where appropriate. Such awnings should be of earth tone or pastel color, sloping, and an open ended variety. Minimum clearance from the ground levels should be encouraged. Modi- fications to the guidelines will be consid- ered if alterations are found to be tradi- tionally appropriate to the architecture of the building. The use of the awning va- VII - 35 Community Design Element lance for signing is encouraged. Metal canopies should be avoided. ► Brick is encouraged as the primary exterior material. Painted brick, metal siding, plastic panels and plain concrete block should be discouraged. Attention to architectural detail is to be emphasized. Lighting fixtures, gates, exteri- or window treatments, materials, color and incorporation of landscape areas should be considered relative and significant to tradi- tional authenticity and detail. Windows should be sized to the actual span of window elements found in the traditional architecture of a given structure. ► Roof or mechanical equipment should not be visible from ground or second -story levels. Such equipment should be screened in a method consistent and integral with the overall architectural appearance of the structure. Pedestrian accessibility to parking areas to the rear of commercial/office uses should be encouraged through signage, lighting and breaks in the street wall. 3) Circulation ► Vehicular access points (roadways) should remain limited to minimize the disruption on traffic flow. The entries to the downtown area should be upgraded to strengthen the visual identi- ty. These entry points are Main Street at the I-15 freeway, Main Street at Graham, and Lakeshore Drive at Main Street. ► Development is encouraged to provide internal pedestrian space and/or walkways VII - 36 Community Design Element and openings facing the street. Protected pedestrian paths should be provided between the adjacent residential areas and the downtown area to provide linkages. Safe, clear pedestrian circulation should be provided between buildings, parking areas, and entries to structures. ► A well-defined and inviting pedestrian link should be established between the down- town area and the lake. Placement of street furniture such as drink- ing fountains and benches should be en- couraged along Main Street. Street furni- ture should be sited within the streetscape in such a way that projects a positive image and encourages social interaction. Street furniture should not impede pedestrian traffic. ► Trash containers should be incorporated into the streetscape design at periodic intervals. 4) Parking The majority of parking should not be located or oriented to the rear of buildings as opposed to parallel or perpendicular on - street parking. ► Parking should be encouraged to be be- neath buildings. Any parking beneath buildings or the parking structures must be screened by the structure or by landscaping. 5) Open Space The area to the south of the lake edge, to the west of the floodway channel and to the east of Lake Point Park, should be enchanted as an open space feature. VII - 37 Community Design Element 6) Landscape ► Trees should be incorporated into the streetscape to soften the architecture and enhance visual interest. ■ Provide a unifying landscape design within the downtown area using specific species throughout the area boundaries which is in compliance with the city's adopted land- scape guidelines. ► Parking areas should be landscaped to pro- vide a shade canopy and pleasant appear- ance. ► Wherever parking is provided and viewed from a street, it should be screened from view with a wall or dense landscaping. ■ Small courtyard spaces are encouraged within the interior of retail shop complexes. 7) Lighting ► Traditional style lighting fixtures should be encouraged. ► Exterior lighting fixtures should be compatible in scale and style with the structure on which they are located. These features should be integrated with the style of the structure. All exterior lighting should be incandescent, ► Lighting should be directed away from adjacent light-sensitive uses. 8) Signs • Thematic signage which represents the historical era should be utilized for both store front signage and directional signs (such as street name signs and visitor information signs). VII -38 Community Design Element ► Signing should be of modest size and should be compatible with the architecture of the structure. ► The content of building facade signs should be limited to name and type of business. ► Pedestrian -oriented signs are a significant design and marketing element within the central business district. Secondary pedestrian oriented signs should be incorporated into the exterior design. These signs should be placed at eye level. Portable pedestrian oriented signs may be utilized for promotional information, but should not be placed to create a pedestrian hazard. ► Sign colors and materials should be compatible with the overall color scheme and architectural theme of the structure. Billboards should be prohibited in the Historic Elsinore Downtown area. VII - 39 Circulation. Element Circulation Element VIII. CIRCULATION ELEMENT (Amended March 14, 1995) A INTRODUCTION MONE191 U11 -ZIAIV-1 an The City of Lake Elsinore, located in the westerly sector of Riverside County, is served by an existing network of roadways. Situated approximately 22 miles southeast of the City of Corona, access to Lake Elsinore is possible through two highway corridors: the I-15 Freeway and State Route 74. These corridors generally traverse the city in a north/south (I-15 Freeway) and east/west (State Route 74) orientation. State Route 74 provides an important link from the western coastal area and the I-5 Freeway, and from the City of Perris and I-215 Freeway to the east. The high capacity freeway, I-15, attracts the majority of through traffic and commuter type traffic and is the primary access to the city. The general roadway network affords connections to neighboring communities to the east such as Canyon Lake, Sun City, Perris and Hemet. To the north are the communities of Corona and Norco, and to the south are Wildomar, Murrieta, Temecula and Escondido. Lake Elsinore is likely to experience an increase in traffic demand due to growth within and around the city and along the I-15 Freeway corridor. This growth will result from increased commercial activity and significant residential development due to favorable land costs. This increase in traffic demand will require continued development of the circulation system to alleviate future traffic problems. The City of Lake Elsinore Circulation Element is intended to provide a balanced circulation system that supports the travel demands of the land uses established on the Land Use Plan while at the same time maintaining an acceptable quality of life for the residents. The intent is to be responsive to the objectives of the city in planning for its future growth while at the same time mitigating existing problems or concerns. The Circulation Element, moreover, states general policy which Circulation Element will serve to guide the development of future, more detailed circulation system implementation programs. An update of the Lake Elsinore Traffic Model was completed as the basis for the plans and programs outlined in the Circulation Element. 2. PURPOSE Since the Circulation EIement was first required by state law in 1955, transportation technology and needs in California have changed greatly, with the emphasis today on the development of a balanced, multi -modal transportation system. According to state law, the policies and plan proposals of the Circulation Element should: Coordinate the transportation and circulation system with planned land uses; ► Promote the efficient transport of goods and the safe and effective movement of all segments of the population; ► Make efficient use of existing transportation facilities; and ► Protect environmental quality and promote the wise and equitable use of economic and natural resources. The Circulation EIement should cover the following to the extent that they pertain to the community: ► Streets and highways; ► Parking provisions; ► Transit and paratransit; ► Railroads; ► Air transportation; and ► Bicycle and pedestrian facilities. The policies and plan proposals of the Circulation Element should be coordinated closely with those of the Land Use, Housing, Noise and Community Design Elements. VIII - 2 Circulation Element 3. AUTHORIZATION Government Code Section 65302(b) states the following as the mandatory requirement for General Plan Circulation Elements: "A circulation element consisting of the general location and extent of existing and proposed major thoroughfares, transportation routes, terminals, and other local public utilities and facilities, all correlated with the Land Use Element of the plan." B. EXISTING CONDITIONS AND ISSUES EXISTING FACILITIES There are two principal highway corridors which traverse the city and serve significant levels of through traffic while providing regional access to Lake Elsinore. ► J-15 Freeway (1-15) - traverses in a generally north/south direction along the east side of the lake and central city. To the north, I-15 connects with the Riverside Freeway (State Route 91), the Pomona Freeway (State Route 60), and the San Bernardino Freeway (Interstate 10) and is the link to greater Los Angeles and the Inland Empire. To the south, I-15 connects with the Escondido Freeway (Interstate 215) and is the link to San Diego County. Stacc_Rowe 74 (SR -741 - traverses in a generally east/west direction along the north side of the lake and central city. To the west, SR -74 (known as Ortega Highway through the mountainous Cleveland National Forest) connects with the San Diego Freeway (Interstate 5) and is the link to the coast and Orange County. To the east, SR -74 connects with the Escondido Freeway (Interstate 215) and is the link to Perris and Hemet. VIII - 3 Circulation Element Most of the arterial roadways in the City of Lake Elsinore have not been constructed to ultimate cross-section widths based upon existing city and County highway classifications. As noted in the Circulation Element Amendment Traffic Study Report prepared by Wilbur Smith Associates (March 1994), many of these roadways are currently experiencing high daily volume -to -capacity ratios. Roadways that experience volume -to -capacity ratios above 0.9 should be evaluated for widening. Volume -to -capacity ratios for some of the principal roadways serving Lake Elsinore are summarized below. ■ Lake Street - southerly from the I-15 Freeway, currently exhibits a V/C ratio of approximately 0.72. This two-lane undivided roadway is a major access to northern areas of the city from the freeway. Lakeshore Drive - along its entire length, currently exhibits V/C ratios ranging from .83 to 1.00. This two-lane undivided roadway is a major north/south route along the east side of the lake. Portions of Lakeshore Drive west of Riverside Drive are being widened adjacent to new developments it occurs. t Riverside Drive - from Collier Avenue to Grand Avenue, currently exhibits V/C ratios ranging from 0.74 to 1.00. This predominantly two-lane undivided roadway makes up a segment of State Route 74 along the west end of the lake. A large portion of the traffic served by this segment of Riverside Drive is interregional traffic travelling between Ortega Highway and the I-15 corridor or points north along the State Route 74 corridor. The portion of Riverside Drive between Grand Avenue and Lakeshore Drive is serving traffic volumes which are higher than the capacity typically assumed for a two-lane roadway. is Central Avenue (State Route 7 ) - northerly from Collier Avenue, currently exhibits V/C ratios VIII - 4 Circulation Element from 0.88 to .90. This two-lane undivided roadway is a major interregional route between the City of Lake Elsinore and the City of Perris, and significant residential development is planned or is underway along this corridor. ■Paflroad CanvQn Pwad - northeasterly from the I-15 Freeway, currently exhibits V/C ratios between 0.87 and 1.00. Newport Road, which is the eastern extension of Railroad Canyon Road passing south of Canyon Lake, currently exhibits a V/C ratio of 0.96. Railroad Canyon Road is a major link between the I-15 Freeway and the I- 215 Freeway east of the City of Lake Elsinore. Significant residential development is also in progress along both sides of this roadway. ■ Mission Trail - from Railroad Canyon Road to Walnut Street currently exhibits V/C ratios between 0.57 and 1.00. This two-lane undivided roadway is an important route southerly from the commercial area adjacent to the Railroad Canyon Road and I-15 Freeway interchange. R Grand Avenue - between Corydon Street and Riverside Drive is currently exhibiting V/C ratios from 0.67 to 1.00. This east/west route is the only through roadway around the west side of the lake and provides an important connection to Ortega Highway from the area south of the lake. A short segment of Grand Avenue, between Ortega Highway and Riverside Drive, is designated as State Route 74 and serves significant volumes of interregional through traffic in addition to local traffic. 