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HomeMy WebLinkAboutStaff Report 7271 City of Palo Alto (ID # 7271) City Council Staff Report Report Type: Study Session Meeting Date: 2/13/2017 City of Palo Alto Page 1 Summary Title: 4146 El Camino Real: Prescreening for Zone Change Title: Request for a Pre-Screening Study Session to Rezone the Vacant Property at 4146 El Camino Real (Near Thain Way) From Low Density Multiple-Family Residence District (RM-15) to Medium Density Multiple- Family Residence District (RM-30) From: City Manager Lead Department: Planning and Community Environment Recommendation Staff recommends that the City Council conduct a preliminary review of the applicant’s request to rezone the property at 4146 El Camino Real from Low Density Multifamily Residential (RM- 15) to Medium Density Multifamily Residential (RM-30). This is a study session intended to receive public and City Councilmember comments; no formal action is requested. Executive Summary The applicant seeks preliminary feedback from the City Council concerning a proposal to rezone 4146 El Camino Real from RM-15 to RM-30. No change to the site’s Comprehensive Plan land use designation is necessary, as the proposal is consistent with the existing land use designation. A prescreening review is required for this type of legislative change prior to application submittal. A prescreen will allow the City Council and the public a preview of the proposed rezone and issues that may arise from the proposal. The Council could also offer comments as to any aspect of the project, including the appropriateness of the contemplated zoning district and urban design considerations if the proposal were to move forward. The applicant has provided preliminary massing and design information, which serve to illustrate the proposal, but should not be considered final or proposed designs. Based on the City Council’s comments at this evening’s study session, the applicant will prepare applications with a more fully developed design proposal which will be reviewed for code compliance and will be subject to environmental and architectural review. Background City of Palo Alto Page 2 The project site is comprised of a single parcel identified as 4146 El Camino Real. A location map showing the property, and surrounding properties, is attached (Attachment A). The total area of the site is 33,541 square feet. The site is currently vacant with the exception of a single billboard sign. The site was previously occupied by a single family residence that was demolished in 1997. The site is currently zoned RM-15, which allows up to 15 dwelling units per acre. Based on the lot size, that equates to a potential development yield of 11 dwelling units, with the potential for 35% more units if a State density bonus is requested. Context The site’s Comprehensive Plan land use designation is Multi Family Residential. The project is also included in the City’s Housing Element as an opportunity site. The property’s primary street frontage is located on State Highway 82, otherwise known as El Camino Real an arterial roadway according to the City’s Comprehensive Plan. Typical uses along El Camino Real in this area include multifamily developments, restaurants, hotels, and other commercial and retail uses. Adjacent uses to the northeast, across El Camino Real include retail (Starbucks Coffee), commercial office (WSO2), personal services (Think Tank Learning), (Opus Music Studio) and eating and drinking uses (Subway Sandwiches). Adjacent uses to the northwest and to the southwest include a multifamily condominium development known as Barron Square (PC 3023). To the southeast is a hotel use (The Zen Hotel). Multifamily residential buildings in the area are primarily between two and three stories tall. Figure 1 shows the project zoning and surrounding zoning districts. Figure 1: Zoning Map Showing Subject Parcel and Surrounding Parcels City of Palo Alto Page 3 Source: City of Palo Alto Planning & Community Environment Department, December 2016 Prior Preliminary Architectural Review The project was the subject of a Preliminary Architectural Review by the Architectural Review Board (ARB) on May 15, 2014. The full report is available at the following link: https://www.cityofpaloalto.org/civicax/filebank/documents/40407. The proposed concept included the development of two, three-story buildings for 21 residential condominiums. Those units would be a combination of one to two bedrooms set on a podium above parking. The request required a rezone from RM-15 to RM-30. The ARB was supportive of the increased density and asked that the project continue to study the building frontage, rhythm and connection to the street. The ARB also stressed that community pedestrian connections should be developed that connect the Barron Square neighborhood to the El Camino Real businesses and services. There were concerns from the neighbors regarding the size of the project, the City of Palo Alto Page 4 visual impacts of the project and vehicle access from the project to neighboring properties within Barron Square. The development proposal did not proceed. Discussion The primary focus of the request is to seek comments on the proposal to rezone from RM-15 to RM-30. While the supporting documentation for the project includes development site plans and elevations, these can only be considered as concepts at this time (Attachments B and C). The concepts help frame what could potentially be developed at the site. If there is support