Loading...
HomeMy WebLinkAbout2002-09-23 City Council (5)City of Palo Alto C ty Manager’s Report TO:HONORABLE CITY COUNCIL FROM: DATE: SUBJECT: CITY MANAGER DEPARTMENT: PLANNING AND COMMUNITY ENVIRONMENT SEPTEMBER 23, 2002 CMR:393:02 STATUS REPORT ON ZONING ORDINANCE UPDATE This report provides the City Council with information regarding the progress of the Zoning Ordinance Update (Update), principally relative to the Planning and Transportation Commission (P&TC) initial direction for modifications to the City’s industrial and manufacturing districts. Each month, staff is scheduling a study session focused on a Council Top 5 priority. BACKGROUND On March 25, 2002, the City Council and the Planning and Transportation Commission conducted a joint study session to discuss progress on the Zoning Ordinance Update. Staff reviewed the Update process to that point, including development of the work program, solicitation of initial public input, identification of issues, and preparation of a number of background discussion papers to evaluate format and organization options, land use categories, zoning districts, New Urbanist approaches to zoning, planned development and planned community zoning, and second units. A revised approach to the work program was presented, providing for review of groupings of zoning districts, beginning with the industrial and manufacturing zones. This grouping was to serve as a prototype for the preliminary code format and for the process of revising the Zoning Ordinance. The Council directed the P&TC and staff to proceed with that approach, and to report back on either a quarterly basis or as recommendations for each grouping of districts were developed by the P&TC. While the Planning and Transportation Commission review of the industrial and manufacturing districts is not quite complete, substantial work has been accomplished since March for those districts, as well as in furthering the urban design component of the code, modifying second unit provisions, and retaining consultants to assist with parking and economic analyses. A revised work program is attached, outlining a process that will culminate in a draft zoning code available for public review by the summer of 2003. CMR:393:02 Page 1 of 7 DISCUSSION Industrial and Manufacturing Districts Beginning on April 10, 2002, the Planning and Transportation Commission conducted three study sessions to discuss potential modifications to the Office Research (OR), Limited Industrial/Research Park (LM), and General Manufacturing (GM) zoning districts, as well as the related combining districts LM(3), LM(5), and GM(B). As a basis for the P&TC’s review, staff presented the current ordinance provisions in a revised format (Attachment A), which combines all of the districts into one chapter of the code, with tables outlining allowed uses and development standards. This approach, while not offering any substantive changes, provides for a more readable format and reduces redundancies in the existing ordinance. As changes are recommended by the P&TC, the new code format will be revised accordingly. In addition to the study sessions, the revision process included staff discussions with four focus groups to ascertain concerns about the current zoning provisions and to gauge initial reaction to some possible changes. The groups represented: 1) property owners and businesses in the LM and GM zones in the Embarcadero/Bayshore/San Antonio Road areas; 2) property owners (Stanford) and businesses in the Stanford Research Park; 3) property owners (Stanford) and businesses in the OR (Welch Road) area; and 4) residents of areas adjacent to these zones. A follow-up focus group was conducted to bring together the Research Park businesses, Stanford University representatives, and neighboring residents, to further discuss concerns specific to the Research Park. On June 20, 2002, the P&TC and staff toured the LM and GM zoned areas of the City to better understand the nature of existing uses and buildings, as well as current impacts on neighboring properties. Over the course of the P&TC’s study sessions, preliminary direction or recommendations were made in the following areas: The Stanford Research Park should be distinguished from other LM-zoned properties, given differing topography, environmental constraints, traffic, and land ownership patterns (Stanford as sole property owner). The new zone would be named Research Park (RP) and the LM-5 area would become RP-5. The current Office Research (OR) zone on Welch Road should be renamed Medical Office and Medical Research (MR), to emphasize the focus on protecting and promoting medical-related-uses within close proximity to the Stanford Medical Center. Medical offices and medical research are to be permitted uses in the district, and staff should develop a definition of "medical-related services" to include support office and educational uses that require proximity to the Medical Center. Other offices would only be allowed with a conditional use permit. CMR:393:02 Page 2 of 7 In the Stanford Research Park, "research and development" uses should remain as permitted uses. Staff is to work with Stanford to identify an approach or agreement to limit office uses (e.g., to 25%) to preserve the research emphasis of the Research Park. o o ° The General Manufacturing - B (GM-B) combining district should be deleted, though the potential traffic impact of such a revision should be included in the review by the City’s environmental consultant. In the GM zone, "research and development" (R&D) should remain a permitted use, but "administrative office" should be redefined or otherwise limited to support R&D uses only. Other office uses should remain prohibited to preserve the limited manufacturing and research functions in this zone. In the Limited Industrial/Research Park (LM) zone, "research and development" should remain a permitted use, and "office" should either be permitted with increased parking requirements, or should be limited to either a percentage of floor area in the zone or through requirement for a conditional use permit. The GM