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Pre-App -6 new Townhomes - 20151~~-- -- ._. ..:~ MEMORANDUM of ' SAM ~'`~ n°~, ~. °; Community Development Department °~~H p0.° ~ Planning Division To: Chair Finch and Planning Commissioners , Date: May 26, 2015 From: Cindy McCormick, Senior Planner Via: Paul Kermoyan, Community Development Director Aki Snelling, Planning. Manager - Subject:- Pre-Application Study Session ~ PLN2015-01 ~ 890 & 910- Harriett Avenue PURPOSE The purpose of this study session is to present a preliminary proposal for asix-lot subdivision in the San Tomas area. The preliminary application .("pre-application") process provides an opportunity for the Planning Commission to offer feedback during the early stages of the planning process in order to facilitate preparation of a formal application. Submittal of apre-application for a study session review by the Planning Commission is required pursuant to Campbell Municipal Code (CMC) 21.41.020 because the proposed Zone Change involves a property over one acre in size. Since the pre-application process does not constitute a formal application review, comments are considered advisory recommendations at this time and are not binding upon the Planning Commission as to any determination on a formal application. In this regard,. staff's review of the preliminary project plans is limited to the overall project design concept and is not considered a substitute for formal project review. PROJECT DATA Zoning Designation (existing): ,R-1-6 (Single Family Residential) (min 6,000 SF lot size) Zoning Designation (proposed): P-D (Planned Development) General Plan Designation: Low Density Residential (less than 6 units per acre). Maximum Height: 28 feet, 2-1/2 stories Buildings Setbacks: Front: 20', Side: min 5' or'/Z wall height), ReaN: 20' Maximum F.A.R.: 45% Maximum Lot Coverage: 40% Open Space: 750 square feet per unit Landscaping: ~ One (1) tree per 2,000 square feet of net lot area Paving Coverage: 50% of the required front. yard setback area Required Parking: Two (2) covered spaces plus two (2) guest spaces per unit r>-~~ Planning Commission Study Session -:May 26, 2015 Page 2 of 8 880 - 9,10 Harriett Avenue ~ PRE2015~-01 Combined Lot Size:. 1.23 Gross Acres (1.18 Net Acres) Proposed Lot Areas and Home Sizes Lot 1: 6,000 SF 2,500 to 2,700 SF Lot 2: 6,120 SF 2,5.00 to 2,700 SF Lot 3: 6,000 SF 2,50.0 to 2,800 SF . Lot 4: 6;270 SF 2;500 to2,800 SF Lot 5: 6,010 SF 2,5.00 to 2,700 SF Lot 6: 6,230.5E 2,500 to 2,700 SF BACKGROUND SITE CHARACTERISTICS The site is composed of two `L'.-shaped parcels, comprising approximately 1:2 gross acres, located on the east side of Harriett Avenue,. north. of Westmont Avenue and south of Elam Avenue (reference Attachment 1 -Location Map). The property is also located within the San Tomas Area Neighborhood and has a Zoning designation of R-1-6 and a General Plan Land -Use designation of Low Density Residential (less than 6 units .per acre). The surrounding area is primarily residential (R-1-6/Low Density Residential) with the exception of a. church directly adjacent to the property to the north. The site is currently developed.with an 840-square foot one- story single-family home, a 560 square-foot detached garage, and several accessory structures as shown on page A-2 of the plans: PROPOSED PROJECT The applicant is proposing a subdivision consisting of .six (6) .two-.story Craftsman style homes (reference Attachment 3). Each proposed lot would be approximately 6,000 .to 6,270 square feet in size and would include a separate common lot providing a private access road, and 12 guest parking spaces per City Code. One home is proposed to face Harriett Avenue, providing a traditional street"scape facade-with emphasis on a defined entry and porch, rather than a garage. Four street trees, including three protected cedar trees; would require removal to provide the required street dedication. The plan.also shows the proposed removal of several unprotected fruit and walnut trees along the private access road and one Douglas fir tree within the footprint of the conceptual layout for lot 2A. The remaining trees are shown to be preserved on the conceptual site plan: . DISCUSSION The following. discussion highlights various issue areas that staff believes are integral to review of this proposal.. These issue areas are being identified to assist the Commission's discussion of the proposed project. GENERAL PLAN CONSISTENCY .Various General Plan policies and strategies identified below, speak to the necessity of good design and site planning. Developments should be creatively designed to suit. their location and _~ Planning Commission Study Session -May 26, 2015 _ ~ .:Page 3 of 8 880 - 910 Harriett Avenue ~ PRE2015-01 be compatible with their surroundings. The Commission may wish to discuss to what extent the applicant's design is appropriately suited for the site. Policy LUT-9.3: Design and Plannin Compatibility: Promote high quality, creative design and site planning