for the rezone by the City Council, then the applicant could apply for a Major Architectural Review, where the rigorous evaluation of development plans would occur. The proposal would also be subject to environmental review. Summary of Key Issues The request is to evaluate whether it is appropriate to allow additional density on the site. Based on the size of the subject property, the current zoning designation allows a maximum of 11 dwelling units, consistent with the zoning designation density range between eight and 15 dwelling units per acre. The proposed zoning designation would allow up to 23 dwelling units, which is consistent with the RM-30 density range between 16 and 30 dwelling units per acre. Up to 35% more units could be allowed if a State density bonus is requested, as described further below. Development Standards The table below summarizes the development standards that are different between the RM-15 and RM-30 designations and what those differences would equate to for potential development. All other applicable development standards are the same between the two districts. Table 1: Comparison of Development Standards between RM-15 and RM-30 where Different1 Development Standards RM-15 RM-30 Difference upon Rezone Maximum Height (ft.) 30 35 +5 ft. (Three stories can be accommodated in both districts) Maximum Site Coverage (Base) 35% 40% + 1,677 sf Maximum Floor Area Ratio (FAR) 0.5:1 0.6:1 + 3,354 sf Maximum Dwelling Units per Acre 15 30 + 12 units Minimum Site Open Space (%) 35 30 -1,677 sf City of Palo Alto Page 5 Development Standards RM-15 RM-30 Difference upon Rezone Minimum Usable Open Space (sf per unit)2 200 150 +3,450 sf Minimum Common Open Space (sf per unit)2 100 75 +625 sf 1Pursuant to the State density bonus law, increased density and development concessions may be available to exceed these standards if a percentage of the units are affordable. See Palo Alto Municipal Code Section 18.15. 2 Based on maximum dwelling unit yield for site Surrounding Context This stretch of El Camino Real is not considered a “safe route to school” to the schools within the vicinity of the site. Students are directed to take El Camino Way instead. Just north of the project (4100 El Camino Real) is a development approved in 1998 that includes three-story dwelling units (pictured below). Source: Google, December 2016. The photograph below depicts the site as it currently exists. City of Palo Alto Page 6 Source: Google, December 2016. The photograph below is taken from the cul-de-sac on Thain Way looking towards the subject site. Source: Google, December 2016. Prescreening Considerations Palo Alto Municipal Code (PAMC) Section 18.79.010 states that the purposes of a preliminary review are: a) To maximize opportunities for meaningful public discussion of development projects, at the earliest feasible time, for the guidance of the public, project proponents and city decision makers. Prescreening is intended to focus on purpose, scope, conceptual design and other similar matters and is not intended to involve review of complete drawings and documentation. b) To focus public and environmental review of development projects on the issues of greatest significance to the community, including, but not limited to, planning concerns, neighborhood compatibility, Comprehensive Plan consistency, economics, social costs and benefits, fiscal costs and benefits, technological factors, and legal issues. These procedures are not intended to permit or foreclose debate on the merits of approval or disapproval of any given development project. c) To provide members of the public with the opportunity to obtain early information about development projects in which they may have an interest. City of Palo Alto Page 7 d) To provide project proponents with the opportunity to obtain early, non-binding preliminary comments on development projects to encourage sound and efficient private decisions about how to proceed. e) To encourage early communication between elected and appointed public officials and staff with respect to the implementation of city policies, standards, and regulations on particular development projects. f) To facilitate orderly and consistent implementation of the City's Comprehensive Plan and development regulations. The preliminary schematic drawings communicate a concept plan as is appropriate for this stage of project consideration. It is not intended to demonstrate the actual proposal, but to demonstrate possible massing, site planning, circulation and parking for the site. As stated previously, through the review process consistency with the zoning code standards would be evaluated. Affordable Housing Based on the maximum allowable dwelling units, a future development project would have to provide three below market rate units, which is one more unit than if the site would remain in the RM-15 zoning district. Based on State law, the City would be required to grant a density bonus and other incentives or concessions to the project if it contains one of the following: At least 5% of the housing units are restricted to very low income residents; at least 10% of the housing units are restricted to lower income residents; and at least 10% of the housing units in a for-sale common interest development are restricted to moderate income residents. The density bonus is based on a sliding scale based on the percentage of affordable units at each income level and the density bonus level is capped at 35%. Under the State density bonus law, reduced