and LM zones should be renamed to better reflect their intended purpose and the fact that little manufacturing use still occurs in those areas today. The revised names should be determined, however, only after final decisions regarding the extent of the allowable uses (research, office, manufacturing, etc.). Staff should identify the potential for transportation demand management (TDM) measures to be incorporated into the Zoning Ordinance or elsewhere to better address the impacts of office and R&D development, including coordinating ongoing efforts of Stanford, individual firms, and the City. While directed primarily to the Research Park, TDM is to be evaluated for application to other LM and GM areas as well. Staff should prepare an updated definition of "research and development" to better reflect the uses prevalent today, and to recognize the ancillary uses (office, sales, manufacturing and assembly, etc.) that often accompany R&D. 10.Staff should evaluate sales tax revenue and other economic information to determine the revenue value and multiplier effects of the various uses in these districts, including office, R & D (especially software and biomedical research), manufacturing, and service uses. This information will be used to estimate the relative economic value to the community of preserving certain uses over others. 11.Housing, principally multi-family, should remain a permitted use in all of the industrial and manufacturing zones, but specific incentives for directing and locating housing should be deferred until discussions of mixed use and transit- CMR:393:02 Page 3 of 7 oriented development occur. New housing should be targeted to areas near transit and other services. It may also be reasonable to allow housing for an on-site caretaker or maintenance personnel on a site in these zones. 12.Stand-alone retail and restaurants should remain a conditional use, except that they should remain prohibited in the Office Research (OR) zone, to preserve the medical-related uses and because the area is close to such services at the Stanford Shopping Center. There may also be a need for some limitations in the GM area northeast of Charleston Road and San Antonio Road. 13.A 150 percent Floor Area Ratio (FAR) credit for child care on industrial and research sites may be appropriate, but staff should first provide information about the typical size of such facilities and whether they are intended to provide child care for employees or the broader community. The P&TC also appointed two members (Griffin and Packer) to review related definitions and allowable uses proposed for these zoning districts. The sub-committee has met twice to consider those issues. Staff anticipates that responses to the P&TC’s remaining questions will be prepared so that the P&TC can offer its preliminary ordinance recommendations in November. The recommendations would be forwarded to the Council for discussion in December 2002. While the draft ordinance chapter will address many of the important issues related to these zoning districts, some of the key concerns will not be addressed until later in the Update process and in concert with considerations for other zoning districts. These issues include: 1) mixed use provisions, 2) parking criteria, and 3) performance standards (for light, noise, odor, etc.) intended to protect adjacent neighbors. These issues will be discussed with the City’s urban design, parking, and environmental consultants and will encompass several commercial zones and, in some cases, multi-family residential districts. The draft ordinance for the industrial and manufacturing zones will leave placeholders for these provisions and will require revisiting these districts prior to formulating a comprehensive updated Zoning Ordinance. Urban Design Component In May of this year, the City contracted with the team of Urbsworks, Inc. (Portland, Oregon) and Van Meter Williams Pollack (VMWP) to provide urban design services in support of the Zoning Ordinance Update. The team’s primary function will be to develop a "form" code approach to the Ordinance. It will develop this approach by providing a visual/graphic understanding of the current code constraints, identifying desirable building forms for certain types of development (including multi-family, village residential, mixed use, and transit-oriented development), and then translating those desirable forms into a code format. Another key work item for the consultants will be to test various prototypes of development to determine their viability and desirability before CMR:393:02 Page 4 of 7 developing code changes. Parking and economic consultants will also assist in assuring that the updated standards are realistic. The design team prepared an initial overview of its work scope to the Planning and Transportation Commission on July 24, 2002 and to the Architectural Review Board and Historic Resources Board on August 15, 2002. A visual representation of current constraints to multi-family and mixed-use development, especially on small lots, was provided for the Planning and Transportation Commission on August 28, 2002. And on September 4, 2002, the architects provided background on "form" codes, and outlined an example of their approach to 1) identify constraints caused by the current zoning, 2) develop prototypes based on Comprehensive Plan policies, and 3) translate the prototypes into a graphic code format. In October, the consultants will focus on presenting their identification of zoning constraints and opportunities for multi-family, village residential, mixed use, and transit-oriented development types. Second Units On July 23, 2002, the Planning and Transportation Commission and staff sponsored a community forum regarding second units and potential revisions to the Zoning Ordinance to accommodate additional units. This effort was a response to specific Comprehensive Plan and Housing Element policies to incorporate such revisions into the Zoning Ordinance. Approximately 40 persons attended the session, and a wide variety of responses were expressed. Attachment B comprises a list of