HomeMy WebLinkAboutAgenda Item 11a Attachment 4 - Planning Dept Staff Report to Planning Commission 05-27-15PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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ITEM 9B 1
Planning and Community Development Department
300 Seminary Avenue
Ukiah, CA 95482
planning@cityofukiah.com
(707)463-6203
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DATE: May 27, 2015 3
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TO: Planning Commission 5
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FROM: Kevin Thompson, Principal Planner 7
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SUBJECT: Review and Consider the proposed Petaluma Ecumenical Affordable Senior 9
Housing Project at 517 South Main Street and make recommendations to the 10
City Council concerning the adoption of a Mitigated Negative Declaration; 11
adoption of a Resolution to amend the General Plan; and adoption of an 12
ordinance to rezone the site to Planned Development and establish a Precise 13
Development Plan for the project. 14
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RECOMMENDATION 19
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Staff recommends that the Planning Commission conduct a public hearing and make a 21
recommendation to City Council to: 22
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1)Adopt a Mitigated Negative Declaration (MND) based on the findings included in attachment24
3; and 25
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2)Adopt a Resolution amending the General Plan by changing the land use designation of the27
subject property from Commercial to High density Residential; and 28
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3)Introduce/adopt an Ordinance to rezone the subject property to PD/HDR and establish the30
PEP Housing Sun House Planned Development and Precise Development Plan. 31
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ATTACHMENT 4
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
2
PROJECT DESCRIPTION 1
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The project requires a General Plan Amendment to change the land use designation on the site 3
from “C” (Commercial) to “HDR” (High Density Residential). It also requires a Planned 4
Development rezoning to change the zoning on the site (5 parcels) from “C -1” (Community 5
Commercial), “C-2” (Heavy Commercial) and “P” (Public) to “PD/HDR” (Planned 6
Development/High Density Residential). 7
The project also includes a Precise Development Plan as called for in the Planned Development 8
zoning regulations. The proposed Precise Development Plan proposes to develop a 42-unit 9
rental apartment complex on a 1.5 acre site at 517 South Main Street whose occupants would 10
be restricted to low and moderate income senior citizens. The proposal includes three two 11
story apartment buildings, totaling 30,025 square feet of residential living space. Six of the units 12
will be 2 bedroom and the remaining 36 units will be one bedroom. A one -story, 1,650 square 13
foot private community center, for the benefit of the residents, is also proposed. The project 14
also includes the demolition of an existing single family residence on the site, the removal of 15
some trees, the planting of new native trees and ample landscaping, the development of 16
parking, a controlled pedestrian connection to the Sun House/Grace Hudson Museum, a public 17
trail from Main Street to the new Rail Trail, Low Impact Development (drainage) features 18
including onsite storm water retention , rain gardens, and natural filtration systems, fencing, a 19
new sidewalk along the Cleveland Land frontage, a small park, internal paths, a garden area, 20
and a small dog run. 21
Per the General Plan Housing Element goals to assist in the production of affordable housing, 22
the City is in the process of donating the 5 parcels to the applicants. 23
The applicants have worked closely with the Grace Hudson Museum staff and City design 24
Review Board to integrate the design of the project with the Sun House and Grace Hudson 25
Museum. The project is designed with a many of the architectural features found on the Sun 26
House and Grace Hudson Museum, including materials, roof pitch and colors. Table 1 illustrates 27
the Building Program. 28
Total Building Area Height One Bedroom Two Bedroom
1 6,033 28’6” 10
2 8,580 28’6” 10
3 20,990 28’6”, 33’ for elevator location 18 6
Community
Center
1,650 17’
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PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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The proposal also seeks relief from parking and parking lot tree shading requirements as 1
described below. 2
SITE CHARACTERISTICS AND SETTING 3
4
The project will be located on a vacant 1.5 acre in-fill site directly south of the Grace Hudson 5
Museum. The site is currently comprised of 5 parcels, owned by the City of Ukiah, and formerly 6
an athletic / tennis club. The site is generally flat, partially paved with former tennis courts and 7
contains some mature trees. A total of 15 trees of varying health are proposed for removal (see 8
the attached Mitigated Negative Declaration for a complete list of trees to be removed). The 9
landscape plan indicates a total of 67 trees will be planted upon comp letion of the project, as 10
follows: 22 smaller fruit trees, 6 Persimmon, 17 Maples and Tupelos, 17 Native Oaks and 11
Redwoods. 12
