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Home Church - GPA - 2007MEMORANDUM To: Steve Prosser, Planner I cc. Tim Haley, Associate Planner From: emsley uty City Clerk Date: lSetptember 7, 2007 Subject: Authorization to proceed with a General Plan Amendment for the westerly portion of property located at 1711-1799 S. Winchester Blvd. from Central Commercial to General Commercial At the regular meeting of September 4, 2007 the City Council took action to authorize The Home Church to proceed with an amendment to the Land Use Element of the General Plan for the westerly portion approximate 5.0 acre portion of a 6.2 acre project site located at 1711-1799 S. Winchester Boulevard (APN 305-21-22, 12 and 305-53) from Central Commercial to General Commercial. ~~•O~ ~~~~,~ U c' © o ~~ ~~a v • ~RCHAIZ~ City Council .Report item: Category: Meeting Date: 12. Unfinished Business September 4, 2007 TITLE: Authorization to Proceed with a General Plan Amendment for the westerly portion of property located at 1711-1799 South Winchester Boulevard from Central Commercial to General Commercial. RECOMMENDATION That the City Council takes the recommended action from the August 7, 2007 City Council report: 1. Authorize the applicant to proceed with an amendment to the Land Use Element of the General Plan for the westerly portion approximate 5.0 acre portion of a fi.2 acre project site located at 1711-1799 S. Winches#er Boulevard {APN 305-21-22, 12 and 305-53) from Central Commercial to General Commercial. DISCUSSION The applicant is proposing a General Plan Amendment to Institutional to allow the expansion of The Home Church, anon-denominational church located at 1711-1799 S. Winchester Blvd. The expansion would include the construction of a new 41,514 square foot, two-story, 850-seat sanctuary. The building would include six classrooms, ministry- staff offices, private prayer-rooms, a playroom, a #eacher's lounge, and various equipment rooms. The Home Church has completed and/or proposed multiple site improvement projects within the last year. The applicant has completed the replacement of an existing chain link fence with a wooden good neighbor fence along the east property line adjacent to the alley. A Building Permit has been issued to demolish an existing substandard trash enclosure and replace it with a new trash enclosure meeting current size requirements. An application is in process with Public Works to complete street improvements along Winchester Blvd. and Latimer Avenue, including curb, gutter, driveway approach, sidewalks, and trees. The Building Department has issued a permit to install a parapet to screen existing roof-top mechanical equipment located along 1769 - 1783 S. Winchester Blvd. Lastly, The Home Church has submitted an Administrative Planned Development Permit application to allow a change in use for three tenant spaces located at 1769-1783 S. Winchester Blvd. from restaurant and retail uses to classroom and storage uses. The application also includes a proposal to install new parking lot lighting bringing the property into compliance with current lighting design standards. At a July 17, 2007 Study Session, after considering several options and hearing from representatives of The Home Church, the City Council recommended that The Home Church's application include splitting the property between the street frontage and the rear of the property, and only amend the General Plan designation for the rear of the property to General Commercial, leaving the Central Commercial designation of the Winchester Blvd, street-facing parcel intact. The Council also recommended that an Owner Participation Agreement, a Development Agreement or similar instrument be pursued to ensure the future development to commercial uses along Winchester Blvd. in the event that the church's expansion advanced before a commercial component of the development. Consistent with Council direction, the August 7, 2007, City Council agenda contained the applicant's request for an Authorization to Proceed with a General Plan Amendment as a consent item. The applicant requested that the item be pulled from the consent calendar in order to request a continuance. The applicant requested a continuance so that The Home Church's Board of Directors could meet to discuss the Council's direction from the July 17, 2007 Study Session. The applicant felt that the Board needed additional time to determine what is in the best interest of the church. The next regularly schedule meeting of the Board of Director's was to be held on August 13, 2007. Council granted a continuance to September 4, 2007, the next regularly scheduled City Council meeting. A representative of The Home Church has contacted the City and requested another continuance. ALTERNATIVES The City Council may take any of the following actions: 1. Do not authorize the applicant to proceed with a General Plan Amendment. 