possible second unit code revisions for consideration by the group, and Attachment C summarizes participants’ responses. The information derived from the forum will be incorporated into staff’s initial recommendations regarding the Low Density Residential zoning districts, expected to be considered by the P&TC in the Fall. Upcoming Work Efforts In addition to finalizing recommendations regarding the industrial and manufacturing districts, the work program calls for intense efforts in several key areas in the coming months, including: Review of the Low Density Residential (R-E, R-l, R-2 and RMD) zoning districts, and related combining districts. This review will include second units, remaining R-1 issues not resolved in the Single Family Neighborhoods discussions in 2001, and clean-up of the Individual Review process and other R-1 amendments adopted as a result of those discussions. Extensive review of the design components of the Ordinance, especially including the development of prototypes and standards for multi-family, village residential, mixed use, and transit-oriented development. Staff expects that the consultants will utilize focus groups and public workshops to supplement P&TC study sessions in exploring and developing these criteria. CMR:393:02 Page 5 of 7 Evaluation of possible revisions to the City’s parking criteria, including parking ratios, shared parking potential, and parking lot design. A transportation and parking consultant has recently been retained to update the City’s standards, and has extensive experience with varied development types as well as neighborhood protection strategies. Continued review by the City’s environmental consultant of the potential environmental consequences of proposed revisions, as well as coordination with the City’s updated traffic modeling work and with environmental review efforts for the Housing Element and Stanford Research Park. Public Outreach Staff and the Planning and Transportation Commission have relied extensively on focus groups for outreach to the public and believe that this approach has been productive. In addition to the continued use of focus groups, staff expects to sponsor occasional community forums, but only when a subject has extensive interest community-wide and where information and options to be discussed are fairly specific. Staff continues to maintain mailing lists of interested persons and to post meeting and support information on the Zoning Ordinance Update web page. Staff is also exploring other avenues, such as regular newspaper coverage and inclusion in the City Manager’s weekly memo, for disseminating information to the public. RESOURCE IMPACT Staffing for the Zoning Ordinance Update has recently been increased to full strength with the addition of a Planning Manager, Senior Planner, Planner and Planning Technician, all of whom will devote substantial portions of their time to this project. This will allow staff to proceed on several tracks simultaneously, which has been difficult with limited staff resources. The updated work program and approach does not result in the need for additional staff. POLICY IMPLICATIONS The Zoning Ordinance Update is intended to bring the Zoning Ordinance into compliance with the 1998-2010 Comprehensive Plan. TIMELINE Preliminary recommendations for the industrial and manufacturing zoning districts will be considered by the P&TC in October or early November. Urban design issues will continue to be explored with the design team in October, and review of the low-density residential districts (R-E, R-l, R-2, RMD) will begin in late October or November. The proposed project is scheduled to result in a draft Zoning Ordinance Update for distribution in August 2003. Public hearings would then follow and are anticipated to take another three to six months. Specifics of the suggested timeline for the project are provided in the attached work program table. CMR:393:02 Page 6 of 7 ATTACHMENTS Attachment A:Industrial/Manufacturing Districts: Revised Ordinance Format Attachment B:Second Units: Revisions for Consideration Attachment C:Public Responses at July 23, 2002 Second Unit Community Forum Attachment D:Zoning Code Update Work Program PREPARED BY: Lisa Grote, Chief Planning Official DEPARTMENT HEAD REVIEW: STEVE EMSLIE Director of Planning and Community Environment CITY MANAGER APPROVAL: SON Assistant City Manager CMR:393:02 Page 7 of 7 18.24 - Industrial-Manufacturing Districts ATTACHMENT A Chapter 18.24 OFFICE RESEARCH, INDUSTRIAL AND MANUFACTURING DISTRICTS Sections: 18.24.010 18.24.020 18.24.030 18.24.040 18.24.050 18.24.060 18.24.070 Purposes Applicability Land Uses Site Development Standards Parking Design Requirements and Guidelines (Performance Standards) Grandfathered Uses 18.24.010 Purposes The office research, industrial and manufacturing zoning districts are intended to create and maintain sites for office, light industriai, research and development, and limited commercial uses. The specific purposes for each district are listed below. (a) Office Research [OR]: The OR office research district is intended to create and maintain areas for conduct of office, research, and educational activities not requiring sales or display areas generally associated with retail use in developments characterized by low building intensity, large site size, and landscaped grounds. The OR district is primarily intended for application to sites in the vicinity of the Stanford Medical Center identified for research and office park use by the Palo Alto Comprehensive Plan (b) Limited Industrial/Research Park District [LM]: The LM limited industrial/research park district is designed to create and maintain sites for a limited group of professional, administrative, research and manufacturing uses that may have unusual requirements for space, light, and air, and desire sites in an industrial/research park environment. The LM district is primarily intended for application to sites identified for research/office park use by the Palo Alto Comprehensive Plan. (c) Limited Industrial/Research Park Subdistricts 3,5 [LM(3), LM(5)]: The limited