Staff Report - SARC Memo - 2019.x.xx
To: Site and Architectural Review Committee Date: December 10, 2019
From: Stephen Rose, Associate Planner
Via: Paul Kermoyan, Community Development Director
Subject: Planned Development Permit (PLN2019-39) | Tentative Parcel Map (PLN2019-40) Tree Removal Permit (PLN2019-41) | CEQA Review (PLN2019-42)
Project Site: 2575 and 2585 S. Winchester Boulevard
PROJECT SITE
The project site comprises two parcels located at the northwest corner of South Winchester Boulevard
and Friar Way which have a combined net lot area of 15,293 square-feet (.35 acres). The project site is bordered by a small commercial center (automotive repair) to the north and a single-family residence to the west (reference Attachment 1 – Location Map). The site is developed with two single-family homes and improved with 10 trees (five protected) which would be removed as part of the project. The project site is located within the Planned Development (P-D) Zoning District and has a mixed-use General Plan
land use designation of Commercial/Professional Office/Residential. PROJECT PROPOSAL
The 15-unit apartment development would include a ±200 sq. ft. commercial space on the ground floor (reference Attachment 2 – Project Plans) and is intended to be a walkable infill development, benefitting
from its proximity to the Campbell Plaza shopping center (anchored by Safeway) and Winchester Station (light rail & bus stop) to the north, and San Tomas Expressway to the south.
SCOPE OF REVIEW
The purpose of the Site and Architectural Review Committee’s (SARC) review is to provide feedback on the site design, circulation, architectural materials, colors, and landscaping. In consideration of the
development, the SARC should also consider that the P-D Zoning District is intended to provide a degree of flexibility that is not available in other zoning districts to allow for a superior development, particularly related to the development’s design and provision of open space. To aid in achieving this goal, the Zoning Code provides a list of considerations and criteria that should be taken into account in review of this project (see CMC 21.12.030.H.5 and CMC 21.12.030.H.6).
PROJECT DATA
Net Lot Area: 15,293 square feet (.35 acre) Gross Lot Area: 25,102 square feet (.58 acre) Zoning: P-D (Planned Development) General Plan: Mixed-Use (Residential / Commercial / Professional Office)
MEMORANDUM
Community Development Department
Planning Division
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Proposed Units: 15 units (15 units / .58 gross acres ~ 26 units per gross acre) Max. Allowable Units: 21 units (21 / .58 gross acres ~ 36.2 units per gross acre) Proposed Density: 26 units/gr. acre (21-27 units per gross acre allowed)
Max. Allowable Density: 36.45 units/gr. acre (27 units gr. acre x .35 ~ 9.45; 27 + 9.45 = 36.45)
Affordable Housing Mix: 1 very-low income units (5% of 15 = .75 ~ 1 unit) ~ 20% density bonus1 2 low-income units (10% of 15 = 1.5 ~ 2 units) ~ 20% density bonus2 Building Coverage: 56% (14,000 sq. ft. building "footprint") Floor Area Ratio (FAR): 1% (excluding residential floor area per CMC 21.36.130) Proposed Building Height: 45 Feet
Parking Required: Provided Minimum Required Retail: 1 space 1 space (1 per 200 sq. ft.)
Residential: 34 spaces (two accessible)3 30 spaces (2 per 2-bdr.; density bonus) Guest: 1 space N/A (Not Required) DISCUSSION
Consistent with the P-D (Planned Development) zoning and Residential/Commercial/Professional
Office (RCPO) land use designation of the property, the applicant has proposed a new five-story mixed-
use building with a x sq. ft. commercial ground floor and 14 residential units above. These standards project site is unique on Winchester Boulevard as the only mixed-use designated property outside of the Winchester Boulevard Master Plan. Moreover, from a City-wide perspective, the property is the
Recognizing these characteristics, staff encouraged the applicant to follow the standards of the
Winchester Boulevard Master Plan which establishes standards for the development of mixed-use projects adjacent to single-family residential – which most notably includes a 2:1 slope/setback which pushes the bulk of the building away from residential units to the rear.
Winchester Boulevard located outside of the Winchester Boulevard Master Plan. Resultantly, the project
and land use perspective as it represents the only unique combination of P-D (Planned Development) zoning and Recognizing the limitations of the P-D (Planned Development) zoning district, staff is working on an update to the zoning code to establish development standards.