2. Direct staff to provide more information and analysis. 3. Continue the item. 4. Provide other direction. ATTACHMENT 1. August 7, 2007 staff report 2. July 17, 2007 study session memo 3. July 17, 2007 study session minutes Prepared by: ~~- =----------- Steve Prosser, Planner ! Approved by: ie C. ung L Acti Community Development Director \r n C Approved by: -- ~~~' Davie! Rich, City Manager ATTA~~3a'~~:NT 1 ~•C ~,~.o ~~,~,. CZ ty Item: 8. tr Category: Consen# COZ~YlCZZ Meeting Date: August 7, 2007 ~~ ~~~ Report 7iTLE: Authorization to proceed with a Genera! Plan Amendment for the westerly portion of property located at 1711-1198 South Winchester Boulevard from Central Commercial to General Commercial. RECOMMENDATION That the City Council takes the following action: Authorize the applicant to proceed with an amendment to the Land Use Element of the General Plan for the westerly por#ion approximate 5.0 acre portion of a 6.2 acre project site located at 1711-1798 S. Winchester Boulevard (APN 305-21-22, 12 and 305-53} from Central Commercial to General Commercial. DISCUSSION Applicant's Proaosat The applicant is proposing a General Plan Amendment to allow an expansion of The Home Church, anon-denominational church located at 1711-1799 South Winchester Boulevard. The expansion would include the construction of a new 41,514 square foot, two-story, 850-seat sanctuary. The building would include six classrooms, ministry-staff offices, private prayer rooms, a playroom, a teacher's lounge, and various equipment rooms. No interior or exterior improvements #o the current buildings are proposed at this time, nor are any other new buildings. General Ptan Amendment: The Municipal Code specifies that only the City Council can initiate a General Plan Amendment (Section 21.60.020.A}. Prior to the submittal of a formal General Pian Amendment application an applicant seeks approval from the City Council of an authorization to proceed. The Council's authorization does not guarantee that the amendment or project will be approved. If the City Council authorizes the applicant to proceed with a General Plan Amendment, the next step would be far the applicant to fom~ally submit a General Plan Amendment application. A formal analysis of the project will then be performed including an environmental analysis required by CEQA for General Plan/Zoning changes. City Council Report for August 7, 2007 Authorizatian to Proceed with a General Plan Land Use Map Change from Central Commercial to Commercial -1711-1799 South Winchester 131vd. Page 2 of 5 Background The City Council held a study session on July 17, 2007 to discuss the proposal of the Home Church to expand their current facility to an adjacent parcel that they are in the process of acquiring. Three options were presented to the City Council at the study session. The City Council recommended option 3 that requested that Hame Church split the property between the street frontage and the rear of the property, and only amend the General Plan designation for the rear of the property to General Commercial, leaving the Central Commercial designation of the Winchester Blvd. street-facing parcel intact. Additionally, the City Council recommended that an Owner Participation Agreement, a Development Agreement or similar Instrument be pursued to ensure the eventual development of camrnercial uses along Winchester Blvd, in the event that the church's expansion advanced before a commercial component of the development. ENTITLEMENTS If the City Council grants authorization to proceed wi#h a General Plan Amendment, the applicant will be need to secure the appropriate General Plan Amendment and a Planned Development Permit. The Planned Development Permit will require findings for an over concentration for assembly uses (assembly uses located within 300 feet of each other} and a parking exception (to establish an appropriate parking ratio for church classrooms). A Development Agreement or similar instrument will be needed which includes a schedule to ensure the eventual development of camrnercial uses along Winchester Blvd. Anatysis Amendments to the General Ptan The General Plan is the City's "blueprint for future development". All land use decisions must be consistent with the adopted General Plan. As a living document, the General Plan will need to be amended from t#me to time to conform to Sta#e or Federal law, and to eliminate or modify or add policies as circumstances change. State law limits the number of times a jurisdiction can amend its General Plan to four times per year. In January 2007, the City Council tools action for an autharization to proceed fora General Plan Amendment from Central Commercial to Medium Density Residentia[ for a proposed 21- unit Alzheimer's facility which was part of a larger project that included a proposed 127 unit senior rental project located at 2041-2043, 2075, 2091, and 2105; and in June 2007, for a General Plan Amendment from Professional Office to Low Density Residential for 1670 Grace Avenue. City Council Report for August 7, 2007 Authorization to Proceed with a General Plan Land Use Map Change from Central Commercial to Commercial -'{711-1799 South Winchester Bivd. Pa~e3of5 ~.