industrial site subdistricts are intended to modify the site development regulations of the LM limited industrial/research park district, where applied in combination with such district, to provide regulations applicable to smaller sites with limited access [LM(3)] or larger sites with uneven terrain [LM(5)]. (d) General Manufacturing District [GM]: The GM general manufacturing district is intended to create and maintain areas providing sites for light industrial, research and commercial service uses. The GM district is intended to apply primarily to light industrial areas identified by the Palo Alto Comprehensive Plan. (e) General Manufacturing Subdistrict B [GM(B)]: The general manufacturing subdistrict is intended to modify the regulations of the general manufacturing district in areas that have high employment potential but are already suffering from traffic congestion. The combining district is intended to prohibit uses, normally allowed in the general manufacturing district, which are considered high in employment and traffic generation potential so that those uses do not occur. DRAFT: 09/04/02 /009/Title 18/Title 18 Master.doc 18.24 - Industrial-Manufacturing Districts 18.24.020 Applicable Regulations The specific regulations of this chapter and the additional regulations and procedures established by Chapters 18.40 to 18.92 inclusive shall apply to all Office Research, Industrial, and Manufacturing districts. 18.24.030 Land Uses Table 1 lists the land uses permitted or conditionally permitted in each office research, industrial, or manufacturing district. Table 1: Office Research, Industrial, and Manufacturing Uses Accessory facilities and activities customarily associated With or essential to permitted uses, and operated incidental to the principal use. Automatic Teller Machines, incidental to permitted use Home Occupations, when accessory to permitted residential uses. EDUCATIONAL, RELIGIOUS, AND ASSEMBLY USES Business and Trade Schools Churches and Religious Institutions Colleges and Universities Private Educational Facilities MANUFACTURING AND PROCESSING USES Manufacturing Recycling Centers Research and Development ....,Warehousing and Distribution OFFICE USES Administrative Office Services Medical, Professional, and General Business Offices PUBLIC/QUASI-PUBLIC USES Service and Equipment Yards Utility Facilities P P P CUP cuP P P CUP P P P CuP P P P P P P P P P P P P CUP P P CUP 18.55 18.58 18.24.030 18-2 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts Utility Facilities essential to provision of utility services but excluding construction/storage yards, maintenance facilities, or corporation yards. Commercial Recieation Neighborhood Recreational Centers Private Clubs, Lodges, or Fraternal Organizations RESII)ENTIAL USES Single-Family Two-Family Multiple-Family Lodging Residential Care Homes RETAIL USES Eating and Drinking Services, excluding drive-in and take-out services Retail Services SERVICE USES Ambulance Services Animal Care, excluding boarding and kennels Boarding and Kennels Automobile Service Stations, subject to site and design review in accord with the provisions of section (18.82, old code) Automotive Services Convalescent Facilities Day Care Centers Day Care Homes, Small Day Care Homes, Large Financial Services General Business Services Hotels providing not more than 10% of rooms with kitchens CUP CUP CUPo) P P P P P Cup CUP P P P CUP CUP CUP CUP Cup P P P P CUP CUP CUP P P P CUP CUP P P P .p P P CUP P CUP CUP P P P P P CUP 18.24.030 18-3 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts Mortuaries Reverse Vending Machines TEMPORARY USES : ~ Temporary Parking Facilities, provided that such facilities shall remain no more than five years. P 8.58 CUP CUP CUP Passenger Transportation Terminals CUP P = Pem~tted Use CUP = Con~!_t_ional Use Permit Required (1) excluding ........ any_such facility po erated as a business for profit. 18.24.030 18=4 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts 18.24.040 Site Development Standards The office research, industrial, and manufacturing districts shall be subject to the following development standards, provided that more restrictive regulations may be recommended by the Architectural Review Board, pursuant to Chapter 18.73 of the Palo Alto Municipal Code (a) Development Standards for Non-Residential Uses: Table 2 shows the site development standards for exclusively non-residential uses in the industrial and mafiufacturing districts. Table 2: Office Research, Industrial, and Manufacturing Non-Residential Site DeveloI ~ment Standards Minimum Site Specifications Site Area (ft2) Site Width (ft) Site Depth (ft) Minimum Setbacks Front Yard (ft) Rear Yard (ft) Interior Side Yard (ft) Street Side Yard (ft) Minimum Yard (ft) for site lines abutting or opposite residential districts M~ximurn Site Coverage Maximum FlOor Area Ratio (FAR) Minimum Landscaped Area (excluding minimum required landscaping of parking lot interiors) Maximum Height (ft) Standard Within 150 ft. of a residential zone Within 40 ft. of a residential zone 25,000 43,560 (1 acre) 150 100 150 150 217,800 (5 acres) 250 250 50(3)20 100 -(~) 10<3)20 40 10 20 40 20(3)20 70 10(3) 30% 0.5:1 10% of site area 0.4:1 20 30% 0.3:1 15% 0.3:1 10 0.5:1 50 35 50 35 35 25 20.08 18.24.060(e) (1)(D) 18.24.060(e) (1)~) 18.24.040 18-5 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts Daylight Plane for site lines having any part abutting one or more residential districts. Initial Height Slope _(2) 10 1:2 (1) For any property designated GM(B) and fronting on East Bayshore Road a minimum setback of 20 feet along that frontage is established (2) Daylight plane requirements shall be identical to the daylight plane requirements of the most restrictive residential district abutting the side or rear site line. Such daylight planes shall begin at the applicable site lines and increase at the specified slope until intersecting the height limit otherwise established for the OR district. (3) In the OR district, no required parking or loading space shall be located in the first 10 feet adjoining the