parking requirements and development concessions are also available to projects with affordable units, as provided in Section 18.15 of the Palo Alto Municipal Code. Policy Implications The subject property is located in the Multiple Family Residential Land Use Designation of the Comprehensive Plan. According to the Comprehensive Plan, the permitted number of housing units will vary by area, depending on existing land use, proximity to major streets and public transit, distance to shopping, and environmental problems. Net densities will range from eight to 40 units and eight to 90 persons per acre. Density should be on the lower end of the scale next to single family residential areas. Densities higher than what is permitted by zoning may be allowed where measurable community benefits will be derived, services and facilities are available, and the net effect will be compatible with the overall Comprehensive Plan. The proposed rezone would be consistent with the Comprehensive Plan land use designation. Several Comprehensive Plan policies are applicable to the site and the neighborhood including, but not limited to: City of Palo Alto Page 8 Land Use Policy L-5 Maintain the scale and character of the City. Avoid land uses that are overwhelming and unacceptable due to their size and scale. Land Use Policy L-6 Where possible, avoid abrupt changes in scale and density between residential and non-residential areas and between residential areas of different densities. To promote compatibility and gradual transitions between land uses, place zoning district boundaries at mid-block locations rather than along streets wherever possible. which indicates to avoid abrupt changes in scale and density between residential and non-residential areas and between residential areas of different densities. Land Use Policy L-12 Preserve the character of residential neighborhoods by encouraging new or remodeled structures to be compatible with the neighborhood and adjacent structures. Land Use Policy L-14 Design and arrange new multifamily buildings, including entries and outdoor spaces, so that each unit has a clear relationship to a public street. Housing Policy H1.4 Ensure that new developments provide appropriate transitions from higher density development to single-family and low-density residential districts to preserve neighborhood character. Housing Policy H2.1 Identify and implement strategies to increase housing density and diversity, including mixed-use development and a range of unit styles, near community services. Emphasize and encourage the development of affordable and mixed income housing to support the City’s fair share of the regional housing needs and to ensure that the City’s population remains economically diverse. Housing Policy H3.1 Encourage, foster, and preserve diverse housing opportunities for very low-low-, and moderate income households. Timeline Following the prescreening review, the applicant will consider the comments received and determine how they want to proceed. Formal applications and public hearings before the Architectural Review Board, Planning Commission and City Council would be required to advance the proposed conceptual project. Environmental Assessment Environmental review is not required for a prescreening, as no formal action will be taken on City of Palo Alto Page 9 the proposal. The prescreening is not considered to be a project under CEQA. If a formal rezoning application is filed, a complete environmental assessment (Initial Study) will be prepared in compliance with CEQA guidelines, prior to any formal hearing of the rezoning. The environmental review process for the project would include an evaluation of traffic and aesthetics amongst other topics. Attachments:  Attachment A: Site Location Map  Attachment B: Applicant Request Letter  Attachment C Project Plans  Attachment D: Public Comments Legend ·-··� ���� .. Easementl:::::J Zone Districts abc Zone District Labels •Tree 1::::::::::,1 Project Site The City of Palo Alto This map is a product of the City of Palo Al to GI S -- 0' 141• Thisd:x:urreitisapf'icll:!l)"ese"iGtionorlyotbes1a\8i!ati:sa.r.JteS. TheCityoiPa6oAlt>as9.mS roiesporsitilityi:rart{ex:rs�»Zl16CityoiPa6oAlt> 4146 El Camino Real Prescreening 16PLN-00239 August 26, 2016 City of Palo Alto Department of Planning & Community Environment 250 Hamilton Avenue, 5th floor Palo Alto, CA 94303 Re: 4146 El Camino Real – zone change prescreening Mayor Burt and fellow Council Members: Attached is Hayes Group Architect’s submittal package for a prescreening of a zone change proposal for 4146 El Camino for your consideration. The project applicant is Hayes Group Architects on behalf of the owner, Su Juan. SUMMARY Ms. Juan and her family once lived in the single-family home that occupied the property until it was torn down in 1997. Since that time the site has been vacant. In 2011 an application to rezone the property from RM15 to RM30 was filed but never advanced at the city. In 2012 Hayes Group Architects was contacted to initiate a new application on behalf of Ms. Juan to rezone the property as originally proposed. On April 16, 2013, a neighborhood meeting was held with Barron Square residents to understand their concerns and to introduce the project to them. Barron Square is a multi-family, PC development to the rear of the property, accessed from Thain Way. Six residents attended the meeting to express their concerns that mostly focused on site access, safety, density and potential shadows. The most critical concern