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Staff Report - CC (2019-02-19) City Council Report TITLE: Pre-Authorization Request (PLN2019-18) to Formally Proceed with a General Plan Amendment Application to Change the General Plan Land Use Designation of the Parcel Located at 202 W. Rincon Avenue from Medium Density Residential to Low-Medium Density Residential (Resolution/Roll Call Vote) RECOMMENDED ACTION Adopt a resolution denying the requested authorization to apply for a Low-Medium density designation (6-13 du/ga), and direct the applicant to redesign the proposed project with a minimum of nine (9) dwelling units and a maximum of 11 dwelling units, consistent with the Medium Density designation (14-20 du/ga). PROPOSAL The applicant is requesting authorization to proceed with an application to amend the General Plan land use designation of the subject property from Medium Density Residential (14-20 dwelling units per gross acre) to Low-Medium Density Residential (6- 13 units per gross acre). The residential land use designation is requested because the applicant is pursuing a small-lot 5-unit single-family development as further described in this report. Such a proposal would require a General Plan Amendment, Tentative Subdivision Map, Planned Development Permit with Site and Architectural Review, a Tree Removal Permit, and environmental review. BACKGROUND The Campbell General Plan represents the City’s long term vision for the community and is intended to guide decision-making regarding the City’s physical and economic growth as well as services necessary to support a growing population with desired community amenities. In this regard, the General Plan provides policies applicable to land use and development, and organizes the City into a framework of distinct land use designations (i.e., commercial, residential, industrial, etc.). In this particular neighborhood, the prescribed land use designation is Medium Density Residential. The Campbell Municipal Code (CMC) specifies that an amendment to the General Plan may only be initiated by the City Council (CMC Section 21.60.020.A). The purpose of the Ordinance is to provide processing and reviewing procedures whenever the public necessity, convenience, and the general welfare require such amendment. It is also an Item: 8 Category: PUBLIC HEARINGS AND INTRODUCTION OF ORDINANCES Meeting Date: February 19, 2019 8 Packet Pg. 132 Pre-Authorization Request to Apply for a Lower Land Use Density Page 2 of 9 opportunity for the Council to obtain an improved understanding of problems or issues affecting the subject property in order to determine if a different designation is more appropriate. General Plan: The General Plan encourages a variety of housing options in terms of style, size, and density that contribute positively to the surrounding neighborhood. The General Plan also encourages residential developments that improve housing affordability for both renters and homeowners and that accommodate the City of Campbell’s share of regional housing needs. As such, the General Plan Land Use Map was created to provide a diversity of housing densities that are representative of the adjoining neighborhood character. In reviewing this authorization request, the City Council may want to consider the following General Plan goals, polices, and strategies which help guide the City Council in determining if the proposed land use density is more appropriate than the designated land use density. Goal LUT-3: Options in ownership and rental housing in terms of style, size, and density that contribute positively to the surrounding neighborhood. Policy LUT-3.1: Variety of Residential Densities: Provide land use categories for and maintenance of a variety of residential densities to offer existing and future residents of all income levels, age groups and special needs sufficient opportunities and choices for locating in Campbell. Strategy LUT-3.1a: Consistency with Housing Element: Ensure consistency with the City’s Housing Element including ensuring that there is adequate land designated to meet Housing goals. Goal LUT-5: Preservation and enhancement of the quality character and land use patterns that support the neighborhood concept. Policy LUT-5.1: Neighborhood Integrity: Recognize that the City is composed of residential, industrial and commercial neighborhoods, each with its own individual character; and allow change consistent with reinforcing positive neighborhood values, while protecting the integrity of the city’s neighborhoods. Policy LUT-5.2: Residential Neighborhoods: Maintain safe, attractive, pedestrian friendly residential neighborhoods with identifiable centers and consistent development patterns and a range of public and private services. Strategy LUT-5.2d: Density Change Criteria: In considering changes to residential densities, employ criteria such as compatibility with the residential surroundings, privacy, noise, and changes in traffic levels on neighboring streets and major thoroughfares. 