Approximately 31% of the site will be covered with buildings, 16 percent with parking areas, 13
and the remaining 47 percent will be landscaping, open space, and recreational areas. The 14
project includes 31 parking spaces contained in two parking lots (13 and 18 spaces each). 15
Access will occur from Cleveland Lane, via two 20 feet wide driveways that allow for two way 16
traffic. No vehicular access from Main Street is proposed. 17
The site is considered infill, and provides density in an appropriate location within a short 18
walking distance to daily needs including: grocery stores, pharmacies, restaurants, public transit 19
and civic uses. The site is within .5 miles of MTA routes 7 and 9 providing transit options for 20
residents. 21
22
North: The parcel to the north is zoned Public Facilities (PF) and contains the Grace 23
Hudson Museum. 24
25
East: Directly to the east are an existing single-family home and the North Coast 26
Rail Road Tracks. Parcels east of the railroad tracks include a mix of High Density 27
Residential (R3) and Commercial (C2). Specifically, a mobile home park and 28
commercial uses. 29
30
South: Parcels to the south are zoned Planned Development Residential (PD) 31
containing and established single-family neighborhood. 32
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West: Parcels to the west are zoned Community Commercial (C1) and include a 34
variety of commercial uses including a small office complex. 35
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PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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ANALYSIS 10
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General Plan. The site is currently designated “C” (Commercial) in the General Plan. The 12
proposed General Plan land use designation is High Density Residential (HDR). This land use 13
designation allows a maximum of 28 units per acre and is intended for apartments and 14
townhome projects to meet the diverse housing needs of Ukiah. The HDR designation is 15
allowed to be coupled with a planned development to provide flexibility and relief from 16
development standards. The Project is consistent with the density and uses intended for the 17
High Density Residential (HDR) General Plan land use designation. The project fulfills many 18
General Plan goals including: providing housing for all income levels, a high quality design 19
incorporating many architectural features of the Sun House and Grace Hudson Museum, 20
planting water saving landscaping and installing energy efficiency features. 21
22
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Looking North from Cleveland
Street
Looking West from Cleveland
Street
House proposed for demolition
Looking North from Cleveland
Street
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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1
General Plan Goal/Policy Staff Analysis
General Plan Vision
GP-5: Encourage housing in a price
range to match the income of the
residents.
The Project would provide forty-two (42) new housing units within the
City of Ukiah. The project will be restricted to low and moderate
income seniors for a 55 year term.
GP-6: Encourage housing for local
workers and jobs for local residents.
The Project would provide 42 new housing units within the City of
Ukiah available to low and moderate income seniors.
GP-25: Ensure aesthetic qualities in the
design and construction of the
community.
See discussion for Goal H-4 below.
Goal OC-23: Native plant landscaping
shall be encouraged.
Implementation Measure OC-23.1(c):
Landscaping standards for new
development and redevelopment
projects shall be applicable to all but
individual single-family residential
development.
Compliance with landscaping
standards shall be required as a
condition of discretionary approvals
or a condition of issuing a building
permit. This implementation measure
does apply to single family residences
located within planned developments
or subdivisions for which landscaping
standards where incorporated as
conditions of project approval.
The landscaping includes some native planting. As part of the review
of the Project, the Planning Commission may recommend the
planting of additional native plants, and the City Council may include
this as a condition of Project approval.
The Planned Development zoning regulations for the Sun House
project will include language that encourages native planting and
prohibits the planting of known invasive species.
Based on the above, the Project is consistent with this goal.
General Plan Goal/Policy Staff Analysis
Goal OC-25: Maintain and enhance
the City’s canopy of shade trees.
Policy OC-25.1: Protect existing
healthy mature trees to maintain
shade and area attractiveness.
An arborist report was prepared for the Project that evaluated native
trees on the Project site over 4-inch diameter at breast height (DBH)
John Phillips Certified Arborist (Jan 2015) All of the trees on site were
evaluated for health. A total of 15 native and non-native trees are
proposed for removal. Of the 15 trees for removal, four (4) are non-
native, and four (4) are considered dead or dying.
Implementation of the mitigation measures for the protection and
preservation of the healthy, native trees on the site that are
persevered and the planting of street trees would reduce potential
impacts to less than significant by protecting and preserving the
healthy native trees on the site which is consistent with this goal and
policy.