Recognizing the project site is outside of an established area plan, In review of the proposal, staff has separately encouraged the applicant to
Winchester Boulevard Master Plan: Review of physical characteristics of this project is largely governed
by the Winchester Boulevard Master Plan ("WBMP").4 Preparation of the WBMP began in 2007 in
1 Unit 4 would be restricted to very-low income households. 2 Units 8 & 12 would be restricted to low-income units households. 3 At least 10 percent of the dwellings must be accessible to persons with disabilities; 10% of 15 = 1.5 ~ 2 units / 2 accessible spaces.
4 The Winchester Boulevard Master Plan may be viewed online at http://www.cityofcampbell.com/DocumentCenter/View/177
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response to an increasing number of development applications along Winchester Boulevard at the time, including the previously approved project for this site, the Merrill Gardens project, and the retail building on the former A&W site. As envisioned by the General Plan, the goal of the WBMP is to transform Winchester Boulevard into a vibrant mixed-use, pedestrian-oriented district that can function as an
extension of the Downtown. To this end, the WBMP encourages mixed-use development that fronts the
street to provide a walkable atmosphere. Recognizing the differences in the land use pattern along the Winchester Boulevard corridor, the WBMP defines three distinct planning areas. The project site is located within Area 2, "Neighborhood
Commercial Boulevard", which is subject to development standards that consider the proximity of
single-family residences, including a maximum 45-foot (3-story) building height; 5-foot setbacks along Winchester Boulevard and side streets; no interior side setback; an 8-foot setback from the rear parking lot; and a rear setback/height ratio defined by a 2:1 slope, as depicted by the illustration below.
The proposed project has been designed to comply with the minimum development standards required
for Area 2, with a 5-foot, 2-inch setback along Winchester Boulevard, a 5-foot setback along El Caminito Avenue, a 2-foot interior-side setback, and a 10-foot landscaped rear setback (includes 2-feet of vehicle parking overhang), and a maximum building of 45-feet (3-stories) at building ridge. In terms of the rear setback, the project's site section (see below) depicts the two rear dormer elements would exceed the
height allowance as specified by the 2:1 ratio.
The WBMP notes (Pg. 24) that a "2:1 ratio of lot depth to building height is recommended…" suggesting a degree of discretion on the Planning Commission's part to allow minor digressions from strict application of this standard. In this regard, the applicant has requested that the City allow encroachment
by the two dormers to allow for sufficient roof articulation along the rear elevation (reference Sheet A5).
This request may also be considered with respect to the "exceptions for height provisions" provided in CMC 21.18.050 (referenced below) that allows the Planning Commission to make determinations as to the appropriateness of certain building elements exceeding the allowable building height. To what extent allowing the two dormers may be supported is a matter for the SARC to discuss.
Roof structures for the housing of elevators, stairways, tanks, ventilating fans or similar equipment required to
operate and maintain the building, parapet walls, skylights, steeples, flagpoles, chimneys, smokestacks, or similar
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structures (as defined by the planning commission) may be erected above the height limit herein prescribed, but no penthouse or roof structure, or any space above the height limit shall be allowed for the purpose of providing additional floor space
Site Configuration: The configuration of the project site is largely dictated by the siting of the building
at the street, which is required by the WBMP, which deemphasizes the parking lot by placing it behind the building. Vehicular ingress/egress into the site would be from an unrestricted driveway along El Caminito Avenue. The preliminary site plan had proposed use of two driveways to separate commercial and residential traffic, but this would have been inconsistent with the WBMP that limits the number of
driveways per building. Although residential and commercial traffic would share the same driveway,
commercial parking would be separated from the residential parking through use of separate drive aisles. Signage would indicate that residential (and disabled) parking is provided to the left upon entering the site and that commercial parking is straight ahead. Once on site, pedestrians would access the building—either the residential units or the street front commercial—through a center walkway/paseo that goes
through the building and connects the sidewalk to the rear parking lot.
Architectural Design: The WBMP does not prescribe or preclude any particular architectural style (e.g., Spanish, modern, etc.). Instead, it provides design guidelines (Pg. 29) with reference to 'ground level treatment' and 'façade treatment and massing,' that are intended to address a building's "pedestrian’s
range of experience" as well as its "character and scale" as considered in context of the urban fabric of
the Winchester Boulevard corridor. At the ground level, the building design employs various elements suitable for a pedestrian-oriented environment, including expansive floor-to-ceiling storefronts incorporating tall 15-foot ceiling heights,
arched recessed windows, wall-mounted lighting, and large (60-inch diameter) landscape planters.