8 Packet Pg. 133 Pre-Authorization Request to Apply for a Lower Land Use Density Page 3 of 9 Strategy LUT-5.2e: Reduction of Development Intensity: Development intensity may be reduced below the minimum on the land use diagram to ensure the compatibility of development with its surroundings or due to site constraints. Goal LUT-9: A compatible land use pattern citywide. Policy LUT-9.1: Land Use Pattern: Establish a compatible land use pattern citywide. Strategy LUT-9.1a: Land Use Conflict Minimization: Amend the General Plan and Zoning map to minimize conflicts between land uses when identified. On February 5, 2019, the City Council considered a pre-authorization request to increase the density on a 3-acre parcel near the Campbell/Los Gatos border. A key factor in the Council’s decision to authorize a formal application in that case was the need for more housing. However, the subject request before the Council is to decrease density, thus decreasing the number of housing units in Campbell. While a lower density would potentially have fewer negative impacts (e.g., traffic) to the neighborhood, it could be viewed as exacerbating the housing crisis. On the other hand, one may find that more flexibility with regard to the allowed density range should be market driven, so long as the overall density in the City is not decreased below what the Housing Element anticipated. DISCUSSION The applicant is requesting authorization to proceed with an application to amend the General Plan land use designation of the subject property from Medium Density Residential (14-20 du/ga) to Low-Medium Density Residential (6-13 units per gross acre). The Medium Density land use designation has historically been in the form of apartments, condominiums and townhomes, while the Low-Medium Density designation is typically in the form of small lot single-family detached homes and townhomes. Nevertheless, a development with single-family detached units could be constructed at the prescribed density, as discussed later in this report. The requested authorization is desired by the applicant in order to pursue a small-lot 5-unit Planned Development with a density of approximately nine (9)1 units per gross acre; a lower density than prescribed for the subject property. The project that would potentially be proposed if the request is granted is further illustrated in the applicant’s proposed site plan and elevations (Attachment 3). When considering changes to the City’s designated residential densities, the City shall consider compatibility with adjoining land uses and conformance to the goals, policies, and actions of the General Plan. Staff is recommending denial of the request for several 1 25,074/43,560 = .57562 gross acres. 5/.57562 = 8.686289 units per gross acre 8 Packet Pg. 134 Pre-Authorization Request to Apply for a Lower Land Use Density Page 4 of 9 reasons, as discussed further in this report. Furthermore, staff has not been able to determine that a public necessity, convenience, or general welfare finding exists that would require such an amendment. General Plan Consistency: As provided under the Background section of this report, the General Plan includes goals, policies, and strategies that should be considered when an applicant proposes a different density than the established land use designation. The General Plan and Housing Element call for a variety of residential densities to accommodate all income levels, age groups and special needs populations. Furthermore, there should be adequate land designated to accommodate the City’s share of regional housing needs and meet other housing goals. While the subject property is not located in one of the City’s priority development areas, or identified as an opportunity site for accommodating the City’s Regional Housing Needs Allocation (RHNA), any units that would be built on the site will count towards RHNA. Campbell’s RHNA share is 933 new units over the 2015-2023 planning period. However, the Housing Element anticipated a residential build-out that is higher than the prescribed 933 units contained in the RHNA. In addition to the opportunity sites, the City looked at underutilized (or underdeveloped) properties in determining residential build-out. Arguably, this property and the area’s prescribed density was a contributing factor in determining housing production. Reducing the prescribed density could create Housing Element compliance issues unless other sites are re-designated to offset the loss of density on the subject property. While the applicant could come back with a 9-unit development2 that does not require inclusionary housing3, changing the land use designation to a lower density would eliminate the potential for acquiring affordable units (unless volunteered by the applicant). Nevertheless, creating smaller units under the existing land use designation (rather than larger homes under the proposed designation) will be more affordable by design. In order to maintain a consistent land use designation, the City Council would need to consider changing the land use designation of the other properties along this section of Rincon Avenue. However, downzoning other properties along Rincon Avenue (to avoid spot-zoning) may be objectionable to the landowners of such properties. Doing so would also make it more difficult to achieve housing units in the moderate to lower- income categories. One may also find that if the City continues to permit housing developments with lower densities than anticipated by the General Plan, the City will continue to fall short of its obligation to satisfy its RHNA. According to the General Plan’s introduction, land for residential development has become scarce within the City, resulting in an increased demand for homes in 2 The existing medium-density designation allows for a range of 9 – 11 units. 3 The City’s Inclusionary Ordinance requires at least 15% of the units in a development with 10 or more units to be sold at an affordable ownership cost to lower-income and moderate-income households. 