SPECIFIC PLAN
COVINA TOWN CENTER
FINAL
COVINA TOWN CENTER
SPECIFIC PLAN
FINAL
November 2004
Prepared for:
City of Covina
Community Development Department
125 E. College Street
Covina, CA 91723
Prepared by:
Cotton/ Bridges/ Associates
A Division of P& D Consultants
Urban Planning and Environmental Consulting
3840 Rosin Court, Suite 130
Sacramento, CA 95834
( 048178171.0000)
TOWN CENTER SPECIFIC PLAN TOC- 1 CITY OF COVINA
TABLE OF CONTENTS
Page
Chapter I Executive Summary .................................................... I- 1
A. Purposes and Objectives ....................................................................................... I- 1
B. Geographic Context................................................................................................ I- 1
C. Policy and Regulatory Context ............................................................................. I- 3
D. Summary of Existing Conditions and Relevant Findings ................................. I- 4
E. Issues, Opportunities, and Challenges ................................................................ I- 6
F. Land Use and Circulation..................................................................................... I- 14
G. Infrastructure Plan.................................................................................................. I- 28
H. Administration and Financing ............................................................................. I- 30
I. Plan Preparation Process and Public Participation......................................... I- 30
Chapter II Introduction .............................................................. II- 1
A. Specific Plan Purpose and Regulatory Nature ................................................. II- 1
B. Specific Plan Purpose and Regulatory Nature ................................................. II- 2
C. Project Location ...................................................................................................... II- 3
D. Environmental Review and Coordination ......................................................... II- 8
E. Key Issues ................................................................................................................. II- 8
F. Public Participation Process and Results ......................................................... II- 12
G. Statutory Authority and Requirements ............................................................ II- 13
H. Regulatory Context............................................................................................... II- 14
I. Specific Plan Contents ......................................................................................... II- 15
Chapter III Existing Physical and Socio- Economic Conditions ..... III- 1
A. Overview ................................................................................................................. III- 1
B. Existing Physical Conditions ................................................................................ III- 5
C. Economic and Fiscal Conditions....................................................................... III- 35
D. Demographic Conditions................................................................................... III- 41
E. Opportunities and Constraints.......................................................................... III- 43
Table of Contents
TOWN CENTER SPECIFIC PLAN TOC- 2 CITY OF COVINA
Chapter IV Policy and Regulatory Context.................................. IV- 1
A. Covina General Plan ............................................................................................ IV- 1
B. 2002 Downtown Conceptual Master Plan................................................... IV- 11
C. Redevelopment Planning .................................................................................. IV- 14
D. Zoning and Design Guidelines ........................................................................ IV- 15
Chapter V Land Use and Circulation Plan .................................. V- 1
A. Background and Context ...................................................................................... V- 1
B. Key Relevant Policies from the General Plan................................................... V- 3
C. Guiding Principles................................................................................................... V- 5
D. Land Use Goals, Policies, and Objectives......................................................... V- 7
E. Land Use Designations....................................................................................... V- 10
F. Circulation Goals, Policies, and Objectives ................................................... V- 15
G. Recommended Improvements ......................................................................... V- 16
H. Regulatory Requirements................................................................................... V- 23
Chapter VI Infrastructure and Services Plan ............................... VI- 1
A. Goals and Policies for Infrastructure Improvements and Public
Services ................................................................................................................... VI- 2
B. Recommended Improvements .......................................................................... VI- 3
Chapter VII Administration ........................................................ VII- 1
A. Implementing Regulations and Ordinances .................................................. VII- 1
B. Recommended Physical Improvements ......................................................... VII- 3
C. Public Services.................................................................................................... VII- 10
D. Projects in Process............................................................................................. VII- 10
E. Subsequent Development Entitlements........................................................ VII- 11
F. Specific Plan Cost Recovery Fees .................................................................. VII- 12
G. Plan Amendment Procedures ......................................................................... VII- 12
H. Environmental Documentation....................................................................... VII- 13
APPENDICES
Appendix A: List of Preparers....................................................................... A- 1
Appendix B: Bibliography............................................................................ B- 1
Appendix C: Precise Description of the Specific Plan Area Boundary............ C- 1
Table of Contents
TOWN CENTER SPECIFIC PLAN TOC- 3 CITY OF COVINA
LIST OF TABLES
Chapter III Existing Physical and Socio- Economic Conditions
III- 1 Existing Land Uses in Specific Plan Area....................................................... III- 5
III- 2 Commercial Property Values in Downtown Covina.................................. III- 6
III- 3 Housing Stock Downtown, Comparison Areas .......................................... III- 8
III- 4 Median Single- Family Home Sales Price, 1999- 2003, Downtown
Covina................................................................................................................... III- 9
III- 5 Median Gross Rent as a Percentage of Monthly Income....................... III- 10
III- 6 Housing Units and Vacancy .......................................................................... III- 10
III- 7 Existing Parks in or near Town Center Specific Plan Area ...................... III- 11
III- 8 Roadway LOS.................................................................................................... III- 15
III- 9 Existing Intersection Volume- to- Capacity Ratio and LOS ....................... III- 16
III- 10 Water Consumed in Downtown Covina by Land Use, 2003................ III- 30
III- 11 Portion of Population in Workforce............................................................. III- 35
III- 12 Place of Residence versus Place of Work .................................................. III- 36
III- 13 Transportation Mode Share ........................................................................... III- 37
III- 14 Total Population of Covina and Comparison Areas................................. III- 41
III- 15 2000 Total Population and Median Age, Downtown Covina and
Comparison Areas............................................................................................ III- 41
III- 16 Average Household Sizes and Household Types..................................... III- 42
III- 17 Tenure, Specific Plan Area versus Comparison Areas ............................. III- 42
III- 18 Median Household Income by Householder Age ................................... III- 43
Chapter IV Policy and Regulatory Context
IV- 1 Land Use and Circulation Element Policies, and Implementation
Measures and Relevance to Specific Plan................................................... IV- 4
Chapter VI Infrastructure and Services Plan
VI- 1 Water Lines in Need of Replacement .......................................................... VI- 4
VI- 2 Sewer System Recommended Improvements............................................ VI- 6
VI- 3 Covina 2004 – 2009 Capital Improvements Program Projects.............. VI- 8
Table of Contents
TOWN CENTER SPECIFIC PLAN TOC- 4 CITY OF COVINA
LIST OF FIGURES
Chapter I Executive Summary
I- 1 Covina Town Center Specific Plan Area......................................................... I- 2
I- 2 Land Use Plan Diagram .................................................................................... I- 20
I- 3 Proposed Circulation......................................................................................... I- 25
Chapter II Introduction
II- 1 Regional Location Map...................................................................................... II- 5
II- 2 Local Setting ......................................................................................................... II- 6
II- 3 Covina Town Center Specific Plan Area........................................................ II- 7
Chapter III Existing Physical and Socio- Economic Conditions
III- 1 Existing Land Use ( 2004) .................................................................................. III- 3
III- 2 Census Tracts and Block Groups in Downtown Covina........................... III- 4
III- 3 Existing Circulation........................................................................................... III- 17
III- 4 Foothill System Map in Covina Area ........................................................... III- 18
III- 5 Metrolink Regional Commuter Lines........................................................... III- 19
III- 6 Potential Historical Resources....................................................................... III- 21
III- 7 Existing Facilities and Public Services ......................................................... III- 32
III- 8 Existing Water and Sewer Lines .................................................................... III- 33
III- 9 Existing Storm Drainage.................................................................................. III- 34
Chapter IV Policy and Regulatory Context
IV- 1 General Plan Designations............................................................................ IV- 10
IV- 2 2002 Downtown Conceptual Master Plan ............................................... IV- 13
IV- 3 Redevelopment Project Areas within Specific Plan Area....................... IV- 16
IV- 4 Zone Designations.......................................................................................... IV- 18
Chapter V Land Use and Circulation Plan
V- 1 Land Use Plan Diagram .................................................................................. V- 14
V- 2 Proposed Circulation....................................................................................... V- 22
Chapter VI Infrastructure and Services Plan
VI- 1 Water Lines......................................................................................................... VI- 5
VI- 2 Deficient Sewer Lines....................................................................................... VI- 7
CHAPTER I
EXECUTIVE SUMMARY
TOWN CENTER SPECIFIC PLAN I- 1 CITY OF COVINA
I. EXECUTIVE SUMMARY
A. PURPOSE AND OBJECTIVES
The Covina Town Center Specific Plan is intended to implement the City’s vision for downtown
Covina as:
• A place where people can live, work, shop, and play without needing their cars;
• A local and regional center of public and business activity;
• A place where local history has been preserved through the protection of historic buildings
and activities associated with those buildings; and,
• An opportunity to experience a traditional downtown with a small- town ambience.
The overall goal of the Specific Plan is to facilitate revitalization of downtown Covina by increasing
the number and variety of retail and other commercial establishments, increasing the number of
housing units and residents in the downtown area, stimulating development on vacant infill and
under- used properties, and improving public infrastructure, facilities, and services to support new
development.
Guiding principles that have been included in the Specific
Plan are:
1. Return the focus of civic, social, and economic
activity
2. Encourage more people to live downtown
3. Protect and build upon downtown’s unique
character
4. Provide ample public spaces for multiple uses
5. Encourage people to leave their cars behind
The Town Center Specific Plan implements the General Plan as it relates to the Specific Plan Area,
and implements other City policy documents and redevelopment policies for the downtown. The
density requirements, development standards, land use restrictions, and changes to design
guidelines promulgated in this Specific Plan are intended to replace requirements of the City’s
Zoning Ordinance within the Specific Plan Area, where necessary, although the City’s Subdivision
Ordinance, Oak Tree Ordinance, Site Plan Review Process, Building Codes, and other citywide
policies and regulations would continue to apply.
B. GEOGRAPHIC CONTEXT
The Town Center Specific Plan covers the area generally known as downtown Covina and is
generally bounded by the Union Pacific tracks on the north ( also used by Metrolink), North First
Avenue on the east, Badillo Street on the south, and North Fourth Avenue/ Valencia Place/ Pollard
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TOWN CENTER SPECIFIC PLAN I- 2 CITY OF COVINA
Lane on the west. Specific geographic description of the plan boundaries are provided below. A
map showing the boundaries of the Specific Plan Area can be found in Figure 1- 1.
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TOWN CENTER SPECIFIC PLAN I- 3 CITY OF COVINA
C. POLICY AND REGULATORY CONTEXT
The Town Center Specific Plan is based on policies contained in the 2000 Covina General Plan
update. The Specific Plan further refines General Plan policies by incorporating concepts contained
in the 2002 Downtown Conceptual Master Plan, which was the product of rather extensive public
outreach and City staff work. The General Plan recognizes the central importance of downtown
Covina, and various goals, policies, and implementation programs are presented that promote
development and redevelopment, quality of life, level and quality of public services and facilities for
downtown. The General contains two specific policies ( Goal 3 of the Land Use Element) directly
related to downtown revitalization: These policies state:
Policy 10. Pay particular attention to the special needs and character of the downtown,
continue appropriate economic revitalization, physical enhancement, and use refinement
activities that will attain a greater variety of retail businesses, attract more people, and
generate more sales tax and overall vitality, and consider incorporating mixed uses within
an “ urban village” or livable cities concept, including residential on top of commercial, to
bolster social and economic activity to best exploit Metrolink Commuter Train Station
proximity, to provide needed housing, and to reduce vehicular trips.
Policy 18. Develop a Town Center/ Downtown Specific plan to provide the City with a
viable, comprehensive blueprint for making land use, traffic, parking, and redevelopment
decisions in light of the district’s unique features, uses, and infrastructure, historic,
resources, and circulation network.