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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Goal OC-29: Maintain and enhance
the “urban forests” which create a
sense of urban space.
Policy OC-29.1: The development
review process shall incorporate
measures to maintain and enhance
the urban tree canopy.
Implementation Measure OC-29.1(b):
Review construction and landscaping
site plans to ensure that healthy trees
are not removed unnecessarily.
The Project includes the planting of a variety of eight (8) street trees
selected from the City’s Required Street Trees List. The street trees
will increase and enhance the urban forest.
See Goal OC-25 discussion above.
Housing
Goal H-2: We want to provide housing
for all economic segments of the
community.
The Project would provide forty-two (42) new affordable multi-family
housing units within the City of Ukiah. The project will be restricted
to low and moderate income seniors for a 55 year term.
Goal H-4: We want to promote well
planned and designed housing
opportunities for all persons
regardless of race, gender, age,
sexual orientation, marital status or
national origin.
The Project will be compatible with the neighborhood and include
design elements from the historic Grace Hudson Museum. The
Project was reviewed by the Design Review Board (DRB). The DRB
noted that the project was appropriate and compatible with the
neighborhood. The DRB recommended approval of the Project and
made suggestions for design elements.
Goal H-5: We want to use land
effectively to meet housing needs and
to implement smart growth, green
building, and sustainable
development polices with a focus on
infill.
The Project is required to comply with the California Green Building
Code. The Project incorporates low impact development measures.
The Project includes preservation of mature trees, and impervious
surfaces, rain gardens and community amenities. The Project is
located within .25 mile of many daily needs, including: medical
facilities, grocery and other retail outlets.
General Plan Goal/Policy Staff Analysis
Policy H-5.1: Assure that new housing is
well-designed to enhance Ukiah’s
neighborhoods and community as a
whole.
See discussion for Goal H-4 above.
Policy H-5.6: Support careful well-
designed infill housing development in
areas currently served by City services.
The Project site is served by City services. The Project has been
reviewed by Public Works, the Fire Marshal, Police Department, and
Electric Utility Department and there are adequate services and
capacity to serve the proposed Project.
See also discussion for Goal H-4 above.
Policy H-5.7: Encourage and support
sustainable site planning and
development.
The Project is required to comply with the California Green Building
Code including the use photovoltaic panels. The Project incorporates
low impact development measures, the perseveration of mature
trees, and planting of eight (8) street trees selected from the City’s
Required Street Trees List
Energy
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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Goal EG-6: Promote energy efficiency
features in the design of all new
structures.
The Project is required to comply with the California Green Building
Code, including Title 24 which is intended to promote energy
efficiency. Photovoltaic will be installed as part of development of the
Project. Energy created from the system will be used to power the
common areas of the project, including: elevator use, exterior and
interior lighting. Further, the project proposes the installation of a
22kW of photovoltaic system to offset energy use of the common
areas of the project.
Historical and Archeological
Goal HA-4: Conserve the character
and architecture of neighborhoods.
Policy HA-4.1: Consider the visual
character of surrounding
developments when reviewing
discretionary project approvals.
See discussion for Goal H-4 above.