However, further refinement to the design may be considered, including:
• Durable Materials: As evidenced by a few buildings in Downtown Campbell (see example below), stucco is not a durable enough material for pedestrian-oriented setting or areas adjacent
to outdoor seating, as it is susceptible to cosmetic damage. As such, a durable base treatment, such as stone or tile should be considered. Similarly, any molding around the arched windows or the paseo opening should also be of a durable material, such as cast stone. In addition to being more damage resistant, higher durability materials at the pedestrian level have the added benefit of improving the perceived quality of the building.
• Landscaping Planers: The landscape planters (which are shown on the landscaping plan, but not on the elevation drawings) would be placed in front of the storefront windows. Although provision of planters is specifically noted in the WBMP, these planters would likely diminish the
desired pedestrian-character of the ground floor retail space by obstructing the transparency of the storefronts. Smaller pots, placed in front of the arched window columns, would provide the desired greenery while not diminishing storefront visibility.
• Storefront Glazing: The elevation drawings depict the storefront windows with clear
(transparent) glazing. However, as experience has shown, some businesses have a tendency to use only a portion of the storefront for display purposes and "wall-off" or otherwise obscure other windows with display shelves or window coverings (see example below). This detracts and
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ultimately undermines a building’s architectural design. As such, a restriction on future tenants to maintain storefront visibility should be required. In terms of façade treatment and building massing, the WBMP indicates that "uninterrupted expanses of
horizontal and vertical wall surface should be avoided" and that "large buildings should be divided into
multiple storefront or similarly scaled elements". The front elevation drawing depicts prominent balconies that break up the vertical massing of the building by providing depth to the façade. Similarly, the roof steps back as the building turns the corner and incorporates a conical roof element, which serves to reduce the building's perceived massing.
However, the building as designed would extend nearly the entire length of the project site at approximately 160 feet in length, interrupted only by the center paseo. This would result in a very linear presence that should be considered in terms of the WBMP's direction that "building facades should reflect relatively narrow increments of development (25’ to 50’) with variation in building planes."
Consideration should be given to dividing the façade into smaller, more delineated increments, consistent
with a downtown environment. This may be achieved through material delineation of tenant spaces (such as at Santana Row, next page), or more simply, through varying color and wall planes as was done with the mixed-use building in Downtown Campbell anchored by the Aqui's restaurant (see next page), which incidentally, was developed and is currently owned by the applicant.
Materials/Colors: The project's color/material sheet (referenced Attachment 2) indicates use of off-white painted stucco with contrasting brown trim, clay roof tiling, wrought iron balcony barrier, and composite wood windows. The WBMP encourages use of high quality building materials that "continue the electric rhythm of Downtown". As noted above, use of more durable materials and greater material
delineation at the retail level should be considered. Overall, however, the proposed materials appear to
be consistent with the WBMP. Moreover, use of clay tile roofing will provide a visual connection to the Merrill Gardens project and the Campbell Community Center.
Parking: As required by State law (GC § 65915), the City's "Density Bonus Ordinance"—formally codified as Campbell Municipal Code Chapter 21.20, "Density Bonus and Other Incentives for
Affordable Residential Units, Senior Housing and Childcare Facilities"—incentivizes production of
affordable housing by providing for increases in allowable density (the "bonus"), concession(s) to development standards (e.g. height limit, lot coverage maximum, etc.), as well as allowance of a reduced parking standard. A development project may take advantage of these incentives through provision of the prescribed percentage and type of affordable residential units.
Out of two affordable units to be provided, the proposed project would voluntarily provide one "very
low" income affordable housing unit beyond what is required by the Inclusionary Housing Ordinance. The developer is not requesting the otherwise allowable density bonus or development concession, but is requesting application of the reduced parking standard. This standard states that the City cannot require more than one parking space for studio and one-bedroom units and no more than two parking spaces for
two-bedroom units. To accommodate the project's six one-bedroom units and 10 two-bedroom units, the
project will provide 26 residential parking spaces. The retail component of the project would be served by 16 parking spaces, consistent with the applicable retail parking standard of 1 space per 200 square feet of gross floor area. Overall, the project would provide 42 parking spaces.