that is compatible with surrounding development, public spaces, and natural . resources. Strategy LUT-9.3d: Buildin Dg esi~: Design buildings to revitalize streets and public spaces by orienting the building to the street, including human scale details and massing that engages the pedestrian. Policy LUT-17.1: San Tomas Area Neighborhood Plan (STANP: Comply with the requirements of the STANP. ' Strategy LUT-17.1a: Lot Sizes: Ensure that new development and renovation provides low-density residential development and encourage larger than minimum lot sizes. _ HOUSING ELEMENT CONSISTENCY The City's Housing Element identifies strategies and programs that focus on: 1) Preserving and improving housing and neighborhoods; 2) Providing adequate housing sites; 3) Assisting in the provision of affordable housing; 4) Minimizing governmental and other constraints to housing investment; and 5) Promoting fair and equal housing opportunities. Through the Housing Element, the City is required to demonstrate the availability of adequate sites to accommodate Campbell's share of future regional housing needs. Although the Housing Element did .not identify the property as an `opportunity site' for affordable housing given the San Tomas Area's lower density zoning designations, the Housing Element does recognize the need for housing to individuals with above moderate incomes. Therefore any new housing on the site will contribute to the City's Regional Housing Need Allocation (RHNA) of above moderate units. SAN TOMAS AREA NEIGHBORHOOD PLAN (STANP) CONSISTENCY The property is located within the San Tomas Area Neighborhood. The San Tomas Area Neighborhood Plan (STANP) is the result of concerns raised by San Tomas Area residents over increasing traffic and projects considered out of character with the neighborhood. Many of the projects which generated concern were the conversion of underutilized parcels into small lot residential subdivisions. The City recognizes the San Tomas Area as unique in its rural character and as a result encourages larger than minimum lot sizes. The STANP is part of the General Plan; therefore development of the site must be consistent with the STANP and should respect and enhance the area as primarily low-density single family residential. Development should also incorporate good design and optimal open space to minimize privacy impacts, traffic impacts, and noise impacts .to the neighborhood. The STANP provides design guidance in terms of scale and mass, surface articulation, building orientation, exterior design variation, and privacy impacts. Planning Commission Study Session -May 26, 2015 Page 4 of 8 880 - 910 Harriett Avenue ~ PRE2015-01 The objectives of the STANP are to: 1. Ensure that the size of homes is in proportion to lot size. 2. Ensure that new developments are integrated with homes in the surrounding area. 3. Ensure that projects in PD zones are compatible with the surrounding area. 4. Use landscaping to enhance the rural characteristics of the area. 5. Establish criteria to determine larger than minimum lot size. ZONING /PLANNED DEVELOPMENT CONSISTENCY The zoning designation for this property is R-1-6. However, the project will require a zoning map amendment to change the zoning designation from R-1-6 to P-D (Planned Development) because the subdivision creates lots which do not have frontage on the public street. The P-D zoning district is intended to provide a degree of flexibility to allow developments that are more consistent with site characteristics and promote better design and greater open space opportunities than would be available in other zoning districts. However, the PD Zoning district is not intended to allow for more dwelling units than would be allowed by comparable zoning districts. A development in the PD zoning district must conform to the underlying General Plan land use designation. The STANP also includes specific development standards for residential projects in PD zones. Development standards that are not specified in the STANP shall be as stated in Title 21 of the Campbell Municipal Code. In the case of conflict between the STANP and the Municipal Code, the STANP standards .shall prevail. These standards have been provided under Project Data at the beginning of this staff report. AhTALYSIS The intent of the pre-application process is to allow early review of significant development applications to avail an applicant of the Planning Commission's comments and concerns prior to the formal submittal of an application. However, the pre-application process does not result in any binding comments or a decision with regard to land use entitlements. The following analysis is limited and based on the preliminary plans and overall project design concept. ZONING AND GENERAL PLAN LAND USE DENSITY The General Plan land use designation for this property is low density residential (less than 6 units per acre) and the zoning designation for this property is R-1-6 (minimum 6,000 square foot lot size). The applicant is