8 Packet Pg. 135 Pre-Authorization Request to Apply for a Lower Land Use Density Page 5 of 9 Campbell4. Approximately 72% of the designated residential land in the City is less than 6 dwelling units per net acre (not including mixed-use development), while approximately 8% and 9% of the land is designated low-medium density and medium density, respectively. Another 9% is designated as high density residential and approximately 2% is designated for mobile home parks. Neighborhood Consistency: It is also important to consider established neighborhood patterns and compatibility with adjoining land uses, when considering changes to the established residential densities. The General Plan’s Land Use Element calls for a compatible land use pattern citywide, that minimizes conflicts between land uses. The compatibility of residential development is determined by such factors as density, lot size, lot configuration, building scale, and building design. Pursuant to Land Use Strategy LUT-5.2e, development intensity may be reduced below the minimum on the land use diagram to ensure the compatibility of development with its surroundings or due to site constraints. As discussed in this report, staff has concern that such a change will achieve an inconsistent development pattern within the established neighborhood. Existing Site and Neighborhood: The approximately 1/2 acre site (cross-hatched in the attached land use map, Attachment 5) is located on Rincon Avenue, west of Winchester Boulevard. The site has a land use designation of medium density residential and is surrounded by attached townhomes to the right and across the street (medium density designation), a single-family home to the left (medium density designation), and single-family residential detached units to the rear (low density designation). Thus, the proposed low-medium density would be inconsistent with the surrounding land use designations. The designated density and the actual built-out density are illustrated in the graphics attached to this report. Locating similarly zoned properties in relation to each other is the fundamental approach to achieving development consistencies and preservation of neighborhood character. As can be seen on the provided land use map, a rather large harmonious area (illustrated in magenta) is comprised of medium-density residential units. Similarly, the other residential densities are grouped together to achieve consistency, while the non-residential uses are generally located along major arterials (Winchester Boulevard and Campbell Avenue) for the convenience of customers and employees. The graphic provided in Attachment 5 illustrates the existing densities along Rincon Avenue. The first number indicates the actual density in dwelling units per gross acre5, while the second number (in parenthesis) indicates the approximate year of construction. In general, the average built-out density (notwithstanding a few anomalies where the density falls below 6 du/ga or above 27 du/ga, represented by the lightest and darkest colors on the map, respectively), is approximately 13 du/ga, slightly less than the designated range of 14-20 du/ga. 4 2001 General Plan Land Use Element, page LUT-3 5 Gross density is measured to the centerline of the street. 8 Packet Pg. 136 Pre-Authorization Request to Apply for a Lower Land Use Density Page 6 of 9 When considering neighborhood compatibility, the Council should be aware of the background regarding this property. A 2016 proposal for the subject property (under different ownership) included eight (8) dwelling units with a density of 13.9 dwelling units per gross acre (also below the designated range of densities). However, that proposal was opposed by several of the townhome owners to the right of the subject property, who voiced concerns regarding privacy, shadowing/sunlight exposure, ventilation, views, height, scale, proportion, and available street parking. Although the current proposal has not received any opposition, as of the writing of this report, the previous issues raised by neighbors are “design focused.” In this regard, any future proposal that does comply with the density should be designed to minimize such impacts. Current Proposal: If the authorization is granted and a formal application is approved6, the Planned Development (as currently proposed) would include five (5) detached single-family homes with attached garages (~2,500 square feet total), on lots ranging from approximately 3,000 to 3,900 square feet in net site area (Attachment 3). Additional details on the proposed development can be found in the Site and Architectural Review Committee (SARC) report7 (Attachment 4). If the authorization is not granted, the applicant could propose a project similar to the development on Kennedy Avenue that was constructed in 2015. That development consisted of attached townhomes and detached single-family homes with a density of approximately 19 du/ga. Staff has provided illustrations of what two different site layouts might look like on the subject property (Attachment 6). Staff has also provided elevations from the Kennedy project as examples of what a 2-½ story detached or attached housing product might look like (Attachment 6). A project that conforms to the existing medium-density land use designation will have different parking requirements depending on the housing type and the bedroom count proposed (Attachment 4, page 6). For example, a nine-unit detached single-family residential housing project would require 27 parking spaces (18 of which shall be covered)8 under the City’s standard parking requirements. Future consideration will also need to be given to the appropriate floor area, lot coverage, setbacks, and height for the project, since the P-D zoning district does not have development standards9. The average size of the homes in the Kennedy project was approximately 2,300 square feet including a two-car garage, slightly less floor area than the subject applicant’s current proposal. The average open space for the Kennedy project was approximately 500 square feet per unit. Alternatively, if the City preferred a detached product to be more compatible with the single-family homes to the rear of the subject property, the applicant 6 If authorized to proceed, it does not guarantee that a formal application to amend the General Plan land use designation would be approved, only that the request warrants further review and analysis. 