2. ISSUES AND OPPORTUNITIES The Circulation system of every city affects not only the movement of people and goods, but also the physical, social, and economic environment of the city. Economic activities require the circulation of people and goods, and thus the VIII - 5 Circulation Element viability of the community's economy can be directly impacted by the adequacy of the circulation element. A major area of development within the city is associated with management plans for the lake. The plans call for stabilization of the lake levels and the reclamation of a major land area at the east end of the lake. The recently approved East Lake Specific Plan development within the reclaimed area includes a proposed regional mall and a variety of residential, office, commercial, and recreational uses including a regional park, golf course, and stadium (Lake Elsinore Diamond). While this Specific Plan offers significant future benefits to the city, it will require major roadway improvements at the east end of the lake and at the access locations to the freeway. In particular, the I-15 Freeway interchange at Railroad Canyon Road will require a partial redesign to accommodate the volumes - anticipated at this location due to the retail commercial activity and planned residential development in this area. Additionally, I-15 Freeway access will also need to be actively pursued at locations such as the existing alive Street undercrossing, Riverside Drive, State Route 74 (Central Street), Nichols Road, and Lake Street. Studies are currently underway to identify additional freeway access needs including existing interchange modifications, new interchanges, and new arterial street crossings of the freeway. Another future trend is the large amount of residential development which is planned or projected in the northern and eastern portions of the city. One such portion is the general area to the east of the I-15 Freeway from the north to the south boundary of the city. This area of development will require major new roadway development, especially in the area between Nichols Road and Railroad Canyon Road. Residential development in the north portion of the city will also require new roadways to provide access to the commercial areas of the city and the freeway. The extension of Grand Avenue and Nichols Road in this area will be prominent enhancements to the circulation system. VIII - 6 Circulation Element Another particular opportunity is the development of retail commercial with freeway view exposure. A significant amount of land area with this development potential exists along the I-15 Freeway corridor between Nichols Road and Main Street. This type of development will result in additional traffic burdens, especially on the freeway interchanges at Nichols Road and State Route 74 (Central Street). Early studies should be undertaken for this type of development to determine what roadway facilities are required, while sufficient right-of-way is available to mitigate the impacts. These studies should include provisions for additional (partial) freeway access at Riverside Drive to facilitate access to properties adjacent to the I-15 Freeway as well as State Route 74 West (Riverside Drive/Ortega Highway). Many of the improvements included in the Circulation Element will have city-wide and/or regional benefits and may need to be constructed prior to the development of the contiguous property. The city should develop alternate funding mechanisms to pay for the construction of circulation improvements included in the Circulation Element. Potential alternatives include implementation of a City Bridge & Major Thoroughfare Improvement Fee Program on new developments as well as consideration of Benefit Assessment or Mello -Roos Districts to assess all benefitting property owners for infrastructure improvements. In addition to the issues discussed above, other specific city transportation planning considerations have been documented in the general plan. These include: M Vehicular and pedestrian access to the downtown area; ■ Downtown area and lake recreational parking requirements; X Traffic signal prioritization; ■ Transportation Demand Management for new developments; VIII -7 Circulation Element ■ Public transit facilities including park-and-ride locations; Affordability and prioritization of circulation system improvements; and ■ Critical intersections where traffic demand will require additional widening or special design. Key questions which should be addressed are as follows: Proper staging of land use development can avoid over -taxing the road system capability locally, but regional development also affects traffic levels in the study area. How can the city plan for a vehicular circulation system which accommodates both projected local and regional land use and circulation needs? Vehicular circulation systems can have substantial environmental impacts on adjoining land uses. How can the city mitigate these negative environmental impacts? Transportation Demand Management (TDM) is a viable option for reducing the need for additional circulation system capacity. How can the city increase the use and effectiveness of Transportation Demand Management measures? 3. TRANSPORTATION RELATED PLANS AND PROGRAMS While the City of Lake Elsinore Circulation Element defines the planned roadway network within the city's jurisdiction, Riverside County's General Plan Circulation Element continues to influence roadway improvement plans outside the city. The following plans and programs are relevant to the City of Lake Elsinore General Plan Circulation Element. a. Fiver5idtn n n Program VIII - 8 Circulation Element The Riverside County Congestion Management Program (CMP) was adopted in September, 1991 in response to the passing of Proposition 111 (June 1990). The Riverside County Transportation Commission (RCTC) has been designated by Riverside County as the Congestion Management Agency (CMA) responsible for preparation and implementation of the Congestion Management Program. Proposition 111 legislation established a number of new requirements governing the statewide process for planning and funding transportation improvements. Various mechanisms are provided through the legislation, for the maintenance and improvement of local roads and highways as well as the funding of mass transit (e.g. bus and rail transportation systems) and programs which relieve traffic congestion. The Congestion Management Program is a component of Proposi- tion 111 which promotes measures aimed at managing growth including programs which most effectively utilize new transportation -related funds, relieve traffic congestion, and improve air quality. The Riverside County Transportation Commission has defined the CMP roadway system in Lake Elsinore to be SR 74 and I-15. Traffic operating conditions on the CMP roadway network will serve as a basis for testing and monitoring how well the Congestion Management Program is performing. All local jurisdictions will be responsible for determining the impacts of local development/land use decisions on the CMP roadway System. This assessment must include the resultant impacts on CMP system Level of Service (LOS E is standard) as well as cost estimates to mitigate any identified impacts. r, only jurisdictions which have adopted a VIII - 9 Circulation Element Transportation Uniform Mitigation Fee (TUMF) would be exempt from the Development Impact Study requirements. All jurisdictions within Riverside County are required to adopt and implement a Transportation Demand Management ('TDM) Ordinance and develop a deficiency plan when Level of Service on the CMP system falls below "E." Adoption and conformance to transit performance standards will also be a requirement of the Congestion Management Program. Under the Congestion Management Program conformance and monitoring process Southern California Association of Governments (SLAG) must find the program consistent with the Regional Mobility Plan (RMP) and Air Quality Management Pian (AQMP). Local jurisdictions which conform with the Congestion Management requirements would be eligible for new transportation -related funds generated through Proposition III gas tax increases. b. aCAQ 1289 Air Q11ality Man m nt Pian Lnj LeEional Mobility Plan The goal of Southern California Association of Governments (SCAG) 1989 Air Quality Management Plan (AQMP) is to set forth a 20 - year action program for meeting improved National Air Quality Standards in the South Coast Air Basin by the year 2007. In order for any transportation project to become part of the short-range Regional Transportation Improvement Program (RTIP) it is required, by the AQMP, to perform special air quality analysis procedures. Unless it can be demonstrated that the transportation project will contribute towards meeting the region's air quality goals then it will not be included in the short range element of the VIII - 10 Circulation Element RTIP and Federal and State funding will not be available for the project. The primary goal of the Regional Mobility Plan (RMP) is to improve transportation mobility levels. The RMP is part of an overall regional planning process and is linked directly to SCAG's Growth Management Plan, the Housing Allocation Process, and the South Coast Air Quality Management District's Air Quality Management Plan. The RMP consists of four separate elements: ■ growth management; • transportation demand management; ■ transportation system management; and ■ facilities development. The intent of the RMP is to give priority to all transit (bus and rail) and ride sharing (HOV) E projects over mixed flow highway capacity expansion projects. Transit and ridesharing facilities are exempt from conformity review. Some other projects exempt from conformity assessment include: • modification to ramp/interchanges; ■ ramp metering projects; ■ signals and/or intersection improvements; and ■ primary and Interstate system safety projects. The active participation of local governments in transportation conformity is important to ensure that their is consistency between local general plans and the conformity criteria described in the Regional Air Quality Management Plan (AQMP). All local jurisdictions are required to submit their new or updated general plans to SCAG for a conformity review with the AQMP. A general plan should include a program to implement, at f t VIII - 11 Circulation Element the local/regional level, the transportation, land use, and energy conservation control measures contained in the AQMP. Once a local jurisdiction has established its general plan to be consistent with the AQMP, further conformity reviews would be limited to annual cumulative impact review performance. If the local jurisdic- tion general plan is determined to be non- conforming, then the general pian would need to either be modified to bring it into conformance p_r the local jurisdiction would be required to submit environmental studies for all regionally significant general development projects to SCAG for review. C. Caltrans s This Caltrans District 8 document updated in October 1991 is a key component of the District's long-range comprehensive transportationplanning effort. The primary objective of the Regional Transportation Strategies Plan (RTSP) is to provide information concerning future trends and expected community impacts and to develop a coordinated program to alleviate traffic congestion. Furthermore, this plan provides local jurisdictions and regional agencies with helpful information concerning the traffic congestion phenomenon and strategies which can be implemented to address congestion impacts. In essence, this plan stresses the need to implement strategies that complement one another. The recommended strategies generally consist of four major groupings: +r Capacity expansion (widening, new facilities); ■ Transportation System Management (low- cost actions to maximize capacity); ■ Demand Management (reducing or VIII - 12 Circulation Element changing the nature of traffic demand on the transportation system); and ■ Transit Development (bus and rail). M-e-as-yTe A, Transportation Improvemenj Program This Riverside County legislation, which was approved in November 1988, established a one- half of one percent sales tax for a period of twenty years to fund transportation improvement projects. The Riverside County Transportation Commission (RCTC) is responsible for administering the program. Generally, the Measure A Program provides funds (approximately $870 million over 20 years) to improve state highways, regional arterials, local streets, commuter rail, or specialized transit pro- jects. Ongoing improvement/access needs studies of State Route 74 located within the City of Lake Elsinore are being funded by this program. Measure A revenues continue to be a potential source for local transportation improvements (see Exhibit VIII -1). C. THE CIRCULATION PLAN 1. RESPONSE TO ISSUES The most important circulation issue is the correlation of the Land Use Element building intensities with Circulation Element capacity. It is the intent of the general plan to maintain a balance between the general plan land use intensities and its associated traffic demands with the ultimate system capacity of the General Plan Circulation Element. Tests of this balance shall be conducted at the major stages of the development review process. It is a goal of the general plan that specific standards for traffic operation/roadway level of service be maintained at build -out of the Land Use and Circulation Elements. If the •f ■ w.rs0 0 V• I 4i+�K 1 "Ids? rr-O.1 y�ri •p1 ] spftw-a rr. � •ter YrfiCs • 4M/Mr O►► •r V V fY- �� -rw• raw w �•.r+fw� OiY n 1w8..f 91 60 ►►1b. 111.1x. 79. M wo � 1 ei4r+ru wwrw r iw ►��1• ■ t S ► Cw•rr 4r w Among vswo'J r arm. Crr.• w •rr•`c+pr r ►r AND—• rr Lw �•.w•ri� 3L' O D C Pwr tir.w ca -- ^w iwrr• was" •aeW • Comas &A GrvNwbw*w a•pw WEST EAFd COUNTY COAC1+ELiA VALLEY RIVERSIDE COUNTY TRANSPORTATION IMPROVEMENT PROGRAM LAKE ELSINORE CIRCULATION ELEMENT EXHIBIT Vlll -1 Circulation Element level of service standards cannot be maintained, development intensities should be re -assessed, mitigation measures (including Travel Demand Management actions) should be provided, or other city objectives must be identified as overriding. The level of service concept is defined as a qualitative measure describing operating conditions at an intersection or along a roadway segment. A level of service definition generally describes operating conditions in terms of factors such as speed, freedom to maneuver, traffic interruptions, delay, comfort and convenience, and safety. Level of Service "D" is typically considered tolerable if limited to the peak hour periods when traffic flows are heaviest (see Exhibit VIII -2). The stated level of service goal serves as the foundation for providing a street network that moves people and goods safely and efficiently throughout the city while ensuring that traffic delays are kept to a minimum. Results of the March 1994 Circulation Amendment Traffic Study (see also Technical Appendices) indicate that at build -out of the city, a number of the principal traffic arteries are projected to be subject to peak period service levels worse than Level of Service D. While this condition is a deviation from the Level of Service policy stated below, it is important to note that various mitigation programs and policies have been recommended which together could be effective in maintaining the Level of Service policy well into the future with development approaching build -out of the city and sphere of influence. To finance implementation of the Circulation Element, the city should use various mechanisms, including developer fees and exactions, assessment districts, systems development charge, State and Federal funding, and the construction of circulation improvements as a condition of approval for new development. The combination of a) traffic operation roadway level of service standards, b) successive levels of development review, c} requirements for phasing development with circulation improvements, and d) mechanisms to finance implementation of circulation improvements represent the correlation of the `—�' VIII - 14 The OPERATIONS LEVEL UMODOLOGY, which is daun*sd in the Tm-sportabon Research Board's drhnes Lwej tnf Sarviae (LOS) farsignaaed intorsecbons In terms of daisy. Tarhnitxily, delay Is the amount of t Me an tttvarage vshlclo rri= vrait lilt art bftrSaodon bufore being SNI to pass t fWj;h the hitamsctoM For aignafizrd intluge lona, the relathnshtp between LOS and delay Is based on the avenge crapped delay par YoNcle for a Bicron tttlrnste pahod. LEWL OF Describes operations with very low delay. La.. ins$ than 5 seconds per vehicle. This occur: *tion slgnai progrrasIon Is axtramaJy tavorabl*. Most vehicles arrive curing the groan phos■ end w* not ropuirad to stop at SIL Comsponding VC ratloi Usually range from 0.00 to D.W. D#=-' res oP*Monz with delay in the Tanga of 5 to 15 second: par veNris gorseralty ch wactettTad by good signaJ progression endlor shon cyCI■ lengtrls. More vehicles we squired to MP than fpr LOS 'A' cursing higher levels of average delay. Comesponding VIC rarloa Usually range from 0.61 to 0.70. LNEL OF SERVICE 'C - twev 15.1 to ?c n S=nrls 04SCriba7 oparatiam wtth delay Q1 the range of 15 to 25 seconds per vaNcle. O==innally, vehicles may to r*qulred to wail more than One rad signal phase- 'ha number of vehidas stopping al this Iavcl is significant at=ugh merry stm pass through Ota his rsecuon without stopping. Comesponding = moos usually rungs from 0.71 to 0.80. LZLOF,SERVICE 'LY - ❑elaY?..SLAP-Ltr Describes operations with delay !n the range of 25 of tD saconds per vehicle. Al LOS ':)'. the tnfiuenc* of mngastion becomes mare novcasbta. Many vehicles stop, and Ute proporlan of vehicles not stopping deCLnes, The number of vehicles failing to dear the signal during the first green phase is noticeable. Comsponding VIC rstfas usually range from 0.81 to 0.80. Lmm OF SERYIOr= _j`- nelav40_1 to tan gwrt,4r Desr.fbes operatiorm with daisy In the range of 40 to 60 **rands per vehicle. Thasa high delay values generally edimt:ato poor Cigna! pregretsion, bng cycle iengths and high VIC stint. Vertices frequently fail to deer the Intersection doming the first green phase. Corresponding VIC rrlyoi Usually tinge from 0.91 to I.W. LEVEL OF SEIRVICE Describes operations with delay In excess of 60 seconds per veNcle. This condition often ocean with oversaturation, La., when anwal flow rates exceed the apathy of the I ntenoctiom Corresponding VC raslos of over too are usually sasnclstvd. SOURCE: Trvlspartatlan Rar+srCh boars, 'Oprsriarm U" A+r9roptrogY�Or�ad lntenaellorla', 1^iernrry C.n.rfw .