AGENDA REPORT SUMMARY. Jon Biggs, Community Development Director Chris Jordan, City Manager

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1 DISCUSSION ITEM Agenda Item # 1 Meeting Date: October 18, 2016 AGENDA REPORT SUMMARY Subject: Prepared by: Approved by: El Camino Real Corridor Jon Biggs, Community Development Director Chris Jordan, City Manager Attachment(s): 1. El Camino Real Corridor Development Potential Assessment Map 2. CT Commercial Thoroughfare Zoning Regulations Initiated by: City Council and City Staff Fiscal Impact: Undetermined Environmental Review: Undetermined Policy Question(s) for Council Consideration: Do the current policies and regulations compel appropriate development along the El Camino Real Corridor If not - what constitutes appropriate development for the El Camion Real Corridor both from a land use and site development standards perspective and which land use policies and regulations need to be changed to achieve appropriate development Summary: Based on recent development projects, anticipated or pending development applications, community input, City Council direction, and recommendation by the Planning Commission, staff is seeking guidance and direction on policy and regulation modifications that will guide change along the El Camino Real corridor. Staff Recommendation: Staff recommends that the City Council, with input from the Planning and Transportation Commission, provide direction on the appropriate level of development for the El Camino Real Corridor so it can draft modifications to the existing policies and regulations that best reflect the desired level of development.

2 Subject: El Camino Real Corridor Purpose To provide staff with guidance on how best to craft new policies and regulations that reflects the desired level of development along the El Camino Real Corridor Background There are number of regulations and policies that guide development along the El Camino Real corridor. The most overarching guidance comes from the City s General Plan. The Land Use Element of the Los Altos General Plan provides the following concepts, opportunity, and information language: El Camino Real Corridor El Camino Real forms the northern boundary of the City, supporting a mix of low- to medium-scale offices, retail stores, personal services, restaurants, and lodging. The corridor borders the adjacent Cities of Mountain View and Palo Alto, which have encouraged intensive retail, office, lodging, and residential development on their sections of the roadway. The lower-intensity nature of uses found on the Los Altos side of the road works well to ensure compatibility with adjacent residential neighborhoods, to minimize additional traffic flow from and onto El Camino Real, and provide a suitable location for small office-based businesses. However, the corridor as currently configured does not provide much in the way of affordable housing, and is gradually becoming more of an office district and less of a retail area. Moderate intensification of uses fronting the corridor offers an opportunity to create additional affordable housing, sustain diversity within the City s commercial centers, and control the amount of office space developed on the Corridor to ensure that sales tax revenue is maximized. To achieve these objectives, the City will consider amending the Thoroughfare Commercial zoning regulations for the El Camino Real corridor. Allowable uses may include any combination of residential, office, retail, lodging, and personal services. The ground floor of all new mixed-use development may be limited to retail, hotel, motel, or restaurant uses only. In terms of floor area ratio, projects that are entirely office use could be limited to a maximum FAR of 0.5:1 to discourage this type of development exclusively. All other uses could be allowed a maximum FAR of 1.5:1. However, the amount of floor area that exceeds a 0.5:1 ratio should be for retail, housing, or lodging use. The height limit for this area is 30 feet and two stories. However, projects with residential components could be allowed up to a maximum height of three stories as a further incentive to encourage mixed-use projects and obtain affordable housing. (Note changes to the zoning code have been implemented) October 18, 2016 Page 2

3 Subject: El Camino Real Corridor This language, along with the zoning code and a variety of other policies or programs, has been relied on to guide development along the El Camino Real. In response to the recent consideration of a multi-family residential project on the El Camino Real, the City Council directed the Planning and Transportation Commission (PTC) to evaluate and review a number of current codes in an effort to develop standards for appropriate development. The PTC at two meetings had lengthy discussions on the following: Development Incentives for EL Camino Real Related Density Bonus Projects 100-Foot Rear Yard Setback Guidelines for Public and Private Open Space in Multiple-Family Projects Over the course of their discussions, the PTC began to raise other questions regarding the development regulations for projects in this area. It became apparent from the questions and discussion that a review of the above, although it provided a good starting point, was not comprehensive and a more extensive review of the development regulations was needed so that guidance for the El Camino Real s future could be developed. At its meeting on September 1, 2016 the Planning and Transportation Commission by consensus made the following recommendation: Following a discussion it was the consensus of the Commission that the City Council should explore a planning effort that will result in better guidance for development along the El Camino Real corridor. At a special meeting on October 4, 2016, the City Council adopted an interim urgency ordinance establishing a temporary moratorium on new development along the El Camino Real Corridor. This urgency ordinance is effective for 45 days unless extended by the City Council at a regular meeting. This provides time for the City to consider enacting new polices and regulations and is in line with the recommendation of the PTC. Staff is ready to start the preparation of new rules for the El Camino Real Corridor and the feedback and guidance provided at this meeting will further that effort. Discussion/Analysis Attached is a map reflecting those parcels along the El Camino Real Corridor that have development potential (Attachment 1). This provides an indication of where the potential for future development is located and also shows the size of lots relative to neighboring properties. October 18, 2016 Page 3