•~~~ ~~}( ~~ ~ampbetl ~ ~ ~n~ra# Phan ~c~p " d ~~4~: M t k4 . LipQ f{ff 0l~t~lallOA6 :ow 10egaer~ tires $wiis 3.5 LAARCYN.!~i (~ >txr f~entlgt N~ep~ers~c¢les~an=.~l'. :Cw ttM101en-~ CLlei thin 8lYltUC34hESt:j ~~ DMMtty tie6 (b13tJepeK~r. Nqe} +A~ciunflutcayi",4-26 t~f4~ lea; wa~ePak *ia9~on~oo oanaaa~c~x ~ ~ ~ ~~ ~peeoaat a~oe p.«~>N+aoe~ ~ ~sc~ter+aacteown~ Syr ~~r•t~. uat~r. ~ u~a~ oerwtyrte~,+ite rta27 u.,wae~ cawpra cuaaarrc ~t ~- ~ax~~ ,~ Existinst Site Characteristics The project site consists of #hree parcels as noted above and is developed with asingle- story shopping center and church on the northern portion of the site, and a two story commercial building on the southerly portion of the site. Pro'ect Context Surroundin Uses Existin Use: Zonin : General Plan Desi nation: North: Public i=acil' P-F Institutional South: Commercial 1 Multi-Famii Res. P-DIR-3 Contra[ Commercial / H h Densi Residential East; Commercial P-D Centrat Commercial West: Multi-Famii Residential R-2 Medium-Dens Residential City Council Report for August 7, 2007 Authorization to Proceed with a General Plan t_and Use Map Change from Central Commercial to Commercia! - 1711-1799 South Winchester Blvd. Page 4 of 5 Land Use Patterns If the General Plan for the western portion of this site is changed from Central Commercial to Genera! Commercial, the General Plan designation of the site would remain commercial albeit ~ more genera! in nature than Central Commercial. The depth of the Central Commercial designated frontage would need to be determined by preparing a specific development plan proposal for the entire site along with the General Plan Amendment submittals. Land Use Compatibility The regulation of land use is intended to promote land use compatibility. The proposed land use pattern would be compatible with adjacent uses. FISCAL iMPAGTS A tong noted concern associated with Home Church's use of the Campbell Shopping Center is that it effectively prevents prime commercial space from being developed, depriving the City of potential safes tax and tax-increment revenue. The Redevelopment Agency estimates that it will loose approximately $30,000 annually in tax increment revenue when Home Church closes on the remaining commercial property. Additionally, the City will lose $15,000-$20,000 a year in sates tax revenue, for a total annual direct loss of approximately $45,000-$50,000 a year. The bigger loss, however, is the revenue that could be generated if the site were to be fully developed commercially. With reserving the front parcel for commercial or mixed-use, some property tax and sales tax revenue can be expected. ALTERNATIVES The City Council may take any of the foAowfng actions: 1. Do not authorize the applicant to proceed with a General Plan Amendment. 2. Direct staff to provide more information and analysis. City Council Report for August 7, 2007 Authorization to Proceed with a General Plan Land Use Map Change from Central Commercial to Cornmerciai -1711-1799 S. Winchester Bivd. Page 5 of 5 Attachments: 1. Land Use Categories -- General Pian (Commercial Development) 2. Location Map C ` Prepared by: ~~ Tim J. Ha A socia#e Planner Approved by: ie Young Lind, sting ommunity Development Director ~ w Approved by: aniel Rich, City Manager Attachmen# 1 Page 1 Land Use Categories -General Plan Commercaa! Development Commercial designations have a broad range of uses. Retail and service business, professional offices, banks, restaurants, and similar types of uses are allowed in commercial zones. The visual quaNty of commercial streets is enhanced when buildings form astreet-wall, by extending them along the street. Through good design, commercial building placement and scale can enhance the image of the community. Visual quality is also improved through appropriate and complementary building scale, which means the relationship of new development to existing buildings. The Central Commercial designation is used for the heart of Campbell including parts of Campbell and Winchester Avenues in Downtown Campbell. 