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HomeMy WebLinkAboutStaff Report 8197 City of Palo Alto (ID # 8197) City Council Staff Report Report Type: Study Session Meeting Date: 10/2/2017 City of Palo Alto Page 1 Summary Title: 2321 Wellesley Street: Prescreening for Rezoning Title: 2321 Wellesley Street [17PLN-00030]: Request for a Prescreening for a Zoning Map Amendment to Change the Subject Property From R-1 to RMD (NP) to Construct a Two-Family Residence. Environmental Assessment: Prescreening is not a Project. The Formal Application Will be Subject to California Environmental Quality Act (CEQA) Review. Zoning District: R -1 (Single-Family Residential). For More Information Contact the Project Planner Phillip Brennan at Phillip.Brennan@cityofpaloalto.org. From: City Manager Lead Department: Planning and Community Environment Recommendation Staff recommends that Council conduct a prescreening of the applicant’s request to rezone the subject property from single family residential (R-1) to two-unit multifamily residential with the neighborhood preservation combining district (RMD (NP)). This is a study session intended to receive public and City Council comments; no formal action is requested and comments provided during a prescreening are not binding on the city or the applicant. Background The applicant seeks Council comments on a request to rezone the subject property. The rezoning would also require an amendment to the city’s comprehensive plan land use designation map. The 6,250 square foot parcel is currently zoned R-1 and has historically been used as a single family residence, but the 1931 dwelling was demolished in the early 1990s; the site is currently vacant. An image from the city’s zoning map shows the relationship of the subject property to the College Terrace Library, similarly zoned R-1 parcels and RMD-NP zoned properties (Attachment A). City of Palo Alto Page 2 The subject property fronts Wellesley Street, a narrow collector street that circuitously winds around the College Terrace Children’s Center and into College Avenue to the west and California Avenue to the east. The street is comprised primarily of one- and two-story residences on relatively small lots, a modestly-sized multi-family apartment (2226-2248 Wellesley Street) on an interior lot and two other multi-family apartments located near the opposite ends (811-827 College Avenue & 2345-2393 Wellesley Street) of the street block. The subject parcel is located at the northern end of a large R-1 zoning district neighborhood, but juts out and is situated between a Public Facilities zoning district (College Terrace Children’s Center, College Terrace Library and Mayfield Park) on one side and RMD-NP zoning on the other. The subject R-1 zoning would permit the construction of a new single family residence as well as construction of an accessory dwelling unit. The RMD zoning would permit two, single family dwelling units that must be under common ownership (the maximum number of dwelling units under each zoning district would be the same). The Neighborhood Preservation Combining District (NP) modifies the RMD two unit multiple- family residential district areas, and requires the preservation of the visual and historic character of such designated neighborhoods. The NP combining district requires formal review by the architectural review board to ensure quality design and compatibility with surrounding properties. Discussion The applicant’s reasons supporting the text amendment are provided in Attachment B. Some preliminary building concepts are provided in Attachment C. Rezoning the property from R-1 to RMD-NP would allow for additional lot coverage, potentially more height (up to five feet) and increased floor area (approximately 500 square feet). There are other differences and the chart in Attachment D provides a comparison table of the two zone districts. Development