Development of this Plan included analysis of the existing City Zoning Ordinance and Downtown
Design Guidelines ( last updated in 2001). This Specific Plan includes recommendations for
amending these policy documents to ensure continued consistency among City policies and to
promote Specific Plan objectives. Specific Plan policy also considers City regulations and financing
strategies relevant for downtown, including the Downtown Business Area Enhancement District and
Downtown Parking District # 1.
The Specific Plan also seeks to implement redevelopment goals and objectives that are included in
the three redevelopment project area plans that cover portions of downtown Covina and many of
the concepts included in a conceptual master plan for downtown presented to the City Council in
2002. The Master Plan envisioned several mixed- use projects being developed downtown and the
creation of new Civic Center complex centered on a town square. The Plan encompassed the
community’s desire to vitalize the downtown and encourage private investment and redevelopment
of the historic center of the city.
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TOWN CENTER SPECIFIC PLAN I- 4 CITY OF COVINA
D. SUMMARY OF EXISTING CONDITIONS AND RELEVANT
FINDINGS
1. Land Uses
Downtown Covina and the surrounding neighborhoods are characterized by diverse land uses,
including commercial retail and office, light industrial, civic and public uses, a medical center and
medical offices, parks, single- family residences, and multi- family residences. Most lots are small and
narrow, although there are several large parcels ( primarily public and institutional land uses).
The historic downtown along Citrus Avenue evolved
perpendicular to the Pacific Electric’s ( now Union Pacific)
San Bernardino railroad line, which provided a route for
the shipment of citrus, cement, oil, gravel, and
manufactured products during the early 1900s. By 1895,
with the arrival of the railroad, new commercial
construction began along Citrus Avenue. During the last
half of the 1890s, most of the early frame structures
downtown had been replaced by two- story brick buildings
located adjacent to, or connected to one another.
Covina’s early civic, cultural, religious, and trading
buildings were either built on Citrus Avenue or within
short walking distance of Citrus Avenue. Most major city and civic land uses are still located
downtown. One- and two- story buildings built at the front property line create a traditional main
street atmosphere along Citrus Avenue. Buildings on surrounding streets have a larger front setback
area, and the inclusion of off- street parking areas reduces the building mass abutting sidewalks and
streets.
Today, civic ( City, federal, and State) and institutional land uses ( civic, religious, fraternal, and social
service) are concentrated between Citrus Avenue, College Street, Second Avenue, and San
Bernardino Road. Medical facilities and support services, including the Citrus Valley Medical Center
( Inter- Community Campus), are concentrated east of Citrus Avenue, between San Bernardino Road,
Fourth Avenue, Badillo Street, and Third Avenue. New and used automobile dealers are primarily
located along West San Bernardino Road and North Citrus Avenue. Automotive repair and parts
services are also clustered in this area, primarily along East Front Street and Citrus Avenue north of
West San Bernardino Road.
Retail uses are concentrated along the major roadways in the downtown, including Citrus Avenue
and Badillo Street. Industrial land uses and buildings are located on both sides of the railroad line
north of San Bernardino Road. Residential development is predominant north of the railroad line,
west of Covina Park, east of First Avenue, and south of Center Street. Multi- family residential
development exists along primary and secondary arterial streets. Office development consists
mostly of medical/ dental offices in the southwestern portion of downtown and City offices along
Citrus Avenue and First Avenue.
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TOWN CENTER SPECIFIC PLAN I- 5 CITY OF COVINA
Four parks are within or adjacent to Downtown Covina: Civic Park, Covina Park, Edna Park, and
Kelby Park.
Major arterials in the downtown area include San Bernardino Road and Badillo Street, which are
oriented east to west, and Hollenbeck Avenue, Citrus Avenue, and Barranca Avenue, which are
oriented north to south. Citrus Avenue is the focus of the City’s downtown business district.
Second Avenue serves as a secondary arterial street within the downtown area and an alternative
north- south route to Citrus Avenue. Narrower local streets combine with these major arterials to
form a modified grid pattern.
2. Circulation and Parking
Downtown Covina is served by regional bus system ( Foothill Transit) that covers the San Gabriel
Valley and the Metropolitan Transportation Authority ( Metro) that operates bus and commuter train
services ( Metrolink). Foothill Transit operates a fixed route along Citrus Avenue with connections to
other fixed routes and minibus service provided by the City of Glendora between Glendora and the
Metrolink station. Metrolink connects downtown San Bernardino and Union Station in Los Angeles.
One of the Metrolink stations is located just north of downtown Covina near Citrus Avenue. Metro
also operates one bus route with stops along Badillo Street just south of downtown Covina. The
City of West Covina operates an express route between the Metrolink station and West Covina.
The City of Azusa also has a mini- bus line that connects points in Azusa to the Metrolink station in
downtown Covina.
Several surface parking lots are located downtown. Two
“ park- and- ride” lots for the commuter train are located near
the intersection of San Bernardino Road and Citrus
Avenue. There are currently 10 City owned/ leased surface
parking lots located downtown with approximately 555
parking spaces. In addition, street parking exists along
several downtown roadways with both parallel and angled
alignment. Private parking lots in the Specific Plan Area are
estimated to contain 1,347 parking spaces. Additionally,
approximately 172 parking spaces are provided in
association with private businesses according to
information from the Los Angeles County Assessor’s Office. When taken together, private and
public surface parking lots provide 2,074 parking spaces within the Specific Plan Area, not including
on- street parking.
3. Public Facilities and Services
Most City government and public agency facilities located in Covina are located within the Town
Center Specific Plan Area. Public services available include parks and recreational services, social
support and service agencies, library, historical museum, the full range of City services at City Hall,
senior support services, police and fire services, postal service, and others.
Downtown infrastructure includes public parking lots, roadways, water and sewer lines, electricity
and cable, and stormwater collection and conveyance facilities. Many water lines in downtown
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TOWN CENTER SPECIFIC PLAN I- 6 CITY OF COVINA
Covina are either 50 years in age or older, or are of less than eight inches in diameter, which is
considered an insufficient size to accommodate substantial new growth. Hydrants are located
throughout the downtown. Backflow devices would be required with significant renovation of large
older buildings or construction of new larger buildings. As of the drafting of the General Plan,
Sanitation District officials indicate that there are no apparent problems with providing service to
Covina. However, the age of many sewer lines in the downtown area and their capacity to handle
a significant increase in demand from higher- intensity land uses may pose a constraint downtown
revitalization if not addressed. The stormwater collection and conveyance system was recently
upgraded for the downtown, and there are no existing substantial flooding issues.
4. Housing
Downtown Covina is surrounded on all sides by neighborhoods with predominantly single- family
residential uses. Housing within the Specific Plan area includes single- family homes, duplexes, and
several small multi- family properties.
Sales prices for single- family homes have dramatically increased
for properties in downtown Covina, as has been the case for
many California communities over the past several years. The
median sales price of $ 182,000 in 1999 had risen by
approximately 75 percent to $ 319,000 in 2003. A new home
in or near downtown Covina can expect to sell for the high
$ 200,000s for an entry level town home or condominium to
over $ 500,000 for a single- family “ move- up” home.
Projected housing demand in Covina between 2003 and 2015 is anticipated to be additional 3,500
dwelling units, of which 65 percent of the demand is projected to be for single- family homes.
Downtown Covina might expect to experience as much as 25 percent of this additional housing
demand, although the mix of housing units downtown will likely reflect a higher percentage of
multifamily units.
Rents in the downtown average approximately $ 620 for a studio apartment, $ 800 for a one-bedroom
apartment, $ 1,100 for a two- bedroom apartment, and $ 1,400 for a three- bedroom
apartment, according to a rental survey conducted in March of 2004. Rental housing in the
downtown area is more affordable than in the city as a whole.
E. ISSUES, OPPORTUNITIES, AND CHALLENGES
1. Infill, Reuse, and Mixed Use Development
Much of the Specific Plan area is underdeveloped as measured by the City’s current zoning and
potentially supportable development densities from a developer’s/ market perspective. Examples of
underutilized land include vacant properties, two properties expected to become available when a
Ford and a Chevrolet dealer each relocate, nine surface parking lots scattered throughout the
Specific Plan Area, substandard residential properties ( not of historic value) with commercial or
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TOWN CENTER SPECIFIC PLAN I- 7 CITY OF COVINA
mixed- use potential, several properties with vacant or underutilized buildings, and one- story
commercial buildings with the potential for higher supportable commercial and/ or mixed- use
potential.
Some larger, underutilized parcels are potentially available
for future redevelopment activities downtown. The several
properties that comprise the Chevrolet and Ford auto
dealerships north and south of San Bernardino and west of
Citrus represent the largest contiguous and potentially
contiguous parcels. These are especially well suited
opportunity sites due to large areas of common ownership,
and proximity both to downtown and the Metrolink
commuter transit stop.
An opportunity area for mixed- use redevelopment is along Front Street, between Citrus Avenue and
First Avenue. Most of the current businesses have located in this area due to convenience and low
rents. Other opportunity areas exist along College Street, between Citrus and First avenues, and
along First Avenue from Italia to College streets for higher density residential or mixed- use
development.
Most vacant parcels in Covina are small and would not easily accommodate many types of new
development. Certain retail and commercial developers work within a relatively limited range of
parcels sizes and configurations, which would not be accommodated by vacant parcels downtown.
Approximately two acres of land is completely vacant within the Specific Plan Area, representing
just two percent of the overall land area.
Property ownership patterns could pose an additional challenge to revitalization of downtown
Covina, as most properties are small, and adjacent properties with reuse potential are not under
common ownership. A large percentage of properties are owned by individuals living outside of
Covina, and property owner interests may diverge from business owners. The Citrus Valley Medical
Center may dispose of some potentially surplus properties in conjunction with its seismic upgrading.
These sites would be well located for other medically oriented activities, allowing the area to build
on its medical “ cluster.”
2. Traffic, Transit, and Parking
a. Transit
The presence of the Metrolink station on northern border of downtown Covina represents an
opportunity to capture a larger share of patronage from Metrolink users and provides a
convenience for downtown residents, visitors, and workers. Metrolink, on balance, will be a
positive influence on downtown Covina. Opportunities to develop and redevelop property in
Covina are made more attractive to several market elements due to the availability of public transit
locally ( via Foothill Transit) and regionally ( via the Metrolink commuter rail system). The
attractiveness of potential commercial property is enhanced further upon noting that the Covina
Metrolink stop is the most utilized in the system.
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TOWN CENTER SPECIFIC PLAN I- 8 CITY OF COVINA
The availability of this transit service in an area that could potentially
support higher intensity development more fitting of transit- oriented
development represents a significant opportunity for the community
and would- be property developers. Opportunities for transit- oriented
development ( that is, land uses focused specifically on the needs of
transit riders) may be limited because the Covina Metrolink transit stop
is not currently a major destination point. The opportunities presented
by transit use to revitalize downtown Covina could be enhanced with a
shuttle or trolley system that improves access from the Metrolink
station to downtown businesses. Sufficient ridership would be
necessary for such a system to be successful.
b. Auto, Bicycle, and Pedestrian Circulation
Traffic congestion and bottlenecks are a concern, particularly at peak use times, along San
Bernardino Road, Badillo Street, and Citrus Avenue ( particularly between Badillo and San
Bernardino).
Covina is not well served by bicycle facilities. However, with the possibility of more intense
residential and nonresidential development, automobile alternatives such as transit, pedestrian, and
bicycle can become more realistic modes of travel for work and non- work trips. Recent pedestrian
improvements to the downtown have been well- received, and in fact, many members of the public
surveyed indicate their desire to have the City continue with pedestrian alleyway development,
traffic calming, and related activities.