7 The City’s Site and Architectural Review Committee reviewed the proposal on 1-22-19. While the SARC was supportive of the proposed architectural design, the SARC agreed that the lower density would require a General Plan amendment and pre-authorization from the City Council. 8 Parking standard = 3 spaces per unit (2 covered spaces plus ½ standards space plus ½ guest space) 9 Staff’s approach to the lack of specific standards is to reference the underlying General Plan equivalent zoning which in this case is the R-2 (multiple-family) zoning district (magenta on the zoning map). 8 Packet Pg. 137 Pre-Authorization Request to Apply for a Lower Land Use Density Page 7 of 9 could apply for a parking modification, similar to what was approved for the Kennedy development10. In that case, a potential site plan would include two guest parking spaces. The attached conceptual site plans are provided for illustration purposed only. The applicant will need to design a plan that works within the City’s requirements. OPTIONS Ultimately, the Council may decide if there is a compelling reason to change the land use designation that was determined to be appropriate when the General Plan and Housing Element were adopted in the year 2001 and 2015, respectively. The two options available to consider include: 1. Deny the request and direct the applicant to redesign the proposed project with a minimum of nine (9) dwelling units and a maximum of 11 dwelling units, consistent with the Medium Density designation (14-20 du/ga). Staff’s recommendation is to deny the request because it would be inconsistent with General Plan policies that call for adequate land designated to meet housing goals, including but not limited to having a variety of housing options in terms of style, size, and density. 2. Authorize the applicant to proceed with the proposed application to change the General Plan land use designation to Low-Medium Density Residential (6- 13 du/ga). If the Council finds that a public necessity, convenience, and/or general welfare of the City warrants review of an application to change the General Plan land use density to 6 to 13 units per gross acre, the Council could authorize the request. If the City Council authorizes the applicant to proceed, the authorization does not guarantee that the amendments will be approved, only that the request warrants further review and analysis as part of a formal application, as described in this report. In addition, the City may be forced to locate other properties of similar size in order to increase density so as to maintain the status quo in the Housing Element. This would require noticing the State Department of Housing and Community Development in order to avoid Housing Element compliance issues. NEXT STEPS If the Council authorizes the applicant to request a General Plan amendment, the applicant will also be required to submit an application for a Tentative Subdivision Map, P-D Permit with Site and Architectural Review, and a Tree Removal Permit. Additionally, the proposal will require an environmental analysis pursuant to the California Environmental Quality Act (CEQA). The overall project would be reviewed for 10 The approved parking ratio was approximately 2.2 spaces per unit. 8 Packet Pg. 138 Pre-Authorization Request to Apply for a Lower Land Use Density Page 8 of 9 compatibility with the surroundings properties in terms of visual appearance, tree removal, privacy, and noise. Additionally, any such application should be considered in light of Housing Element goals for providing safe, attractive, pedestrian friendly neighborhoods with options for ownership and/or rental housing and an appropriate mix of styles, sizes, densities, and affordability levels. OUTREACH AND PUBLIC COMMENTS In addition to noticing the General Plan Authorization request in the newspaper and to all property owners within 300 feet of the site, staff sent emails to surrounding residents who had expressed concerns about the previous submittal for eight (8) units. One member of the public11 attended the SARC meeting, voicing concerns over potential privacy impacts of a larger development and visual impacts that would result if the applicant were to increase the height to 35-feet. Another resident12 came into City Hall and also voiced concerns over the potential height of a revised project. FISCAL IMPACTS The density, floor area, and type of housing (e.g., detached or attached) are all factors in determining the assessed value of the homes which contributes to long term residential property taxes. The density and the size of the homes will also dictate permit processing application fees, park impact fees, and building permit fees. Prepared by: Cindy McCormick, Senior Planner Reviewed by: Paul Kermoyan, Community Development Director Approved by: 11 The concerned resident lives in the rear unit of the townhome development to the right of the subject property. 12 The concerned resident lives in a detached single-family home to the rear of the subject property. 