under either zoning district would likely require some level of discretionary review, either as an individual review application or by the architectural review board. In terms of neighborhood compatibility, any redevelopment can be designed to be compatible with both the multi-family and single family developments in the neighborhood and a discretionary review process would allow those closest to the site an opportunity to be noticed and provide comment. Staff time processing the zone change and comprehensive plan amendment would be recovered (cost recovery application). While there is an economic advantage for rezoning the property, the location and site conditions are such that staff does not anticipate a significant impact one way or another with respect to keeping the zoning as is City of Palo Alto Page 3 or changing it as requested by the property owner. Timeline Following prescreening review, the applicant will consider the comments received and determine how they will proceed. Formal applications and public hearings before the Architectural Review Board, Planning & Transportation Commission and City Council would be required to advance the proposed conceptual project. Environmental Review Environmental review is not required for prescreening, as no discretionary action will be taken on the proposal. The prescreening is not considered to be a project under California Environmental Quality Act (CEQA). If a formal rezoning application is filed, a complete environmental assessment will be required in compliance to CEQA Guidelines prior to any formal hearing(s) of the rezoning. Attachments: Attachment A: Location Map (PDF) Attachment B: Applicant Project Description (PDF) Attachment C: Project Plans (DOCX) Attachment D: Zoning District Development Standards Table (PDF) R-1 I   am   applying   to   change   the   zone   of   2321   Wellesley   Street   from   R­1   to   match   the   adjacent   RMD­NP,  and   intend   to   build   a   single   family,   two   story,   traditional   Craftsman   shingle   style   home   with   an  affordable   apartment   in   the   basement.   The   design   will   be   historically   authentic   ­­   not   a   modern  interpretation   ­­   and   draw   upon   elements   established   by   and   exemplified   in   the   work   of   Bernard  Maybeck,   Julia   Morgan,   John   Hudson   Thomas,   and   the   Greene   brothers.   With   its   wide,   overhung  eaves   and   exposed   rafters,   detailed   shingling   patterns,   and   evidence   of   strength   in   the   foundation,  the   Guy   Chick   House,   designed   by   Bernard   Maybeck   and   built   in   1913,   is   an   example   of   the   style  and   quality   of   design   I   believe   we   can   achieve.   It   will   be   a   passive   solar   design   with   net   zero   energy  requirements.    To   put   my   request   in   context,   consider   the   current   zoning   of   the   neighboring   properties   (see   attached  page   8   from   the   current   City   zone   map,   and   the   attached   City   GIS   map   showing   building   footprints).  Adjacent   to   the   east   is   2345   Wellesley,   seven   midcentury   style   apartments   on   a   13,625   square   foot  lot,   non­conforming   to   the   current   RMD­NP   zoning,   with   the   building   about   25'   from   the   common  property   line.   The   25'   open   space   is   an   asphalt   driveway   and   dumpster   storage.   Behind,   to   the   north,  is   2314­2340   Williams   Street,   a   22,500   square   foot   lot,   with   14   midcentury   apartments   that   also  exceed   the   current   RMD­NP   zoning.   The   adjacent   use   is   a   line   of   garages   or   carports,   with   the   wall  facing   Wellesley   Street   needing   maintenance.   