street property line of any required yard (b) Development Standards for Exclusively Residential Uses (1) Purpose and Applicability: This subsection sets standards for residential uses in industrial districts. This subsection applies to exclusively residential uses in such districts. (2) Regulations and Guidelines: The regulations and guidelines in Chapter 18.13 that apply to the RM-30 district shall apply to residential uses in all office research, industrial, and manufacturing districts. (3) Inapplicable Regulations and Guidelines: (A) In the LM district, and all LM subdistricts, subsection (f) of this section shall not apply to residential uses. 03)In the GM district and all GM subdistricts, section 18.24.060 and subsection (f) of this section shall not apply to residential uses. (c) Development Standards for Mixed Uses (1) The following regulations apply to the residential portion of mixed uses: (A) The regulations and guidelines in Chapter 18.13 that apply to the RM-30 district shall apply to the residential portion of mixed uses in all office research, industrial, and manufacturing districts. (B)In computing densities for mixed residential and non-residential uses, there shall be no deduction for that portion of the site in non-residential use. 18.24.040 18-6 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts (2)The regulations in subsection (a) shall apply to the non-residential portion of mixed uses, with the following exceptions: (A) The Floor Area Ratio (FAR) shall be limited as shown in Table 3. Table 3: Office Research, Industrial, and Manufacturin_n_n_~ Mixed-Use FAR LM :: : LM(3)i .LM(5)GM: :G-M(B) Maximum Tdtal FAR Maximum FAR of Residential Portion Maximum FAR of Non- Residential Portion 0.5:1 0.5:1 0.5:1 0.4:1 0.4:1 0.4:1 0.3:1 0.3:1 0.3:1 0.3:1 0.3:1 0.3:1 1:1 0.5:1 1"1 0.5:1 0.5:1 (B)For a site where the gross floor area, excluding any area used exclusively for parking purposes, is at least 60% residential: (i) in the OR district, GM district, and all GM subdistricts, the maximum height within 150 feet of an RM-30 or RM-40 district shall be 50 feet. (ii) in the GM district, and all GM subdistricts, the daylight planes for site lines abutting any residential district may be identical to the daylight plane requirements of the most restrictive residential district abutting each such site line. The maximum height shall remain the same as that otherwise established for the district. If the residential daylight plane is selected, as allowed in this section, the setback regulations of the same adjoining residential district shall be imposed. (d) Limitations on Outdoor Uses and Activities (1) In the GM district, outdoor sales and display of merchandise and outdoor eating areas operated incidental to permitted eating and drinking services shall be permitted subject to the following regulations: (A) Outdoor sales and display shall not occupy a total site area exceeding the gross building floor area on the site, except as authorized by a conditional use permit. (B) Areas used for outdoor sales and display of motor vehicles, boats, campers, camp trailers, trailers, coaches, house cars, or similar conveyances shall meet the minimum standards, applicable to off-street parking facilities with respect to paving, grading, drainage, access to public streets and alleys, safety and protective features, lighting, landscaping, and screening. (C) Exterior storage shall be prohibited, unless screened by a solid wall or fence of between 1.5 and 2.4 meters (five and eight feet) in height. This requirement is not applicable to recycling centers. (2)In the LM district, all outdoor activities or uses are prohibited except: (A) Outdoor activities associated with residential use; (B) Landscaping; (C) Parking and loading facilities; (D) Recycling centers that have obtained a conditional use permit; (E) Noncommercial recreational activities and facilities accessory to permitted or conditional uses; and (F)Activities and facilities accessory to conditional uses, when authorized by a conditional use permit. 18.24.040 18-7 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts (e) Employee Showers (1) Applicability. This section applies to the following uses: (A) Medical, Professional, and General Business Offices; (B) Financial Services; (C) Colleges and Universities; (D) Business and Trade Schools; (E) Research and Development; (F) General Business Services, and (G) Manufacturing. (2) Number of Showers Required: Employee shower facilities shall be provided for any new building constructed or for any addition to or enlargement of any existing building as specified in Table 4. 0-9,999 10,000-19,999 20,000-49,999 50,000 and up No requirement 1 2 4 (f) Nuisances and Hazards. In all office research, industrial, and manufacturing districts, excluding the OR Office Research district, all uses, whether permitted or conditional, shall be conducted in such a manner so as to preclude any nuisance, hazard, or dommonly recognized offensive conditions or characteristics, including creation or emission of dust, gas, smoke, noise, fumes, odors, vibrations, particulate matter, chemical compounds, electrical disturbance, humidity, heat, cold, glare, or night illumination. Prior to issuance of a building permit or occupancy permit, or at any other time, the building official may require evidence that adequate controls, measures, or devices have been provided to ensure and protect the public interest, health, comfort, convenience, safety, and general welfare from such nuisance, hazard, or offensive condition. (g) Recycling Storage. All new development, including approved modifications that add thirty percent or more floor area to existing uses, shall provide adequate and accessible interior areas or exterior enclosures for the storage of recyclable materials in appropriate containers. The design, construction and accessibility of recycling areas and enclosures shall be subject to approval by the architectural review board, in accordance with design guidelines adopted by that board and approved by the city council pursuant to Section 16.48.070. (h)Special Setbacks. Where applicable, setback lines imposed by a special setback map pursuant to Chapter 20.08 of this code shall be followed for the purpose of determining legal setback requirements. 