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HomeMy WebLinkAboutItem No. 03 Staff Report Page 1 of 8 REPORT TO PLANNING COMMISSION To: Honorable Chair and Members of the Planning Commission From: Damaris Abraham, Community Development Director Prepared by: Sophia Tatlyan, Contract Senior Planner Date: December 2, 2025 Subject: Planning Application No. 2024-04 (Walmart Gasoline Station) – Commercial Design Review and Conditional Use Permit to Establish a New Walmart Gasoline Station and Convenience Store on an Approximately 1.10-Acre Project Site Within the Existing Walmart Supercenter Retail Center Located at 29260 Central Avenue Applicant: Ryan Alvarez, Kimley Horn & Associates Recommendation Provide staff with direction to prepare resolution(s) based on the Planning Commission’s action(s) on Conditional Use Permit No. 2024-04 and Commercial Design Review No. 2024-02 and bring back the draft resolution(s) at the next available Planning Commission meeting as a Consent Calendar item of the agenda for adoption. Planning Commission Actions On October 21, 2025, the Planning Commission (Commission) held a duly noticed public hearing to consider Commercial Design Review (CDR No. 2024‑02) and Conditional Use Permit (CUP No. 2024‑04). At the public hearing, the Commission heard the staff presentation on the item, took public comments, asked staff and the applicant questions, and deliberated on the proposed project. During deliberations, the Commission expressed the following concerns about the proposed Walmart brand gasoline station with a convenience store: • Traffic: The potential to exacerbate existing traffic congestion at major intersections along Central Avenue which currently are impacted e.g. Central Avenue/Cambern Avenue, Central Avenue/Interstate 15 Ramps, Central Avenue/Collier Avenue, and Central Avenue/Dexter Avenue. • Land Use: The oversaturation of gasoline stations along this major commercial corridor. PA-2024-08 (Walmart Gas Station) Page 2 of 8 • Parking: The potential parking impacts to the Walmart parking lot, given that the proposed gasoline station would be located within a portion of the existing parking lot. To allow the applicant time to address these issues, the Commission continued the item to the December 2, 2025, Planning Commission meeting with a 5-0 vote. Discussion During the initial submittal and review of the proposed project, City staff from the Planning Division and Engineering Department expressed concerns with the gasoline station’s design and layout. Staff discussed the proposed layout’s access points and how it may have adverse impacts on the existing internal circulation within the shopping center, in addition to potential impacts to existing traffic along Central Avenue. The applicant understood and heard City staff’s circulation concerns and modified their site layout to create a more “self-contained” gasoline station. The Design Review plans presented to the Planning Commission at the October 21, 2025, public hearing reflected that modification. While the Planning Commission discussed their concerns with the current traffic conditions along Central Avenue, it should be noted that a typical TIA must also consider the current traffic conditions without the project, traffic conditions with the project, and traffic conditions with the project and future buildout. Future buildout would also include any planned roadway and/or freeway interchange improvements. It is anticipated that the traffic conditions with the project and future buildout would improve over time as roadway and freeway improvements are constructed and implemented. In the interim, the project would be required to improve traffic signal timings to address their potential immediate traffic impacts. Planning Division staff also discussed with the applicant the potential parking impacts to the Walmart parking lot. Staff highlighted to the applicant that Walmart is one of the only few major general merchandise retail stores currently in Lake Elsinore that serves the community, and as such, Walmart’s parking lot can get impacted during peak demand times throughout the week, including weekends. Although the proposed gasoline station would remove parking spaces, the applicant was able to relocate these spaces throughout the existing parking lot to ensure the center would still meet its minimum parking requirements. As proposed, the Walmart center would exceed its parking requirements by one space. Planning Division staff also made the applicant aware of the community’s concern with the lack of diverse retail/commercial uses, given the proliferation of gasoline stations in the City’s commercial areas. There are currently three (3) existing gasoline stations with convenience stores along an approximately 0.25-mile stretch on Central Avenue between Dexter Avenue and Cambern Avenue. In addition, a fourth gasoline station with a convenience store is currently under construction at the Evergreen Development adjacent to the Walmart Supercenter retail center. The intent of proposing a Walmart brand gasoline station is to offer customers a convenient and lower-cost gasoline option, especially for the Walmart+ Members. PA-2024-08 (Walmart Gas Station) Page 3 of 8 Applicant’s Supplemental Information To address the