Several major destinations, such as the Citrus Valley Medical Center, City office buildings, the
commercial retail core, the Metrolink commuter stop, the Covina Library, and professional office
complexes could be better connected though enhanced pedestrian/ bicycle opportunities. The
presence of the Metrolink station could provide more of a customer draw for downtown Covina
with better direct pedestrian access. Pedestrian access across Citrus Avenue, between Italia and
School streets, is a pedestrian safety and convenience issue identified by several individuals. Traffic
generated by the Metrolink station will have to be more effectively managed better to create an
attractive and safe downtown for pedestrians.
Re- configuration of the current street and circulation system in several key locations ( such as at the
intersections of Second Avenue and Front Street or Third Avenue and Geneva Place) could improve
pedestrian access and increase redevelopment opportunities.
c. Parking
Among the greatest challenge hindering downtown development is a lack of adequate off- street
parking. Many people travel through or near the downtown but do not stop because they believe
parking to be inconvenient. The existence of several surface parking lots in the Specific Plan Area
and other sites with reuse potential provide an opportunity to create a network of parking structures
with good access among major destination points in the downtown area. Off- street parking
improvements should address different needs among workers and visitors to downtown ( long- term
versus short- term) and convenient access for both user groups.
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TOWN CENTER SPECIFIC PLAN I- 9 CITY OF COVINA
Part of the concern regarding parking is that downtown visitors may be unfamiliar with the locations
of available off- street parking and may avoid downtown if they cannot park along Citrus Avenue or
close to their destinations. Uniform directional signage could address this concern.
Another potential challenge to addressing parking needs is the organizational structure under which
off- street parking may be provided in the future. The City has created a parking board, but the
public perception is that this board has not been very active in overseeing the planning and
management of downtown parking. An opportunity exists to make the board a more active player
in planning for, and management of parking solutions.
d. Downtown Character and Historic Resources
Covina is one of the older developed areas in the San Gabriel Valley and is one of the best
examples of a traditional historic downtown in all of the Los Angeles Basin. Many examples of
historic architecture abound, in varying degrees of property maintenance. Downtown character
has been enhanced over the past 10 to 15 years through some rehabilitation efforts, historic- themed
streetscape improvements, and implementation of design guidelines meant to maintain and
enhance historic elements of the downtown’s character. These characteristics represent somewhat
intangible, albeit real downtown assets, and a significant opportunity for future development and
redevelopment.
The character of downtown Covina, as expressed through building scale, age, and styles, also
creates challenges to revitalization. Much of the potential for more intense development lies in
properties that contain older buildings. Some, but not all, of these older buildings are key
contributors to the character and ambience of downtown Covina due to their architectural
importance or association with an event or individual important to Covina’s history. The challenge
for the City is to identify and protect older buildings that have historic/ architectural value while
permitting other older buildings to be modified or replaced.
Many older buildings in downtown Covina, and the parcels on which they lie, reflect historic
patterns of land division— long and narrow lots. These building and land patterns may not meet the
needs of modern users or lend themselves to financially feasible reuse. Older buildings may have
health and safety issues, obsolete building spaces, and substandard utilities. Potential anchor stores,
particular if part of a national chain or franchise, may not be interested in using older buildings that
do not meet their space, configuration, and branding requirements.
e. Parks
Park space is important to meeting the recreational needs of a community, and enhancing the
aesthetic environment and vitality of Covina’s neighborhoods. Downtown Covina is well served by
park space and recreational activities, as indicated earlier. Park and recreation services can be
enhanced in Covina by placing more residents within a short walk of its parks. Revitalization efforts
downtown have an opportunity to create additional value through providing connections between
people and parks.
Civic Center Park provides important green space and public events activities to downtown
residents, but is constrained by limited access, improvements, and utility for families with children.
Revitalization of downtown Covina provides an opportunity to either improve the current park to
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TOWN CENTER SPECIFIC PLAN I- 10 CITY OF COVINA
better meet community needs or provide a comparable,
new and accessible park and public gathering space.
Redevelopment of the existing Civic Center Park, if
replaced elsewhere, would necessarily involve the removal
of some, if not most, of the mature trees that many in the
City consider heritage assets. Depending on the type of
replacement trees, it could take 40 to 60 years to re- create
the mature canopy provided by Civic Center Park.
f. Public Services and Facilities
Downtown Covina has the full range of public services and facilities, including pedestrian, bicycle,
automobile, bus, and rail transit transportation infrastructure; water and sewer, storm drainage,
public and private surface parking, parks, street lighting, schools, a museum, a library, and other
services. The geographic proximity to these facilities can be considered an asset to prospective
residents and businesses. The availability of such public infrastructure and services could be a
competitive advantage for downtown Covina in attracting development projects.
However, some aspects of the physical structure of Town Center are not ideal for a downtown
shopping experience, including the arrangement of parking, lack of pedestrian access, and the state
of streetscape improvements south of Badillo and north of San Bernardino, among other issues
describe above. There is also a concern regarding the age, condition, and capacity of infrastructure
systems, such as water and sewer systems. These systems were not constructed to accommodate
the potential development density and service demands from a revitalized, mixed- use downtown.
Should substantial upgrades be required, funding mechanisms that involve assessment of existing
businesses and/ or property owners could be detrimental to continued occupancy of downtown by
some locally- owned businesses.
2. Economic Conditions
a. Consumer and Retail Trends
Existing stores in downtown Covina are mostly locally- owned, non- franchise establishments.
Typically, the rents these kinds of places can pay are at the lower range of retail rent levels. If an
aggressive program to add retail to the area is successful, many of these stores could be forced out
since other stores will be able to outbid them on rents.
Another challenge facing the City is how to attract one or more anchor tenants that, by necessity,
would likely be part of a national or regional chain establishment, without losing the locally- owned
“ flavor” of businesses that makes downtown Covina attractive. Among the strategies that would
hasten this turnover of tenants would be to expand the retail base in downtown Covina with larger,
franchise stores that would be built on ( most likely) redeveloped properties. A high- end anchor
tenant, such as a specialty food retailer, could stimulate this transition. A strategy that focused on
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TOWN CENTER SPECIFIC PLAN I- 11 CITY OF COVINA
confining the retail space within already established areas, and preserving the existing buildings,
would encourage an evolutionary transition of uses to higher- value activities.
If the City were to encourage additional retail activity in the Town Center in areas such as apparel,
furniture, appliances, and specialty goods, the increased level of economic activity and consumer
choice could bring a wider variety of retail and service establishments to the downtown area.
Limited vacant land for development and the presence of marginal land uses in some parts of the
city may detract from the Covina’s efforts to attract developers to the downtown area. Although
this “ built- out” status will eventually translate into opportunities for redevelopment, the economics
of reusing land are such that significant public sector involvement is often necessary to create
financially viable projects.
Downtown Covina is marked by a high retail occupancy rate and the presence of important
public/ institutional land uses ( e. g., Citrus Valley Medical Center, City buildings and parks, and the
Metrolink station) that attract large numbers of individuals to the downtown area. Office and
industrial vacancy rates are also considerably lower than the regional average, suggesting the ability
to absorb additional commercial and industrial space in the downtown area.
b. Medical Facilities
Dozens of medical offices and related businesses are located in the western part of downtown
Covina. In conjunction with the Citrus Valley Medical Center, these uses comprise a regionally
significant concentration of health care services, bringing jobs and some revenue to Covina. There
is a significant opportunity to take greater advantage of this regional resource, providing physical
and economic connections between the medical facilities and the rest of the downtown. Health
care industry employees represent a potential market
segment for housing in downtown Covina – perhaps with
the opportunity of developing housing above medical
office buildings. The City and Medical Center staff could
cooperatively manage future expansion plans at the
Medical Center and plans for the redevelopment of the
downtown toward a mutual benefit.
An opportunity exists to reclaim developable land by
focusing medical services vertically ( building upward)
rather than outward.
c. Changing Nature of Commercial/ Industrial Activity
Town Center is an established office location. The downtown area has the advantage of having
existing buildings that could be adaptable to office use, and that also provide an alternative to the
kind of generic, high- density office buildings that prevail along the I- 10 corridor. The downtown
environment, with its compact design, dining with outdoor seating, pedestrian amenities, and
historic façades, also offers an alternative setting to the other types of office parks common in the
region.
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Town Center also has an existing base of industrial buildings. Although these are not necessarily
attractive in their present form, they could potentially represent an alternative type of space that
could, with some work, be attractive to the kind of employers desired in the city. The existing
underutilized industrial space in the vicinity of the rail line could potentially be a candidate for a
“ makeover” into visually interesting spaces suitable for firms engaged in activities related to
emerging technologies. The intent with this concept is to marry the evolving and appealing urban
environment with work space that has the character of being flexible in terms of what it could
accommodate, relatively affordable, and otherwise compatible with an incubating company.
The changing nature of production and communications technologies are blurring the distinctions
between “ office,” “ industrial,” and “ retail” activities. While these land uses have traditionally been
thought of as distinct, modern office/ industrial/ retail developments are often hybrids. The northern
Specific Plan Area currently zoned for industrial use could accommodate a mixture of land uses in
which the production, sales, and administrative functions occur within the same building or on the
same block, perhaps even in combination with residential uses ( as illustrated by live- work and artist
loft development models that are emerging in many urban centers).
d. Downtown Covina as a Cultural Center
The Covina Playhouse reconstruction will be a substantial
attraction to downtown. Other entertainment and cultural
attractions could build upon the Playhouse. A proposed
performing arts center as part of the Civic Center focus east of
Citrus Avenue could further increase downtown’s draw as a
cultural center. A challenge for the City is to provide suitable
sites for current and future performing arts and live
entertainment venues. As an example, the Fret House has been
looking for another location to bring live performing acts to
downtown Covina.
3. Demographic Trends
a. Household Composition and Housing Demand
Covina could expect to attract approximately 2,300 to 3,500 housing units between 2004 and
2015, about 14 percent of the projected demand housing in the East San Gabriel Valley ( ESGV)
market area. To the extent that the development densities increase in Covina, the city’s share of
ESGV demand could increase.
Assuming that the Town Center would be a focal point of increased residential densities ( as
described below); the downtown share of citywide housing demand could be as much as 15 to 25
percent ( approximately 350 to 900 housing units). There are a number of factors that contribute to
this demand, such as the growing senior population and desire of young professionals and older,
pre- retirement “ empty nesters” to live in urban environments. An attractive, fully functional
downtown that includes additional goods and services for a resident population and provides
quality residential environment could attract a broad segment of population.
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Projects with residential densities in the range of 20 to 35 units per acre are realistic for the Specific
Plan Area. Based on current land values in the Plan Area, the existing maximum allowable
residential density of 22 units per acre is probably high enough to allow for financially feasible
development of at least some types of residential projects. However, slightly higher densities ( i. e., in
the high 20s to mid 30s) would make the area attractive for a wider range of residential projects
( especially in the future as land values increase in response to the downtown’s enhanced image).
Even under the most optimistic residential development assumptions, the increase in direct demand
for retail and commercial service space in the downtown area from additional downtown residents
will be modest, perhaps no more than 14,000 to 15,000 square feet. Successful revitalization of
downtown Covina will require that merchants attract a greater share of discretionary income from
residents outside downtown.
There are opportunities to create housing for the local workforce, particularly those who desire to
work and live in or near downtown Covina, not only for low- and moderate- income workers, but
also for middle- income and upper- income workers. The success of the City’s downtown
revitalization strategy will require a range of housing types to meet the needs of as broad a segment
of the population as feasible at all income levels.
4. Government and Private Management Institutions
Most local government offices, community institutions, and several religious institutions are located
downtown. Local leaders associated with these institutions can play an important role in
developing consensus around a vision for the future of downtown Covina. The presence of several
important civic and community institutions downtown can be a source of stability in an area that
could experience substantial land use change in the future.
Public and private leadership could improve planning and management of downtown revitalization.
Such leadership is essential to ensure maximum value on public investments, compatibility between
private and public improvements, and synergistic relationships among different types of
development. This function is especially important for Covina, in that constraints to development
could occur based on the condition and capacity of infrastructure and public utility systems.