8 Packet Pg. 139 Pre-Authorization Request to Apply for a Lower Land Use Density Page 9 of 9 Brian Loventhal, City Manager Attachment: 1. Draft Resolution to deny 2. Vicinity Map 3. Site layout and elevations 4. SARC Memo 1-18 5. Land Use Maps 6. Conceptual Layout and Elevations 8 Packet Pg. 140 RESOLUTION NO. _________ BEING A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CAMPBELL DENYING SUBMITTAL OF A FORMAL APPLICATION FOR PROCESSING AND REVIEW OF A GENERAL PLAN AMENDMENT WHEREAS, The purpose of the City’s General Plan is to guide decisions regarding physical growth and development, provision of public services and facilities, and conservation and enhancement of natural resources.; and WHEREAS, The General Plan establishes a foundation upon which the City Council and Commissions can base policy decisions and a basis for judging whether specific development proposals and public projects are in harmony with community desires.; and WHEREAS, The General Plan is intended to be a living document and, as such, will be subject to site specific and comprehensive amendments over time.; and WHEREAS, An amendment to the General Plan may be initiated only by the City Council.; and WHEREAS, The City Council has determined that there is not a public necessity, convenience, and the general welfare that would require such amendment. NOW, THEREFORE BE IT RESOLVED that the City Council of the City of Campbell does hereby deny submittal of a formal application to amend the General Plan land use designation and direct the applicant to redesign the proposed project with a minimum of nine (9) dwelling units and a maximum of 11 dwelling units, consistent with the Medium Density designation (14-20 du/ga). PASSED AND ADOPTED this 19th day of February 2019, by the following roll call vote: AYES: COUNCILMEMBERS: NOES: COUNCILMEMBERS: ABSENT: COUNCILMEMBERS: ABSTAIN: COUNCILMEMBERS: APPROVED: Richard M. Waterman, Mayor ATTEST: Wendy Wood, City Clerk Attachment 1 8.a Packet Pg. 141 Attachment: Draft Resolution to deny (Pre-Authorization Request to Apply for a Lower Land Use Density) CHERRY LN RINCON AVE SALICE WAYCALIFORNIA STProject Location Map Project Location: 202 W. Rincon Application Type: Request authorization to  lower the designated density for the subject property Planning File No.: PLN2019‐18 ±0460230 Feet Community Development Department Planning Division Project Site 8.b Packet Pg. 142 Attachment: Vicinity Map (Pre-Authorization Request to Apply for a Lower Land Use Density) 8.cPacket Pg. 143Attachment: Site layout and elevations (Pre-Authorization Request to Apply for a Lower Land Use Density) 8.cPacket Pg. 144Attachment: Site layout and elevations (Pre-Authorization Request to Apply for a Lower Land Use Density) 8.cPacket Pg. 145Attachment: Site layout and elevations (Pre-Authorization Request to Apply for a Lower Land Use Density) 8.cPacket Pg. 146Attachment: Site layout and elevations (Pre-Authorization Request to Apply for a Lower Land Use Density) 8.cPacket Pg. 147Attachment: Site layout and elevations (Pre-Authorization Request to Apply for a Lower Land Use Density) 8.cPacket Pg. 148Attachment: Site layout and elevations (Pre-Authorization Request to Apply for a Lower Land Use Density) To: Site and Architectural Review Committee Date: January 22, 2019 From: Cindy McCormick, Senior Planner Via: Paul Kermoyan, Community Development Director Subject: Five lot planned development subdivision with tree removal Address: 202 W. Rincon Avenue File No.: Planned Development Permit / Tree Removal Permit (PLN2018-25) Tentative Subdivision Map (PLN2018-24) | CEQA Review (PLN2018-26) PROPOSAL The project includes an application for a Tentative Subdivision Map to subdivide the site into five (5) fee simple single-family residential parcels plus one (1) common lot, a Planned Development Permit for each of the five (5) homes, and a tree removal permit to remove one (1) protected fruitless mulberry tree. The project requires an Initial Study under the California Environmental Quality Act (CEQA) since land divisions of five (5) or more parcels are not exempt. Staff has prepared a draft Mitigated Negative Declaration (MND) finding that the proposed project will not have a significant effect on the environment with the incorporation of mitigation measures. PROJECT SITE The project site consists of a 22,674 square foot (net site area) parcel located on Rincon Avenue, west of Winchester Boulevard (Attachment 1). Access to the subdivision would be taken from Rincon Avenue. Abutting land uses include single-family residential detached units to the south (R-1-6), a single family home to the east (zoned R-2), attached townhomes to the west (zoned PD), and attached townhomes and apartment units to the north (zoned PD and C-PD). The site is currently developed with one single-family residence and several accessory buildings that will be demolished as part of the project. PROJECT DATA Zoning Designation: P-D (Planned Development) General Plan Designation: Medium Density Residential (14-20 units/gross acre) Proposed Density: 8.7 units/gross acre Net Lot Area: 22,674 square feet Gross Lot Area: 25,074 square feet (to center line of street) Proposed Parking: 15 parking spaces (five 2-car garages, five guest spaces) Minimum Parking: 15 parking spaces (10 covered, 5 uncovered) MEMORANDUM Community Development Department Planning Division 8.d Packet Pg. 149 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) SARC Memorandum Page 2 of 7 202 W Rincon Subdivision - PLN2018-224, -225, -226 A = common lot consisting of shared driveway and fire turn-around area Notes: Lots 1-4 face east and Lot 5 faces