To   the   west   is   the   College   Terrace   Library   and  Mayfield   Park   that   has   a   hedge   row   next   to   the   common   property   line   for   separation   and   privacy.   The  library   is   approximately   50'   away   from   the   property   line.   Across   the   street   are   houses   in   the   R­1  zone.   Directly   across   the   street,   2320   Wellesley   Street   sits   on   two   25'   wide   lots,   like   2321.   However,  neighboring   2330   and   2340   Wellesley   Street   are   single   family   homes   on   the   original   25'   wide   lots.  That   is,   across   the   street   are   two   single   family   houses   in   an   area   equivalent   to   2321   Wellesley  Street,   where   I   am   proposing   to   build   something   where   you   cannot   even   tell   there   is   a   second   unit.    There   are   some   noteworthy   differences   between   R­1   and   RMD­NP.   RMD­NP   allows   a   second   unit,  requires   one   extra   covered   parking   space,   and   allows   slightly   more   FAR   (~20%,   though   it   would   be  hard   to   see   because   it   would   represent   10'   more   building   depth).   RMD­NP   requires   a   more   detailed  design   review   process,   which   gives   more   assurance   that   it   will   be   a   quality   project.   The   RMD­NP  zone   has   a   5'   higher   daylight   plane   limitation,   which   could   improve   the   efficacy   of   solar   collectors   on  the   roof,   and   cannot   harm   adjacent   properties   due   to   the   aforementioned   separations.     Allow   me   to   frame   this   request   in   the   historical   context   of   zoning   in   the   neighborhood.   In   1922,   the  City's   first   zoning   code   was   established   to   service   the   notion   that   different   land   uses   are   incompatible  and   ought   to   be   separated   from   each   other   [1].   In   1931,   a   single   family   home   was   built   at   2321  Wellesley   Street.   The   1951   update   to   the   City   zoning   code   gave   further   definition   to   the   surrounding  area,   designating   it   R­3   ("neighborhood   apartment   district").   This   designation   presumably   included  2321   Wellesley   Street,   and   certainly   surrounded   it,   as   evidenced   by   a   number   of   multi­unit   buildings  that   were   built   subsequent   to   1951   ­­   see   the   table   and   map   below   for   the   locations   of   nine   nearby  apartment   buildings.   In   the   1980s,   City   Council   recognized   that   the   1951   update   had   detrimental   side  effects   to   College   Terrace:   historical   homes   had   been   demolished   and   replaced   by   apartment  buildings,   without   careful   scrutiny   of   their   design.   In   1983,   ordinances   3446   and   3447   were   passed,  introducing   the   RMD­NP   zoning   that   significantly   reduces   the   allowed   density   in   the   area  surrounding   2321   Wellesley   Street.   Oddly,   2321   Wellesley   Street   was   excluded   from   either   the   R­3  zone   in   1951,   or   subsequent   RMD­NP   zone   in   1983.   (By   avoiding   RMD­NP,   the   previous   owner   was  able   to   demolish   his   1931   house,   leaving   2321   Wellesley   Street   in   its   current,   blank   state;   perhaps  this   explains   what   looks   like   spot   zoning.)   The   result   is   an   odd   little   finger   of   R­1   zoning   projecting  into   what   is   otherwise   RMD­NP,   and   surrounded   on   two   sides   by   large   apartment   buildings   that  exceed   the   density   of   the   current   zoning;   in   fact,   the   surrounding   neighborhood   is   blighted   by   large  apartment   buildings   for   a   block   in   every   direction.   