Management coordination through public- private partnerships is also essential to a successful
downtown, such as through a merchants’ association, Main Street program, or similar mechanism.
Some individuals contacted through early public outreach have suggested that the collaboration
and leadership between/ among the City and local business groups could be improved to:
• Better coordinate hours of operation, events and other promotional activities, the use of
the sidewalks, maintenance practices, etc.;
• Promote the best mix of merchants, in the most suitable locations; and to represent the
merchants’ interests in general; and
• Provide better mechanisms to fund the improvements, and to manage the improvement
districts or other mechanisms that will provide at least some of the funding sources.
A challenge for this City will be to better coordinate and stimulate organizations such as the
Downtown Association and the Parking Board to take a more active role in downtown
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revitalization. Another challenge for the City in facilitating housing or mixed- use development in
and near downtown is to create certainty for the development community.
F. LAND USE AND CIRCULATION PLAN
1. Land Use Goals
Land Use Goal 1. Restoration of downtown Covina as a local and regional center of public
and business activity and a contributor to the local economy.
Land Use Goal 2. Maintenance of the Specific Plan Area as a place where local history has
been preserved through the protection of historic buildings and activities
associated with those buildings.
Land Use Goal 3. Maintenance of the Specific Plan Area as a traditional downtown with a
small- town ambience and pedestrian access.
Land Use Goal 4. Maintenance and establishment of vibrant land use focus areas
consisting of concentrations of primary land uses with supportive uses.
2. Land Use Policies
Land Use Policy 1. The City shall establish Focused Activity Areas within the Town Center
Specific Plan Area. These focused areas will have development
standards and policies to encourage primary land uses in each area,
mixed- use development, and secondary land uses that support primary
land uses.
Land Use Policy 2. The City shall facilitate infill development and redevelopment by
identifying and actively marketing vacant and underutilized properties,
identifying potential site constraints, and assisting property owners in
addressing those constraints.
Land Use Policy 3. The City shall encourage more efficient use of land in the Town Center
Specific Plan Area, including reuse of underutilized surface parking lots.
Land Use Policy 4. The City shall coordinate with the Citrus Valley Medical Center to
consolidate its facilities and redevelop underutilized land for new
development.
Land Use Policy 5. The City shall encourage property owner and business owner
collaboration through a downtown partnership, which shall be
established to promote ongoing informal discussions between City
leaders and staff, and community stakeholders regarding future
collaborative efforts to implement ideas contained in the Specific Plan.
Land Use Policy 6. The City shall encourage the adaptive reuse of older buildings and
conversion of industrial/ heavy commercial structures to mixed- use
development through property consolidation, due diligence work,
streamlining of permitting procedures, identification of existing
architectural/ historic resources and programs to assist in
maintenance/ rehabilitation, and other methods.
Land Use Policy 7. The City shall establish a façade and building improvement incentive
program to offer low- interest loans to property owners interested in
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maintaining or improving structures in the Town Center Specific Plan
Area with recognized historic/ architectural value and/ or located near
important downtown gateways.
Land Use Policy 8. The City shall seek anchor tenants for key development opportunity sites
and entertainment uses in appropriate areas downtown Covina.
Land Use Policy 9. The City shall encourage retail and commercial services that meet the
needs of existing and future residents and employees.
Land Use Policy 10. The City shall encourage a variety of housing within the downtown and
that provide housing choices for individuals of all income levels.
Land Use Policy 11. The City shall ensure secure, quality design in proposed residential
projects through implementation of design guidelines
Land Use Policy 12. The City shall streamline environmental review procedures through
tiering of project reviews from the Town Center Specific Plan EIR and
appropriate use of exemptions under state law.
Land Use Policy 13. The City shall permit residential densities in the Town Center Specific
Plan Area of up to forty ( 40) units per acre, and commercial or mixed- use
floor area ratios ( FAR) of up to 3.5 for projects that satisfy the objectives
for future downtown development.
Land Use Policy 14. The City shall require that new or expanded uses provide buffers or
additional setback, when feasible, to protect single- family residential uses.
Land Use Policy 15. The City shall require defensible space1 and design related
enhancements within the proposed projects to reduce the impacts to law
enforcement services.
Land Use Policy 16. The City shall, in cooperation with property owners and developers,
establish pedestrian routes, improved pedestrian alleyways, and other
pedestrian features to increase walkability and access in the downtown
area among major destination points. ( See Land Use Plan and
Circulation Plan, Figures V- 1 and V- 2.)
Land Use Policy 17. The City shall encourage and accommodate orientation of proposed
buildings to pedestrian ways.
Land Use Policy 18. The City shall allow landscaping and open space requirements to be met
collectively for several properties, and/ or permit the payment of in- lieu
fees to the City to maintain common landscaped public spaces.
Land Use Policy 19. The City shall maintain, or develop, a Civic Center Park that provides
public open space, multiple use opportunities, safe and convenient
pedestrian access, and high quality amenities.
Land Use Policy 20. The City shall protect and preserve architecturally and historically
significant structures as defined by state and federal law, in the Specific
Plan Area.
Land Use Policy 21. The City shall enforce the Oak Tree Ordinance for downtown projects,
wherever feasible, and shall engage in tree planting and encourage tree
planting by project applicants.
Land Use Policy 22. The City shall work cooperatively with property owners at identified
downtown entryways to maintain and improve the surrounding aesthetic
1 Defensible space describes an arrangement of structures on a piece of property that creates either real or symbolic
barriers, strongly defined areas of influence, and opportunities for surveillance. This arrangement is designed to reduce
the potential for crime or natural disaster. Defensible space, for example, can protect from fire and criminals.
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environment, and shall develop and establish visual cues to suggest entry
to downtown Covina.
Land Use Policy 23. The City shall focus on the mitigation of external impacts and less on
regulating specific land uses in its approach to development and
redevelopment downtown.
Land Use Policy 24. The City shall encourage the provision of public art as a part of proposed
development projects within the Town Center Specific Plan Area.
3. Land Use Objectives
Land Use Objective 1. Decreased rates of building and land vacancy.
Land Use Objective 2. Higher residential and commercial densities in appropriate locations, on
properties with infill and reuse potential.
Land Use Objective 3. Additional entertainment, dining, cultural amenities, and public gathering
places located within the Specific Plan Area.
Land Use Objective 4. Additional mixed- use, higher- density development that allows people to
live close to work and shopping and where housing is placed above
street- level commercial uses.
Land Use Objective 5. Transition of areas along the northern portion of the Specific Plan Area
from heavy commercial and light industrial uses to a mixture of
commercial and residential development.
Land Use Objective 6. Protection of existing surrounding neighborhoods.
Land Use Objective 7. Protection of historic buildings and other buildings of local significance.
Land Use Objective 8. Maintenance of and improvements to public infrastructure, and private
property and structures near downtown gateways.
Land Use Objective 9. Compatibility of new land uses, whether occurring within existing
buildings or newly constructed buildings, with the scale and general
appearance of existing buildings downtown.
Land Use Objective 10. Increased use of public transit through intensification of land use and
activities near transit facilities and routes.
4. Land Use Designations
Land Use Designations specified below replace the previous zoning designations as identified in the
City’s Zoning Ordinance for the Specific Plan Area. The following land use designations, referred to
in the Specific Plan as Focused Activity Areas, and the development standards and use restrictions
that accompany them are designed to provide future land developers with clear guidance and yet
provide flexibility. The Focused Activity Areas are flexible in their application to geographic areas
within the Specific Plan Area and are flexible with regard to the allowable land uses. As shown in
the Specific Plan Land Use Diagram, Figure 1- 2, there are transition areas between each of the
focused activity areas where development standards from either adjacent area can be applied, at the
City’s discretion. Also, as described below, the allowable land uses in each Focused Activity Area
do not follow hard boundaries, but rather extend out from each Focused Activity Area to establish
Zones of Transition.
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a. Health Services Focused Activity Area ( TCSP- 1)
This land use designation is intended to provide the opportunity to develop and operate land uses
associated with health services, including medical, dental, optometry, research laboratories,
chiropractic, and related services in the area surrounding the Citrus Valley Medical Center.
Businesses that support health care services would also be permitted, such as retail, food service,
and other commercial establishments that primarily serve health care workers, health care
businesses, and employees of supportive businesses. This Focused Activity Area also provides the
opportunity to mix residential uses ( which might occur on upper floors of a multi- story building)
with medical office uses, which could occur at the ground level or second level. Stand- alone
residential development is not permitted in this Focus Activity Area. Residential development in this
Focused Activity Area would emphasize housing that is appropriate in terms of type, size, cost,
location, and amenities, to facilitate housing for health service and other downtown workers. Land
uses that create noise in excess of City standards, vibration detectable from adjacent properties,
odors, glare, excessive traffic, emit substantial amounts of air pollutants, or otherwise are
incompatible with medical offices and residences are not permitted in this Focused Activity Area.
The allowable density for proposed nonresidential uses adjacent to any existing single- family
residential dwelling unit is 1.5 FAR, while the nonresidential density range for properties not
adjacent to a single- family residential dwelling unit is between 1.5 and 3.0 FAR. The residential
density range in this area is 15 to 35 units per acre. Mixed- use project density limits are calculated
based on FAR including all uses’ floor area.
b. Residential Focused Activity Area ( TCSP- 2)
This Focused Activity Area is intended to provide the opportunity maintain and develop housing at
medium to high densities ( generally 15 to 25 dwelling units per acre) and associated land uses, with
an opportunity for 30 dwelling units per acre on a conditional basis. Nonresidential land uses
intended to support downtown residential development would also be permitted as a part of a
mixed- use development project. Land uses that create noise in excess of City standards, vibration
detectable from adjacent properties, odors, glare, excessive traffic, emit substantial amounts of air
pollutants, or otherwise are incompatible with residences are not permitted in this Focused Activity
Area.
c. Institutional Focused Activity Area ( TCSP- 3)
This land use designation is intended to provide the opportunity to develop and operate City and
other government agency offices and facilities, transit offices and facilities, parking facilities,
churches, community centers, and other related public and nonprofit institutional land uses. This
Focused Activity Area also provides the opportunity to mix residential uses ( which might occur on
upper floors of a multi- story building) with institutional or other appropriate uses, which could occur
at the ground level or second level. Residential development not mixed with other land uses would
also be permitted, to the extent that it does not create issues of compatibility with the
predominantly institutional nature of the area. Nonresidential development that supports the
institutional uses that are the primary land use in this area would also be permitted. The allowable
density for properties adjacent to existing single- family residential dwelling units is 1.5 FAR, while
the density for the rest of this area is between 1.0 and 2.0 FAR. The residential density range in this
area is 15 to 35 units per acre. Mixed- use project density limits are calculated based on FAR
including all uses’ floor area.