north The garage setback for lots 1 – 4 is taken from the edge of the landscape buffer; which is 3 feet deep The garage for lot 5 faces the common driveway DISCUSSION The property is located in the P-D (Planned Development) zoning district and is therefore subject to the P-D ordinance (CMC Section 21.12.030) which provides criteria to consider when reviewing P-D applications. This report (starting on page 4) includes a discussion on the proposed density (8.7 du/ga) which is below the General Plan designation of 14-20 du/ga. Subdivision Layout: The proposed subdivision consists of five (5) detached single-family homes on fee simple lots. The proposed lots range from approximately 3,000 to 3,900 square feet in net site area. A 20-foot wide shared driveway, located on a common lot, would provide access to each of the five homes. While the garage for lot 1 (similar to the other homes) will face the interior of the subdivision, the entrance to lot 1 would face Rincon Avenue. Project Development Data Lot Lot Size (Sq. ft.) Building Height Living Area (Sq. ft.) Garage (Sq. ft.) Total Floor Area Total Lot Coverage Landscaping Area (Sq. ft.) 1 3,892 27 feet 2,130 360 2,490 1,480 1,900 2 3,033 27 feet 2,130 360 2,490 1,480 825 3 3,047 27 feet 2,130 360 2,490 1,480 825 4 3,116 27 feet 2,130 360 2,490 1,480 825 5 3,566 27 feet 2,180 360 2,540 1,525 1,120 A 6,020 Total: 22,674 Project Setback Data Lot Front Garage Rear Left Side Right Side Proposed 1st / 2nd Proposed 1st / 2nd 1 25’4” 27’ 10’ 8’9” 8’ 9” 17’4” 25’9” 2 25’4” 27’ 10’ 11’3” 15’11” 8’9” 8’9” 3 25’6” 27’ 10’ 9’ 9’ 11’3” 16’3” 4 25’4” 27’ 10’ 9’9” 14’9” 9’ 9’ 5 13’ 25’+ 5’ 5’ 9’6” 14’7” 14’7” 8.d Packet Pg. 150 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) SARC Memorandum Page 3 of 7 202 W Rincon Subdivision - PLN2018-224, -225, -226 Privacy: Privacy impacts are minimized by facing bedroom egress windows towards the interior of the subdivision, thereby minimizing the size of the windows facing the closest homes to the west. Furthermore, there are no proposed second story balconies. Fourteen (14) cypress trees will help screen the new homes from the townhomes to the west. While the P-D zoning district does not have setback requirements, the benchmark setback for multi-family zoning districts is 50% of the wall height or a minimum 10 feet given the 20-foot building wall height. The home on lot 5 is located relatively close to the rear property line with the first story at five-feet from the rear property line and the 2nd story at eight (8) to ten (10) feet from the rear property line. While the two homes to the rear each have large trees in their back yards that help screen for privacy, the SARC could request that the home be redesigned to accommodate a larger rear setback if privacy impacts are a concern. Design, Scale and Massing: Each of the five (5) detached two-story single-family homes will have a maximum height of 27-feet, with homes ranging in size from approximately 2,490 to 2,540 square feet in area (2,180 sq. ft. living + 360 sq. ft. attached garage). The design style is relatively traditional including the composition shingles, mix of hip and gable roofing, and stone veneer wainscoting. The subdivision has been designed such that the exterior elevations are varied within the project, including the use of both wood (lots 2, 5) and stucco (lots 1, 2, 4) siding and a varied palette of neutral colors (e.g., light tan, dark tan, medium grey, and olive green) as provided in Attachment 3. Lot 1 (which faces Rincon Avenue) and lot 5 (located at the rear of the lot) are shown below for reference. Both of these homes will be seen from the street. If the SARC thinks the colors are too similar, the SARC could request that the color of one of the homes be switched out with one of the other homes. Tree removal: The City’s Tree Protection Ordinance allows for removal when retention of a tree would severely limit the use of the property in a manner not typically experienced by owners of similarly zoned and situated properties, and the applicant has demonstrated to the satisfaction of the approval authority that there are no reasonable alternatives to preserve the tree. The applicant’s Arborist identified one (1) protected fruitless mulberry tree on the site with a 20- inch diameter (dbh) trunk and a 35-foot canopy. The applicant’s Arborist has indicated that the tree is poorly suited for retention in a development setting due to its invasive root growth and poor condition and structure (Attachment 4). Furthermore, it is located in the center of the lot and would be difficult to preserve given its shallow root structure which will be impacted by any construction within 35 feet of the trunk. The applicant proposes to remove this tree (if allowed) 8.d Packet Pg. 151 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) SARC Memorandum Page 4 of 7 202 W Rincon Subdivision - PLN2018-224, -225, -226 and replace it with several new trees, including three (3) 36” box flowering plum trees and 14 cypress trees, exceeding the minimum requirements of City Code. Landscaping: In addition to the 17 new trees discussed above, the landscape plan includes flowering shrubs and plants in front of the guest parking spaces for each home. The applicant also intends to incorporate flowering shrubs within a 3-foot landscape buffer that runs along the eastern property line, adjacent to the driveway. Staff has advised the applicant that City Code calls for a five-foot landscape buffer; however the SARC could determine that the overall proposed landscape plan, which includes more landscaping than required by code, is sufficient to