Commission’s traffic and parking concerns, the applicant prepared a Trip Generation Memorandum (dated November 14, 2025) to further clarify the project’s anticipated traffic impacts as analyzed in the Traffic Impact Analysis (TIA), which was reviewed and approved by the Engineering Department. In addition, the applicant conducted a site survey of the existing Walmart parking lot and included their observations in a photo report. Both the Trip Generation Memorandum and photo report are included as Attachment 6. The Trip Generation Memorandum noted that the characteristics of the proposed project site and the surrounding area may further reduce the number of vehicle trips due to “internal capture.” Since the gasoline station is proposed to be located within the Walmart parking lot alongside other retail, restaurant, and service uses, many vehicle trips are expected to remain internal to the site. Meaning these “internal capture” trips would not add new or more traffic to the existing conditions. Furthermore, the presence of multiple nearby gasoline stations would disperse demand, reducing overall traffic impacts at each location. In summary, while the approved TIA provides a conservative estimate, actual traffic impacts from the Walmart gasoline station are expected to be lower due to internal trip capture and local market conditions. The photo report provides a visual parking survey during peak traffic time(s). Weekday photographs were taken on Friday, November 14, 2025, and weekend photographs on Saturday, November 22, 2025, at multiple locations throughout the Walmart parking lot. According to the applicant, these timeframes were selected based on Walmart’s highest transaction volumes for the Lake Elsinore store. Based on the applicant’s parking survey, there appear to be, on average, three (3) to four (4) spaces available for every 10 spaces on a weekday and one (1) space for every 10 spaces available on the weekend during peak periods. The project location, project description, background, and analysis from the October 21, 2025, Planning Commission staff report are included in this report in the sections below. Project Location The project site is located within an existing retail center with a Walmart Supercenter located at 29620 Central Avenue which is bound by Cambern Avenue to the northeast, Third Street to the southwest, and Central Avenue to the northwest. Other retail businesses within the center include Taco Bell, Raising Cane’s, 7-Eleven, and AutoZone. The entire retail center is 17.66-acres in size; however, the proposed gasoline station and convenience store buildings are located on an approximately 1.10-acre area near the southern portion of the larger retail center which includes Assessor Parcel Numbers (APNs) 377-090-053 and 377-090-052. The property is currently zoned as General Commercial (C-2). PA-2024-08 (Walmart Gas Station) Page 4 of 8 Environmental Setting EXISTING LAND USE GENERAL PLAN ZONING Project Site Commercial General Commercial (GC) / Commercial Mixed Use (CMU) General Commercial (C-2) / Commercial Mixed Use (CMU) North Vacant General Commercial (GC) General Commercial (C-2) South Vacant Commercial Mixed Use (CMU) Commercial Mixed Use (CMU) East Residential Medium Density Residential (MDR) Medium Density Residential (R-2) West Commercial General Commercial (GC) General Commercial (C-2) Table 1: Environmental Setting Background On December 1, 2015, the City Council approved a 17.66-acre commercial retail center which included a 154,487 square-foot Walmart Supercenter and 16,000 square feet of retail/restaurant space for the three outlot pads along Central Avenue. More specifically, the City Council approved the following entitlements: • Commercial Design Review (CDR) No. 2013-09 for the design of the retail center’s new commercial/retail buildings; • Conditional Use Permit (CUP) No. 2013-06 to allow the Walmart Outdoor Garden Center and Outdoor/Seasonal Display; and • CUP Nos. 2013-08 and 2013-09 to allow fast-food restaurants with drive-throughs in the outlot pads. The original entitlements also included an additional CUP (CUP No. 2013-07) for a Walmart brand gasoline station, 3,100 square-foot convenience store, and drive-through carwash that was proposed to be located at the outlot pad along the corner of Central Avenue and Cambern Avenue. However, the City Council denied CUP No. 2013-07 which the Planning Commission had also recommended denial at their meeting on November 3, 2015. The Planning Commission denied said CUP based on their concern as well as the community input during public comments that there is a potential oversaturation of gasoline stations in the City especially along the major commercial corridor on Central Avenue – which the City Council also concurred. The Walmart Supercenter has been fully developed and in operation in the City since March 2021. In addition, the retail center includes two drive-through restaurants that are approximately 5,900 square feet and one retail building approximately 7,500 square feet. The total existing outlot development is approximately 13,400 square feet which leaves about 2,600 square feet of retail uses remaining from the originally entitled 16,000 square feet. Project Description Planning Application No. 2024-08 is a request