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Zoning: As indicated above, the current zoning of the Project site is a combination of 2
Community Commercial, Heavy Commercial and Public Facilities. This proposal requests a 3
rezoning to Planned Development/High Density Residential (PD/HDR) to allow flexibility in 4
layout and design. The purpose of the PD zoning is to provide flexibility in order to “promote 5
economical and efficient use of land; … preserve the natural environment…..and to provide a 6
method for deviating from standardized zoning requirements to foster well -planned, creative, 7
and quality development.” The proposal seeks relief from two zoning standards: 1) parking; 8
and 2) Parking Lot Shade Coverage. 9
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1. Relief from Parking Requirements: The Project requires an exception from the City’s 11
parking standards. The Zoning Code (§9051C.) specifies the number of parking spaces 12
for multi-family projects. One on-site, independently accessible parking space for one 13
bedroom units and two on-site, independently accessible parking spaces for 2 or more 14
bedrooms per unit are required. Section 9051H of the City Code allows for relief from 15
the parking requirements when findings can be made that show a reduced number of 16
parking spaces would not adversely impact the health, safety, and general welfare of 17
the public. Based on the mixture of one and two bedroom units, 48 parking spaces 18
would typically be required. The project provides 32 spaces or .75 spaces per unit. 19
20
The Institute of Transportation Engineers (ITE) 4th Edition estimates an average parking 21
demand for senior housing at .59 spaces per dwelling unit, regardless of the number of 22
bedrooms in each unit. By contrast, the City of Ukiah Zoning Code requires 1 -2 spaces 23
per dwelling unit depending on the number of bedrooms. The Project design provides 24
.75 spaces per dwelling unit, exceeding the ITE average demand. 25
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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2. Relief from Parking Lot Shade Coverage: City of Ukiah Zoning Code §9167E.10.) 1
Parking lots with 12 or more parking stalls shall have a tree placed between every 4 2
parking stalls with a continuous linear planting strip, rather than individual planting 3
wells, unless clearly infeasible. Parking lot trees shall primarily be deciduous species, 4
and shall be designed to provide a tree canopy coverage of 50% of all paved areas 5
within 10 years of planting. Based on the design of the parking lot, a reduced number of 6
trees may be approved through the discretionary review process. 7
8
The project is unable to provide planting strips sufficient size to provide one tree 9
between every four parking stalls while still providing the residential densities and 10
amenities necessary to secure funding and develop the project. Approved shade trees 11
will be planted along the perimeter to achieve 27% coverage within 10 years. The 12
project incorporates measures to reduce heat island effects in the parking areas by 13
incorporating permeable pavers with lighter coloring than the asphalt concrete areas. 14
15
Findings for Planned Developments: Staff has determined the project is consistent with the 16
Planned Development criteria found in the zoning ordinance as shown in the Table below. 17
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Planned Development / Precise Development Plan Criteria
(City Code Section 9167F)
Findings for Rezone Planned Development Staff Analysis
The proposed Planned Development is
consistent with the General Plan.
Consistent: The Project is consistent with the General Plan as
described in the General Plan consistency section of the Mitigated
Negative Declaration. (Attachment 1)
The proposed Planned Development is
consistent with the purpose of Article 14,
Regulations in Planned Development Districts.
Purpose and Intent: The purpose of the
Planned Development Combining Zone is to
allow flexibility in design and development in
order to promote economic and efficient use
of land; to increase the level of urban
amenities; to preserve the natural
environment; and to provide for phased
completion of development projects. It
generally provides a method for deviation
from standardized zoning requirements to
foster well-planned, creative, and quality
development.
Z.O. Section 9165
Consistent: The proposed Project would increase the supply of
affordable housing in Ukiah by constructing forty-two (42) new
income restricted senior homes. The Project is required to
construct frontage improvements, including curb, gutter,
sidewalk, a public trail, and street trees which provide an amenity
to the neighborhood. The Project includes the preservation and
protection of healthy, native trees located throughout the site.
The Project demonstrates an efficient use of the site by
constructing 42 affordable units on 1.5 acres. The site is
considered infill, located in an existing neighborhood, surrounded
by a variety of uses and services.
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PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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AIRPORT MASTER PLAN CONSISTENCY 1
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The project is located within the B-2 Infill airport compatibility zone, which limits the density 3
(28 units per acre/90 people per acre) and building height (limited to two stories) development 4
proposals. Because the proposal includes a General Plan Amendment and rezoning, it was 5
required to be reviewed by the Mendocino County Airport Land Use Commission for a 6
consistency determination with the Airports Comprehensive Land Use Plan. On May 21, 2015, 7
the Commission reviewed the proposal and found it to be consistent. 8
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DESIGN REVIEW BOARD REVIEW 10
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January 8, and March 3, 2015 reviewed the Project and provided the following comments and 12
recommendations (see attachment 5, DRB Minutes Excerpt): 13
14
There was general discussion about the architectural style of the buildings and their 15
relationship to the Grace Hudson Museum, parking, materials (i.e. use of hardi-board siding, 16