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d. Mixed- Use Focused Activity Area ( TCSP- 4)
The Mixed- Use Focused Activity Area does not assume any particular predominant land use, and
rather provides the opportunity to develop and redevelop property within key development
opportunity areas with a finely- grained mixing of land uses. This land use designation is intended to
for retail, light industrial, cultural and entertainment, and residential development, with an emphasis
of mixing of uses on properties, within buildings, and within blocks, as compatibility allows, though
single- use development projects would also be allowed, subject to City review and approval. This
Focused Activity Area is located in areas of the Specific Plan Area where land use change would be
anticipated in the future. To the extent that future development proposals comply with applicable
policies set forth in this Specific Plan, the General Plan, and other applicable City policies and
regulations, development projects that contribute to the revitalization of the Town Center Specific
Plan are encouraged. This Focused Activity Area provides the opportunity to mix residential uses
( which might occur on upper floors of a multi- story building) with retail, office, or other appropriate
uses, which could occur at the ground level or second level. This area also provides the opportunity
to mix commercial land uses of different types. Land uses that directly generate noise in excess of
City standards ( not including noise associated with vehicular traffic), vibration detectable from
adjacent properties, odors, substantial glare, excessive traffic, emit substantial amounts of air
pollutants, or otherwise are incompatible with residential or commercial uses are not permitted in
this Focused Activity Area. The allowable density for properties adjacent to any existing single-family
residential dwelling unit is 1.5 FAR, while the density for the rest of this area is between 2.0
and 2.5 FAR. The residential density range in this area is generally 15 to 35 units per acre. Mixed-use
projects density limits are calculated based on FAR including all uses’ floor area.
e. Retail and Service Core Focused Activity Area ( TCSP- 5)
This land use designation is intended to provide the opportunity to develop and operate retail
stores, services, restaurants, cultural and entertainment venues, and similar land uses within the
historic cultural and economic core of the city. City policies seek to protect significant historic
buildings in this area while encouraging compatible new development on vacant or underutilized
properties. This Focused Activity Area provides the opportunity to mix residential uses ( which might
occur on upper floors of a multi- story building) with retail, restaurant, or other appropriate uses,
which could occur at the ground level or second level. This area also provides the opportunity to
mix commercial land uses of different types. Land uses that directly generate noise, vibration,
odors, glare, traffic, or air pollutants that would be incompatible with the predominantly retail,
service, and entertainment focus of the area, or land uses that otherwise would be incompatible,
would not be permitted. The density range for nonresidential uses is between 2.0 and 3.0 FAR.
The residential density range in this area is twenty ( 20) to forty ( 40) units per acre. Mixed- use
projects density limits are calculated based on FAR including all uses’ floor area.
f. Parks and Open Space ( TCSP- 6)
This land use designation is intended to provide passive and active recreational opportunities and
places for public events and gatherings associated with publicly owned and maintained open space
within the Specific Plan Area. Accessory buildings and structures associated with recreation and
public events are also permitted in the area.
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g. Zones of Transition
The Focused Activity Areas described above and depicted graphically on Figure 1- 2 are designed to
provide for transitional areas where the land use focus of one adjacent district may transition to the
land use focus of another district. As such, the permitted land uses and development standards for
any adjacent district may be applied for development proposals within the zones of transition, at the
City’s discretion.
The Zones of Transition extend from the Focused Activity Area boundaries shown on Figure 1- 2 to
one legal parcel from the edge of the boundaries, the closest public right- of- way or easement, or to
mid- block, whichever is less. The Zones of Transition for Specific Plan Focused Activity Areas do
not, however, extend outside of the Specific Plan boundaries. There is not a Zone of Transition east
or west of the Retail and Service Core Focused Activity Area north of Geneva Place, as shown on
Figure 1- 2.
There are no Zones of Transition within Parks and Open Space ( TCSP- 6) areas.
As properties are subdivided or consolidated, the location of Zones of Transition would change.
Therefore, they are not depicted to scale on Figure 1- 2, and rather would be established on a case-by-
case basis in response to development proposals. Instead, the inset figure on Figure V- 1 includes
a demonstration of the correct application of Zones of Transition geographically within the Town
Center Specific Plan Area for three different situations.
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5. Circulation Goals
Circulation Goal 1. A balanced circulation system that offers multiple travel options so that
people can live, work, shop, and play without relying on private vehicles.
Circulation Goal 2. A circulation system that accommodates new development without
impacting existing development.
Circulation Goal 3. A circulation system that is safe for downtown users and that provides
efficient and safe access for emergency vehicles.
Circulation Goal 4. A system of parking that accommodates the needs of residents and
businesses without dominating the urban environment.
6. Circulation Policies
Circulation Policy 1. The City shall develop a downtown transportation improvements
program funded by contributions from developers to address congestion
impacts, improve traffic flow, provide additional on- and off- street
parking, and increase pedestrian access and amenities between major
destination points.
Circulation Policy 2. The City shall give credit in its assessment of impact fees, for affordable
housing, mixing of land uses, pedestrian amenities, transit facilities,
shared parking, bicycle facilities, and other elements that reduce the trip
generation or that accommodate or encourage alternative modes of
travel.
Circulation Policy 3. The City shall develop a bicycle route in the Town Center Specific Plan
Area that links with other City bicycle routes and links to public transit
and major downtown destination points.
Circulation Policy 4. The City shall ensure that the Metrolink station, regional bus service, and
other future forms of public transit planning is considered and integrated
and shall consider development of a multi- modal center with the
cooperation of regional transit providers.
Circulation Policy 5. The City shall evaluate demand for City operated shuttle service among
Specific Plan locations and between the Specific Plan Area and
Shopper’s Lane.
Circulation Policy 6. The City shall require the provision of adequate pedestrian and bicycle
access for new development projects through the plan review process.
Circulation Policy 7. The City shall allow development projects to fulfill parking requirements
through contributions to the improvement of adjacent streets with
parallel or angled parking, participation in off- street parking structures,
shared parking, and other parking strategies.
Circulation Policy 8. The City shall consider addition of angled and/ or additional parallel
parking on Specific Plan Area streets such as Second Avenue, College
Street, Cottage Street, Orange Street, and School Street, and shall
consider the removal or reduction of angled parking along Citrus Avenue
to improve traffic flow.
Circulation Policy 9. The City shall consider street reconfigurations and/ or the establishment
of pedestrian improvements at the intersection of Third Avenue and
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Geneva Street, Second Avenue and Front Street, and First Avenue and
Front Street.
7. Circulation Objectives
Circulation Objective 1. Balancing of the street system to serve all users well regardless of their
mode of travel.
Circulation Objective 2. Stronger pedestrian and bicycle linkages through the downtown.
Circulation Objective 3. Increased use of public transit.
Circulation Objective 4. Sharing of parking in the downtown to minimize the amount of land
devoted to parking areas.
Circulation Objective 5. Management of parking to encourage alternative travel modes.
Circulation Objective 6. Planning of parking to reduce its influence on the built environment.
Circulation Objective 7. Improved parking and traffic flow to support higher- density land uses and
a greater concentration of activity downtown, with an emphasis on
additional off- street parking located in key locations.
8. Recommended Improvements
The Town Center Specific Plan contains land use and circulation goals, policies, and objectives to
implement the Specific Plan vision for a revitalized downtown Covina. The Specific Plan also
contains recommendations for future public improvements, which would occur in conjunction with
future development projects within the Specific Plan Area. The following recommended
improvements shall occur in conjunction with Specific Plan implementation to implement
Circulation goals, policies, and objectives.
a. Streetscape
The City’s Streetscape Revitalization Program has been
largely implemented along Citrus Avenue between Badillo
Street and School Street. These improvements, which
include brick- paved sidewalks and crosswalks, angled
parking, street trees, and common theme benches,
streetlights, trash receptacles, and bollards, will be
extended northward to the Metrolink station.
In addition to the streetscape improvements along Citrus
Avenue, the Specific Plan envisions improvements to
streetscape environments along Second Avenue between
Badillo and Front Street ( refer to Figure 1- 3, Circulation
Plan). The improvements along Second Avenue would
occur in coordination with development of adjacent
parcels, and may include the addition of angled parking,
installation of a bike lane on one or both sides of the street,
planting of street trees, addition of benches, and
construction of other streetscape improvements, as
appropriate and as funding permits.
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Streetscape improvements will be consistent with the themes developed along Citrus Avenue
between Badillo Street and School Street, and shall promote pedestrian safety as well as the
pedestrian aesthetic experience and scaling.
b. Parking
The City will conduct a parking study to support the Town Center Specific Plan, including an
analysis of the existing parking conditions in the Specific Plan Area and strategies to meet parking
demand resulting from Specific Plan land use change. Parking solutions would include meeting
parking demand of new projects through a combination of additional on- street parking, a share of
spaces within future parking structures, shared parking between land uses with different peak
parking demand periods, and provision of off- street, on- site parking. Parking improvements should
be designed considering existing and future with pedestrian access routes, and a system of signage
should be established to make the most efficient and effective use of existing and future parking
facilities. Any City- initiated parking changes or additions shall occur such that new parking spaces
are available before any existing parking is removed.
The City shall, based on the parking study, consider the
feasibility of constructing one or more parking structures to
serve commercial parking demand in the Town Center
Specific Plan in conjunction with removal of some amount
of surface parking to accommodate future development
projects. For convenience and access, two smaller parking
structures, one on each side of Citrus between Badillo and
San Bernardino, would be preferable to one parking
structure. These structures should be located to ensure a
maximum distance of two blocks between the parking structures and any point along Citrus
Avenue. However, financing for two smaller parking structures may not be as feasible and efficient
compared to one larger structure.
The City may allow the number of required off- street parking space to be reduced under the
following circumstances:
1. By the number of on- street parking spaces located adjacent to the front or rear property
line;
2. When existing parking spaces adjacent to two or more users may be feasibly shared
between and/ or hours of use do not overlap;
3. If parking spaces are available to the general public within 300 feet of a proposed
development;
4. If each exclusively assigned parking space are provided in a joint- use parking facility located
within 300 feet of the development; or
5. If a proposed development will be located within ¼ mile of a Metrolink station, an employer
implements a ride- sharing program approved by the City ( such as car pooling, vanpooling,
or shuttle/ jitney services), and/ or an employer pays for at least fifty ( 50) percent of the cost
of public transit for its employees.
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c. Pedestrian Access
The Specific Plan recommends improved pedestrian access in key areas of the Plan Area, in
particular, to more effectively link major destination points downtown, such as City buildings, the
medical center, and the retail and service core along Citrus Avenue. Pedestrian access could be
facilitated by extending the alleyway improvements completed by the City further to the west and
east, completing a connection between the medical center at Third Avenue and Second Avenue.
Extension of alleyway improvements would occur with the same approach to design as the existing
alleyway improvements.
Pedestrian safety features recommended by the Specific
Plan include traffic calming along San Bernardino Road
near the intersections with Citrus Avenue, Second Avenue,
and Third Avenue, and along Citrus Avenue near the
intersections with School Street and Italia Street.
Pedestrian safety features would include one or more of
the following: flashing crossing devices, reflector marked
and striped crosswalks, raised paved pedestrian surfaces,
median pedestrian islands, and roadway narrowing at
points of pedestrian crossing.
A grade- separated pedestrian walkway is recommended to connect the planned Metrolink parking
structure ( and potential residential mixed- use development west of Citrus Avenue) with the
Metrolink commuter rail station.
Pedestrian improvements are also recommended along Third Avenue to increase safety and create
a more pleasant walking experience between the Medical Center, the Metrolink parking structure,
and commuter rail station.
Finally, the intersections of Front Street and First Avenue, Front Street and Second Avenue, and
Geneva Place and Third Avenue may be appropriate for pedestrian plazas. Automobile access may
still be allowed, but roadways would be narrowed and pedestrian areas widened. Pedestrian
amenities would include wider sidewalks and bulbouts at corners, streetscape improvements ( such
as benches, landscaping, trash receptacles, kiosks, public art, and other elements).
d. Vehicular Access
Existing and projected future traffic congestion is a potential impediment to the success of
downtown Covina. Policies in the General Plan address downtown transportation improvements,
including the requirement that the City balance its obligation to provide vehicular transportation
improvements with its obligations related to accommodating residential and nonresidential growth,
community economic development, commercial revitalization, neighborhood preservation, and
affordable housing.
Transportation planning for future projects downtown shall direct and orient traffic to the Barranca
north- south corridor rather than Citrus Avenue or Hollenbeck Avenue. The City should remove
angled parking along Citrus to accommodate additional turning lanes where installation of such
improvements would maintain or achieve acceptable levels of service. The City should analyze the
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TOWN CENTER SPECIFIC PLAN I- 25 CITY OF COVINA
potential of using parallel parking during non- peak travel times that is also striped to be used as a
travel lane or turning lane during peak travel demand periods.