for a Commercial Design Review (CDR No. 2024- 02) and Conditional Use Permit Review (CUP No. 2024-04) to allow and construct a new Walmart brand gasoline station with a convenience store within the southern portion of the existing Walmart Supercenter parking lot. The proposed project does not include a drive-through carwash, car repair, or other car maintenance related services. PA-2024-08 (Walmart Gas Station) Page 5 of 8 The proposed gasoline station features an approximately 5,400 square-foot overhead fueling canopy, including eight multi-product gasoline pump islands with two dispensers per pump island (16 dispensers total). The project proposes utilizing the remaining 2,600 square feet of retail to construct a new 1,618 square-foot convenience store in conjunction with the gasoline station. The convenience store is not proposing to sell offsite alcohol at this time, but a separate review process would be required to request that which may be subject to a future public hearing. The proposed project would also involve minor exterior site improvements such as new trash enclosure, landscaping, and modifications to the on-site circulation and parking to accommodate the new gasoline station and convenience store. The parking lot modifications include removing 61 standard parking spaces, reallocating parking spaces throughout the retail center, re-striping 148 standard spaces to create 172 compact parking spaces, adding 21 new compact parking spaces, and providing additional parking spaces, including accessible spaces near the proposed convenience store entrance. Analysis The analysis below provides a discussion of the proposed project’s consistency with the General Plan and the Lake Elsinore Municipal Code (LEMC) including the nonresidential development standards and requirements. In addition, the Design Review Committee, including staff from Planning, Building and Safety, Fire, and Engineering Departments and the Elsinore Valley Municipal Water District, has reviewed the project and have included recommended conditions of approval to ensure compliance with adopted plans, policies, and regulations. General Plan Consistency The subject site has General Plan Land Use designations of General Commercial (GC) and is in the Business District. The GC designation provides for retail, services, restaurants, professional and administrative offices, hotels, and motels, mixed-use projects, public and quasi- public uses, and similar and compatible uses with a maximum 0.40 floor area ratio (FAR). This designation aligns with the proposed gasoline station with convenience store in that it provides a service compatible with the surrounding retail and commercial uses. The proposed project involves the construction of a gasoline station and convenience store within the existing Walmart Supercenter parking lot, resulting in a project FAR of 0.21. Therefore, the project is consistent with the General Plan Land Use designations. Municipal Code Consistency The current zoning designations of the subject site are C-2 and CMU. The proposed gasoline station and convenience store uses are located entirely within the portion of the property that is within the C-2 zone. Pursuant to LEMC Section 17.124.030 of the C-2 zone, uses subject to a CUP in the C-1 zone also require a CUP in the C-2 zone. Gasoline stations in the C-1 zone are subject to a CUP as indicated in LEMC Section 170.120.030 of the C-1 zone. Pursuant to Section 17.112.090.D, a convenience store in conjunction with a gasoline station is also subject to a CUP. As such, a CUP is required for both the gasoline station and convenience store uses. PA-2024-08 (Walmart Gas Station) Page 6 of 8 The proposed uses have been analyzed for consistency and compliance with the C-2 development standards. Staff reviewed the project plans and have determined that the proposed uses would conform to the C-2 development standards and requirements including parking. Although the proposed project would remove parking spaces, the project would continue to comply with the minimum parking requirements for both the Walmart Supercenter and proposed uses. Furthermore, the proposed gasoline station has been designed to comply with the Gasoline Dispensing Establishment standards contained in LEMC Section 17.112.090 including the minimum site size, setbacks for the pump islands and canopy, walls, landscaping, and signage. Refer to Table 2 below for a comparison of the required development standards and proposed project. Development Standard Required Proposed Setbacks Front Yard 20 feet Greater than 30 feet Gasoline Pump Island 30 feet from any property line Greater than 30 feet Fueling Canopy 20 feet from any property line Greater than 30 feet Maximum Building Height Fueling Canopy 45 feet 17 feet 8 inches Convenience Store 45 feet 17 feet 6 inches Parking1 Gasoline Station/Convenience Store One (1) space per 250 SF = 7 parking spaces 626 parking spaces Existing Walmart Supercenter One (1) space per 250 SF = 618 parking spaces Total Required 625 parking spaces 1Parking calculations shown are only for Walmart and proposed uses. Parking requirements for the outlot uses are calculated and provided separately from Walmart. Table 2: Development Standards Architecture and Site Design The architectural design of