Unfortunately,   2321   Wellesley   Street   is   an  example   of   how   mixing   incompatible   land   uses   can   be   detrimental:   it   would   likely   have   been   built  upon   long   ago,   were   it   not   for   the   large   apartment   buildings   next   it,   which   reduce   the   desirability   of  this   location   for   a   single   family   home.    The   best   zone   for   the   block   is   RMD­NP.   My   request   represents   an   opportunity   to   correct   a   minor  mistake   in   the   zone   map,   and   a   chance   for   the   neighborhood   to   be   complemented   by   a   thoughtfully  designed   single   family   home   and   affordable   basement   apartment   that   will   exemplify   the   City's   land  usage   intent.   I   am   trying   to   build   something   consistent   with   the   buildings   that   were   torn   down   to   build  the   adjacent   unsightly   apartments,   that   creates   an   affordable   unit,   and   that   is   worth   preserving   in  perpetuity.      [1]   "Brief   History   of   the   City   of   Palo   Alto   Zoning   Ordinance."   City   of   Palo   Alto   web   site.   Published  December   10,   2007.   Retrieved   December   4,   2016.       Table   1:    Multi­unit   buildings   in   the   surrounding   area   that   were   built   subsequent   to   the   1951  zoning   update.  Address Current   zone Date   of   construction Number   of   units  2345­2393   Wellesley   St RMD­NP 1956 7  2314­2340   Williams   St RMD­NP 1963 14  2930   Williams   St RMD­NP 1947 6  2226­2248   Wellesley   St R­1 1957 8  811­827   College   Ave R­1 1956 4  720­740   California   Ave RMD­NP 1971 4  750­760   California   Ave RMD­NP 1964 6  850­860   California   Ave R­1 1955 2  868­876   California   Ave R­1 1955 4      Figure   1:    Locations   of   the   multi­unit   buildings   in   the   surrounding   area,   relative   to   2321  Wellesley   Street   (dotted   black   outline).        Figure   2:    Example   of   Craftsman   shingle   style.  ey 165.0' 125.0' 25.0' 50.0' 180.0' 50.0' 25.0' 50.0' 125.0' 50.0' 125.0' 0 50.0' 160.0' 310.0' 23 234 236 9 236 1 2353 237 7 234 5 232 1 2385 WELLESLEY STREET Pa r c e l R e p o r t f o r A P N : Ne t L o t S i z e : Ma x F l o o r A r e a : Ma x L o t Co v e r a g e : Zo n e : Zo n e % : Min i m u m S e t b a c k s : Fr o n t : Re a r : In t e r i o r S i d e ( s ) : St r e e t S i d e : Sp e c i a l Se t b a c k s : Su b s t a n d a r d : Fl a g L o t : Di s t a n c e b e t w e e n s i d e w a l k a n d p l : ( a s m e a s u r e d o n m a p ) Ea s e m e n t s : Un d e r l y i n g Lo t L i n e s : La n d U s e D e s i g n a t i o n : La n d U s e D e s i g n a t i o n % : Pa r k i n g D i s t r i c t : Fl o o d Z o n e : LO M A : Ho m e r / E m e r s o n Co r r i d o r F r o n t a g e : His t o r i c S t a t u s : Co t t a g e : Ma x H e i g h t to R i d g e : Ne a r C r e e k Fe a t u r e : Ai r p o r t I n f l u e n c e A r e a : Th i s m a p i s a p r o d u c t of t h e Ci t y o f P a l o A l t o G I S Th i s d o c u m e n t i s a g r a p h i c r e p r e s e n t a t i o n o n l y o f b e s t a v a i l a b l e s o u r c e s . 0' 3 2 ' CITY O F PALO ALTO IN C O RP ORATED CALIFORN IA P a l o A l t o T h e C i t y o f APRIL 16 1 894 13 7 - 0 2 - 0 2 4 6, 2 5 0 s f 2, 6 2 5 s f If s i n g l e s t o r y , 2 , 6 2 5 s f If t w o s t o r y , 2 , 1 8 8 s f R- 1 10 0 no n e SF10 0 no n e Xno If n o s p e c i a l s e t b a c k , 2 0 ' , o r , if a v g . c o n t e x t u a l s e t b a c k > 3 0 ' , th e a v g . c o n t e x t u a l s e t b a c k . 