9. Other Implementation Recommendations
a. Historic Resources Identification and Protection Program
The City will identify important historic and architecturally
significant structures within the Town Center Specific Plan
Area as historic landmarks or structures of merit according
to Chapter 17.81 of the Covina Zoning Ordinance. The
exterior alteration of demolition of such structures should
comply with this Chapter and with the Covina Downtown
Design Guidelines. The identification of historical and
architecturally significant resources should be incorporated
into an official inventory of buildings and properties to be
adopted by the City with twenty four ( 24) months of the
adoption of the Town Center Specific Plan. The City,
based on this inventory, will prepare a Historic Resource
Plan to be completed by a qualified expert in the field of historic/ architectural preservation. The
Plan will include an identification of buildings and structures of local historical and/ or architectural
significance. Any alternations or demolition of structures identified in the Historic Resource Plan is
subject to review and approval according to the provisions of Chapter 17.81 of Zoning Ordinance.
If a development application or application for a demolition permit is submitted prior to completion
and adoption of the Historic Resource Plan that involves the alteration or removal of a potentially
historic structure, such a proposed action will be reviewed and subject to approval of the City
Council according to the provisions of Chapter 17.81 of the Covina Zoning Ordinance.
If necessary to preserve such structures, the City should consider the use of tax- increment
redevelopment or CDBG funds to provide low- interest loans to property owners interested in
façade improvements or building renovation of historic or architecturally significant structures
b. Tree Inventory and Protection Program
The City Planner will make recommendations to avoid harm to mature trees in pre- application
meetings with potential downtown developers and as a part of submitted applications for
development projects. Particular emphasis should be given to preserving mature trees, wherever
possible, in and within twenty ( 20) feet of a public right- of- way.
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Tree Preservation Resource Plan
The City will identify oak and other mature trees within public rights- of- way and City- owned
property in the Town Center Specific Plan Area. The City will inventory mature trees as a part of a
Tree Preservation Resource Plan to be adopted by the City with twenty- four ( 24) months of the
adoption of the Town Center Specific Plan. Trees identified as a part of the City’s Plan will include
those of significantly good health that have any of the following characteristics:
• Trees with a trunk diameter of at least 10 inches for a single trunk tree as measured at four and
one half feet above mean natural grade of the surrounding ground; and
• Trees with a combined diameter of at least 22 inches for a multiple trunk tree as measured at
four and one half feet above mean natural grade of the surrounding ground.
The City will prepare the Plan in consultation with a certified arborist, to assist in identification and
preservation of the mature tree canopy of downtown Covina. Chapter 17.83 of the Zoning
Ordinance addresses only mature oak trees, but allows the City Council also to designate as a
Heritage Tree any other tree or group of trees deemed important for preservation. The Tree
Preservation Resource Plan will provide information to the Council regarding the location of all
species of mature trees on public property that may be important for preservation. Proposed
alteration or removal of trees identified by the City’s Plan is subject to review and approval
according to the provisions of Chapter 17.83 of Zoning Ordinance.
Until a Tree Preservation Resource Plan has been adopted by the City, any action on public
property that would involve the alteration or removal of a potentially significant tree shall require
review and approval of the City Council. All provisions of Chapter 17.83 of the Covina Zoning
Ordinance shall remain in effect.
Enforcement of Existing Tree Preservation Ordinance in Specific Plan Area
As identified in Chapter 17.83 of the Covina Zoning Ordinance, new development, redevelopment,
and property maintenance activities will be conducted in a way that avoids or minimizes the harm
to Heritage Trees located on private and public property within the Specific Plan Area. Routine
maintenance, emergency maintenance, and other exemptions to the tree preservation ordinance
will also apply in the Specific Plan Area.
The conditions of approval for removal of a Heritage Tree from Chapter 17.83.090 of the Zoning
Ordinance will apply, except that the approval authority will impose replanting, relocation, in- lieu
fees for heritage tree protection, or other conditions that promote the preservation of heritage trees
within the Specific Plan Area ( tree preservation and propagation fund).
c. Mixed- Income Housing Requirements and Incentives
Any housing constructed within the Town Center Specific Plan Area that is located within a Covina
Redevelopment Agency project area ( see Figure IV- 3) shall comply with requirements of the
California Health and Safety Code, section 33413:
1. At least 30 percent of all new and substantially rehabilitated dwelling units developed by an
agency shall be available at affordable housing cost to, and occupied by, persons and
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TOWN CENTER SPECIFIC PLAN I- 27 CITY OF COVINA
families of low or moderate income. 2 Not less than 50 percent of the dwelling units
required to be available at affordable housing cost to, and occupied by, persons and families
of low- or moderate- income shall be available at affordable housing cost to, and occupied
by, very low- income households.
2. At least 15 percent of all new and substantially rehabilitated dwelling units developed within
a project area under the jurisdiction of an agency by public or private entities or persons
other than the agency shall be available at affordable housing cost to, and occupied by,
persons and families of low or moderate income. Not less than 40 percent of the dwelling
units required to be available at affordable housing cost to, and occupied by, persons and
families of low or moderate income shall be available at affordable housing cost to, and
occupied by, very low- income households.
Density Bonuses for Affordable Housing
Under California law ( sections 65915 and 6591.5. of the California Government Code), cities and
counties are required to offer density bonus or other incentives of equivalent financial value to
residential developers who agree to set aside a portion of their housing units for low- income
residents and/ or provide childcare facilities. Density bonuses and other incentives can provide
significant benefits to residential developers to encourage the production of affordable housing.
The City of Covina is required to offer a 25 percent density bonus or other incentives if at least:
1. 10 percent of the proposed housing units will be affordable to very- low- income households;
or
2. 20 percent of the proposed housing units will be affordable to low- income households; or
3. 50 percent of the proposed housing units will be reserved for seniors ( qualifying residents);
or
4. 20 percent of the proposed housing units in a condominium project will be affordable to
moderate income households; or
5. 33 percent of the proposed housing units within a condominium conversion project will be
affordable to low- or moderate- income households.
In addition to these density bonus incentives for affordable housing, state law requires the City to
grant a square footage density bonus equal to the square footage or proposed childcare facilities in
a development or other, financially equivalent, incentives.
Examples of incentives other than density bonuses are financial contributions ( such as
redevelopment housing set- aside funds), modifications of development that result in identifiable cost
reductions, expedited permit processing, and reduced, waived, or deferred development permit and
impact fees.
2 Persons and families of low- and moderate- income are those earning no more than 80 percent and 120 percent of the
Los Angeles County median family income, as determined annually by the U. S. Department of Housing and Urban
Development. Very low- income households are those earning no more than 50 percent of the Los Angeles County
median family income.
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TOWN CENTER SPECIFIC PLAN I- 28 CITY OF COVINA
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TOWN CENTER SPECIFIC PLAN I- 29 CITY OF COVINA
Outside of redevelopment project areas, the City will seek to
ensure that at least five percent of new housing units are
affordable to very low- income households, and five percent
affordable to low- income households through the following
incentives:
1. Fee reductions, waivers, or deferrals;
2. FAR bonuses for mixed- use buildings that include residential uses;
3. Residential density bonuses for qualifying projects under California Government Code
Section 659153;
4. Assistance in accessing State or federal low- income housing subsidies;
5. Participation in bond or mortgage credit certificate programs, to the extent feasible within
the City’s staff and financial capacity;
6. Expedited permit processing; and,
7. Use of the Redevelopment Agency’s low- and moderate- income housing funds, to the
extent available for use outside redevelopment project areas.
The City will work with large employers in the Town Center Specific Plan Area to provide housing
suitable for, and affordable to, their employees. The City will consider providing the same
incentives as described above for housing outside redevelopment project areas.
d. Public Open Spaces and Parks
The City will maintain and enhance the quantity and quality of parks and recreation facilities
provided in the Specific Plan Area through incentives, regulatory actions, and other means. City
actions may include, but will not be limited to:
1. Use of Redevelopment Agency powers to assemble small parcels, creating the opportunities
for larger developments with dedicated public open spaces;
2. Use of Redevelopment Agency tax increment funds to purchase one or more properties for
“ pocket parks” ( small parks that provide limited recreation facilities);
3. Credit toward individual landscaping requirements for several property owners who jointly
develop a pocket park or publicly accessible and usable open space;
4. Granting of a density bonus for development projects in the Specific Plan Area that provide
publicly accessible open space or recreational facilities in excess of that required by existing
regulations;
5. Development, either by the City or by the City in combination with other entities, of parks
and recreational facilities and programs; and/ or,
6. Regulatory actions such as those provided by the California Environmental Quality Act and
the Quimby Act to require mitigation for impacts to parks and recreation services and
collect impact fees to be used for park development
3 State law provides that local governments shall grant density bonuses of at least 25 percent, plus an additional
incentive( s) or equivalent financial incentives, to housing developers who agree to construct at least: 20% of the units
affordable to lower- income households, 10% of the units affordable to very low- income households, or senior citizen
housing.
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TOWN CENTER SPECIFIC PLAN I- 30 CITY OF COVINA
Civic Center Park
The City will maintain or develop a Civic Center Park, located to provide safe and convenient
pedestrian access, as a venue for outdoor public events and with usable and accessible multi- use
recreation areas and open spaces.
e. Pedestrian Improvements
In making circulation improvements in the Town Center Specific Plan Area, the City will seek to
achieve the following pedestrian principles:
1. Maintain a continuous five ( 5)- foot pedestrian pathway along Citrus Avenue and between
major destination points within the Specific Plan Area.
2. Blank building wall faces should be avoided – building activities should be encouraged to
open onto pedestrian walkways.
3. Wide walkways ( more than five ( 5) feet in width should be constructed in high pedestrian
activity areas whenever possible. Where wider walkways are not possible, the City should
work with property owners to create periodic wide spots, through corner and mid- block
bulbouts and first- floor building insets. These wide spots provide places for pedestrian
furniture, directional signs and kiosks, outdoor eating and other pedestrian activities.
4. Make intersections more pedestrian friendly intersections to accommodate to physical
abilities of pedestrians through intersection signs and mechanisms that are clear and
understandable; medians and bulbouts to reduce crossing distances; and raised surfaces,
color or paving devices, and/ or reflectors, or flashing light devices embedded in the
pavement to clearly mark pedestrian crossing and alert motorists.
5. Provide mid- block crossings when possible to directly link high activity areas and important
destination points. Provide pedestrian walkways between the principal entrances of
individual uses and buildings on the same property.
6. Locate service bays away from pedestrian areas.
7. Provide overhead weather protection through awnings, marquees, and similar overhanging
devices along any portion of the building which is adjacent to a pedestrian walkway.
f. Development and Reuse of Opportunity Sites
The Town Center Specific Plan identified several areas with the greatest potential for more intense
land uses, either through more the reuse of developed properties or development on vacant sites.
The opportunity areas include:
1. The blocks on both sides of San Bernardino Road, between Citrus Avenue and Third
Avenue. These properties are under common ownership, are relatively large, and provide
an opportunity to attract anchor retail tenants and mixed- use projects close to transit.
2. Citrus Valley Medical Center’s surface parking, which could be redeveloped with a parking
structure, freeing part of the property for other uses.
3. Surface parking behind commercial properties on either side of Citrus Avenue, between
Badillo Street and San Bernardino Road, which could be redeveloped for other uses if one
or more parking structures is constructed to replace the surface parking.
4. The Residential Focused Activity Area at Geneva Place and Third Avenue, which has the
potential for redevelopment from light industrial uses to residential and/ or residential mixed-use.