--1 Spocw Ropor. 249, 1M. UM -M6-1/=1/91= .«nom rltn>t» iNwV� LEVEL OF SERVICE DIAGRAM LOS IN LOS 'C' LOS 'D' LOS IF EXHIBIT VIII - 2 Circulation Element Land Use and Circulation Element. 2. SIGNIFICANT PLAN FEATURES The roadway plan for Lake Elsinore has been developed to provide adequate capacity to accommodate the travel demands of the Land Use Element as well as to preserve the quality of life in Lake Elsinore. The Circulation Element Roadway Classification Map is presented as Exhibit VIII -3. The major plan features include the following: Designation of the Lake Street/Grand Avenue/Washington Avenue corridor as a predominately Urban Arterial facility which will serve the portions of the City west and south of the lake as well portions of the western Wildomar area. ■ Designation of the Lakeshore Drive/Mission Trail/Palomar Street corridor as a predominately Urban Arterial route south of the I-15 Freeway corridor and north and east of the lake, with Lakeshore Drive along the lake identified as a special study/policy area for roadway design and construction. ■ Designation of the Nichols Road/Nichols Road Extension/Indian Truck Trail corridor as an Urban Arterial facility serving the northwest area of the City's Sphere of Influence. ■ Designation of Central Street (State Route 74) as an Urban Arterial - State Highway facility east of the I-15 Freeway. ■ Designation of Railroad Canyon Road as an Urban Arterial from a point immediately south of Mission Trail through its extension as Newport Road. ■ Designation of Riverside Drive as an Urban VIII - 15 ell 6 A O Q O z ^: g3 �o 0 3N 3;�0 O y Z y ; ¢ W ¢�m O I Oom�O¢ m W V y g J< O J C J 9w30 W W g ¢} ¢ U LL 5 Z U Z 2¢ Z WG wLU ¢�¢¢<w02aa F: »2y0O to W U. 09 9111111F WI J ell 6 Circulation Element Arterial facility west of I-15 to Grand Avenue. ■ Designation of- Camino Del Norte as a Major - level frontage road west of Main Street and as a secondary east of Main Street. ■ Designation of Grape Street as a Major -level frontage road. ■ Designation of Strickland Avenue/Pottery Street/Casino Drive as a Major -level corridor north of Malaga Road and a Secondary -level extension of Casino Drive south of Malaga Road. ■ Designation of Bundy Canyon Road as an Urban Arterial facility between Lakeshore Drive and Cottonwood Canyon Road. ■ Extension of Nichols Road, as a Major, northeast of El Toro Road to connect with Ethanac Road. ■ Development of one-way streets (Spring Street and Ellis Street) running parallel to Main Street in the downtown area. ■ Identification of new freeway interchange locations at Olive Street, Malaga Road ( High Occupancy Vehicles only) Riverside Drive (partial interchange), and Horsethief Canyon Road (partial interchange). ■ Extension of Railroad Canyon Road (Diamond Drive), Malaga Road, Summer Hill Drive and Franklin Street to serve the Lake Management Plan area on the east side of the lake. Improvement of Collier Avenue as a frontage road along the southwest side of the I-15 Freeway with various classifications from Pottery Street to Nichols Road. Freeway overcrossings (without ramps) at Chaney �,1 VIII - 16 Circulation Element Street, Franklin Street, Summer Hill Drive, Malaga Road, and Lemon Street to relieve traffic congestion on State Route 74 (Central Street) and Railroad Canyon Road. ■ Designation of Ramsgate Drive Extension as a Major roadway from Nichols Road to State Route 74 (Central Street). Extension of Malaga Road, as a Secondary, east of Grape Street to Cottonwood Hills Road. It is important to note that analysis results of the area build -out traffic forecasts indicate that several segments of the Circulation EIement roadway network would still be subject to Level of Service E or worse operating conditions during peak traffic periods. Key roadway segments anticipated to experience congestion problems when development conditions approach build -out include those listed below. a. Urban Arterial Segments: ■ Lake Street from the Interstate 15 freeway to Lakeshore Drive. Nichols Road from Horsethief Canyon Road to EI Toro Road. $ Grand Avenue from Riverside Drive to Corydon Street. ■ Riverside Drive from Lakeshore Drive to the Interstate 15 freeway. ■ Collier Avenue from Riverside Drive to Central Street (State Route 74). ■ Central Street (State Route 74) from Collier Avenue to Riverside Street. ■ Lakeshore Drive from Riverside Drive to Graham Avenue. VIII - 17 Circulation Element ■ Lakeshore Drive from Main Street to Bundy Canyon Road extension. ■ Railroad Canyon Road from Mission Trail to Canyon Lake Drive. ■ Bundy Canyon Road from the Interstate 15 freeway to Lost Road and between Corydon Street and Mission Trail. ■ Clinton Keith Road from the Interstate 15 freeway to Cottonwood Canyon Road. b. hdaior Roadway Segments: ■ Indian Truck Trail from De Palma Road to Horsethief Canyon Road. ■ Temescal Canyon Road from Horsethief Canyon Road to Lake Street. ■ Grand Avenue from Lincoln Street to Lakeshore Drive. Machado Street from Lincoln Street to Lakeshore Drive. ■ Collier Avenue immediately west of Riverside Drive and between Central Street and Pottery Street. ■ Pottery Street from Collier Avenue to Franklin Street. Casino Drive from Franklin Street to Railroad Canyon Road/Diamond Drive. Dexter Avenue from Riverside Drive to Central Street. ■ Camino Del Norte from Central Street to `-' VIII - 18 Main Street. ■ Cottonwood Hills Canyon Road to Canyon Road. Cirrulution Element Road from Railroad east of Cottonwood ■ Baxter Road in the vicinity of Lost Road and Clinton Keith Road. It should be noted that both of the Urban Arterial and Major roadway cross-sections (discussed below) are of sufficient width to allow for the addition of one lane in each direction, without the need for additional right-of- way, if determined to be needed in the future. As such, the projected congestion levels at build -out could largely be mitigated through the selective widening of roadways if and when the projected traffic flows are realized. 3. FUNCTIONAL CLASSIFICATIONS The classification of a roadway is intended to establish its function or role in the overall circulation system. It establishes the hierarchy of streets in terms of their purpose in relation to movement of through traffic versus provision of access to adjacent land uses. The hierarchy of roadway classifications ranges from freeways, with full control of access, grade -separated interchanges, high speed/high volume traffic, emphasis on longer distance and intercity travel, to local streets, with unlimited access to fronting properties, low speed/low volume traffic, emphasis on multi-purpose use of the paved street section for travel, parking, pedestrian, and bicycle activity. The following functional design guidelines are recommended for roadway classifications designated on the Lake Elsinore Circulation Element Roadway Classification Map. Exhibit VIII -4 illustrates the recommended typical cross- sections for Circulation Element roadways other than freeways. VIII - 19 ii't-.O.w. I AS, ,p• �� t2'�-^�72'• ' t2' tr ---� 7a� ' t2-wvE) W RO.w. �a 1G' � 6'�tt• i 11•�t�'�tt' i tt'� i i'�1O' (PAn�iED) yes=rnemun t�rnnvAY 44 -LANE) 1°°• R.O.W. ` Ba 1 1S' - 72' W(pAtSEDN �12� t5' .� 6' .r—t°'� BIKE uu[t4 HIQt W LANE (A -UNE) i BIKE LANE 12°' RA.W. BIKE BIKEau aR7KFIUL t-0 tglj'Y�Y LANE LANE (d -LANE) 134' URBAN ARTERIAL - STATE HIGHWAY (6 -LANE) CIRCULATION ELEMENT ROADWAY CROSS-SECTIONS CITY OF LAKE ELSINORE 1.11►. ■■main■ EXHIBIT VIII - 4 �ArA Circulation Element a. Fr -Y Interstate 15 freeway design standards are dictated by Caltrans District 8. The ultimate facility planned by Caltrans (as defined in the Year 2010 Route Concept Report for Interstate 15) through the City of Lake Elsinore will add one High Occupancy Vehicle (HOV) lane to the current three mixed flow lanes in each direction. The proposed interchange at Malaga Road has received tentative approval by Caltrans as an exclusive HOV interchange and should be implemented at the same time that the HOV lanes are added to the freeway. The other interchange improvements will also need to be coordinated and approved by Caltrans. It is likely that all interchange on -ramps along Interstate 15 within the city will be subject to peak period ramp metering within the next ten years. The city should support the concurrent implementation of HOV bypass lanes at the ramps (where possible) to promote ride sharing and express transit usage- by area commuters. b. Urban Arterial Two classifications: Urban Arterial (120') and Urban Arterial - State Highway (134'). ■ Six -lane highways with access limitations, divided by a raised median and intersecting other major roadways at approximately one-half mile intervals, with restricted access allowed at one-quarter mile intervals. For the segment of Urban Arterial - State Highway east of Interstate 15 access limitations are as per the Memorandum of Understanding (MOU) with Caltrans. ■ Urban Arterial highways are expected to VIII - 20 Circulation Element carry a large amount of traffic between Lake Elsinore, adjacent communities, and the freeway system. ■ Striped for six lanes (three lanes in each direction) with medians and shoulders, where right-of-way permits, and turn lanes at intersections. The rights-of-way designated for the Urban Arterial and Urban Arterial - State Highway classifications can accommodate four lanes in each direction if determined necessary to serve long-range traffic needs. ■ Traffic. carrying capacities of 50,000 to 60,000 vehicles per day (at Level of Service D) can be achieved depending on the degree of access control and peak period traffic loadings (e.g. directional volume split and duration of peak periods). Direct access to and from individual residential properties is prohibited. The Roadway Classification Map designates the following streets as Urban Arterial: : Lake Street from Interstate 15 to Nichols Road. Lake Street from Nichols Road to Lakeshore Drive. Grand Avenue from Machado Street to Bryant Street. ■ Riverside Drive from Grand Avenue to Interstate 15. Collier Avenue from Riverside Drive to Central Street. } VIII - 21 Curulation Element ■ Central Street (State Route 74) from Collier Avenue to Interstate 15. ■ Nichols Road from Horsethief Canyon Road to El Toro Road. ■ Lakeshore Drive from Lake Street to Graham Avenue. Lakeshore Drive from Main Street to Railroad Canyon Road. Riverside Drive from Collier Avenue to Interstate 15. ■ Railroad Canyon Road from immediately south of Mission Trail north and east to the city limit. ■ Bundy Canyon Road from Lakeshore Drive to Cottonwood Canyon Road. ■ Mission Trail from Railroad Canyon Road to Walnut Street. Lost Road from Lemon Street to Bundy Canyon Road. ■ Ortega Highway (State Route 74) from Grand Avenue to approximately Laguna Avenue. ■ Clinton Keith Road east of Interstate 15. With respect to the above Urban Arterials, Caltrans has identified a future need to provide a 134' right-of-way section (Urban Arteria] - State Highway) for the continuation of State Route 74 through the city from Interstate 15 west to Ortega Highway, including Central Street from the 1-15 Freeway to Collier Avenue; Collier Avenue from Central Street to Riverside Drive; Riverside VIII - 22 Circulation Element Drive from Collier Avenue past Lakeshore Drive to Grand Avenue; Grand Avenue from Riverside Drive to Ortega Highway, and Ortega Highway from Grand Avenue to approximately Laguna Avenue. In response to future demands (year 2010+), an amendment to the Circulation Element and additional right-of-way dedication along these roadway segments may be required. Until then, however, development will continue to be subject to Caltrans' Encroachment Permit review process based on the Urban Arterial -State Highway Right -of -Way (134') and access criteria. The Roadway Classification Map designates Central Street (State Route 74) from Interstate 15 east to Ethanac Road as an Urban Arterial - State Highway consistent with the Caltrans MOU. C. Mgjor ■ A four -lane highway with access } limitations, divided by a raised or striped median and intersecting other major roadways at approximately one-quarter mile intervals. The minimum spacing of access driveways serving commercial properties with frontage on a Major shall be 1/8 -mile (660 feet) . As a type of high volume community facility, major highways are expected to serve as important travel corridors within the city and sphere. ■ Striped for two lanes in each direction, with median and left -turn lanes at intersections, the designated 80 -foot curb to curb width could accommodate three lanes in each direction if determined necessary to serve long-range traffic needs. r - r _J VIII - 23 C&MIation Element ■ Traffic carrying capacities of 32,000 to 42,000 vehicles per day (at Level of Service D) can be achieved depending on the degree of access control and peak period traffic loadings. Direct access to and from individual residential properties is prohibited. The Roadway Classification Map designates the following streets as Major. ■ Grand Avenue from Machado Street to Lakeshore Drive. ■ Lincoln Street from Lake Street to Riverside Drive. ■ Ortega Highway (State Route 74) south of approximately Laguna Avenue. ■ Temescal Canyon Road west of Lake Street. ■ Horsethief Canyon Road immediately south of Temescal Canyon Road. ■ Indian Truck Trail from Temescal Canyon Road to Horsethief Canyon Road. ■ Estella Mountain Road immediately north of Interstate 15. Collier Avenue from Nichols Road to Riverside Drive and from Central Street to Strickland Avenue extension. ■ El Toro Road from Nichols Road to State Route 74. Machado Street from Lincoln Street to Lakeshore Drive. VIII - 24 Ormlation Element ■ Central Street from Strickland Avenue to Collier Avenue. ■ Chaney Street from Interstate 15 to Lakeshore Drive. ■ Strickland Avenue from Riverside Drive to Main Street. Pottery Street from Main Street to Franklin Street. ■ Casino Drive from Franklin Street to Malaga Road. ■ Graham Avenue from Lakeshore Drive to Main Street. R Lakeshore Drive from Graham Avenue to Main Street. Dexter Avenue from Nichols Road to Central Street. ■ Riverside Drive from Dexter Avenue to Interstate 15. Camino Del Norte from Central Street to Main Street. ■ Ramsgate Drive extension from Central Street to Nichols Road. ■ Riverside Street from State Route 74 to Steele Valley Road. ■ Nichols Road from El Toro Road to Steele Valley Road. ■ Ethanac