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The Density Bonus parking standard does not provide for any designated guest parking spaces, as the City's normal parking standards do (½ space per unit). Although the City cannot require additional residential parking beyond the maximums specified above, a portion of retail parking spaces
could be designated as guest parking to accommodate residential guests,
or resident parking after hours. This sharing of parking is supported by the project's traffic analysis, which determined that the shared parking demand (residential and commercial) of the project to be 29 parking spaces. In traffic engineering terms, the concept of shared parking
analyzes parking demand by time-of-day, such that uses that have
alternating periods of demand can utilize the same parking spaces during different times of the day, resulting in an overall reduction in the need for parking. For instance, the mixed-use A-valon on the Alameda community in San Jose allows a portion of retail parking spaces to be used as
resident/guest parking during the non-retail hours (see image to the right).
Traffic: As part of the preliminary application review, the City's Traffic Engineer determined that the project would require a traffic study that would analyze the project's "trip generation," intersection level-of-service (LOS) for the Winchester/El Caminito and Winchester/Kennedy intersections, and traffic impact on El Caminito. This level of traffic review is usually reserved for projects of a larger scope,
however, pursuant to the WBMP, "special circulation and parking reviews will be performed for
development applications in all areas to address potential neighborhood impacts." Similarly, Area 2 is identified as a "special circulation/parking review area". The City contracted with a third-party traffic consultant chosen by the City for preparation of a traffic
study, which is currently in draft form (details unrelated to traffic generation are still being worked out).
The traffic study’s trip generation analysis anticipates that the project would generate 185 daily vehicular trips to and from the project site, including 9 trips during the AM peak hour (7:00 – 9:00) and 14 during the PM peak hour (4:00 – 6:00). As noted in the table below, the analysis incorporates reduction credits for both proximity to light-rail (9%) and the mixed-use character of the project (15%). According to the
study, the increase in trips represents an incremental increase in traffic that would not result in a level of
service (LOS) reduction at nearby intersections (Winchester/Kennedy and Winchester/El Caminito). Similarly, the study’s TIRE (traffic infusion on residential environment) analysis determined that the project would not result in a noticeable change in neighborhood traffic along El Caminito Avenue and Cherry Lane, (this analysis is designed to determine if an increase in traffic would be perceivable to a
neighborhood).
Open Space: Apartment projects are subject to an open space requirement of 500 square-feet per unit (CMC 21.12.020.H). The project will afford each residential unit with a small balcony (approximately 100 square-feet). However, pursuant to the provisions for mixed use development found in CMC
21.36.130, "the decision-making body may approve a reduction in the required open space for the
residential component of mixed-use developments when it finds that all reasonable attempts to fulfill such requirement have been exhausted and the open space is not able to be accommodated due to the urban infill characteristic of the development site." This provision recognizes the unique site constraints of mixed use development—primarily the need to accommodate retail parking—and allows for
consideration of an open space reduction on a case-by-case basis. Moreover, the absence of an open
space requirement in the WBMP suggests that developments located within this emerging urban
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environment have less need for open space due to amenities located within walking distance (e.g., Downtown Campbell is a 12 minute walk).
Landscaping: The preliminary landscaping plan depicts a comprehensive landscaping scheme for the project site, showing planting of trees, ground cover, and shrubs. Specific landscape plantings are noted
and illustrated on Sheet L2. These plantings reflect compliance with the State-mandated water efficiency
(drought tolerant vegetation) and stormwater management (infiltration plantings) standards. A 10-foot deep landscaping strip (including a 2-foot vehicle overhang as allowed by CMC 21.28.080.G.7) is depicted along the rear property line, which is intended to provide a buffer between the parking lot and the abutting single-family residence. Landscaping "fingers" and islands will provide additional
landscaping treatment within the parking lot.