18.24.050 Parking and Loading (a)Applicable Regulations. Off-street parking and loading facilities shall be required for all permitted and conditional uses in accord with Chapter 18.40 of this title. All parking and loading facilities on any site, whether required as minimums or optionally provided _in 18.24.050 18-8 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts addition to minimum requirements, shall comply with the regulations and the design standards established by Chapter 18.40. (b) Minimum Parking Requirements. Minimum parking requirements for selected uses permitted in the Industrial-Manufacturing districts are shown in Table 5__T_able_5: I_. ndustri., al-Manuf__act~Parking_Ta_ble- _ Eating and Drinking Services General Business Services, Automotive Services Manufacturing Medical, Professional, and General Business Offices Administrative Office Services, Research and Development Warehousing and Distribution Lodging Multiple-Family Use 1 per 4 person capacity 1 per 350 square feet of gross floor area + 1 per 500 square feet of exterior sales, display, or storage area I per 500 square feet of gross floor area 1 per 1000 square feet of gross floor area 1 per 250 square feet of gross floor area 1 per 2 lodging units, in addition to any applicable requirement based on residential use on the same site. 1.25 per studio unit, 1.5 per one- bedroom unit, and 2 per unit of 2 bedrooms or more. A minimum of 1 space per unit shall be covered. i per 300 square feet of gross floor area 1 per 300 square feet of gross floor area 1 per 300 square feet of gross floor area 18.24.050 18-9 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts 18.24.060 Design Requirements and Guidelines (Performance Standards) (a)Purposes: The requirements and guidelines in this section are intended to reduce the following impacts of industrial uses on surrounding residential districts: (1) Lighting impacts: The requirements and guidelines regarding lighting impacts are intended to minimize the visual impacts of lighting from industrial uses on residential sites located in close proximity. (2) Visual impacts: The requirements and guidelines regarding visual impacts are intended to reduce the apparent building mass to provide for reasonable privacy of residents of single-family and multiple-family dwellings and to reduce the visual impact of mechanical equipment, trash enclosures, exterior storage and loading docks. (3) Noise impacts: The requirements and guidelines regarding noise impacts are intended to protect residential properties from excessive and unnecessary noises from any sources in the industrial districts. (4)Site access impacts: The requirements and guidelines regarding site access impacts are intended to minimize conflicts between residential vehicular and pedestrian uses and more intensive traffic associated with industrial districts. (b) Applicability: The requirements in this section apply to all sites or portions of sites in industrial districts within 150 feet of a residential district. The requirements shall apply to new construction on such sites, or to modifications of existing buildings or site improvements which qualify as major projects under Section 16.48.065 of the Palo Alto Municipal Code. Design element regulations that are identified as requirements shall be included in the design of the project. The guidelines are recommended for application to all such construction and modifications. At the submittal of the project to the architectural review board, if these guidelines are not followed, it shall be necessary for the applicant to demonstrate how the project meets the design objectives set forth in this section. (c) Lighting Impacts: (1) Requirements: (A) Interior and exterior light sources shall be shielded in such a manner as to prevent visibility of the light sources, and to eliminate glare and light Spillover beyond the perimeter of the development. (2)Guidelines: (A) Exterior light fixtures should be mounted no higher than fifteen feet. (B) Lighting of the building exterior and parking areas should beof the lowest intensity and energy use adequate for its purpose. (C) Unnecessary continued illumination, such as illuminated signs or backlit awnings, should be avoided. (D) Timing devices should be considered for exterior and interior lights in order to minimize light glare at night without jeopardizing security of employees. (E) Building elevations facing residential sites should not have highly reflective surfaces, such as reflective metal skin and highly reflective glazing. The paint colors should be in subdued hues. (d)Noise bnpacts: (1) Requirements: (A)Applicable sites shall be required to comply with a noise level limit as prescribed in the city’s noise ordinance (Chapter 9.10 of the Palo Alto Municipal Code). 18.24.060 18-10 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts (2) Guidelines: (A) Parking areas, driveways, loading docks, mechanical equipment, trash enclosures, on- site recreation areas and similar noise generating elements should be sited as far away from residential areas as is reasonably possible. When conditions require noise generating elements to be sited within close proximity to residential areas, noise mitigation measures should be implemented as deemed suitable by the architectural review board. These measures may include the following: (i) Placement of concrete or masonry walls at the residential property line or around the noise generating element; (ii) Elimination of site access close to residential sites where other access is available; (iii)Installation of an earth berm and landscape buffers where appropriate; (iv)Discouragement of the use of open air loudspeakers and compliance with the city’s loudspeakers ordinance (Chapter 9.12 of the Palo Alto Municipal Code). (e)Visual Impacts: (1) Requirements: (A) Blank walls facing residential sites shall incorporate architectural design