Road east of Steele Valley Road. ■ Franklin Street from Bella Vista VIII -25 Ci culwion Element (Collector) to Lakeshore Drive. ■ Summer Hill Drive from Franklin Street to Camino Del Norte. ■ Grape Street from Summer FEB Drive to Lemon Street. ■ Malaga Road from Diamond Drive to Grape Street. ■ Diamond Drive from Bundy Canyon Road extension to immediately south of Mission Trail. ■ Olive Street from Mission Trail to Grape Street. ■ Stoneman Street from Grand Avenue to Bundy Canyon Road extension. ■ Lemon Street from Mission Trail to Lost Road. IN Corydon Street from Grand Avenue to Mission Trail. ■ Lost Road from Lemon Street to Cottonwood Hills Road. ■ Cottonwood Hills Road east of Railroad Canyon Road. ■ Bundy Canyon Road west of Cottonwood Canyon Road. ■ Cottonwood Canyon Road from Bundy Canyon Road to Clinton Keith Road. ■ Baxter Road from immediately east of Interstate 15 to immediately north of Clinton Keith Road. VIII - 26 Circulation Element • Orange Street south of Bundy Canyon Road. Inland Valley Drive from Clinton Keith Road to Prielipp Road. Prielipp Road from Inland Valley Drive to Elizabeth Lane. A four -lane divided or undivided roadway and partial control of access. Secondary streets move moderate volumes of traffic through the community and serve as routes for locally -generated traffic to connect to arterial and Major streets. They serve as access routes for local residents to reach activity areas in the city and may also provide direct access to commercial properties. Striped for two lanes in each direction, including a striped median (for a continuous 2 -way left -turn lane), with allowances for bike lanes where required and left -turn lanes at major intersections. Traffic carrying capacities of 27,000 to 35,000 vehicles per day can be achieved depending on the degree of access control and peak period traffic loadings. A modified right-of-way may be utilized where features limit the available right-of- way. ■ Direct access to and from individual residential properties is prohibited. The Roadway Classification Map designates the VIII - 27 CL-adation Element following streets as Secondary: • De Palma Road from Temescal Canyon Road to Horsethief Canyon Road. ■ Horsethief Canyon Road from Indian Truck Trail to immediately south of Temescal Canyon Road. ■ Mountain Road from Horsethief Canyon Road to Indian Truck Trail. ■ Estella Mountain Road from immediately north of Interstate 15 to the sphere of influence boundary. ■ Baker Street from Lake Street to Nichols Road. ■ Baker Street from Nichols Road extension to Riverside Drive. ■ Terra Cotta Road from Lakeshore Drive to Nichols Road. ■ Lincoln Street from Grand Avenue to Nichols Road extension. ■ Running Deer Road from Lake Street to Lincoln Street extension. ■ Gunnerson Street from Lakeshore Drive to Riverside Drive. ■ Machado Street from Grand Avenue to Lincoln Street. ■ Pasadena Avenue from Central Street to Chaney Street. ■ Main Street from Lakeshore Drive to VIII - 28 Gradation Element Camino Del Norte. ■ Chaney Street from Camino Del Norte to Ramsgate Drive. ■ Ramsgate Drive from Central Street to Franklin Street. = El Toro Road north of Nichols Road. ■ Steele Valley Road from Ramsgate Drive to north of Ethanac Road. = Telford Avenue from Nichols Road to State Route 74. ■ River Road from State Route 74 to Theda Street. ■ El Freso Road from Theda Street to Ethanac Road. ■ Theda Street from River Road to Ethanac Road. ■ Riverside Street from Steele Valley Road to River Road. ■ Greenwald Avenue from State Route 74 to Summer Hill Drive. = Secondary street from Riverside Street to Vacation Drive. : Summer Hill Drive from Franklin Street to Greenwald Avenue. ■ Camino Del Norte from Main Street to Summer Hill Drive. ■ Malaga Road from Grape Street to Cottonwood Hills Road. VIII - 29 Circulation Element ■ Canyon Lake Drive from Railroad Canyon Road to Cottonwood Hills Road. Cottonwood Canyon Road from Cottonwood Hills Road to Bundy Canyon Road. ■ Casino Drive from Malaga Road to Bundy Canyon Road. ■ Lost Road from Bundy Canyon Road to Baxter Road. ■ Elizabeth Lane from Clinton Keith Road to Prielipp Road. ■ Palomar Street from Skylark Drive to Mission Trail. ■ Skylark Drive from Grand Avenue to Palomar Street. ■ Wasson Canyon Road from Chaney Street to Camino Del Norte e.lCo lector ■ Two-lane undivided roadway. ■ Collector streets connect local streets to streets of higher classification. ■ Provide one lane in each direction with allowance for curb parking where appropriate. ■ Carrying capacities of 12,000 to 15,000 vehicles per day. ■ Direct access to and from individual residential properties is prohibited. VIII - 30 Circulation Element The Roadway Classification Map designates the following streets as Collector: ■ Collector from De Palma Road to De Palma Road. ■ Gleneden Road from Indian Truck Trail to De Palma Road. Collector from Lake Street to Nichols Road Extension. ■ Alvarado Street from Grand Avenue to Machado Street. ■ Joy Street from Machado Street to Riverside Drive. ■ Rostrada Avenue from Mermack Avenue to Central Street. ■ Cambern Avenue from Central Street to Chaney Street. ■ Sumner Avenue from Chaney Street to Main Street. : ■ Vacation Drive from Summer Hill Drive eastward. ■ Collector from Camino Del Norte to Franklin Street. ■ Ponte Russo from Steele Valley Road to Bella Vista. ■ Bella Vista from Greenwald Avenue to Summer Hill Drive. ■ Via Scenica from Bella Vista to Summer Hill Drive. �J VIII • 31 Circulation Element ■ Summer Hill Drive extension from Camino Del Norte to Lakeshore Drive. ■ North Peak Collector from Ethanac Road to El Toro Road. ■ Walnut Street from Mission Trail- to Orange Street. ■ Bryant Street from Grand Avenue to Mission Trail. ■ Two-lane undivided road with frequent driveway access. ■ Local roads are intended to provide access to adjacent residential land uses and to feed traffic to collectors and other roads of higher classification. s A 40 -foot curb -to -curb roadway width within a 60 -foot right-of-way which provides one lane in each direction, with curb parking, but not usually provided with a centerline stripe. ■ Functional design capacity of between 1,500 and 1,800 vehicles per day. Design volumes exceeding 1,500 vehicles per day would require mitigation of impacts on the residential environment. ■ Since Local street alignments are not typically designed or approved until the final stages of the project site develop- ment process, they are not depicted on the Circulation Element Roadway Classification Map. VIII - 32 Cumlation Element 4. SPECIAL STUDY/POLICY AREAS Special study/policy designations have been applied to certain segments of the City's circulation system where, because of existing and future land use and physical constraints, it may be desirable or necessary to accommodate modified roadway design and construction standards. These areas possess unique circumstances suggesting additional focused study and possible consideration of alternative designs in response to adjacent development demands and existing/future circulation patterns. The intent is to allow flexibility and creativity in meeting immediate and near future traffic needs in the interim pending ultimate buildout of the City per the Land Use Plan and Roadway Classification Map. Alternatives may be considered for these areas based on additional traffic studies, with modified design features subject to the approval of the City Engineer and City Council. Such features may include but not be limited to modified rights-of- way, alternative alignments, non -typical cross-sections, interim improvements and/or in lieu building setback and parking regulations, as justified by studies at the time of development application. The special study/policy area designations apply to the following roadways: Lakeshore Drive/Limited Avenue from Riverside Drive to the Bundy Canyon Road extension south of Main Street. ■ Intersection of Limited Avenue, Lakeshore Drive and Main Street. D. ALTERNATIVE MODES OF TRANSPORTATION 1. PUBLIC TRANSPORTATION Public transit is an important part of the transportation environment. Not only does public transit provide added mobility to its users, but it may also increase energy efficiency by providing an alternative to high automobile costs and to traffic congestion in highly traveled areas. In some cases, public VIII - 33 Circulation Element ED transit provides environmental benefits, such as reduced air pollution emissions. Combining all of the above features make public transit a beneficial part of many transportation systems. Transit routes currently serving the City of Lake Elsinore are operated by the Riverside Transit Agency (RTA). The Riverside Transit Agency operates Route 22 between downtown Riverside and Lake Elsinore seven days a week. In the Lake Elsinore area, Route 22 traverses to and from the city via State Route 74, making a loop in the downtown area. No specific changes are proposed in the Circulation Element to the current level of public transit service to the city. The city will support improved transit services for elderly and disabled persons and will support the establishment of broader- based transit operations when demand levels warrant such a service. 2. BIKEWAYS The bicycle route system established for the City of Lake Elsinore is shown on Exhibit Viii -5. Bicycle routes within the city are classified according to the type of right-of-way or use designated for the route. The routes fall into the following classifications: ■ Clams _1 Bikeway: Bike paths or trails with a completely separated right-of-way for the exclusive use of bicycles. ■Class 11 Bikeway: Bike lanes which provide a restricted right-of-way for the exclusive or semi - exclusive use of bicycles with vehicle parking and cross flows by vehicles and pedestrians permitted. ■ Class III Bikeway: Bike routes which provide a right-of-way designated by signs or permanent markings and are shared with pedestrians or vehicles. ■ 1 • Paths or trails available for joint VIII - 34 W. LU Jm ~ �My V U i Ciriculation Element bicycle, pedestrian and equestrian use that may or may not be separated or paved. The Bikeway Plan delineates an extensive, continuous network of bicycle routes, with Class Il bikeways as the principal mode of providing for bicycle travel through the city. A Class I, off-street bikeway is designated for Grand Avenue through the city's sphere as an alternative reflecting the county's plans for this area. The Class III bikeway (non-exclusive right- of-way) along Main Street, Camino Del Norte, Summer Hill Drive and Ramsgate Drive is delineated specifically to emphasize and facilitate the linkage of bicycle routes through the major specific plan areas east of Interstate 15 and the downtown area. The Multi -Purpose designation reflects the city's existing dedicated and proposed trail system (west end) available to equestrian, pedestrian and bicycle users. The existing segments are unpaved; future sections may or may not be paved or separated depending upon design and use requirements. 3. PEDESTRIAN ACCESS ` The City of Lake Elsinore will strive to increase pedestrian accessibility by implementing the policies of the Circulation Element and Community Design Element calling for the provision of walkway/trail system within mixed use developments, sidewalks and the imtallation of wheelchair ramps along new facilities and in older neighborhoods, where appropriate. E. CIRCULATION ELEMENT IMPLEMENTATION PROGRAM The following outlines a broad range of transportation improvement implementation strategies and programs which collectively work towards the realization of the Circulation Element goals and objectives. VIII - 35 C&mlation Element 1. DEVELOPMENT IMPACT MONITORING PROGRAM The monitoring of traffic impacts associated with area development approvals is a critical program which must be implemented to ensure that the city's transportation goals are achieved. A carefully designed Development Impact Monitoring Program will provide the information necessary to: ■ Ensure equitable participation by developers in the implementation of roadway improvements throughout the city ■ Update the city's short -and long-range Roadway Implementation Phasing Program; ■ Annually update the city's 5 -year Capital Improvement Program; ■ Update the city's Transportation Facilities Funding Program; ■ Assess the performance of the city's Congestion Management Program; ■ Adequately respond to development impact reporting requirements identified in the Riverside County Congestion Management Program (CMP); and ■ Guide future land use/development decisions. The city's Development Impact Monitoring Program should include the following elements: a.c-Impaci- . . lual v Proje_ Ms: These requirements should be formulated to effectively determine the impact potential of development projects on the circulation system, and define appropriate mitigation measures which adequately address VIII - 36 Circulation Element project impacts. Compliance with the Riverside County CMP currently requires that local jurisdictions use traffic impact analysis guidelines developed by Riverside County as a model for developing local guidelines. This is particularly important in the analysis of larger development projects which are likely to impact the regional CMP roadway system. The development of traffic impact analysis requirements should at the same time, recognize and establish appropriate levels of analysis for intermediate and smaller sized development projects. The findings of traffic impact studies would be reviewed by city staff to determine: ■ Consistency with traffic impact analysis requirements; ■ Consistency with Circulation Element goals and policies; and Staff recommendations regarding conditions of approval. b. Maintenance of Lake Elsinore Build -Out Traffi Model: The city shall continue to monitor the effects of on-going development approvals on ultimate circulation: system needs through its established program which requires larger development projects to assess potential traffic impacts on the city's Circulation Element through the use of the Lake Elsinore Traffic Model. This process should include, as the final step, incorporation of land uses which are ultimately approved by the City Council into the Trac Model data base. Periodic updates of the Build - Out Traffic Model should also be conducted to incorporate the cumulative affects of smaller development project approvals which may not require a build -out analysis to be performed. Analysis of traffic forecast updates provide valuable information on the adequacy of the city's plans and the impact of land use/development decisions. _�% VIII - 37 C&adation Element C. ►„ MaR and Bi w The Roadway Classification Map and Bikeway Plan will be used by the city as the basis for reviewing the roadway improvement and bicycle route needs of development within Lake Elsinore. These plans establish a consistent set of standards for right-of- way width, street paving, sidewalk/parkway areas and the provision of bicycle lanes to meet the city's goals, policies, objectives and standards for traffic movement and community design. All development projects and pian submittals affecting -the city's streets and road system will be reviewed and conditioned as appropriate to ensure consistency with the Circulation Element and circulation -related implementation programs contained in the Community Design Element. 