proposing six (6) single-family homes on a 1.2 acre lot (gross) which equate to 5 units per gross acre and net lot sizes ranging from 6,000 square feet to 6,270 square feet. Although the applicant's proposal meets the minimum standards allowed for the site, the Planning Commission should consider whether the proposal meets the objectives of the San Tomas Area Neighborhood Plan. As noted earlier, the STANP encourages larger than minimum lot sizes and projects that are compatible with the surrounding area. The Planned Development section of the STANP goes further to say that the minimum lot size for low density residential projects in PD zones should be at least equal to the predominant minimum lot size requirement of parcels contiguous to, or directly across a public right-of--way Planning Commission Study Session -May 26, 2015 880 - 910 Harriett Avenue ~ PRE2015-01 Page 5 of 8 from the subject site. As shown in the•aerial photograph, the immediate neighborhood includes a mix of residential lot sizes with smaller lots (5,800 to 6,400 square feet) west of the subject property, and larger lots (6,399 to 27,419 square feet) north, east and south of the subject property. In accordance with the San Tomas Area Neighborhood Plan, the minimum lot sizes allowed should respect and enhance the lower-density characteristics and larger lots of the area. SUBDIVSION DESIGN COMPATIBILITY The STANP encourages larger than minimum lot sizes and new developments that are integrated with homes in the surrounding area. As previously discussed, many of the lots to the north, east, and south of the property exceed 6,000 square feet in area. The four-lot subdivision on Elam Avenue includes lot sizes ranging from approximately 6,399 to 8,660 square feet in area, while the new 9-lot subdivision that was approved in 2014 on Westmont Avenue, consists of lots that range in size from approximately 6,002 to 10,067 square feet in net lot area. Another objective of the STANP is to ensure that the size of homes is in proportion to lot size. As proposed, the homes would range in size from 2,500 square feet to 2,800 square feet, which equates to a floor area ratio ranging from approximately 42% to 47%. The maximum allowed floor area, including the garage is 45%, thus the developer should consider reducing the size of the homes or at least locating the largest home on the largest lot (e.g., 2,800 square foot home on Planning Commission Study Session -May 26, 2015 880 - 910 Harriett Avenue ~ PRE2015-01 Page 6 of 8 the 7,580 square foot would have a FAR of 37%). Moreover, the design and floor area of the home that faces Harriet Avenue should be considerate of the smaller one-story homes (1,640 to 1,960 square feet including garage) directly across the street. ARCHITECTURE, DESIGN, AND ORIENTATION The pre-application includes two conceptual elevations for two-story Craftsman style homes (Attachment 3). `Type A' illustrates across-gabled design that includes eave brackets for textural articulation and a large front porch that is possible by placing the garage entrance on the side of the home. `Type B' is adouble-gabled design with rafter tails that has a smaller porch with a front facing garage. Both examples include wood shutters, dormers and hipped roofs with cross gables. The home that faces Harriet Avenue will need special consideration as it relates to the streetscape, and should be oriented towards Harrie Avenue to achieve consistency with the orientation of homes along the street. Notwithstanding previous comments regarding lot size, floor area, and building orientation, and although the conceptual elevations are limited, staff believes that the architectural style and materials are characteristic of the San Tomas Area. The applicant is aware that the exterior elevations of the homes should be significantly varied from each other and that no two identical elevations should be adjacent to one another or directly across from one another. A more thorough analysis of scale and mass, surface articulation, building orientation, exterior design variation, and privacy impacts will be evaluated following submission of a formal application. SETBACKS A traditional R-1-6 zoning district requires a minimum front and rear yard setback of 20 feet, and a minimum side yard setback of at least five feet or one-half the height of the building wall adjacent to the property line; notwithstanding the minimum 12 foot street side setback for a corner lot and the minimum 25 foot setback between the entrance to a garage or carport and any public right-of--way. However, the PD zone allows flexibility of standards in order to provide a more optimal amount of open space. The conceptual site plan shows front yard setbacks ranging from 12 feet to 20 feet, dependent on the width of the lot. In order to provide more open space in the side yards of those lots whose width exceeds the depth, the applicant has provided a 12 foot front yard setback. This site layout provides for a greater separation between individual