focused on keeping the project separate from their neighborhood, accessed from El Camino Real. Preliminary plans were submitted to the city and on May 15, 2014, a preliminary architectural review was conducted by the ARB. The ARB’s comments were supportive of the increased density and asked that we continue to study the building frontage, rhythm and connection to the street. They understood the neighbor’s concerns about preventing vehicle access through their neighborhood but stressed that community pedestrian connections should be developed that connect the Barron Square neighborhood to the El Camino Real businesses and services. Since the preliminary hearing the project has not advanced until now. EXISTING CONDITIONS The site is located along El Camino Real, just north of Maybell Avenue. To the south is the Zen hotel, to the east, across El Camino Real, are commercial buildings and mixed-use buildings, and to the North and West is a townhouse subdivision, Barron Square. The property is 33,571 square feet (.77 ac) currently zoned RM15 permitting a density yield of eleven (11) units. The property’s comprehensive plan designation is Multifamily Residential. It fronts onto El Camino Real in the “Triangle Area” an area that is considered a “node” area in the South El Camino Real Guidelines. Node areas are identified as place making areas for more pedestrian oriented activities including a mixture of business services, retail shops, transit services and living opportunities. Neighboring properties on the same side of the street are mostly zoned PC. Across Maybell, to the south, properties are CS permitting 30 dua in a mixed-use project. Directly across the street are CN zoned properties allowing 15 dua in a mixed-use project. PROPOSED PROJECT We propose to rezone the site from RM-15 to RM-30, and seek the Council’s concurrence for the rezone. The attached plans show a concept that could be developed if the rezone moves forward. We understand that any concept would need to be fully evaluated through the City’s Architectural Review process. Realistically, the site could accommodate twenty-one (21), three-story multi-family residential condominiums with 1 level below-grade parking. Based on the preliminary feedback we received from the ARB and the public, the project would be designed with access to the site from El Camino Real, avoiding any disruption to the Barron Square neighborhood. The concept for the site planning is to reinforce the street edge, provide a residential scale to the massing and organize the buildings to provide outdoor yard opportunities on both the front and back of the units. As depicted in the initial concept shown to the ARB and the public, the buildings will be located away from the Barron Square neighborhood, at the El Camino Real setback to reinforce the street. There will be a variety of one and two bedroom units totaling twenty-one (21) total units. Pursuant to the City’s inclusionary housing policy, three units would be affordable units. Higher residential densities are appropriate for this area of the El Camino Real corridor as is evidenced by the adjoining zoning of CS, allowing RM30 residential densities, to the south and RM30 and additional higher density PC projects to the north. Other than the CN commercial zoning across the street, this is the only RM15 zoned parcel on the west side for the entire section of El Camino Real. The RM30 zone allows 35-foot height limits while the RM15 zone allows 30 feet. Along the El Camino real corridor taller buildings are desire to better define the edge and strengthen the corridor. Setbacks are identical between the two zones. HOUSING ELEMENT 4146 El Camino Real is listed on the Housing Element Inventory of sites with a realistic unit yield consistent with the existing RM15 zoning. However, the biggest theme identified in the Housing Element is the high cost of housing in our community for all income segments due to the shortage of housing opportunities. There is limited land available. The Housing Element indicates that only 0.5% of land in the city is vacant and available for development. 4146 El Camino Real is included in this 0.5% and should be developed for housing in a responsible manner. The Housing Element promotes increased densities along El Camino Real, a major transportation corridor. Although it is a small project, increasing the density from 15 dua to 30 dua through this zone change will be a step in the right direction for responsible land use. PARKING Parking for the project will make no request for parking concessions and would be fully parked in accordance with PAMC 18.52. We look forward to a staff review and scheduling of a prescreening hearing so that we can determine how to proceed with the development of this property. Sincerely, Ken Hayes, AIA Principal cc: Su Juan Attachment C Hardcopies of project plans are provided to Planning and Transportation Commissioners. These plans are available to the public by visiting the Planning and Community Environmental Department on the 5th floor of City Hall at 250 Hamilton Avenue. Directions to review Project plans online: Go to: https://paloalto.buildingeye.com/planning Search for “4146 El Camino Real ” and open the record by clicking on the green dot Review the record details and open the “more details” option (make sure the details option shows Application #16PLN-00239 at the top) Use the “Records Info” drop down menu and select “Attachments” Open the attachment named “4146ECR_PreScreeningARB_fullSet.pdf .”