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TOWN CENTER SPECIFIC PLAN I- 31 CITY OF COVINA
5. The Front Street corridor, between Citrus Avenue and First Avenue. This corridor has
significant potential for transit- oriented uses near the Metrolink station, and the conversion
of light- industrial properties and buildings to mixed commercial and residential uses.
To foster the reuse of opportunity sites, the City will maintain an inventory of such properties;
identify potential environmental constraints and how these can potentially be resolved; target
redevelopment tax increment funds, to the extent available, for public improvements to these areas;
and assist in establishing bond- financing or other financing mechanisms for parking and other public
improvements.
g. Infill Opportunity Zones
Governor Davis signed into law SB 1636 ( Infill Opportunity Zones) in 2002, removing an obstacle
to redevelopment planning by local governments related to traffic congestion standards. The State
Congestion Management Act requires regional transportation planning agencies to adopt Level of
Service ( LOS) standards and mitigation strategies to addresses vehicular congestion. These
standards and mitigation strategies may not be appropriate for urban areas such as downtown
Covina, which have access to public transit and a walkable layout. To take advantage of State
legislation that promotes transit oriented planning principles, the City will implement the following:
1. City staff will prepare a resolution for consideration by the City Council that identifies and
designates one or more Infill Opportunity Zones in Covina that include areas of the Town
Center Specific Plan Area and provide findings required under SB 1636, Infill Opportunity
Zones ( zones must be located within 1/ 3rd mile of a transit stop with frequent service).
2. The City will prepare either an alternative Level of Service standard for use within the Infill
Opportunity Zone/ s, or identify a range of mitigation measures ( that are different from those
used by the regional transportation planning agency) to enhance walkability, and/ or
increase transit use, service, and access.
3. The City will require the alternative LOS standard or mitigation measures to be used for
projects within the Town Center Specific Plan.
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TOWN CENTER SPECIFIC PLAN I- 32 CITY OF COVINA
G. INFRASTRUCTURE PLAN
1. Infrastructure and Services Goals
Infrastructure Goal 1. A functional, efficient, economical system of infrastructure for the
Specific Plan Area that adequately accommodates the needs of
downtown residences, businesses, civic institutions, and other land
uses.
Infrastructure Goal 2. High quality public services meeting the needs of Covina residents,
employees, employers, and visitors. Both downtown and citywide.
Infrastructure Goal 3. Adequate funding for infrastructure and service improvements
through equitable mechanisms that do not penalize small businesses,
deter new commercial enterprises, or impede housing development
downtown.
2. Infrastructure and Services Policies
Infrastructure Policy 1. The City shall, in coordination with future development within the
Specific Plan Area, ensure the replacement of water lines serving the
Specific Plan Area that are more than 50 years in age or less than
eight inches in diameter.
Infrastructure Policy 2. New water lines shall be a minimum of eight inches in diameter.
Infrastructure Policy 3. The City and Redevelopment Agency shall, in coordination with
future development proposals, maintain and improve Covina’s
downtown sewer collection and conveyance facilities to prevent
contamination of groundwater, assure compliance with state and
federal water quality standards, and accommodate future Specific
Plan Area development.
3. Infrastructure and Services Objectives
Infrastructure Objective 1. Infrastructure and public service levels of service for the Town Center
Specific Plan Area that are as high as or higher than these levels of
service citywide.
Infrastructure Objective 2. Infrastructure and public service impact fees and other funding
mechanisms that are established such that downtown Covina is a
competitive location for future housing and commercial development
and adequate funding is provided for needed infrastructure
improvements.
Infrastructure Objective 3. Coordinated and targeted public infrastructure and service
investments by the City and Redevelopment Agency that attract
private investment in development and re- use and that are consistent
with the Town Center Specific Plan vision, goals, and policies.
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TOWN CENTER SPECIFIC PLAN I- 33 CITY OF COVINA
4. Recommended Improvements
a. Public Infrastructure
Water
The existing water system is capable of meeting future water demands in the Specific Plan Area with
respect to the capture, storage, and conveyance of water. However, substantial new development
and redevelopment with higher water- demand uses may require that water supply lines be replaced
or increased in size. According to the City Public Works Department, pipelines older than 50 years
in age should be considered for replacement and pipelines smaller than eight inches in diameter
should be upgraded to a minimum of eight inches in diameter. Impacts on the City’s water delivery
system in the Specific Plan Area will be reviewed and addressed on a case- by- case basis, and
developers will be required to pay for water line improvements needed to serve their projects.
Sewer
The City conducted a sewer study to support preparation of the 2002 Sewer Master Plan. The study
and Master Plan identify the capability of the City's sewer system to serve projected development,
identify system deficiencies, and recommend necessary system improvements. Of the 120 miles of
sewer modeled during the Master Plan process, approximately 9.3 miles of the system were
identified as being deficient. Deficiencies are related to the ability of each pipe segment to carry
peak flows without exceeding the capacity the system. The most severe deficiencies noted in the
Master Plan study occurred within Tributary Area No. 1, which includes the Specific Plan Area.
The Master Plan recommends concentrating initial work to upgrade the City’s sewer system in the
Specific Plan Area as the area is redeveloped and the streets are repaved or rebuilt. As a part of
Covina’s development permit review procedures, the City, according to the Master Plan, should
consider examining the underlying sewer lines to determine whether or not they warrant
replacement.
b. Public Services
Downtown Shuttle
The City will evaluate the feasibility of providing a transit connection between downtown and
Shopper’s Lane, in collaboration with Foothill Transit and/ or other local/ regional transit providers.
The type of vehicle to be used for such transit, the optimal frequency of operations, and the
destinations served would be subject to future analysis. The shuttle could involve the use of existing
transit shelters or require the construction of new shelters. These shelters, where feasible, should
provide amenities such as community posting boards, public telephones, and bike racks.
City Library
The City will evaluate the condition of the City library and consider renovation of the existing
facilities or relocation of the City library to the block bounded by School Street, Italia Street, Citrus
Avenue, and Second Avenue.
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TOWN CENTER SPECIFIC PLAN I- 34 CITY OF COVINA
H. ADMINISTRATION AND FINANCING
The successful implementation of the Specific Plan administration of the policies and regulations of
the Plan by City staff in cooperation with private property owners and property developers and
business owners, expediting the entitlement review process wherever possible and prudent. The
City should use available streamlining measures for proposed projects consistent with the provisions
of this Specific Plan.
Conditionally approved uses shall be divided into those that can be reviewed administratively and
those that require Planning Commission review. The City should make use of infill, affordable
housing, transit- oriented development, and any other CEQA exemptions for development projects
within the Specific Plan Area, adopting findings wherever necessary to do so. The City should
encourage developers and property owners to contact City staff early in the entitlement/ permit
process to describe City expectation and discuss developer/ property owner needs and concerns.
The City should identify opportunities to expedite decision- making, consistent with this Specific
Plan.
I. PLAN PREPARATION PROCESS AND PUBLIC PARTICIPATION
The City conducted an extensive public outreach process for the preparation and adoption of the
Town Center Specific Plan. The process involved consultation with community leaders, interested
individuals, and the public at large during preparation of the Plan, a public workshop to discuss
conceptual alternatives, and public hearings. The public outreach and participation included:
• Stakeholder and public consultation between February and April, 2004, in which the
City interviewed interested individuals and representatives of community organizations.
The purpose of the interviews was to solicit comments on key issues and concerns that
should be the focus of the Town Center Specific Plan and potential policies and
solutions to those issues and concerns.
• Ongoing public information about the Specific Plan process and associated documents
posted on the City’s website. The City’s website was also used as a vehicle for
encouraging ongoing public discussion and comments on the Specific Plan.
• Information in the City’s newsletter and other communications with the public.
• Flyers distributed at public events, such as the Orange Blossom Festival.
• A public workshop conducted in May 2004 ( joint City Council- Planning Commission
study session) on proposed land use and circulation conceptual alternatives. This
workshop resulted in a consensus among the City Council and Planning Commission
members for a focused activity area approach to downtown revitalization. This
approach will build upon, and expand, existing activities in the downtown area, but will
also encourage mixed- use development where no particular focus of activity is desired
or necessary.
• A Planning Commission public hearing on a draft Specific Plan, conducted in July 2004.
• Planning Commission and City Council public hearings on a final Specific Plan,
conducted in September 2004.
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INTRODUCTION
TOWN CENTER SPECIFIC PLAN II- 1 CITY OF COVINA
II. INTRODUCTION
A. SPECIFIC PLAN VISION AND GUIDING PRINCIPLES
The Covina Town Center Specific Plan is intended to implement the City’s vision for downtown
Covina as:
• A place where people can live, work, shop, and play without needing their cars;
• A local and regional center of public and business activity;
• A place where local history has been preserved through the protection of historic buildings
and activities associated with those buildings; and,
• An opportunity to experience a traditional downtown with a small- town ambience.
The overall goal of the Specific Plan is to facilitate revitalization of downtown Covina by increasing
the number and variety of retail and other commercial establishments, increasing the number of
housing units and residents in the downtown area, stimulating development on vacant infill and
under- used properties, and improving public infrastructure, facilities, and services to support new
development.
Guiding principles that have been included in the Specific Plan are:
1. Return the focus of civic, social, and economic activity
2. Encourage more people to live downtown
3. Protect and build upon downtown’s unique character
4. Provide ample public spaces for multiple uses
5. Encourage people to leave their cars behind
This Specific Plan addresses issues related to building type and scale, commercial and mixed- use
development, fiscal health, and downtown transportation and circulation, as intended by the
General Plan. The Specific Plan also establishes goals, objectives, and policies for developing and
redeveloping the downtown, giving property owners and developers additional certainty and
incentives to improve the existing built environment and increase investment downtown.
The Town Center Specific Plan refines and carries out General Plan goals, in light of current
conditions in the downtown are a, to establish the community’s vision of a more vital downtown.
The Specific Plan also provides the regulatory guidance, public service and infrastructure
investments, and regulatory incentives needed to facilitate this vision.
The City’s vision, goals, and objectives for downtown Covina could, in theory, be accomplished
under current General Plan policies and zoning. The Specific Plan, by itself, may not necessarily
increase overall development potential in area covered by the Plan. However, the Specific Plan
identifies regulatory constraints in the City’s current approach to zoning and development approval,
and institutional impediments among public and private organizations that have hindered
achievement of a vision for intensified, transit- oriented, mixed- use downtown. To the extent these
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TOWN CENTER SPECIFIC PLAN II- 2 CITY OF COVINA
constraints can be overcome through implementation measures contained in the Specific Plan, the
City can better facilitate and stimulate development and redevelopment, and accelerate the pace of
downtown revitalization.
Among the specific concepts the Town Center Specific Plan seeks to achieve are:
• A municipal governmental center that consolidates services to the public;
• A social and cultural center with entertainment, dining, libraries, and a traditional “ town
square” ( a multi- use activity center contained within a civic center park);
• Pedestrian- and transit- oriented neighborhoods that encourage residents and visitors to leave
their private cars and greater access and pedestrian links among major destinations within
the downtown area;
• Greater access and better pedestrian links between the downtown retail core and the
Metrolink station northeast of Citrus Avenue and Front Street;
• Mixed- use development that allows people to live close to work and shopping and where
housing is placed above street- level commercial uses;
• A center of retail and commercial services for local residents and visitors from throughout
the San Gabriel Valley;
• A regional center for medical services;
• Higher residential and commercial densities, including buildings of two to four stories in
appropriate locations, on properties with infill and reuse potential;
• A critical mass of workers and residents, generating activity needed to create a vibrant
downtown with both daytime and nighttime activities that include entertainment, shopping,
and dining;
• The transition of areas currently zoned M- 1 along the northern portion of the Specific Plan
Area from heavy commercial and light industrial uses to a mixture of commercial and
residential development;
• Improved parking and traffic flow to support higher- density land uses and a greater
concentration of activity downtown;
• Adequate infrastructure, public facilities and services, and utilities to support more intense
development downtown;
• Protection of historic buildings and other buildings of local significance; and,
• Compatibility of new land uses, whether occurring within existing buildings or newly
constructed buildings, with the scale and general appearance of existing buildings
downtown.