features and landscaping in order to reduce apparent~mass and bulk. (B) Adequate and accessible storage of trash and refuse shall be provided within a building or be fully screened from public view by masonry or other opaque and durable material. Chain link enclosures are strongly discouraged. (C) Loading docks and exterior storage of materials or equipment shall be screened from view from residential sites by fencing, walls or landscape buffers. (D) All required interior yards (setbacks) abutting or opposite a residential district shall be planted and maintained as a landscaped screen. (E)For sites abutting a residential district, a solid wall or fence between 5 and 8 ft in height shall be shall be constructed and maintained along the common site line. (2) Guidelines: (A) Windows, balconies or similar openings above the first story should be oriented so as to minimize a direct line-of-sight into residential areas. (B) Roof vents, flues and other protrusions through the roof of any building or structure should be obscured from public view by roof screen or proper placement. (C) All exposed mechanical and other type equipment whether installed on the ground or attached to the building, roof or walls, which exceeds sixteen inches in any horizontal dimension, should be screened from public view. (D) Increased setbacks or more restrictive daylight planes may be proposed by the applicant, or recommended by the architectural review board, as mitigation for the visual impacts of massive buildings. (E) Building elevations facing residential sites should not have highly reflective surfaces, such as reflective metal skin and highly reflective glazing. The paint colors should be in subdued hues. (t-) Site Access Impacts: (1) Guidelines: (A) The location of driveways, shipping and receiving areas, and loading docks should be sited as far away from residential areas as feasible while recognizing site constraints and traffic safety issues. 18.24.060 18-11 ZOU DRAFT: 09/04/02 18.24 - Industrial-Manufacturing Districts (B)Employee ingress, and egress to a site should be located to avoid the use of residential streets wherever feasible. (C)Late hour and early morning truck traffic to a site located in or near a residential area should be discouraged. 18.24.070 Grandfathered Uses (a) (b) Applicability: The uses specified in subsection (c) may remain as grandfathered uses provided that those uses: (1) are located in the specified district; (2) existed on the specified date; (3) on that date, were lawful permitted uses or conditional uses operating subject to a conditional use permit; and (4) on that date, were conforming uses. Grandfathered Uses: (1) In the GM District: (A) Retail sales service uses or general business office uses existing on January 13, 1986. (2) In the GM(B) Combining District: (A) Retail services uses existing on January 19, 1983 (B) General business office uses existing on September 6, 1984 (c) Permitted Changes: The following regulations shall apply to grandfathered uses in the industrial districts: (1) Such uses shall be permitted to remodel, improve, or replace site improvements on the same site, for continual use and occupancy by the same use, with the following provision: (A) Unless a design improvement exception is granted pursuant to Chapter 18.73, remodeling, improvement or replacement shall not: (i) result in increased floor area or number of rooms, (ii) result in shifting of building footprint (iii) increase the height, length, building envelope, or size of the improvement, (iv) increase the existing degree of noncompliance. (2)If a grandfathered use ceases and thereafter remains discontinued for twelve consecutive months, it shall be considered abandoned and may be replaced only by a conforming use. (3) a grandfathered use which is changed to or replaced by a conforming use shall not be reestablished, and any portion of a site or any portion of a building, the use of which changes from a grandfathered use to a conforming use, shall not thereafter be used except to accommodate a conforming use. 18.24.070 18-12 ZOU DRAFT: 09/04/02 ATTACHMENT B CITY OF PALO ALTO ZONING ORDINANCE UPDATE SECOND DWELLING UNIT OPTIONS REQUIREMENT Minimum Lot Size Minimum Separation Maximum Living Area Maximum Height CURRENT REGULATIONS The minimum site area must be thirty-five percent (35%) larger than the minimum site area required in the respective R-1 or R-1 combining district. The second dwelling unit must be separated (detached) from the original dwelling unit and from any other accessory building by a minimum distance of twelve feet. The second dwelling unit must be limited in size to nine hundred (900) square feet of living area plus two hundred square feet of covered parking area. The second unit must be limited in height to one story and a maximum height of seventeen (17) feet, as measured to the highest point of the building.~ REVISIONS FOR CONSIDERATION Allow "attached" second units on sites meeting minimum lot size. Permit attached second units. Limit attached units to 30% of the primary unit’s floor area or 900 square feet, whichever is smaller. Allow larger second units on lots in excess of 20,000 sf (e.g., 15% of max. floor area or 1,500 sf, whichever is less). Prohibit basements on detached dwelling units. Apply general R-1 and R-1 Combining District regulations to attached second units, including Individual Review when applicable (second story units); no change for detached units. .... 