'Phis area is intended to provide shopping, services and enterta'snment. Building forms in Phis designation edge the street and should include retail commercial uses on the ground floor with ei#her office or residential uses on the second and third flours. ATTACHMENT 2 oF' ~M~ MEMORANDUM ~ ~~ City of Campbell y~ `~ Community D®velopment Department •~'tCN AILO. ., To: Mayor and Members of the City Council pang; July 17, 2007 prom; Daniel Vanwie, Planner Jackie C. Young Lind, Acting Community Development Director Via: Daniel Rich, City Manager """' Subject: Study Session to review a proposed Amendment to the General Plan for parcels located at 1711, 1769-1783, and 1799 South Winchester Boulevard, to allow an expansion of The Home Church. APPLICANT'S PROPOSAL The applicant is proposing a General Plan Amendment to allow an expansion of The Home Church, anon-denominational church located at. 1711-1799 South Winchester Boulevard. The expansion would include the construction of a new 41,514 square foot, two-story, 850-seat sanctuary. The building would include six classrooms, ministry-staff offices, private prayer-rooms, a playroom, a teacher's lounge, and various equipment rooms. No interior or exterior improvements to the current buildings are proposed at th'ss time, nor are any other new buildings. BACKGROUND Since the early 1980's, the Home Church has acquired several parcels in the Campbell Shopping Center. In 1981, the Home Church established the sanctuary at the north end of the shopping center. In 1988, the church requested permission to operate a youth center in tenant space at 1739 S. Winchester Boulevard. A Use Permit was granted for an initial two-year period. The limited term was based on a letter from the Redevelopment Agency Director Kevin Duggan that stated a pemlanent change of the Campbell Shopping Center to a non-profit use would adversely affect sales tax revenues and was contrary to the Redevelopment Plan for the site (Reference Attachment 1 -- Letter Dated June 30, 1988). There was also significant opposition to the project from other tenants. The limited-term Use Permit was extended for an additional four years and expired on October 1994. The site was re-zoned Planned Development (P-D) from General Commercial {C-2) in 2001. In June 2002, the Home Church received approval to combine 5 lots (1711-1765 . S. Winchester Blvd.) into one lot designated 1711 S. Winchester Boulevard. The most recent limited-term Use Permit expired in May 2002. H+y..~e Church GPA -Study Session ti_,~ort July 17, 2007 Page 3 Surroundin Uses Existin Use: Zonin : General Plan Desi nation: -North:--- Public Faciii ------ ------._._........._..._-.- P-F- _. _-- -Institutional- _._ .-__ -----..-._..__..---_........__-.__ ...............____._.. South: Commercial / Multi-Famil Res. P-D/R-3 Central Commercial I Hi h Densi Residen#ial East: Commercial P-D Central Commercial West: Multi-Famil Residential R-2 Medium-Dens' Residential ZONING AND GENERAL PLAN CONSISTENCY The site is currently zoned Planned Development (PD). The Planned Development Zone District regulations do not spec~cally list Permitted, Conditional and Prohibited Uses. Instead, allowed uses in the Planned Development zoning district are determined by referencing the zoning district which corresponds with the General Plan designation. The subject parcels have a General Plan designation of Central Commercial, therefore Permitted, Conditional and Prohibited Uses are those set forth in the C-3 zoning district. This zoning district lists "public assembly uses" as a conditions! use. However, the General Plan states the following pertaining to the Central Commercial Designation: The Central Commercial designation 'ts used far the heart of Campbell including parts of Campbell and Winchester Avenues in Downtown Campbell. 'This area is intended to provide shopping, services and entertainment. Building forms in this designation edge the street and should include retail commercial uses on the ground floor with either office or residential uses an the second and third floors. While the proposed project is a conditionally permitted use, it does not conform to the purpose and vision of the General Plan and Zoning Code. The proposed sanctuary building would not front the street nor would it provide ground-level business. Therefore, in order for the applicant to move forward with the proposed plan, the site will require a General Plan amendment away from Central Commercial. Various options for a General Plan amendment are presented below. A change of zoning is neither required nor proposed. OPTIONS FOR A GENERAL PLAN AMENDMENT The following options for an Amendment to the General Pian are possible: 1. Amendment to the Land Use Element of the General Plan to Institutional. This option would allow for fhe development of fhe proposed sanctuary. However, it would preclude any fufutB commercial or residential development as the corresponding Zoning Disfrict, Public Facilities {P-F}, does not provide for those uses. 2. Amendment to the Land Use Element of the General Plan to General Commercial. Ho~._s Church GPA -S#udy Session R~ r.art ~uiy ~ 7, 2oa7 Page 5 for the each of the two remaining classrooms. However, this project does not meet the definition of a K-12 school, as defined by the Zoning Code (Reference Attachment 2 for _.