meet the intent of the code, given the flexibility allowed for planned developments. The plans indicate that 6,345 square feet (28%) of landscaping is proposed where the minimum requirement would be 4,534 square feet (20%) of the lot. The applicant will also be required to comply with the City’s water efficient landscape standards. General Plan Land Use Density: The purpose of a General Plan is to guide decisions regarding development, public services, and preservation of a City’s environmental resources1. In this regard, Campbell’s General Plan addresses the issue of land availability to meet the City’s land use objectives and needs2. In particular, Housing Element Goal H-4 states that the City shall “Provide adequate housing sites through appropriate land use and zoning designations to accommodate the City’s share of regional housing needs3.” One may find that if the City continues to allow housing development inconsistent with the expected land use densities, the City will continue to fall short of its obligation to satisfy its Regional Housing Needs Allocation (RHNA). According to the General Plan’s introduction, land for residential development has become scarce within the City, resulting in an increased demand for homes in Campbell4. Approximately 72% of the designated residential land in the City is less than 6 dwelling units per net acre (not including mixed-use development), while approximately 8% and 9% of the land is designated low-medium density and medium density, respectively. Another 9% is designated as high density residential and approximately 2% is designated for mobile home parks. In making land use decisions, the City’s decision makers must consider which land uses will best serve the public interest, while allowing property owners reasonable property use5. When the General Plan was created, certain designations were either lowered or raised depending on the character of the neighborhood6. When the General Plan was updated in 2001, the subject property existed in its current state. The medium density residential classification on the land use map for this property anticipates a range of 14 to 20 dwelling units per gross acre; generally in the form of apartments, condominiums and townhomes. However, the applicant is proposing 8.7 units per gross acre, which is inconsistent with the prescribed density. The General Plan includes two strategies that should be considered when an applicant proposes a different density than the prescribed land use designation. 1 2001 General Plan Introduction, page I-4 2 2001 General Plan Introduction, page I-4 3 Housing Element 4 2001 General Plan Land Use Element, page LUT-3 5 2001 General Plan Land Use Element, page LUT-3 6 2001 General Plan Land Use Element, page LUT-3 8.d Packet Pg. 152 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) SARC Memorandum Page 5 of 7 202 W Rincon Subdivision - PLN2018-224, -225, -226 General Plan Land Use Strategy LUT-5.2d (Density Change Criteria) states that changes to residential densities may be considered by employing criteria such as compatibility with the residential surroundings, privacy, noise, and changes in traffic levels on neighboring streets and major thoroughfares. General Plan Land Use Strategy LUT-5.2e states that the “development intensity may be reduced below the minimum on the land use diagram to ensure the compatibility of development with its surroundings”. These two strategies were created to help guide the City’s decision makers in determining when a proposed land use density is more appropriate than the designated land use density. For example, if a property owner wants to apply to amend the General Plan land use designation in order to develop a property with a lower or higher density, the City would need to find that the requested density is more keeping with the surrounding neighborhood. The SARC should consider both the built-out density of the surrounding area and future redevelopment of underutilized properties. As provided in the graphic to the left, staff’s review of some of the surrounding properties along Rincon Avenue reveals densities in the range of approximately 10.4 to 18.7 du/ga, depending on when the homes were built. This area was one of the initial neighborhoods to be annexed when the City was incorporated in 1952. The City should continue to develop this neighborhood, consistent with the General Plan. Accordingly, the proposed property could be improved with a project that complies with the designated density, although the housing type would change from detached units to attached units (e.g., townhomes). When considering neighborhood compatibility, the SARC should be aware of the background regarding this property. A 2016 proposal for the subject property (under different ownership) included eight (8) dwelling units with a density of 13.9 dwelling units per gross acre (also below the designated range of densities). However, that proposal was opposed by several of the townhome owners to the right of the subject property, who voiced concerns regarding privacy, shadowing/sunlight exposure, ventilation, views, height, scale, proportion, and available street parking. Although the current proposal has not received any opposition, as of the writing of this report, the previous issues raised by neighbors are “design focused”. In this regard, any future proposal should be designed to minimize such impacts. If the SARC recommends (and the Planning Commission and the City Council agree) that the development should conform to the designated density, the applicant will need to completely redesign the project. The applicant will need to decide if they want to propose 9, 10, or 11 units. 