2. ROADWAY IMPLEMENTATION PHASING PROGRAM A well coordinated roadway implementation program is critical in order to achieve the city's traffic level of service goals. This program would initially require a special study which would essentially prioritize circulation system needs for projected five, ten, and build -out development horizon years. The roadway improvement phasing study would assess both the physical infrastructure needs as well as preliminary funding needs (and potential funding sources). Once established, the Roadway Implementation Phasing Program would be reviewed and updated on an annual basis. This effort could be undertaken in conjunction with the city's annual update of the Five -Year Capital Improvement Program, 3. TRANSPORTATION FACILITIES FUNDING PROGRAM The Transportation Facilities Funding Program would use information on transportation facility needs generated from the Roadway Implementation Phasing Program as the basis for identifying, developing, and establishing funding sources for the Five -Year Capital Improvement Program and the Ten -Year VIII - 38 Circulation Element planning horizon. It is important that a wide variety of funding sources/mechanisms be identified and investigated as early as possible. Many of the potential funding sources will require the city to posture itself carefully in order to be eligible for available funds. The following is a partial list of transportation related funding sources/mechanisms which could be considered: a Bridge and Major Thoroughfare Fee Program; a Development Impact Fees (City and County/Developer); a Integrated Financing District; ■ Assessment District/Community Funding District (City & County); ■ Gasoline Taxes (State, County, and Local); ■ Measure A Funds (RCTC); N Office of Traffic Safety Special Grant Funds (State/Caltrans); a Riverside County Local Transportation Fund (RCTC); ■ Traffic Signal Mitigation Fees (City); a City Taxes; a City Redevelopment Agency; ■ Developer Reimbursement Agreements (City/Developer); ■ State Highway Account; a State Transit Assistance; ■ Federal Aid Interstate Funds; a Federal Aid Primary Funds; a Federal Aid Urban Funds; a Urban Mass Transit Authority Grants; and ■ Intermodal Surface Transportation Efficiency Act (Federal). 4. LOCAL CONGESTION MANAGEMENT PROGRAM The development of a strong local Congestion Management Program will play an integral part in the city's ability to achieve the traffic level of service goal (Section III). This program consists of three key elements: I11 Cinrulation Element 1• The City of Lake Elsinore Transportation Demand Management Ordinance; 2. The identification and implementation of Transportation System Management strategies; and 3. Development/expansion of transit service. Transportation Demand Management (also referred to as Travel Demand Management or TDM) strategies involve measures which are intended to reduce vehicle trip generation or influence when vehicle trips are made. Transportation System Management strategies involve relatively low cost facility improvements which maximize the efficiency/traffic carrying capacity of the roadway system. The City of Lake Elsinore's TDM ordinance applies to new commercial, industrial, and mixed use developments estimated to employ 100 or more persons. The TDM ordinance requires new employment generating developments to implement applicable measures which include various features oriented towards reducing the generation of off-site vehicle trips. Also included, are off-site mitigation measures such as contributions to local Transportation System Management oriented facility improvements as well as regional TDM facilities. The TDM ordinance also includes provisions for implementation, monitoring, and enforcing the ordinance requirements. In addition to the TDM ordinance, the city should take leadership in the formation of. ■ Community based ridesharing program and commuter bicycle program for local residents; and Non-profit transportation management associations. The Transportation System Management (TSM) element of the Congestion Management Program would involve the identification, prioritization, and monitoring of strategic low-cost VIII - 40 Circulation Element circulation system improvements, which would maximize the efficiency of the local roadway system and improve traffic flow. These low capital improvements could include: K Adding turn lanes or restricting turning movements during peak traffic periods at congested intersections; N Widening of intersection approaches to accommodate additional through movement lanes or to improve visibility; a Restriction or elimination of curb -side parking along congested arterials; N Implementation of one-way street or reversible lane system; ■ Installation of bus turnout bays; a Installation of "smart" signal systems; ■ Pavement marking modifications/improvements; and Completion of "missing links" in the roadway network. The third element of the Congestion Management Program involves a dedicated effort towards improving and expanding transit service within the community. For fixed -route service, this means: More frequent service; Broader route coverage; and Implementation of commuter oriented express service to regional employment centers. Since fixed -route service operates best in a high density environment, the expansion of this service in Lake Elsinore will be limited in geographic coverage. As a result, other less conventional transit service will need to be explored. This includes: Subscription or dial -a -ride service for lower density residential areas; ■ Targeted services which would offer limited transit service between outlying residential concentrations and the city's VIII -41 C&ailwion Element commercial/employment centers; a Shuttle or trolley service between Main Street and other activity center destinations along the Interstate -15 freeway corridor. It is important to note that Riverside County's CMP also requires local jurisdictions to adopt and conform to transit performance standards. This conformance requirement for the City of Lake Elsinore needs to be coordinated with RCTC. The ultimate success of Lake Elsinore's Congestion Management Program will largely be dependent on the city's commitment in implementing the local CMP program elements. Also critical to its success will be the community's understanding of the problem and their willingness to participate in the solution. Marketing and promotion should therefore be an integral part of the overall program. 5. REGIONAL COORDINATION As reflected in many of the Circulation Element components, regional coordination is essential to successful implementation. Several of the critical roadway system improvements which will be required to adequately accommodate build -out traffic flows are currently outside the city's jurisdiction. Furthermore, the most significant of the city's long-range congestion problems are generally located at local arterial street interchanges with Interstate 15 and along State Route 74 which are regional facilities. Regional model forecasts indicate that a significant amount of the traffic using these facilities are traveling through the city. The solution to this and other regional -related traffic problems will require close coordination of traffic issues with nearby communities, Riverside County and Caltrans District 8. Other aspects of the Circulation Element such as compliance with the requirements of Riverside County's Congestion Management Plan and SCAG's Air Quality Management Plan/Regional Mobility Plan will require a high level of cooperation with both the Riverside County Transportation Commission and SCAG in order to maintain eligibility for Measure A Program funds. VIII - 42 C&mlation Element Specific coordination efforts with regional agencies include: ■ Work with appropriate County and State agencies to pursue improvements to State Route 74 and Railroad Canyon Road, including improvements to I-15 Freeway interchange access; and Q Work cooperatively with Caltrans to maximize the capacity of State Route 74 (Ortega Highway, Riverside Drive, and Central Street) through the use of access controls, signal timing optimization, and installation of auxiliary turn lanes. 6. BIKEWAYS The Circulation Element Bikeway Plan will be utilized by the city to guide implementation of the desired bicycle route system. Rights-of-way for bicycle lanes and other design and support features such as interface with bus stops, carpool lots, park sites and parking and resting facilities will be identified and conditioned as part of the project review and approval process. Through the project review process, the city will also encourage the multi-purpose use concept and provision of bicycle lanes, path or trails along all roadways and recreational corridors within Specific Plan areas and other major developments. The overall intent of the bikeway program and its goals and policies is to require provisions for bicycle travel be included as an integrated part of all developments with connections to the city-wide recreational trail and bicycle network. As existing streets are improved and new roadways are implemented, the city will require delineation of bicycle lanes and related facilities (e.g., signage, etc.) as part of constructing the street improvements. To assist in implementing the bicycle route system, the city will actively seek state and federal assistance for the construction of bikeway improvements and related support facilities, including applications for funding available through Caltrans' Local Streets and Roads, Bicycle Lane Account (BLA) program. VIII - 43 40--y City of Lake Elsinore HOUSING ELEMENT UPDATE Prepared Fora THE CITY OF LAKE ELSINORE 130 S. Main Street Lake Elsinore, CA 92530 Contact: Armando G. Villa, Planning Manager (909) 674-3124 Prepared By. THE PLANNING CENTER 1580 Metro Drive Costa Mesa, CA 92626 Contact: Melani Smith, Director of Community Development Services (714) 966-9220 JULY 2002 This page intentionally left blank. City of Lake Elsinore HOUSING ELEMENT UPDATE TABLE OF CONTENTS SECTION PAGE 1. INTRODUCTION ................ ....................... .... ..:............... :.....:_.:_:................ :....... :.:: 1 A. PURPOSE .................................. ............................-•---••-------..............------------.--.--•--------......1 B. CITIZEN PARTICIPATION.... .... ................................................ _ .................. 1 C. CONSISTENCY WITH STATE PLANNING LAW ................ ................................................ 1 D. GENERAL PLAN CONSISTENCY..---•-•-•............................................................----........._ 2 E. REVISION/UPDATE PROCESS.................:..:.................--•-----...........:..........::.......:-----_--- 2 IL COMMUNITY PROFILE ............................... .-... •----•......................................-•-•--•----......_................ 5 A. POPULATION TRENDS AND CHARACTERISTICS :................................. ....................... 5 1. Age Composition ............. ........................................................................ .........---......_. 7 2. Race and Ethnicity................__..--------.._....................................._................-----••.......-. 8 B. EMPLOYMENT TRENDS .... ....... ..... .......................... .................................................. ....10 C. HOUSEHOLD CHARACTERISTICS................................................................................ 11 1. Household Formation and Composition.................................................................... 12 2. Household Income ....... ................................. ......... ....... ___ ........ ........................ 14 D. HOUSING INVENTORY AND MARKET CONDITIONS ................................................... 15 1. Housing Stock Profile...---.................................................-----.--._...................---•--.._.. 15 2. Tenure--------------------- ---------------••-----....__.......................------------............................_.-- 17 3. Vacancy Rates...... .................................................. ........................ ......................... 18 4. Age of Housing Stock ......................................... .......---•--•---------......_................----...... 18 5. Housing Conditions----------- ................................... ............................... ...................... 19 6. Housing Costs and Rents. ....................................................... ............................... _ 20 III. HOUSING NEED............................................................................................................................ 29 A. EXISTING NEEDS ..................................... :................ :...................................................... 29 1. Overcrowding...........................•-.---.--.----------..........................---.................................. 29 2. Households Overpaying for Housing......................................................................... 30 3. Special Needs Groups .................................•........................................................... 31 B. GROWTH NEEDS...........-•---...--•---------•..................................................................•--------- 41 1. Overview of the SCAG Regional Housing Needs Assessment ................................. 41 2. The 1998-2005 Lake Elsinore Fair Share Estimate ...... ............................................ 42 IV. HOUSING CONSTRAINTS AND RESOURCES...................................................7...........__......--- 43 A. CONSTRAINTS ........:.:............ ....... 43 1. Governmental Constraints.........................................................................................43 B- NON-GOVERNMENTAL CONSTRAINTS......... .......................................... __ ............ _ 47 1. Environmental/Infrastructure Constraints..................................................................47 C. RESOURCES ......... ........................................................................ ................................. 47 1. Availability of Sites for Housing................................................................................. 47 2. Preservation of Assisted Units at Risk of Conversion . .............................................. 47 V. REVIEW OF HOUSING ELEMENT PERFORMANCE TO DATE ................................................. 47 A. PROGRESS IN IMPLEMENTING THE 1989 GOALS AND OBJECTIVES ......................47 VI. GOALS, POLICIES, PROGRAMS, AND QUANTIFIED OBJECTIVES-....... ..............................--- 47 A. GOALS AND POLICIES.--------•.:.................................•---------............:........----------I---......... 47 1. Goals ............ .................... ................. ............. ............................ ................................. 47 The Planning Centev- Page i Juh- 2002 FINAL Table of Contents IMPLEMENTATIONTOOLS.............................................................................................47 HOUSING PLAN SUMMARY............................................................... .... 47 ID.11ANTIFIED OBJECTIVES.......................................................................................................... 47 NEWCONSTRUCTION..— ............................................ ............. ................... . ................ 