__..__..._._all referenced -definitions).-Additionally, -while the Zoning Code-can be read in such a -----.__ __ --.-__.. way as to define the proposed classrooms as constituting a "commercial school," that does not seem to be the intent of this classification. The requirement of 15 spaces per classroom, in addition to the additiona_ f space per 75 square feet of assembly area, would be excessive and unfeasible in this case. Lastly, the standard. for Public Assembly is not applicable because "classroom" is not spec~caily listed as a public assembly use. Therefore, should this project proceed, staff will recommend that the Planning Commission approve a Parking Adjustment subject to Campbell Municipal Code (CMC) § 21.28.050, recognizing that the proposed "recreational classroom and meeting room uses" have a distinct parking requirement not currently provided for by the Campbell Parking and Loading Ordinance. Parking Provided The applicant is providing a total of 267 parking spaces, where there currently exist 389 (the current Home Church site, which does not include parcel 305-21-12, includes 246 spaces). The proposed 850 seat sanctuary (not including classrooms and offices) requires 213 spaces (1 space per 4 fxed seats). This leaves 54 spaces for the remainder of the complex, including the exis#ing sanctuary. However, the applican# has provided staff with a usage distribution data that provides the hours of operation for each use (Reference Attachment 3 -Parking Table). This information suggests that parking is manageable by "sharing" it between the different uses which have different hours of operation. For example on Sundays, only ministry services and Sunday school take place, whereas during the weekdays the various classrooms/meeting rooms, church offices, bookstore, and coffee house are open. To ensure adequate parking, a condition of approval requiring an adjustment of operating hours in case of a parking shortage would be required (this condition is included in the applicant's current Planned Development Permit). Additionally, to make certain that the existing 750-seat sanctuary building does not cause a parking shortage when used for special events, a condition of approval will require that it not be used on Sundays, and only after 5 PM Monday through Friday. Special events could be held anytime on Saturday as none of Home Church's faciii#ies are in use on that day. Even though the Home Church will be acquiring the adjacent parcel (APN 305-21-12), where it plans to build the proposed sanctuary, no proposed changes to the existing commercial building are shown. Home Church has yet to fully detem~ine how it will use this additional space, although it has indicated that with the acquisition of this property it plans to reconfigure some of its buildings to increase storage area and office space, and shift some classrooms out of existing buildings in#o the new one. The net increase of classrooms and office space should be minimal (The provided parking table utilizes tentative information on the future use of this building}. A remodel of this building andlor Hoy v.: Church GPA-Study Session R~ ,_.~rt .luiy 17, 2007 Page 7 Plan Amendment. As Council will recall, this is the first step of the process and does not commit Council to any particular future action. Additionally, staff recommends that during the next Zoning Code update, recreational classroom and meeting room uses" be added to the Code as to clarify the classification of this type of use. FISCAL IMPACTS A long noted concern associated with Home Church's use of the Campbell Shopping Center is that it effectively prevents prime commercia! space firom being developed, depriving the City of potential sales tax and tax-increment revenue. The Redevelopment Agency estimates that it will loose approximately $30,000 annually in tax increment revenue when Home Church closes on the remaining commercial property. Additionally, the City will lose $15,000-$20,000 a year in sales tax revenue, for a. total annual direct loss of approximately $45,000-$50,000 a year. The bigger loss, however, is the revenue that could be generated if the site were to be fully developed commercially. ATTACHMENTS 1. Letter from RDA Executive Director Duggan, Dated June 30, 1988 2. List of Referenced Definitions 3. Project Plans Attachment 1 MEMORANDUM CITY 0~ CAMPBELL _ _ .._---- ----Flanriing~iredtor -- - --~------------__.