Tree Removal: A tree survey prepared for the project identified 10 trees (five protected) onsite, all of which would be removed to accommodate construction of the mixed-use building with at grade and underground parking, utilities, and bio-retention areas. While the project will not result in the removal of any protected tree ‘species’ (i.e. redwood, oak, cedar, or ash) the removal of trees that are greater than
12-inches in diameter require a Tree Removal Permit under the City's Tree Protection requirements
(CMC 21.32). In review of the Arborist Report (reference Attachment
Privacy: The WBMP addresses privacy impacts through incorporation of the rear 2:1 setback ratio, which requires building placement towards the street. As a result, the proposed mixed-use building—as measured to the rear porches—will be located over 75 feet away from the abutting single-family
residence to the west. However, the proposed project would nonetheless introduce windows and
balconies with some level of visibility onto the adjoining property. Revisions to the project design to reduce privacy impacts may be considered as part of the discretionary review of the Planned Development Permit. Typical methods for minimizing privacy impacts include construction of taller fencing, installation of tall perimeter landscaping, solid barriers for balconies, and obscured window
glazing to block visibly.
Sheet L1.0 notes installation of a new 6-foot fence along the westerly property line. The SARC could consider a taller 8-foot fence which could better shield the residence from activity in the parking lot. Screening landscaping is not a viable option for this project as the rear landscaping area serves as a bio-retention area that can only accommodate infiltration plantings such grasses and shrubs. However, the 3
½-foot railing along the rear balconies may be replaced with an opaque barrier (e.g., solid wall, or
landscaped screen), which would significantly reduce sightlines from within the residential units. Similarly a taller barrier (e.g., 4 ½ feet) would block the view of people sitting in the balconies.
Lighting: New site lighting is subject to the City’s Lighting Design Standards (CMC 21.18.090). The most important design consideration is to ensure light fixtures are installed such that ‘light rays are not
emitted across property lines to the extent feasible’. The photometric plan (reference Sheet E1.0)
provided by the applicant indicates that lighting will predominantly be contained within the project site with minimal ambient light extending past the property line. It is not clear if the photometric plan anticipates a fence at Final lighting details will be provided during building permit review.
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Figures 1 to 4 – Proposed Light Fixtures
Signage: A Master Sign Plan for the project will be required prior to occupancy of retail tenants. The WBMP specifies that new signs should be consistent with the Downtown signage standards. This would
allow each retail tenant to have one wall sign (one square foot for each linear foot of tenant space up to
40 square feet) and one projecting ("blade") sign no greater than six square feet. To ensure the highest quality signage, the use of plastic should be restricted.
Off-Site Improvements: The proposed project will require public improvements (new sidewalk and street trees) to achieve the streetscape treatment provided for by the WBMP (illustrated in the diagram below).
The intent is to create a 15-foot wide sidewalk corridor—measured from building wall to the curb-line—compromised of 10-feet of right-of-way and the building's 5-foot front setback, which is wide enough to accommodate outdoor seating. Dedication of two-feet of additional right-of-way along Winchester Boulevard will be required to accommodate this streetscape treatment. Although the WBMP identifies Winchester and El Caminito as potentially accommodating a "bulb-out" at the corner, the Traffic
Engineering Division has indicated that bulb-outs are generally reserved for signalized intersections, and therefore will not be required.
Public Outreach: The applicant held a community meeting on September 30th at the Campbell Community Center to discuss the project to the neighborhood. According to the applicant, the neighbors conveyed concern with traffic, parking, and the building's proposed 3-story height. SUMMARY
If the SARC believes that the applicant has adequately addressed the considerations for review of a Planned Development Permit, as specified by CMC 21.12.030.5, it could recommend approval to the Planning Commission as proposed or subject to revisions. The following questions are meant to encourage the SARC's discussion of the application:
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• Height (Dormer) Deviation: Is the SARC supportive of allowing the dormers to encroach into the 2:1 slope setback/height standard?
• Durable Materials: Should the project incorporate durable materials (e.g. stone, tile, etc.) as a base and/or molding treatment?
• Landscape Planters: Does the SARC see value in the use of smaller landscape planters/pots placed out of the way of storefront windows?
• Storefront Glazing: Should restrictions on storefront visibility be required for future tenants?
• Ground Floor Façade: Should the ground floor tenant spaces be delineated through use of tenant specific materials/colors and/or by varying wall planes?
• Parking: Understanding that additional guest parking cannot be required, is the SARC
supportive of requiring that some portion of the retail parking be designated as residential guest parking after hours?
• Open Space: In the context of a mixed-use building environment, do the balconies provide
sufficient open space?
• Privacy: Should additional fence height, solid balcony barriers, and/or taller balcony barriers being consider to minimize privacy impacts?
Attachments:
1. Location Map
2. Project Plans 3. Color/Material Sheet 4. Arborist Report