1 The zoning administrator may allow the second dwelling unit to exceed the story and height restrictions, not to exceed the general site development restrictions of this chapter, where the first story of a two story structure is a garage or similar use, upon making the following findings in addition to the findings required under Chapter 18.90: (A) There are exceptional or extraordinary circumstances or conditions applicable to the property involved that do not apply generally to property in the R-1 district that meets the minimum size requirements for a second dwelling unit; and (B) Approval of the additional height is desirable for the preservation of an existing architectural style or neighborhood character, which would not otherwise be accomplished through the strict application of the provisions of this chapter; and (C) Approval of the additional height will not be detrimental or injurious to property or improvements in the vicinity and will not be detrimental to the public health, safety, general welfare, or convenience. Second Unit Options Page 2 REQUIREMENT Parkin~ Street Access In Common With Primary Dwelling Compatibility with Primary Dwelling Setbacks Review Process CURRENT REGULATIONS The second unit must provide for 2 spaces, of which one must be covered, additional to those required for the primary residence. The second unit must have street access from a driveway in common with the main residence in order to prevent new curb cuts, excessive paving and elimination of street trees. The second unit must be architecturally compatible with the main residence, with respect to style, roof pitch, color and materials. Subject to the same setbacks as apply for the main residence. A conditional use permit must be obtained. July 23, 2002 REVISIONS FOR CONSIDERATION Amend parking standards to require 1 space for studio or one- bedroom units and 2 spaces for two-bedroom or larger units. Allow parking in front setback when no complying location can be accommodated. Amend standards to allow a second driveway on corner lots, or to allow a second driveway from an alley. On attached units, apply design standards that preserve the appearance of a single-family residence. Example: Limit to one street-facing entry door. Provide flexibility for zoning administrator to allow encroachments into setbacks with similar findings as those for height exceptions. Eliminate conditional use permit requirement for attached units that comply with all regulations. ATTACHMENT C ZONING ORDINANCE UPDATE SECOND UNITS COMMUNITY FORUM JULY 23, 2002 PUBLIC COMMENTS GROUP 1 Parking []Allow in front/setback? Yes - 7 No- 3 []1 space for 900 square foot []2 spaces for 2 bedrooms Second Driveway ? M ~ on alley or side street. Attached or Detached [] Consensus - attached units are okay Allow Second Units Yes or No - Yes []Making it easier for small units vs. large. []Making it easier won’t negatively affect property values. []Benefits property owners to have second units. []Favor relaxing regulations - but control the density. Entry Way [] Preserve one entryway, but allow flexibility in design. Cotnpatibility []Preserve mandatory setbacks. []Preserve architectural compatibility. Second Unit Forum: Public Comments Review Process [] Ministerial - no public review for attached units (1 s~ory). Size of Second Units [] 900 square feet is okay Height [] Flood zone considerations may affect neighbors. General Notes []6 people know of second dwelling units. []Population density - need to limit? []Original rules were to make it hard. []Most want the FAR in primary residence - Market demand will limit second units. []Second units were a popular market demand - 70’s & 80’s for student housing. []Do not want to compromise the existing requirements. []Protect. R-1 property values. []Make it easier for second units. GROUP 3 Option #1 (Attached Units) []Same as R2? []Restrict number of people/unit? Option #2 (Increased size of units) m Somewhat favorable for really large lots. Option #3 (Second story units) m Ensure design compatibility~ Option #4 (Reduced parking requirements) Increase parking requirements. 2 of 4 Second Unit Forum: Public Comments Option#7 (Encroachments into setbacks) [] Possible abuses with encroachment. Issues with Second Units ¯Parking requirements. []12 foot minimum from main residence. []Unit too close to adjacent property. []Existing illegal second units are prevalent. []Public transportation to adjust with number of second units developed. []70% of neighborhood not in favor of second unit - could be similar to first story overlay. []Quota for second units/neighborhood with second dwelling units. []Number of cars/people ....any control? ....definitely a problem. []Place affordable housing in areas zoned as such...not in R-1. []Restrict parking on street overnight? []R-1 zoning or not .....can’t have it both ways. GROUP 6 []Limit setback encroachments to only detached units - otherwise will be abused []Limit square footage to single family structure []No FAR changes []Barriers to overcome traffic and service impacts []Privacy issues []Only allow reduced parking with public review process []Properties on corners/alley access should have second driveway []Tandem parking should not result in additional street parking []No front yard parking lots []Do impact fees apply to second units? They should. SUMMARY Group #1 ~Supported second units generally ~Supported attached units ~Parking - okay in front setback and with reduced number of spaces 3 of 4 Second Unit Forum: Public Comments Group t/3 Most or some opposed Concerned about increase of second units Number of people - limit? Limit number of cars and parking impacts Height/design changes character Improve public transportation Group 1/6 Allow attached units ~.Concem re: encroachments (especially for attached units) Need public hearings Parking concern: Not in front yard Other comments []"Family’~ does not need to be related ¯70% neighborhood support - n_.0_o second units (similar toone story overlay) []Some established neighborhoods with second units. ¯Legality of unit can create fear ¯Spread density across city - duty of all Palo Alto? ¯Parking in public or private parking spaces taken by second units ¯Emphasize architecture compatibility ¯All of changes could double density - unlimited number of people []Market forces - might not result in lots of new units []Neighborhood choice might conflict with state laws ¯Need more projects by affordable housing developers []Problem with relaxing rules - breaking rules is the norm Note."There were no groups 2, 4, and 5 necessary due to the number of participants. 4 of 4 Attachment D 0< 0 0 0<< o o o o o o o 0< 0N ©0 oN~0 oNU ~h o ~ o Oo o o 0 0 0 0 0 0 0N N N N 0 0 0NN N 000 N N N o