47 CONSERVATION OF EXISTING "AT RISK" UNITS ........................................................ 47 PRESERVATION AND REHABILITATION.......................................................................47 Housing Element Update for the City of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE LIST OF FIGURES FIGURE PAGE Figure 1 Rate of Population Growth 1980-2000........................................................................................... 6 Figure 2 Numerical Population Growth 1980-2000....................................................................................... 6 Figure 3 Age Distribution Age Group as a Percent of Population................................................................ 8 Figure 4 Household Growth 1990-2000..................................................................................... .............. 12 Figure 5 Household Growth 1990-2000...................................................................................................... 13 Figure 6 Housing Units By Price Range 1990............................................................................................ 21 Figure 7 Average Price of New Detached Homes 1989-1998. ............................. ::.................................... 22 LIST OF TABLES TABLE PAGE Table1 Population Growth 1980-2000 ............................................ "..:....................... .. ............... -................ 5 Table 2 Age Distribution 1980-1990..................................................................................................._._.._.... 7 Table 3A Racial And Ethnic Composition 1980-1990 ........................ ................. .......................................... 9 Table 3B Racial And Ethnic Composition 2000......................................................................................... 10 Table 4 Jobs Held By Lake Elsinore Residents By Sector, ................................................................. ------ 10 Table5 Major Employers 2000.....................................................................................................::......... 11 Table6 Total Households 1990-2000.........................................................................................................12 Table7 Household Size By Tenure 1990 ........................... -..................................................... :.....:........... 13 Table 8 Household Income By Tenure 1999. -- .... ..... ........... :........ :.......................................... ................ 14 Table 9 Households By Income Category 1999..................................................................._..................._. 14 Table 10 Families Below Poverty Level 1990............................................................................................. 15 Table 11 Regional Comparison Of Total Housing Stock 1990-2000.......................................................... 16 Table 12 Composition Of Housing Stock By Unit Type 1990 - 2000 ................ ................. .............. :......... 16 Table 13 Housing Occupancy By Unit Size and Type 1990.......................................................................17 Table 14 Occupied Housing Units By Tenure 1990...................................................................:................17 Table15 Age Of Housing Stock ........................................... ....... :....... :................. :.................................... . 19 Table16 Housing Values 1990..................................................................................................................• 21 Table17 Housing Prices 1999-2000 ............. ............ .................................................................................. . 23 Table 18A Representative Resale Housing Prices 1999-2000................................................................... 24 Table 18B Median Home Prices Lake Elsinore and Surrounding Jurisdictions...................... .................... 24 Table 19 Monthly Mortgage Payments For Resale And New Homes ....................................................... 25 Table 20 Rents By Number Of Bedrooms 1990............................................................... - ................. :..:._. 25 Table 21 Rental Prices Of Market Units 1999.................................................................... ..._............::.,... 26 Table 22 2000 Maximum Rent And Purchase Price By Income Category. .................. j ............................. 27 Table 23 Overcrowding In Lower Income Households 1999...................................................................... 30 Table 24 Overpayment In Lower Income Households 1999......................................................................... ... 31 Table 25 Elderly Mobility And/Or Self -Care Limitations 1990.....................................,....................._.........33 Table 26 Large Households By Tenure 1990............................................................................................. 34 Table 27 Female Heads Of Households 1990-2000.................................................................................. 34 Table 28 Persons Reporting A Mobility Or Self -Care Limitation................................................................. 35 Table 29A Distribution of Homeless in Lake Elsinore.................................................................................36 Table 29B Potential Future Land Use Accommodations for Homeless Facilities in Lake Elsinore ............ 37 Table 30A Summary Of Existing Housing Needs ........................................... :............................. .............. 38 Table 30B Existing Housing Needs and Housing Programs ........................ .......................... A.................... 39 Table 31 Lake Elsinore Fair Share Housing Needs 1998 - 20051 ............................................................. 42 Table 32 General Plan Residential Land Use Categories ................................ ............................................ 44 1 Table 33 Summary Of Zoning Residential Regulations ............................ .................................................. �J 47 The Planning Center Page W July 2002 FINAL Table of Contents Table 34 Residential Parking Requirements ................... ..................................... :............................. :........ 47 Table 35 Local Development Processing Time Limits........................................................ ..:..................... 47 Table 36A City of Lake Elsinore Fee Schedule................................................................... .... 47 Table 36B Approximate Building Division Fees for Single Family Residential Construction.... ...................... 47 Table 36C Approximate Building Division Fees for Multi -Family Residential Construction ....................... 47 Table 36D Approximate Engineering Division Fees for Residential Construction ...................................... 47 Table 37 Representative Development Costs ------------------------------------- ............... .........-------- __................ ..47 Table 38 Approved Residential Units By Density October 2000................................................................ 47 Table 39 Summary Of Residential Build -Out Potential... ............. ...... .... . ................................ 47 Table 40 Residential Construction By Income Category ...................................... ............................. ___ 47 Table 41 Inventory Of Assisted Units .................................. ......................................................... ____ .... 47 Table 42 Fair Market Rents For Existing Housing: Riverside -San Bernardino Msa.................................. 47 Table 43 City of Lake Elsinore Redevelopment Agency Estimated LOW/MODERATE INCOME HOUSING Fund Expenditures 2000 — 2005...................................................................................... 47 Table 44 Non -Profit Entities City of Lake Elsinore...................................................................................... 47 Table 45 Progress In Implementing The 1989 Housing Element Programs..............................................47 Table 46 Lake Elsinore Housing Element Objectives 1989 — 1998............................................................47 Table 47 Progress Towards Objectives July 1989 — December 1997.. ...... _ ................... ------------------------- 47 Table 48 Resources Available for Housing Activities City of Lake Elsinore.. ................................. 47 Table49 Housing Plan Summary ....................................................................................................:...,...:._. 47 Table 50 New Construction Housing Objectives 1998-2005..._ ...... ............... 0 .............. 47 Table 51 Preservation/Rehabilitation Objectives 1998 — 2005................................................................... 47 LIST OF EXHIBITS EXHIBIT PAGE Exhibit 1 Approved Residential Land............:.....................................................................::...........47 Exhibit 2 Conventionally Zoned Vacant Land................::.......................................................::....:.. 47 APPENDICES A— PUBLIC PARTICIPATION MAILING LIST B — GENERAL PLAN CONSISTENCY ANALYSIS Page iv FINAL Housing Element Update for the City of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE 1. INTRODUCTION A. PURPOSE The purpose of the Housing Element of the Lake Elsinore General Plan is to ensure the City establishes policies, procedures and incentives in its land use planning and redevelopment activities that will result in the maintenance and expansion of the housing supply to adequately accommodate households currently living and expected to live in Lake Elsinore. It institutes policies that will guide City decision-making, and establishes an action program to implement housing goals through 2005. The Housing Element has been designed to address key housing issues in the City. Foremost among these issues is the provision of a mix and balance of housing types and costs to meet the needs of all segments of the Lake Elsinore community. As such, the Housing Element makes provisions for affordable and accessible housing for special needs groups in the community, and is designed to provide guidance in the maintenance of existing affordable housing. These commitments are an expression of the statewide housing goal of "early attainment of decent housing and a suitable living environment for every California family," as well as an expression of the concern of Lake Elsinore residents for the attainment of a suitable living environment for every City household. B. CITIZEN PARTICIPATION California Government Code requires that local government make a diligent effort to achieve public participation from all economic segments of the community in the development of the housing element. In the preparation of the Housing Element Update, a number of organizations and agencies that provide housing, or housing related services, were contacted. Responses from these groups helped guide the Housing Needs Assessment portion of the Housing Element, as well as the action plan. A public workshop and study session was conducted on December 19, 2001 to present the draft Housing Element and provide an opportunity for interested persons to ask questions and offer suggestions. Notice of this workshop was published in the Press Enterprise (a local newspaper of general circulation) and was also mailed to the City's list of local housing interest groups. A copy of the mailing list is included as Appendix A. Public hearings were held on February 6, 2002 by the Planning Commission and on February 26, 2002 by the City Council to provide additional opportunities for public review and comment on the Draft Housing Element and supporting documents. C. CONSISTENCY WITH STATE PLANNING LAW The Housing Element is one of the seven General Plan elements mandated by the State of California. Sections 65580 to 65590 of the California Government Code contain the legislative mandate for the housing element. State law requires that the City's Housing Element consist of "an identification and analysis of existing and projected housing needs and a statement of goals, policies, quantified objectives, financial resources, and scheduled programs for the preservation, improvement and development of housing" (Section 65583). In addition, the housing element shall identify adequate sites for housing, including rental housing, factory -built housing, and mobile homes, and shall make adequate provision for the existing and projected needs of all economic segments of the community. There is no single approved format for a Housing Element. Instead, State law defines components of issues that must be addressed. A housing element should clearly identify and address, at a minimum, each component listed below: The Planning Center Page I Juli? 2002 FINAL I. Introduction DETAILED COMPONENTS OF THE HOUSING ELEMENT The element shall contain all of the following. 1. Review of Existing Housing Element. 2. An assessment of existing and projected housing and employment trends to assess a locality's housing needs for all income levels. 3. An inventory of resources relevant to meeting housing needs. 4. An inventory of constraints relevant to the meeting of these needs. 5. A statement of the community's goals, quantified objectives, and policies relative to the maintenance, preservation, improvement and development of housing. 6. A program that sets forth a five-year schedule of actions the local government is undertaking or intends to undertake to implement the policies and achieve the goals and objectives of the housing element. D. GENERAL PLAN CONSISTENCY The Housing Element is one of seven elements of the Lake Elsinore General Plan. The goals, policies, standards and proposals within this element relate directly to, and are consistent with all other elements. A consistency analysis is provided in Appendix B. The City's Housing Element identifies programs and resources required for the preservation, improvement and development of housing to meet the existing and projected needs of its population. The Housing Element is affected by development policies contained in the Land Use Element, which establishes the location, type, intensity and distribution of land uses throughout the City, and defines the land use build -out potential. In designating total acreage density of residential development, the Land Use Element places an upper limit on the number and types of housing units constructed in the City. The acreage designated for a range of commercial and office uses creates employment opportunities for various income groups. The presence and potential for jobs affects the current and future demand for housing at the various income levels in the City. The Circulation Element of the General Plan also affects the implementation of the Housing Element. The Circulation Element establishes policies for providing essential infrastructure to all developed housing units. Through the regulation of the amount and variety of open space and recreation areas, acceptable noise levels in residential areas, and programs to provide for the safety of the residents, policies contained in General Plan Elements directly affect the quality of life for all Lake Elsinore citizens. The Housing Element utilizes the most current data available, and includes 2000 data when available, 1999 population, housing and employment data, and 1990 Census data. All figures represented in the Housing Element are consistent with existing and projected population, and employment and housing figures presented by county, state, national and non-profit agencies. E. REVISION/UPDATE PROCESS This Housing Element updates the Housing Element amended by the City in 1995, and (inclusive of staff responses to HCD comments) was reviewed by HCD in September of the same year. The Housing Element is designed to meet several key objectives. These include provisions to: ensure internal consistency with the adopted General Plan: meet recently enacted statutory requirements; introduce page 2 Housing Element Update for the City ofLake Elsinore FINAL Julv 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE updated housing, population and needs analysis; and incorporate the suggested staff responses to HCD comments which address the issues identified by HCD in reference to the adopted 1990 Housing Element. In the event that a General Plan Element is updated or amended, the City shall review the impacts of such changes upon the Housing Element and incorporate appropriate revisions to maintain consistency. An update or amendment of the Housing Element shall instigate similar actions upon the remaining General Plan elements. The Planning Center Juli, 2002 Page 3 FINAL TrYc ,.,4:;F intentionally left blank. Page 4 FINAL I. Introduction Housing Element Update far- the City of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE 11. COMMUNITY PROFILE '- ^--�:+n..