properties which helps to minimize privacy impacts. LANDSCAPING, OPEN SPACE, AND FRONT YARD PAVING An objective of the STANP is to ensure that landscaping enhances the rural characteristics of the area. The project will require a minimum of one new or existing tree per 2,000 square feet of net lot area, a minimum open space area of 750 square feet per dwelling unit, and a maximum of 50% front yard paving. The preliminary site plan appears to acknowledge these requirements with each lot showing a minimum of 1,200 square feet of open space in each `rear yard' and a minimal amount of paving in each `front yard'. The applicant will also be required to replace removed street trees with new trees which do not count towards the property's tree requirements. The conceptual site plan shows landscaping along the private access road in front of the homes and to the rear of the guest parking area where a retention pond is proposed to comply with stormwater requirements. As these plans are only conceptual, it is anticipated that the entire subdivision, including the front yard facing Harriet Avenue, will be landscaped in a manner that Planning Commission Study Session -May 26, 2015 880 - 910 Harriett Avenue ~ PRE2015-O1 Page7of8 is shown in front of lot 2A. The project will also be required to comply with the City's Water Efficient Landscape Guidelines. CIRCULATION AND PARKING The proposed circulation and parking layout is largely driven by fire truck turn-around and access requirements as well as guest parking space requirements. In addition to the standard parking requirements for single family homes, low density residential Planned Development projects in the San Tomas area shall provide two shared guest parking spaces per unit. Therefore, the proposed 6-lot subdivision would require 12 guest parking spaces which have proved to be difficult to provide due to the odd L-shape of the property and the STANP requirement that guest parking spaces cannot be located in a driveway and that the minimum lot size shall not include common areas. The guest parking spaces and the private access street, along with all other common lot amenities will require a homeowners association to maintain them. REQUIRED ENTITLEMENTS This proposal would require an application for a Zoning Map Amendment, Planned Development Permit, Site and Architectural Review, Tentative Subdivision Map, and a Tree Removal Permit. CEQA (ENVIRONMENTAL REVIEW Zoning map amendments and subdivisions of land into five or more parcels are not exempt from CEQA. Thus, preparation of an Initial Study is required to analyze the project's possible environmental impacts, including traffic, air-quality, light and glare, noise, geology, tree removal, and exposure to hazardous materials. Completion of the Initial Study and preparation of a Mitigated Negatives Declaration will be required prior to a review of the project by the Planning Commission. PUBLIC OUTREACH Due to the land use sensitivities of the project site, staff prepared a 300-foot notice for this pre- application study session. The study session was also noticed on the City's website and in the Campbell Express newspaper. PUBLIC IMPROVEMENTS The Public Works Department reviewed the pre-application and provided tentative conditions of approval for required public improvements, including but not limited to undergrounding utilities and installing City standard curb, gutter, sidewalk and an ADA compliant driveway approach along Harriet Avenue. The applicant will also be required to minimize impervious surface areas and include site design measures such as vegetated swales, for example, that minimize stormwater runoff. Planning Commission Study Session -May 26, 2015 880 - 910 Harriett Avenue ~ PRE2015-01 SUMMARY Page 8 of 8 Based on the discussion points raised in this study session memorandum, staff requests comment and direction on the following items: Residential Density o Are the proposed number of units and lot sizes appropriate for this property and the neighborhood, given the STANP objective to encourage larger than minimum lot sizes that are at least equal to the predominant minimum lot size requirement of contiguous parcels. . Subdivision Design o Are the lots configured to achieve consistency with neighboring parcels and integration with homes in the surrounding area? • Consistency with the General Plan and STANP o Does the architecture (building design) and building massing (height, etc.) of the two conceptual elevations comply with the design guidelines and strategies of the General Plan and STANP? • Open Space & Landscaping o Does the proposed layout of the subdivision provide adequate open space and landscaping for each home, given that the PD ordinance states that the PD zone is intended to provide flexibility? o Prepared by: ~ Cindy 1VIc rmick, Senior Planner Reviwed by: ' onda Snelling, Planning Manager Approved by: Paul e yan, Community Development Director Attachments: 1. Location Map 2. Letter from Applicant 3. Preliminary Project Plans