20 ' 6' If n o s p e c i a l s e t b a c k , 1 6 ' 2321 Wellesley St If r o o f s l o p e < 1 2 : 1 2 , 3 0 ' If r o o f s l o p e > = 1 2 : 1 2 , 3 3 ' no n e nonoYe s , s e e P u b l i c W o r k s f o r po s s i b l e r e q u i r e m e n t s . nonoNo t e l i g i b i l e , l o t s i z e t o o s m a l l . no Th e C i t y o f P a l o A l t o a s s u m e s n o r e s p o n s i b i l i t y f o r a n y e r r o r s . © 1 9 8 9 t o 2 0 1 2 C i t y o f P a l o A l t o no rs h a h , 2 0 1 2 - 1 0 - 2 9 0 8 : 3 2 : 3 6 Pa r c e l R e p o r t ( \ \ c c - m a p s \ g i s $ \ g i s \ a d m i n \ P e r s o n a l \ P l a n n i n g . m d b ) 137 - 0 2 - 0 5 3 137 - 0 2 - 0 2 5 25 25 2 PF PF RMD(NP) -R 1 Co l l e g e Te r r a c e Li b r a r y Ca m e r o n Pa r k Ma y f l i e l d Pa r k 2295 2285 2314-2340 2282-2288 2394 2392 2390 2396 2369 2361 2353 23772393 2345 720- 740 752-760750 850 860 868- 876 780 2321 800 2310 230123172331 2330 2333-2337 823422344 610 624 642 658 2343-2347 2385 2395 2290 550 23051-4 2270 2277 2345 643 645 22602262 570 2 22512271 941 961 981 2251 2250 921 990980940 942 9602160922 2150 40 884870 2340 2330 2357 2353 890 2345 2320 2349 2325 2295 2285 2265 2225 2225A 889885851 2255 2310 2330 350 2300 2298 2290 2270 2271 291 3 901 2226-2248 811 817 819 827 790770750720 21352139 2125 8508262158 2155 2137 2132213421362138-2144 2133 2127 2121 2115 2105 2174 2150-2158 21302136 2120-2122 2106-2112 730 732 2051A-H 21213 2070-2 2080-2096 615 707703 739 757 2241 2255 2260 2280 2239 230022522254 715- 727 2178 634- 642 664 668 2175 2179 2142153 2211 2215657- 665 08 2324 2264 572-592 2385 21 2132 2253-2269 22892291 6442346 2101 C OLLEGE AVENUE PRIN C O R NELLSTREET NUE RNIA A VEN UE YALESTREET CA M BRID C ALIFOR WILLIA M SSTREET C ALIFO RNIA A VEN UE W ELLESLEY STREET TREET STREET Co l l e g e Te r r a c e Li b r a r y Ca m e r o n Pa r k Ma y f l i e l d Pa r k Col l e g e T e r rac e Librar y 165.0' 125 .0' 25.0' 50.0' 140 . 0 ' 75.0 ' 180.0' 125 . 0'180 . 0' 125.0' 264 .1' 11 5.0' 11 5 . 0' 50.0' 115 . 0' 50.0' 115 . 0 ' 50. 0 ' 11 5 . 0' 75.0' 140.0' 50.0' 25.0'25.0' 50.0' 125.0' 50.0' 125 . 0 ' 34. 0' 125.0' 34.0' 125.0 ' 115 . 0 ' 50.0 ' 11 5 .0' 50.0' 115.0' 50.0 ' 115 . 0' 50.0 ' 40. 0 ' 125 50.0' 40. 0 ' 40. 0 ' 5.0' 50. 0 ' 125 .0' 0 25. 0 ' 125 . 0 ' 25. 0' 125.0' 25.0' 125.0' 25.0' 125.0' 50.0' 125 .0' 50. 0 ' 125.0' 50. 0 ' 125.0' 5.0' 160 . 0' 310.0' 50. 0 ' 50. 0 ' 125.0' 46.0' 125 . 0 ' 125.0' 50. 0' 12 231 4 - 234 0 228 2 - 2 2 8 8 239 2 239 0 236 9 236 1 235 3 237 7 2393 2345 72 0 - 74 0 75 2 -760 75 0 85 0 78 0 232 1 80 0 2 234 3 - 234 7 234 0 233 0 234 5 2320 2255 228 0 230 0 2385W E L L ES L E Y S T R E E T Easements: Underlying Lot Lines: Trees: Sidewalks: Creek or Waterway: This map is a productof theCity of Palo Alto GIS 0' 50' Attachment C Project Plans Hardcopies of project plans are provided to Council Members. These plans are available to the public online and 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: 1. Go to: https://paloalto.buildingeye.com/planning 2. Search for “2321 Wellesley Street” and open record by clicking on the green dot 3. Review the record details and open the “more details” option 4. Use the “Records Info” drop down menu and select “Attachments” 5. Open the attachment named “Project Plans (4.28.2017)” and dated 09/18/2017 Table 1: Comparison of Development Standards between R-1 and RMD (NP) Zoning Districts R-1 RMD-NP Lot Size 6,250 sf 6,250 sf Lot/Site Coverage 35% (+5% for eaves, cover patios, etc.) = 2,187.5 sf (+312.5 sf) 40% = 2,500 sf Floor Area Ratio (FAR) 2,625 sf (.45 FAR first 5,000 sf + .30 FAR of remaining sf) 3,1251 sf (.50 FAR first 5,000 sf + .50 FAR of remaining sf) Front Yard 20 feet 20 feet Side Yards 6 feet 6 feet Rear Yard 20 feet 20 feet Primary Residence 30 feet 35 feet Garage/Carport 12 feet 12 feet Parking Requirement Two required (one space required covered) Three required (two spaces required covered) Side Yards 10 feet (initial height); 45 degree angle over 15 feet (initial height); 45 degree angle over Rear Yard 16 feet (initial height); 60 degree angle over 15 feet (initial height); 45 degree angle over 1PAMC 18.10.040(a)(4) allows floor area limits to be exceeded up to a maximum of 200 square feet for the purpose of providing one required covered parking space in the R-2 and RMD zoning districts.