the proposed gasoline station and convenience store complies with the Nonresidential Development Standards (Chapter 17.112) of the LEMC. The proposed convenience store building elevations feature a contemporary architectural style that complements the existing Walmart Supercenter. The building elevations incorporate horizontal and vertical lines, articulated through a combination of materials, colors, and signage. The exterior façade utilizes both smooth face and split face concrete masonry units, with stucco finishes in cool-toned palettes—primarily grey with blue accents—mirroring the established Walmart color scheme. The fueling canopy is designed to integrate with the convenience store and surrounding development, employing clean lines and consistent branding elements. Lighting fixtures, signage, and architectural detailing are coordinated to ensure visual harmony across the site. PA-2024-08 (Walmart Gas Station) Page 7 of 8 Furthermore, the proposed landscaping plan includes drought-tolerant plantings, including trees, shrubs, and ground cover, are strategically placed to soften building edges, provide shade, and break up expanses of pavement. The landscape design supports water-efficient practices and contributes to the overall compatibility of the project with adjacent commercial uses. Traffic Impact Analysis A Traffic Impact Analysis (TIA) was prepared by Kimley-Horn and Associates for the project (Attachment 6) since one was required by the Engineering Division. The purpose of the analysis is to assess the project’s potential traffic impacts, if any, to the surrounding road network including existing intersections and roadway segments. Most intersections are expected to function well, but the following three key locations are projected to experience congestion under future traffic conditions: • Cambern Avenue at Central Avenue • I-15 Northbound Ramps at Central Avenue • I-15 Southbound Ramps at Central Avenue These deficiencies are primarily due to regional growth and impacts from cumulative development projects within the surrounding vicinity. To address the deficiency at the Cambern Avenue and Central Avenue intersection, the project is conditioned and required to adjust traffic signal timing to improve traffic flows and alleviate delays. In terms of the improvements for the freeway ramp intersections, the project is not required to make direct improvements since the planned I-15/State Route 74 Interchange Improvement Project is expected to alleviate congestion at freeway ramp intersections. The TIA also analyzed on-site circulation specifically at the driveway entrances to ensure that any vehicle queuing would not impede on-site circulation flow as well as spill off-site onto the public streets. Driveway queuing analysis indicated that Driveway 4 at Dexter Avenue may experience excessive queuing during peak hours, potentially impacting internal circulation. To address this, the project would also be conditioned and required to adjust traffic signal timing at Dexter Avenue and Central Avenue if the interchange improvements are delayed. In addition, the project has also been conditioned to provide a queuing management plan prior to occupying the building. Should the use result in concerns related to parking and traffic, a condition of approval has been included to refer the CUP back to Planning Commission for a subsequent review at a public hearing. Environmental Determination Pursuant to CEQA Guidelines Section 15162, staff has determined that the proposed project would not have a significant effect on the environment and no new environmental documentation is necessary because all potentially significant effects have been adequately analyzed in an earlier certified Environmental Impact Report (EIR; SCH No. 2014051093). All potentially significant impacts have been avoided or mitigated pursuant to the earlier certified EIR and none of the conditions described in Section 15162 exist. EIR (SCH No. 2014051093) was adopted by the City Council on December 1, 2015. No substantial changes which require major revisions to PA-2024-08 (Walmart Gas Station) Page 8 of 8 the certified EIR exist and no new information of substantial importance which requires revisions to the earlier certified EIR exist. Therefore, no further additional environmental documentation is necessary. MSHCP Consistency The Project is consistent with the Western Riverside County Multiple Species Habitat Conservation Plan (MSHCP). The proposed project site is not located in a Criteria Cell and was not required to be processed through the Lake Elsinore Acquisition Process (LEAP) and Joint Project Review (JPR) processes. The project complies with all other applicable requirements of the MSHCP. Public Notice Notice of the public hearing has been published in the Press-Enterprise newspaper and mailed to property owners within 500 feet of the subject properties. As of the writing of this report, no written comments concerning these applications have been received by staff. Attachments Attachment 1 – Conditions of Approval Attachment 2 – GIS Exhibits Attachment 3 – Design Review Package Attachment 4 – Traffic Impact Analysis Attachment 5 – CEQA Consistency Analysis Attachment 6 – Applicant Supplemental Info Attachment 7 – Public Notice Package