board and bat). The site layout was also discussed, particularly, the proposed public trial 17
between the Museum and the PEP site, fencing, the planting of additional trees for screening 18
purposes, and the street edge. 19
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The DRB voted unanimously to recommend approval of the project to the Planning Commission 21
and City Council. 22
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CITY STAFF/DEPARTMENT REVIEW 25
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The project was routed to all City departments for comments and conditions. All conditions of 27
approval have been incorporated into Attachment 2. 28
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LOW IMPACT DEVELOPMENT (LID) PROJECT COMPONENTS 30
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The projects uses diverse LID features to retain pre-development hydrology patterns. On site 32
stormwater retention is managed through a series of rain gardens that act like spring pools in 33
larger rain fall events. By giving ample landscape area to these features they are able to be 34
subtle low areas in the surrounding vegetation that keep stormwater spread out and maximize 35
the potential for infiltration. These areas will be planted with wet meadow grasses and 36
wildflowers native to the Ukiah region and the site specifically. 37
In order to reduce the amount of stormwater generated by impervious surfaces, paved areas 38
are kept to a minimum and portions of the parking lots and courtyard areas are paved with 39
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
10
permeable pavers. Permeable pavers achieve a high degree of stormwater infiltration in 1
situ. In addition, retention of existing trees and considerable new tree planting will increase the 2
percent of the property covered with tree canopy that can intercept and slow stormwater. 3
ENVIRONMENTAL REVIEW 4
5
Planning Department staff prepared an Initial Environmental Study (IS) in order to evaluate the 6
potential impacts that could result from the Project (see attachment 1). The IS identified 7
potential impacts to aesthetics, air quality, biological resources, cultural resources, 8
geology/soils, hydrology and water quality, land use and planning, and noise. As part of the IS, 9
mitigation measures were identified that would reduce the impacts to less than significant 10
levels; therefore, a mitigated negative declaration (MND) was prepared for the Project. 11
12
The Notice of Intent (NOI) to adopt a Mitigated Negative Declaration and public notice for both 13
the Planning Commission and City Council public hearings were made available in the following 14
manner: 15
16
posted at the County Clerk on April 29, 2015; 17
mailed to property owners within 300 feet of the parcels included in the Project on 18
April 29, 2015; 19
published in the Ukiah Daily Journal on April 30, 2015; 20
posted on the Project site on April 28, 2015; 21
posted at the Civic Center (glass case) on April 28, 2015; 22
posted on the City’s Web site April 28, 2015. 23
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The comment period for the NOI was April 30, 2015, through May 20, 2015. No comments 25
were received from outside agencies or citizens. 26
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CONCLUSION 28
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The City has been working with Petaluma Ecumenical Housing Corporation (PEP) to develop 42 30
affordable senior housing units on property owned by the City. The City would transfer the 31
property to PEP, and PEP would develop the site from start to finish. 32
33
The PEP team has worked closely with the Grace Hudson Museum staff and City Design Review 34
Board to integrate the site planning and design with the historic Sun House and Grace Hudson 35
Museum buildings and site. 36
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The project would fulfill important General Plan goals, in particular, increasing the stock of 38
affordable housing units available to senior citizens. The project site is ideal for senior citizens 39
PEP Affordable Senior Housing Project
General Plan Amendment and Planned Development Rezoning/ Precise Development Plan
File No.: Munis 749
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because it is located near retail stores, medical facilities, bus transportation, pharmacies, the 1
Senior Center, and civic land uses. 2
3
The project proponents are seeking approval of a General Plan amendment and rezoning to 4
facilities the project, and all reviewing City Departments, Design Review Board, and County 5
Airport Land Use Commission are supportive of the project. No opposition has been expressed 6
since distribution and posting of the required public notices. 7
8
The application seeks a reduction on the parking requirements because the senior population 9
typically have less automobiles. It also seeks a reduction on the parking lot tree shading 10
requirements, which all recent projects have been required to do because the standard is 11
impractical. Staff is supportive of the project and recommends approval. 12
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RECOMMENDATION 14
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Staff recommends Planning Commission: 16
17
1. Make a recommendation to the City Council to adopt the Mitigated Negative 18
Declaration (MND) based on the findings included in attachment 3; and 19
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2. Make a recommendation to the City Council to adopt the Resolution amending the 21
General Plan; and 22
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3. Make a recommendation to the City Council to introduce an ordinance by title only to 24
rezone the subject property to PD/HDR and to establish the PEP Housing Sun House 25
Planned Development with Precise Development Plan. 26
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Attachments: 28
1. Resolution – General Plan Amendment 29
2. Planned Development Ordinance 30
3. Findings for the Mitigated Negative Declaration 31
4. Initial Environmental Study and Mitigated Negative Declaration 32
5. Design Review Board Minutes 33
6. Project Plans and Exhibits, Dated February 15, 2015 34
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