B. SPECIFIC PLAN PURPOSE AND REGULATORY NATURE
The Town Center Specific Plan implements the General Plan as it relates to the Specific Plan Area,
and implements other City policy documents and redevelopment policies for the downtown. The
density requirements, development standards, land use restrictions, and changes to design
guidelines promulgated in this Specific Plan are intended to replace requirements of the City’s
Zoning Ordinance within the Specific Plan Area, where necessary, although the City’s Subdivision
Ordinance, Oak Tree Ordinance, Site Plan Review Process, Building Codes, and other citywide
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TOWN CENTER SPECIFIC PLAN II- 3 CITY OF COVINA
policies and regulations would continue to apply. Because the historic center of the City is a unique
place with unique issues and opportunities, the City acknowledges that a strategic reexamination of
the land use policies and a fresh array of incentives for downtown development and redevelopment
are necessary to achieve the vision for a more vital downtown.
The 2000 General Plan ( page A- 3) envisions downtown Covina as a special place in which to
promote a greater variety or retail businesses, better links to transit, and mixed uses ( including
residential over commercial space) within an “ urban village” context. To achieve this vision for
downtown, the General Plan Land Use Element contains several polices that recognize the need for
flexibility in residential and commercial development standards. As a result, the Specific Plan
proposes density and other standards for the downtown area that vary from General Plan policies
and implementing zoning standards applicable to other parts of the City. This flexible approach is
consistent with, and explicitly permitted by, the General Plan. ( See Chapter IV, Table IV- 1 for more
details regarding relevant General Plan policies.)
Many of the elements necessary to promote a “ livable community” are already present downtown,
including a walkable character, access to transit, parks, historic buildings, and infill and
redevelopment opportunities. Covina’s 2000 General Plan and Zoning Ordinance allow for high-density
and mixed- use development in the downtown, and the City has adopted Downtown Design
Guidelines ( Design for Development) that promote mixed- use and high- density housing.
The Specific Plan brings together all of the elements— land use, circulation, economic development,
infrastructure, services, and financing— that will be necessary to achieve the City’s objectives for
downtown Covina. The Specific Plan also addresses zoning and other regulatory issues to
implement both the vision for downtown Covina and the City’s General Plan policies for
downtown.
Zoning for the downtown area has not been comprehensively updated since 1975, although several
changes to zoning standards have occurred since then. The Specific Plan includes
recommendations for updating development standards as they relate to downtown. In particular,
the Specific Plan contains mixed- use standards that will allow the City to introduce new infill
housing to a variety of economic segments of the population with services and retail opportunities
nearby.
Since 1988, the City has completed a number of streetscape improvements downtown in keeping
with the City’s design guidelines for downtown. These improvements complement the historic main
street theme along Citrus Avenue that is conveyed by much of the built environment and has
helped to tie together different building styles and sizes. Revitalization efforts have focused on
pedestrian amenities such as crosswalk improvements, decorative paving, bulbouts and landscaped
rights- of- way, street furniture, themed lighting, decorative trash receptacles, street trees, and other
elements.
A theme for signs in the downtown includes historic references and enhances a sense of place. The
City’s revitalization efforts also recognize the importance of parking to the economic health of
downtown Covina. The Specific Plan contains recommendations for additional improvements to
existing parking areas ( including both on- and off- street parking changes), and new parking
structures to serve downtown parking needs. The City’s objective for parking areas and structures is
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TOWN CENTER SPECIFIC PLAN II- 4 CITY OF COVINA
that they reflect integrated design elements similar to that recommended for downtown
streetscapes, such as landscaping, signage, and seating.
C. PROJECT LOCATION
The Town Center Specific Plan covers the area generally known as downtown Covina. Specific
geographic description of the plan boundaries are provided below. A map showing the boundaries
of the Specific Plan Area can be found in Figure II- 3.
1. Description
The Specific Plan Area includes 156 acres of land within downtown Covina, including 32.1 acres of
public rights- of- way ( streets, sidewalks, alleys, and other publicly owned access ways) and 4.1 acres
of railroad right- of- way. The Specific Plan generally covers the area bounded by the Union Pacific
tracks on the north ( also used by Metrolink), North First Avenue on the east, Badillo Street on the
south, and Fourth Avenue/ Valencia Place/ Pollard Lane on the west ( boundary extended to include
Covina Park on the western edge). The town center is comprised of office and retail commercial,
single- family and multi- family residential, institutional, and light industrial uses. The area includes the
Citrus Valley Medical Center, Metrolink Station, a variety of government offices, and two parks
( Covina Park and Civic Center Park).
2. Other Affected Jurisdictions
The Town Center Specific Plan is contained completely within the jurisdictional boundaries of the
City of Covina. The Plan Area is bounded on all sides by incorporated Covina, and there are no
other jurisdictions directly affected by the adoption or implementation of this Plan.
D. ENVIRONMENTAL REVIEW AND COORDINATION
This Specific Plan was prepared in coordination with an environmental review and assessment
process conducted by the City to support an Environmental Impact Report ( EIR) for the Town
Center Specific Plan. The Specific Plan Area is a developed, urban environment completely
surrounded by urban development. The environmental conditions and consideration of
environmental impacts associated with the redevelopment of the area reflects this reality.
Downtown Covina is one of the older developed areas in the San Gabriel Valley, with some of the
buildings constructed in the 1890s. The downtown contains many significant and potentially
significant historic structures. The area does not include important habitat for special- status species.
Downtown topography is flat, and there are no surface water features. Important noise sources
include the Metro rail line located north of San Bernardino Road, and the major arterial roadways:
Barranca Avenue; Citrus Avenue; Hollenbeck Avenue; and, Badillo Street. Older buildings in the
downtown may be susceptible to damage should groundshaking occur— especially unreinforced
masonry buildings.
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E. KEY ISSUES
Between February and April, 2004, the City conducted a public outreach process in which
individuals and organizations interested in downtown Covina were asked to provide their thoughts
on the future of downtown, issues of concern, and suggestions downtown revitalization. Key issues
of interest and concern are described below. The statements are summaries of the thoughts and
opinions of over 30 individuals representing a broad range of organizations and interests.
1. Parking
• Many individuals believe that the greatest hindrance to downtown development is a
lack of adequate off- street parking. It is difficult to attract new businesses downtown
because of the parking problem.
• Many people travel through or near downtown Covina but do not stop because they
believe parking is inconvenient. One or more parking structures with good access to
downtown would help solve this problem and could replace some surface lots. Such
parking structures need to be close by ( a block or two) to most businesses. The City has
not developed the available area behind stores on either side of Citrus Avenue, and
multi- level parking could help free up land for redevelopment while increasing off- street
parking supply.
• More of the parking should be long- term ( more than two hours) to attract shoppers
downtown.
• More and visible directional signs would help increase public awareness of available
parking.
2. Traffic and Pedestrian Travel
• Traffic along Citrus and San Bernardino is a problem. The intersections of North Citrus
Avenue at San Bernardino Road, Italia Street, and School Street need pedestrian- friendly
improvements to make it easier to cross these streets.
• Traffic flow is too fast along this segment of Citrus Avenue and along San Bernardino
Road.
• Traffic generated by the Metrolink station should be managed better to make it safe for
pedestrians downtown.
• Traffic hazards along some of the alleyways used by pedestrians to access off- street
parking is also a problem.
• Areas east and west of Citrus Avenue can be developed into north- south “ paseos”
( pedestrian pathways).
3. Public Transit
• Most Metrolink passengers do not patronize downtown. The San Bernardino Line
( which runs through downtown Covina) is the only line that operates seven days a
week, creating an opportunity for weekend trips to Covina. The City needs to create a
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reason for transit customers to go downtown. The presence of Metrolink could draw
customers into downtown if there are better pedestrian connections and the Metrolink
traffic can be better managed. Transit- oriented development around the Metrolink stop
that contains retailers and services that passengers could use ( coffee shops,
laundromats, childcare, restaurants. etc.) might attract more downtown business.
• A shuttle or trolley system might help increase access from the Metrolink station to
downtown businesses.
• Parking structures associated with transit should “ fit in” aesthetically with downtown and
should be designed for pedestrian safety.
• The presence of the Metrolink line may be a benefit to marketing housing downtown to
two- income households.
• The proposed Foothill Transit Center, if now shelved, should be reexamined. The area
north of San Bernardino Road and west of Citrus Avenue, next to the proposed
Metrolink parking structure, could provide an opportunity to create a bus terminal with
retail shops.
4. Civic Center Park
• Civic Center Park is a valuable community resource due its downtown location, the
opportunity it provides for public events and open space, and the large, mature trees.
• The park does not have good pedestrian access, and has few amenities. Parking is
difficult, and the park is not well suited for families with children. Significant
improvements will be necessary to increase the park’s attractiveness and usefulness to
the public at large.
• The annual Christmas tree lighting of the heritage tree and other events at the park
provide a hometown feel. Whether the existing park is maintained/ improved or a new
park developed, the City should preserve the open space and opportunities for
community events.
• If a new downtown park or public space is developed, it should be comparable in size
to Civic Center Park, offer a variety of recreation amenities, and provide safe pedestrian
access. The mature trees at Civic Center Park should be protected and incorporated
into any new development scheme for the Park.
5. Redevelopment Opportunities and Challenges
• If the two car dealerships relocate ( on San Bernardino Road and Citrus Avenue), the City
needs to facilitate the reuse of these properties as quickly as possible so as not to leave
a “ hole” in the downtown economy. The mill and lumber property is another prime
candidate for redevelopment that should be addressed promptly.
• The Covina Playhouse reconstruction will be a substantial attraction to downtown.
Other entertainment and cultural attractions could build upon the playhouse. A
proposed performing arts center would also attract more people downtown.
• Too many absentee property owners are satisfied with the rents they collect and are not
willing to update their properties or work with businesses owners to upgrade downtown
Covina.
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• Downtown Covina needs a high- end food retailer downtown and/ or other high profile
anchor store. Downtown also needs a better and more diverse mix of stores to attract
visitors ( entertainment and dining venues) and provide more opportunities for local
residents to shop for their personal needs.
• Small, locally owned businesses are important to the downtown’s future, and these
business owners should remain a vital part of downtown redevelopment.
• Downtown businesses serving local residents should be within easy walking and biking
distance.
• Businesses downtown should cater to customers with different incomes, which would
make a more resilient downtown.
• More housing is needed downtown to support revitalization, but this housing needs to
be a mix of market- rate and affordable housing, not just senior housing. Young families,
particularly those without children, would be the primary target group for market- rate
downtown housing and mixed- use projects.
• Specific areas/ corridors where redevelopment potential has been identified include:
− The area along Front Street for mixed- use residential and commercial
development, particularly near the Metrolink station;
− The area west of Citrus, between Badillo and San Bernardino for mixed- use and
another parking structure;
− College Street, east of Citrus;
− Citrus Avenue, between Badillo Street and north of San Bernardino Road;
− First Street, between Italia and College; and,
− Second Avenue, east to Barranca, and from San Bernardino Road to the railroad
tracks.
• Re- configuration of street and circulation system can also increase feasibility by
increasing net developable area.
6. Scale and Design of New Development Downtown
• The scale, design, and use of materials in downtown development downtown should be
consistent and compatible with the character of downtown.
• Residential structures should have their fronts facing outward, toward the street, which
facilitates community interactions. This orientation also helps retailers by creating more
pedestrian traffic on the sidewalk. Downtown housing should be built up to the
sidewalk or as close as possible to add life and interest to the streetscape.
• Trees are important for future development, and should not b