-�:.::ti„mac -•1l.`.S: .s ti�`.L�Tc~t VL''T^:ti'�.•��:"'.�..«._:�S�.w:-.:Y^. .r ...._.:._ :S.e'..T9:L�'.Y=�:•>:�..yy-.. :._ �__,Y•=..-_.'.S.+.T A. POPULATION TRENDS AND CHARACTERISTICS The purpose of this section is to illustrate Lake Elsinore's current conditions in terms of its demographics and existing housing stock. Accordingly, the section entails discussions on Lake Elsinore's population and housing trends. The most current data, where available, was compared with earlier data to reflect on the current state of the City and its future direction. Lake Elsinore is the oldest city out of 24 cities located in Riverside County. The County has experienced a rapid growth in the last two decades, with sizable development occurring in the west and southwest and new residential communities in the eastern portions of the County. From 1990 to 2000, the County's population increased by 374,974, or 30% (1990 & 2000 Census). Despite being the oldest city in Riverside County, Lake Elsinore's population was only 5,982 persons in 1980. Since 1980, however, Lake Elsinore's population growth rate far exceeded that of the County's. The City's population grew from 5,982 persons in 1980 to 18,316 persons in 1990, representing a 206% increase. Within the same period, the County grew by 77%. Since 1990, Lake Elsinore's growth rate has remained strong, although not as high as in the previous decade. According to the 2000 Census, the population increased by 58% from 18,316 persons in 1990 to 28,928 in 2000. TABLE 1 POPULATION GROWTH 1980-2000 Jurisdiction 19801 19902 20007 1980-90 Growth 1990-00 Growth Number I Percent Number Percent Lake Elsinore 5,982 18,3161 28,928 12,334 206.2% 10,612 57.9% Riverside County 663,199 1,170,413 1,545,387 507,214 76.5% 374,974 32.0% I City of Lake Elsinore Housing Element 1995 2 CA Department of Finance, E-5 Report. ] U -S- Census Bureau. Census 2000. The Plarrnii?g Center Page 5 July 2002 FINAL 250% 200% 150% 100% 50% 0% 1 1,600,000 1'—) 1,000,000 500,000 40,000 < 20,000 0 Page 6 FINAL IT Community Profile FIGURE 1 RATE OF POPULATION GROWTH 1980-2000 206% 77% 5B% 32°! 1980-1990 1990-2000 ■ Lake Elsinore ❑ Riverside County FIGURE 2 NUMERICAL POPULATION GROWTH 1980-2000 1,545.387 17041 663,199 p 2892 f _ 18,316 28 92 5,982 1980 1990 2000 E ■ Lake Elsinore ❑ Riverside Housing Element Update for the City of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE Age Composition The age breakdown of a population is an important factor in evaluating housing needs and projecting the direction of future housing development. Table 2, Age Distribution, shows the distribution of age groups reported in the 1980,1990, and 2000 Census. In 2000, residents in their prime working years comprised approximately 43% of the City's population, ahead of the next largest cohort, school age and young adult citizens, at 26%. Young adults and senior citizens made up the next most significant population group with about 9% and 7% of the total City population, respectively. The data revealed that although the number of the senior population increased by 406 persons, the proportional percentage decreased by 1.7%. Between 1980-1990, the prime working age group showed the greatest rise in population by comprising 43% of total population in 1990 compared to 30% in 1980. This trend of a growing prime working population did not, however, continue with the tabulation of the next Census. The 2000 Census indicates that the prime working age group continued to comprise 43% of the population and that the school age group demonstrated the largest proportional growth, comprising 26% of the population in 2000, compared to 22% in 1990. TABLE 2 AGE DISTRIBUTION 1980-1990 CITY OF LAKE ELSINORE Age Group/Year Number 1980 of Population Number 1990 % of Population 1980:1990 % Change Number 2000 % of Population 1990:2000 % Change Preschool 0-4 467 7.8% 2,168 11.9% 1 4.0% 2,834 9.8% -2.1% School i5-17 1,054 17.6% 3.959 21.7% 4.0% 7,585 26.2% 4.5% Young Adults 18-24 670 11.2% 1,723 9.4% -1.8% 2,683 9.3% 0.1% Prime Working 25-54 1 798 30.1% 7,835 42.8% 12.8% 12,319 42.6% -0.2% Retirement 55-64 787 13.2% 1,073 5.9% -7.3% 1 1.574 5.4% 45% Senior Citizens (65+ 1,206 20.2% 1,527 8.4% 11 11.8% 1.933 6.7% -1.7% Total 1 5,982 100.0% 18,285 100.0% 1 NIA 28,928 100% NIA Source: U.S. Census 1990, STF 3A ... The Planning Center July 2002 Page 7 FINAL II. Community Profile TABLE 3B RACIAL AND ETHNIC COMPOSITION 2000 CITY OF LAKE ELSINORE RaciallEthnic Group Number Percent One Race 27;495. 94.8% . White 18,981 65.6% Black 1,501 5.2% American Indian 374 1.3% & Alaska Native Asian 592 2.0% Asian Indian 36 0.1% Chinese 56 0.2% Filipino 182 0.6% Japanese 56 0.2% Korean 80 0.3% Vietnamese 43 0.1% Other Asian' 139 0.5% Native Hawaiian & Other 87 0.3% Pacific Islander Native Hawaiian 20 0.1% Guamanian or Chamorro 14 <0.1% Samoan 49 0.2% Other Pack Islander2 4 <0.1% Other 5,880 20.3% Two or More Races 1,513 • 5.2% Total 28,928 NIA Persons of Hispanic Origin 11,007 38.0% of any race 3 ' Other Asian alone, or two or more Asian categories Y Other Pacific Islander alone, or two or more Native Hawaiian and Other Pacific Islander categories. 3 The 2000 U.S. Census considers persons of Hispanic origin as an ethnic group. Percentage represents proportion of total population. Source: US Census Bureau. 2000 Census B. '--� iAPLOYMENT TRENDS Emplc - .,:t and income are two important factors in determining a household's ability to secure housing. In the p .-- i_ake Elsinore's employment base was dependent on tourism. However, the City also demonsan expanded employment base consisting of commercial and industrial businesses. Based on the 1 Census, the majority of jobs in Lake Elsinore were in services and manufacturing. Approxin i.:ely 23% were employed in service sector and 21 % in manufacturing sector. Construction and retail trail' also comprised a significant portion of the jobs, with each representing 18%_ Page 10 FINAL TABLE 4 JOBS HELD BY LAKE ELSINORE RESIDENTS BY SECTOR CITY OF LAKE ELSINORE Job Sector I Number I Percent Housing Element Update for the City of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE Agriculture 1 157 2% Mining 9 0% Construction 1,303 18% Manufacturing 1.576 21% Transportation 241 3% Communications/other Public Facilities 185 2% Wholesale Trade 316 4% Retail Trade 1.338 18% Finance. Insurance, & Real Estate 462 6% Services 1,738 23% Public Administration 82 1% Total Employed Persons (16 years and over) 7,407 100% Source: 1990 U.S. Census STF 3A 109 Water District Indicative of trends in jobs held by the Lake Elsinore residents, approximately two-thirds of the major employers in 1999 consisted of retail trade companies, while the remaining one-third were consisted of construction companies. This trend is reflected in Table 5, which illustrates the City's major employers_ The Lake Elsinore Outlet Center and the Wal-Mart are currently two of the biggest employers in the City. In addition, four of the top eleven employers in the City are in the business of Manufacturing. TABLE 5 MAJOR EMPLOYERS 2000 CITY OF LAKE ELSINORE Company I Number of Employees I Business Type Lake Elsinore Unified School District 1,681 School District Lake Elsinore Outlet Center 1,169 Retail Outlet Mall Wal-Mart 400 Retail Lake Elsinore Storm 250 Professional Baseball Club Lake Elsinore Resort/Casino 200 Restaurant/Casino Labeda Wheels/Precision Spqrts 150 1 Manufacturing — Racing Skates Albertson's 150 Supermarket Vons 145 Supermarket Stater Bros. Markets 131 Supermarket Pacific Clay 130 Manufacturing — Building Products Wireland Precision, Inc. 112 Mari ufackO —TooVD a Machining Elsinore Valley Municipal Water District 109 Water District Sizzler 100 Restaurant Lake Elsinore Ford 85 Auto Dealership Denn 's 75 Restaurant Lake Chevrolet 73 Auto Dealership Diamond Cabinets 70 Manufacturing - Cabinetry Elsinore Ready Mix 60 Construction Products E -Z Products 50 Manufacturing — Buildin2 Products Coco's 48 Restaurant Source: Business Resource Guide. Southwestern Riverside County 2000 C. HOUSEHOLD CHARACTERISTICS Before current housing problems can be understood and future needs anticipated, housing occupancy characteristics need to be identified in the City. The following is an analysis of household size, household growth, tenure, and vacancy trends. By definition, a "household" consists of all the people occupying a The Planrtrng Centel- Page 11 July 2002 FINAL II. Community Profile dwelling unit, whether or not they are related. A single person living in an apartment is a household, just as a couple with two children living in the same dwelling unit are considered a household. Household Formation and Composition Between 1990-1999, the number of Lake Elsinore households grew at a proportionately faster rate than that of either the County or State. The number of households in Riverside County and California increased by 26% and 11 % between 1990 and 2000 respectively. In comparison, the total number of households in Lake Elsinore grew approximately 45% during the same period. The total number of households in the City in 2000 was 8,817, representing a net increase of 2,751 households since 1990. Table 6 compares total household growth in the City, County and State. TABLE 6 TOTAL HOUSEHOLDS 1990-2000 CITY OF LAKE ELSINORE % Increase Area 1990 2000 1990-2000 California 10,381,206 11,502,870 10.8% Riverside County 402,426 506,218 25.8% Lake Elsinore 6,066 8,817 45.4% Source: 1990 U.S. Census, STF 3A: US Census Bureau, 2000 Census FIGURE 4 HOUSEHOLD GROWTH 1990-2000 50% 4,5° 40%- 30%- 20%- 10% 0% 10% 0% Lake Elsinore Riverside California ■ Lake Elsinore 13Riverside ■ California Page 12 tlozrsing Element Update for the City of Lake Elsinore FINAL Julv 2002 r 11,502,870 10,381.206 10,000,000 5,000,000 1,000,000 City of Lake Elsinore HOUSING ELEMENT UPDATE FIGURE 5 HOUSEHOLD GROWTH 1990-2000 506,218 402,426 � 8,817 California Riverside County Lake Elsinore ❑ 1990 ■ 2000 The average household size in Riverside County in 1990 was 2.9 persons per household, rising to 3.0 persons per household by 2000. In comparison, Lake Elsinore has maintained a somewhat higher number of persons per household than the countywide average. The U.S. Census indicated that the average household size within the City was approximately 3.2 persons per household in 1990, increasing to 3.3 persons per household in 2000. The increase in household size during the 1990's has resulted from many different factors. Among these factors, changing demographic patterns are most attributable to household size growth. For example, the City's growing Latino (person of Hispanic origin) population typically has larger and more extended families than their Caucasian counterparts, and as such may indirectly contribute to a portion of increased household size. Table 7 describes household size by renter and owner. Based on 1990 information, it appears that among both renters and owners, there is a need especially for units with two and three bedrooms to accommodate the majority of households, consisting of two to four persons. The Census shows a significant number of households with five or more persons as well, whose needs are best met by units with three or more bedrooms. TABLE 7 HOUSEHOLD SIZE BY TENURE 1990 CITY OF LAKE ELSINORE Households Renter Number Percent Owner Number Percent 1 Person 616 24.6% 648 18.2% 2 Person 547 21.9% 1,070 30.0% 3-4 Person 835 33.4% 1.328 37.3% 5+ Person 503 20.1% 519 14.6% Total 21501 100.0% 3,5651 100.0% Average Household Size 13.2 Source: 1990 U.S. Census, STF 3A. The Planning Center- Page 13 Jule, 2002 FINAL IT Community Profile 2. Household Income The Department of Housing and Urban Development (HUD) annually develops median household income estimates for the purpose of determining program eligibility. According to HUD, the 2000 median household income for Riverside County, which includes the City of Lake Elsinore, was $47,400. The median income for the Los Angeles -Long Beach MSA was slightly higher at $52,100 and the median income for Orange County was $69,600. Table 9 represents the number of households at each income category in Lake Elsinore based on the 1999 Riverside County median household income of $47,200. In 1999, SCAG reported that approximately 26% earned less than $23,700 annually; 18% earned between $23,701 and $37,920 annually; 10% earned between $37,921 and $45,030 annually; and 46% earned above $45,030 annually. The table demonstrates that a near majority of residents in Lake Elsinore are earning above 95% of County median income. TABLE 8 HOUSEHOLD INCOME BY TENURE 1999 CITY OF LAKE ELSINORE Income Category Total Renter °/ I Owner°/o Less than 30% 951 12%) 604 1B% 347 70/-o 30 to 50% 1,178(14%) 735(22%) 443(9%) 51 to 80% 1.501 18% 796 23% 705 15% 80% or greater 4.570(56%) 1,246 37% 3,324 6996 8.200 (100%) 3,381 (100%) 4,819 (100%) _TOTAL Source: SCAG 1999 TABLE 9 HOUSEHOLDS BY INCOME CATEGORY 1999 CITY OF LAKE ELSINORE Income Category Number of Households Percent of Households Very Low Income - up to $23,700 2,129 26% Low Income - $23,701 to $37,920 1,501 18% Moderate Income -$37,921 to $45,030 t 803 10% Above Moderate Income - Above $45,030 2 3,767 46% Tntal i 8,200 100% Source: SCAG RHNA 99: HUD MFI for the Riverside/San Bemardino MSA of $47,200 'Represents 80-95% of median income. 