___.._---UuC~e__30; --.------...------_.....__..... To: Date: ' From: Redevelopment Agency Executive Director Subject: Proposed Canditianal Use Permit - 1739, 1755, and 1757 8. Winchester Boulevard t iJP88-07 ~ Recently the subject use permit was referred to the Campbell Redevelopment Agency for review and comment.. The proposed permit would allow for the establishment of a church youth center in the Campbell Shopping Center on Winchester Boulevard. The youth center is to be a portion of the Rome Church facility already locoed in the shopping center. The Campbell Shopping Center was originally included in the downtown Campbell Redevelopment Project Area due to its substandard condition and maintenance. Improvements to and maintenance of this center ie also complicated by it being divided among a number of individual property owners. In addition, the ecanoanic potential for redeveloping this center appears positive. For these reasons, the current Campbell Shopping Center is viewed as a potential redevelopment project. The focus of such a project would be to redevelop the property to make it more effective as a retail/commercial center. As you are aware, the City of Campbell is heavily. reliant on sales tax revenues for the provision of essential services. one of the primary goals of both the City and the Redevelopment Agency is to promote economic development and redevelopment which will be appropriate from both a planning and economic perspective. An expansion of permanent non-retail uses to a degree that would hinder the future commercial revitalization of this center would not be desirable. Since presently there are no specific proposals/strategies far the redevelopment of the canter, a conditional expansion of the church use pending the development of a comprehensive revitalization plan would not appear to hinder the long term efforts of the Agency to redevelop these properties. However, during this interim period, some retail commercial space will be lost. Certainly the revitalization/redevalopanent of the Campbell Center will need to consider the concerns and desires of existing property owners including the Home Church. It is quite possible that an appropriate revitalization of the center would be a mixed use development involving both retail commercial and church uses. Attachment 2 -Referenced Defnitions • Commercial schools means business, secretarial, and vocational schools offering __ _.___-----..specialized ~r~~~ ~n~_co~ctrnercial__c..our.sew_m~~s_..ln.~[~sie~_~p~~(.i~~d ...non-. __..- ._.._.- ....-.---..---- degree granting schools offering subjects including: art, ballet and other dance, drama, driver education, language, trades, vocations, Lamaze, yoga, martial arts, gyrotonics, computer technologies, and music. Also includes seminaries and other facilities exclusively engaged in training for religious ministries; and es#abiishments famishing educational courses by marl. Alsa inoiudes personal trainers with more than two clients. Facilities, institutions, and conference cen#ers are included that offer specialized programs in personal growth and development {e.g., arts, communications, environmental awareness, fitness, management,. etc.). • Schools-K-12, public means an institution which offers instructions in the several branches of learning and study required to be taught in the public schools by the State Education Code. Includes elementary, middle, junior high, and high schools serving kindergarten through 12th grade students. Pre-schools and child day care are included under the definitions of "Child day care facilities." • Schools-K-12, private See "Schools-K-12, public;" however, these schools are privately owned and operated, and also may include denominational and sectarian, boarding schools, and military academies. • Public assembly uses means a facili#y or place where groups of people gather for civic, educational, political, religious, or social purposes. "Public assembly uses" inc-ude the following: 1.~ Auditoriums; 2. Conference cen#ers; 3. Convention and exhibition halls; 4. Lecture ha!!s; 5. Meeting halls; 6, Religious ins#itutions. Does not include banquet facilities ("Banque# Facilities"), movie theaters, performing arts thea#ers, or concert halls {"Theaters, Movie or Performing Arts, and Concert Halls"). Also does not include "Adult Oriented Businesses."