8.d Packet Pg. 153 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) SARC Memorandum Page 6 of 7 202 W Rincon Subdivision - PLN2018-224, -225, -226 Each scenario will have different parking requirements, as shown in the table below. The City’s decision makers will also need to consider the appropriate floor area allowance for the project, since the P-D zoning district does not have floor area or lot coverage standards. Conversely, If the decision makers believe this parcel has an incorrect General Plan designation, the City should authorize the applicant to request an amendment to the General Plan. Parking Standards: However the applicant decides to redesign the project, staff will need to ensure that the parking standards are satisfied. Duplex/triplex/fourplex developments have the lowest parking requirements, while small-lot single-family dwellings (as proposed) and multi- family dwellings with two or more bedrooms have the highest parking requirements for the residential types discussed. The parking requirements for multi-family developments with studios or one bedroom units fall in between the above development types. Residential Type Parking Standard Small-lot Single-family dwellings 2½ spaces for each unit, 2 of which shall be covered, plus ½ space designated guest parking space for each unit. Multi-family dwellings with studio or one bedroom units 2 covered spaces for each unit, plus ½ space designated guest parking space for each unit. Multi-family dwellings with two or more bedroom units 2½ covered spaces for each unit, plus ½ space designated guest parking space for each unit. Duplex/triplex/fourplex developments 2 spaces for each unit, 1 of which shall be covered. Floor Area / Lot Coverage Standards: The P-D zoning district does not have floor area or lot coverage standards. However the equivalent zoning to the underlying General Plan designation does provide a benchmark; a practice that has been implemented by the City Planning Department and decision makers in the recent past. The maximum lot coverage is 40%, to which the current proposal of ~33% conforms. However, increasing the density will inevitably increase the lot coverage, save for a 2.5 story product which would increase the height. The current height proposed is 27-feet; however the applicant could go up to 35 feet in order to accommodate a 2.5 story structure. In order to assist the SARC in understanding the equivalent floor area benchmarks, staff has provided the allowed FAR under both the low-density designation and the low-medium density designation. The low-medium density land use designation is equivalent to the R-D (two-family) zoning district which has an allowable FAR of 45%. However, the applicant is proposing a 55% FAR which is consistent with the medium density land use designation and the R-2 (multiple-family) zoning district. In other words, if the applicant was permitted to change the land use density from low-medium density (14-20 du/ga) to low-density (6-13 du/ga) to accommodate the requested 8.7 du/ga, the benchmark FAR would be 45%, not 55%. Therefore, if the SARC is considering allowing the 8.d Packet Pg. 154 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) SARC Memorandum Page 7 of 7 202 W Rincon Subdivision - PLN2018-224, -225, -226 reduced density, the SARC should also consider requiring the applicant to reduce the overall floor area of the project to 45%. The applicant could achieve a lower FAR by either making the homes smaller or building the parking underground. The City does not count below-grade parking in the FAR calculation7. As stated previously, changing the land use density category would require the City Council to authorize a General Plan amendment. Inclusionary Requirements: If the applicant returns with a 9-unit development, no affordable housing would be required. A project with 10 or more units would require that at least 15% of the units be designated as affordable. In this case, a 10- or 11-unit development would require two (2) affordable units, due to rounding up requirements. OPTIONS The SARC should review the project's proposed density, site layout (e.g., setbacks), architecture, colors and materials, tree removal, and landscaping for compliance with the Municipal Code. The SARC should also determine if the project as proposed meets the intent of the P-D zoning district which allows flexibility for developments that create an optimum quantity and use of open space and good design given site characteristics and the surrounding environment. In this regard, the SARC should ask: 1) What alternative development could meet the prescribed land use? 2) How should it be designed to respond to neighborhood concerns? 2) How should it be designed to avoid detrimental impacts to the health, safety or welfare of the neighborhood? Attachments: 1. Location Map 2. Project Plans 3. Color Board 4. Arborist Report 7 "Floor area ratio" does not include uninhabitable attic space, basements, below-grade parking, covered porches, or unenclosed accessory structures (e.g., trellis). 8.d Packet Pg. 155 Attachment: SARC Memo 1-18 (Pre-Authorization Request to Apply for a Lower Land Use Density) General Plan Land Use Map (excerpt) Neighborhood Existing Density Map 8.e Packet Pg. 156 Attachment: Land Use Maps (Pre-Authorization Request to Apply for a Lower Land Use Density) Conceptual Site Layout (for ilustrative purposes only) Example Elevations (for ilustrative purposes only) 8.f Packet Pg. 157 Attachment: Conceptual Layout and Elevations (Pre-Authorization Request to Apply for a Lower Land Use Density)