2Reoresents >95% of median income. Lower income households may require housing with rents or payments lower than market rates_ Often, payment assistance is needed from local, state or federal government agencies to assist these households in securing adequate housing. The City will continue to utilize available programs administered through the County and in conjunction with non-profit organizations to provide residents with affordable housing_ One measure of Lake Elsinore's socioeconomic well-being is the number and proportion of its residents living below federally established poverty levels. The U.S. Department of Health and Human Services annually determines poverty guidelines, which in April 2000 was $17,050 for a family of four persons, Page 14 Housing Element Update for the City of Lake Elsinore FINAL July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE adding or subtracting $2,900 per additional or less persons_ This threshold is applied on a national basis and is not adjusted for regional, state or local variations in the cost of living or earnings, except for Alaska and Hawaii. It is important to note the distinction between the terms 'household' and 'family'. A 'household' includes all the persons who occupy a housing unit. Households may be comprised of unrelated persons including roommates, unmarried couples who reside together, and single persons, as well as family households. A 'family' household consists of a householder and one or more other persons living in the same household who are related to the householder by birth, marriage, or adoption. A family household can contain only one family for purposes of census tabulations. Not all households contain families since a household may comprise a group of unrelated persons or one person living alone. The Census reports that 9.9% (591) of total households in Lake Elsinore were below the poverty level in 1990. Of the total households, 2.2% (134) were married couple families, 3.3% (200) were female head of households, less than 0.6% (38) were male -headed households (no spouse), and 3.7% (219) were non - family households. Table 10 summarizes the families below poverty level in 1990 and illustrates the distribution of poverty in the City of Lake Elsinore in 1990. TABLE 10 FAMILIES BELOW POVERTY LEVEL 1990 CITY OF LAKE ELSINORE Household Type Total Families Number of Households Below Poverty Level Percentage of Households Below Poverty Level Married Couple Families 3,356 134 2.2% Family With Children Farnity Without Children 2,077 1.279 112 22 1.9% 0.4% Male Households 345 38 0.6% With Children 146 28 0.5% Without Children 199 10 0.2% Female Households 708 200 3.3% With Chitdren 530 192 3.2%a Without Children 178 8 0.1% Non -Family 1,5841 219 3.7% Total Households ! 5,9931 591 9.9% Source: 1990 U.S. Census. STF 3A D. HOUSING INVENTORY AND MARKET CONDITIONS This section summarizes the housing inventory in the City of Lake Elsinore and prevailing market conditions_ Analysis of past trends in the housing stock provides a method of projecting the future housing needs of Lake Elsinore. Housing Stock Profile Data from the US Bureau of Census indicates that the housing stock in the City increased by 2,524 units between 1990 and 2000 at a rate of 36%. In contrast, housing stock in Riverside County increased at a rate of 21 %, or 100,827 units. Table 11 compares the growth rate of Lake Elsinore to Riverside County and to other local jurisdictions along the 1-15 corridor, including the cities of Corona, Murrieta, and Temecula. These local jurisdictions increased their housing stock by 48% (12,733), 54% (5,257), and 79% (8,440) respectively. Although the number of units produced in the City was not substantial, the The Planning Center July 2002 Page 15 FINAL II. Community Profile growth rate observed during the same period is significant. The City of Lake Elsinore's growth rate exceeded that of the County's by nearly two -fold. TABLE 11 REGIONAL COMPARISON OF TOTAL HOUSING STOCK 1990-2000 CITY OF LAKE ELSINORE Jurisdiction 1990 2000 % Change 1990-00 Riverside County 483,847 584,674 21% City of Lake Elsinore 6,981 9,505 36% Cfty of Corona 26,538 39,271 48% City of Murrieta' 9,664 14,921 54% City of Temecula 10.6591 19,099 79% Source: 1990 8 2000 U.S. Census 'The City of Murrieta officially became a City in 1991, therefore 1992 Department of Finance estimate was used instead of 1990 Census. a. Housing Stock The 2000 Census does not currently provide a breakdown of the housing stock by unity type. Accordingly, data provided by the California Department of Finance (DOF) has been utilized. Table 12 summarizes the city and countywide composition of the housing stock for the years 1990 and 2000. TABLE 12 COMPOSITION OF HOUSING STOCK BY UNIT TYPE 1990— 2000 CITY OF LAKE ELSINORE Typ e I 1990 Lake Elsinore Percent 2000 1 Percent 1990 Riverside Coun Percent 2000 Percent SF detached 3.637 52% 6,582 65% 274,915 57% 355,756 1 61% SF attached 707 10% 699 7% 38.387 8% 39,890 7% MF 2-4 units 619 9% 606 6% 25.708 5% 27.483 1 5% MF 5+ units 1,048 15% 1,434 14% 65,751 14% 81.396 14°% Mobile Homes 799 11% 829 8% 74,317 16% 77,894 13% Other 171 2% 4,769 1% ' Total 6,981 100% 10,150 100% 1 479,078 100% 582,419 100% 'DOF estimates do not contain "Other" category. Source: 1990 U. S. Census. STF 3A, Department of Finance Population 8 Housing Estimates 111100. Single-family detached units comprised an estimated 65% of housing units in 2000. Apartment complexes with 5 or more units provided the second most available housing opportunity, with 1,434, or 14% of total units. Mobile homes, Single —family attached, and apartment complexes with 2 to 4 units respectively constituted 8%, 7%, and 6% of total housing stock in the City. In terms of actual numbers of dwelling units in the City, the data suggests that between 1990 and 2000 the stock of attached single-family units increased most significantly with 2,945 additional new homes. Large multifamily units (5+ units) saw an increase of 356 units while 30 mobile homes were added to the City's housing stock between 1990 and 2000. During the same period, however, the number of single Page 16 FINAL Housing Element Update for the Citv of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE family attached units and the number of multifamily units (24 units) decreased by 8 units and 13 units, respectively. Since multi -family homes are usually renter occupied, this pattern of new construction is not atypical, considering that 59% of City units are owner occupied. During the coming planning period, the City will pursue maintenance and/or creation of more affordable rental options for those households financially unable to purchase homes through available programs administered by the County of Riverside. An evaluation of the adequacy of a community's housing stock needs to consider the type and size of housing provided to meet the specific needs of the community, as well as the affordability of these units. As shown previously in Table 7, 53.5% of total renter households are comprised of three or more persons in a household, which includes 20% of large households with 5 or more people. Similarly, about 52% of owner households are also comprised of three or more persons in a household, with approximately 15% representing large households with 5 or more people. Table 13 describes housing occupancy by unit size and housing type in 1990. The table indicates that over 88% of ownership units contained more than two bedrooms and over 59% contained more than three bedrooms. Approximately 67% of rental units contained two or more bedroom units and 25% contained three or more bedrooms. Based on the above data, the City's housing stock appears to provide a sufficient amount of housing units with three or more bedrooms to meet the demand generated by larger families. Additionally, the US Census indicated that approximately 13% of total housing units were vacant and available either for sale or rent. TABLE 13 HOUSING OCCUPANCY BY UNIT SIZE AND TYPE 1990 CITY OF LAKE ELSINORE Category Total Number I I % 1 0 8 1 Bedroom % Housing T 2 Bedrooms e % 3+Bedrooms Year Round HousiN 6,981 100% 1,638 23% 2,142 31% 3.201 46% Occupied Units 6,066 87% 1.213 17% 2,112 30% 2,741 39% -Rental Units 2.501 36% 816 12% 1,059 15% 626 9% - Ownership Units 3.565 51% 397 6% 1.053 15% 2.115 30% Total Vacant 915 13% 425 6% 30 0% 460 7% - Vacant for Rent 465 7% — — -- - Vacant for Sale 203 3% — -- - - Other Vacant/Seasonal 247 4% w — Source: 1990 U.S. Census. ST' 1A 8 STF 3A 2. Tenure At the time of the 1990 Census, the majority of occupied housing units in Lake Elsinore were owner - occupied (59%). Most owner occupied units were single-family detached, with 47% of the City's housing stock falling into this classification. Eleven percent of all units were composed of owners occupying mobile home units. Approximately 18% of the City's housing stock was offered as single-family detached rentals and all of the City's multi -family units were renter occupied. According to 1990 Census data, 952 elderly owner households and 239 elderly renter households were identified. Table 14 identifies occupied housing units by tenure in 1990. TABLE 14 OCCUPIED HOUSING UNITS BY TENURE 1990 CITY OF LAKE ELSINORE The Planning Center Julv 2002 Page 17 FINAL IT Community Profile Type Owner-Occu ied Units Number Percent 1 Renter -Occupied Units Number I Percent' Total Single -Family 2,833 47% 1,115 18% 3.948 24 Multi -family 28 0% 526 9% 554 5 or more MulWamii 21 0% 785 13% 806 Mobile Home 659 11% 75 1% 734 Other24 0% 0 0% 24 Total 3,565 59%1 2,501 41%1 6,066 I Represents proportion represented out of total housing units. Source: 1990 Census, STF 3A. The 2000 Census reported that the Lake Elsinore homeownership rate has increased to 65% in 2000, higher than the rates experienced nationally (57%) and throughout the region. This could be attributed in part to the fact that housing prices have usually been more affordable in Riverside County than neighboring Los Angeles and Orange Counties (47% and 61 % homeowners, respectively). Additionally, home -owning residents of the City may have had the opportunity to buy the property on which they live before land speculation skyrocketed Southern California land and housing prices in the late 1970's and early 1980's. It is important to note, however, that income levels in Lake Elsinore and Riverside County are lower than those found in Los Angeles and Orange Counties and can offset the advantage of lower housing prices. With its high ownership rate, Lake Elsinore's main challenge during this and coming planning periods will then be to increase homeownership for all segments of the population, especially for lower income citizens. 3. Vacancy Rates The vacancy rate is a measure of the general availability of housing. It also indicates how well the available units meet the current housing market demand. A low vacancy rate suggests that households may have difficulty finding housing within their price range; a high vacancy rate may indicate either the existence of a high number of units undesirable for occupancy, or an oversupply of housing units. The availability of vacant housing units provides households with choices on different unit types to accommodate changing needs (i.e., single persons, newly married couples and elderly households typically need smaller units than households with school age children). A low vacancy rate may serve to increase market rents and housing prices, as shortages tend to result in higher prices and may limit the choices of households in finding adequate housing. It may also be related to overcrowding, as discussed in later sections. The Regional Housing Needs Assessment (RHNA) prepared by SCAG in 1999 identifies a target vacancy rate of 3.1% for its member jurisdictions. However, a vacancy rate of between 3% and 5% is considered normal, so that it ensures the continued upkeep of rental properties and keeps housing costs down. The 2000 Census indicated a vacancy rate of 7.2% for the City of Lake Elsinore. Lake Elsinore's vacancy rate has steadily decreased since 1990, when the vacancy rate was at 13%. Among Riverside County cities, Lake Elsinore's vacancy rate was moderate. It was, however, at the higher end among jurisdictions whose vacancy rates are not greatly inflated by the resort characteristics or abundance of vacation units in those jurisdictions, such as the case in Indian Wells or Rancho Mirage. 4. Age of Housing Stock Age is one measure of housing stock conditions and a factor for determining the need for rehabilitation. Without proper maintenance, housing units deteriorate over time. Units that are older are likely to be in need of repairs (e.g. a new roof or plumbing). As a general rule of thumb, houses 30 years or older are Page 18 FINAL Housing Element Update for the City of Lake Elsinore July 2002 City of Lake Elsinore HOUSING ELEMENT UPDATE considered aged and are more likely to generate major repairs. In addition, older homes may not be built to current housing standards for fire and earthquake safety. A majority of all residences in the City were constructed during between 1970 and 1990. Housing stock built prior to 1970 constitutes only 16.5% (N=1,692) of total housing units. However, between 1970 and 1980, 1,288 units (12.5%) were built in the City, ensued by construction of 4,001 units (38.9%) during 1980-1990 period. In the past decade from 1990 to 1999, 3,309 units were constructed, constituting 32.2% of total housing stock. Houses constructed in the past two decades constitute 71 % of the total housing stock, therefore, 8,598 out of 10,290 units in the City Lake Elsinore were built since 1970 and do not require a higher level of improvements due to age. According to the 1990 Census, the majority of occupied rental units were constructed since 1970 (67%) and nearly half (47%) were constructed since 1980. A higher proportion of owner -occupied units were built since 1970 (81 %) and over 62% were constructed since 1980. TABLE 15 AGE OF HOUSING STOCK CITY OF LAKE ELSINORE Year Built Number of Units Percent of Units Rental I Tenure Owner I Vacant Before 1940 482 4.7% 296 1351 51 1940 —1949 295 2.9% 130 116 49 1950 —1959 461 4.5% 226 211 24 1960 —1969 454 4.4% 164 228 62 1970-1979 1,288 12.5% 506 648 134 1980 -March 1990 4,001 38.9% 1,179 2.227 595 1990 —June. 1999 3.309 1 32.2% 1 N/A NIA NIA Total 10,290 100.0% - — - Source: 1990 U.S. Census, STF-3A. Economic Sciences Corp, County of Riverside. Market Profiles. 5. Housing Conditions Housing is considered substandard when physical conditions are determined to be below the minimum standards of living, as defined by Section 1001 of the Uniform Housing Code. Households living in substandard conditions are considered as being in need of housing assistance even if they are not actively seeking alternative housing arrangements. Although a housing conditions survey has not been conducted in recent years, estimates from the Riverside County Consolidated Plan indicate that approximately 10 percent of the Lake Elsinore housing stock (1,290 units) is considered substandard. The need for housing rehabilitation is recognized primarily within the City's three Rancho Laguna Redevelopment Project Areas. According to the City of Lake Elsinore Redevelopment Agency's 2000-2004 Redevelopment and Housing Implementation Plan, redevelopment expenditures may be spent on the rehabilitation of existing housing stock in all three project areas. In addition to structural deficiency and standards, the lack of certain infrastructure and utilities often serves as an indicator of substandard conditions. These types of problems have not been as pronounced in Lake Elsinore as in some other Riverside County jurisdictions, but exist for a small number of residents nonetheless. According to the 1990 Census, there were 67 units lacking complete plumbing facilities, The Planning Center Page 19 Jzrhv 2002 FINAL