4 Subject: El Camino Real Corridor The El Camino Real Corridor is zoned CT (Commercial Thoroughfare) and this set of zoning regulations provides the land use and site development standards (Attachment 2). Other regulations that are relied on to guide development include the City s Inclusionary Housing requirements and the Density Bonus Regulations. These provide for the creation of affordable housing and requirements tied to their development. The inclusionary housing regulations require that certain development projects include affordable housing as part of the project s housing mix, while the density bonus regulations provide incentives to developers who include more affordable housing units in their project than required by the inclusionary housing regulations. A city can determine the level or number of inclusionary housing units; however, it must be mindful that these inclusionary housing units count towards the number of affordable units needed to receive density bonus units and other development incentives or waivers. In order to focus staff s effort on crafting the changes to policies and regulations for the El Camino Real Corridor, it provides the following list of uses and some development standards that it would appreciate direction and input on so that it can begin evaluating and drafting new rules: LAND USE Commercial Development necessary for all projects, does the changing retail environment impact the mix of uses or the type of permitted uses? Residential Development is completely residential development acceptable? Mixed Use Does this continue to be a desired land use along the corridor? Are there other land uses that need to be included? SITE DEVELOPMENT STANDARDS Height Limits Setbacks to Property Lines Landscape Requirements - Including Hardscape Standards Parking Requirements Standards for Mechanical Parking Systems Floor Level Heights Minimums or Maximums Refuse Pickup and Delivery Standards The above is not a complete list of site development standards that will be evaluated, but it is a list of what staff believes are the standards that have generated the most discussion and evaluation. In addition to the guidance requested on the above, staff seeks guidance on the appropriate regulatory program that will guide development along the El Camino Real Corridor. Listed below October 18, 2016 Page 4

5 Subject: El Camino Real Corridor are a number of approaches staff can take and it would appreciate hearing if some, rather than other, of these approaches should be followed: Review and modification/update to the General Plan Review and modification/update to the applicable zoning regulations Review and modification/update to the density bonus regulations Review and modification/update to the inclusionary housing regulations Development of performance standards for land use regulations related to height, lot coverage, floor area ratio, setbacks and other development standards Creation of a Vision Plan for the El Camino Real Corridor Creation of a strategic plan or specific plan for the El Camino Real Corridor. There may be other options or hybrids of the above list that can be drafted and staff will use guidance provided to determine the appropriate set or mix of rules. With the input and feedback provided at this meeting, staff will be in position to continue its work on the appropriate set of rules for the El Camino Real Corridor and would like to complete these as soon as possible. However, it does not expect that it will be done drafting these before the end of the 45 day moratorium so it anticipates returning to the City Council with a request for a shortened extension of the moratorium. Options 1) Provide guidance and feedback to staff on how best to move forward Advantages: Disadvantages: Provides staff with a clear course of action. May introduce a level of uncertainty on how the El Camino Real corridor will change over time. 2) Decline to take up this discussion. Advantages: Disadvantages: This action could signal that the existing policies and regulations are providing appropriate guidance for development along the El Camino Real corridor. This may lead to development that is not in keeping with the Community s vision for the future of the El Camino Real corridor. Recommendation The staff recommends Option 1. October 18, 2016 Page 5

6 ACACIA AVE PICO LN DE MILLER AVE EL CAMINO REAL CORRIDOR CALIFORNIA ST ROTH WAY Uses and Development Potential MILLER AVE Hotel - Courtyard LAS FL ORES CT ORILL A CT LANGTON AVE LOS ALTOS AVE SANTA RI TA CT EL CAMINO REAL COLLINS CT Gas Station - 76 LAURELES DR DEL MEDIO AVE Multi-Family Condos Office Condos FAYETTE DR Office and Hotel Residents Inn Adobe Animal Hospital (L ARSEN'S Dittmer s Gourmet Meats MUNDEL CT MUNDEL WAY ELES LAUR DR LUNADA ESTRALITA WAY LUNADA CT DR LOS ALTOS AVE HETCH MARGARITA CT SAN TANDER CT VIA DEL POSO LANDING) HETCHY MERCEDES AVE R/W RAY AVE RILMA LN SAN ANTONIO RD Gas Station - Arco Mixed-Use Office/Multi-Family BevMo Colonnade Mixed-Use Retail/Multi-Family Whole Foods Grocery Store TRAVERSO AVE LOUCKS AVE LOUCKS AVE SHERWOOD LN SHOWERS DR 4880 El Camino Real New Multi-Family Condos CARMEL CT New Mixed-Use Office/Retail LAVERNE WAY SANTA RITA AVE LOS ALTOS AVE WESTMINSTER LN CARMEL AVE LINDEN AVE MERCEDES AVE PASA ROBLES AVE DEL MONTE AVE High Potential Site Property has potential for new development in near future W. PORTOLA AVE Medium Potential site Property could redevelop but does not appear likely in near future PLEASANT WAY N. SAN ANTONIO RD CHESTER E. PORTOLA CIR SAN JUAN CT AVE NELA LN JORDAN AVE EL CAMINO REAL MARICH WAY MARICH WAY DISTEL CIR DISTEL CIR Office Condos Multi-Family Condos LN VALIER CT ATHER Low Potential Site Property has been recently developed and/or has low potential for development in the near future VERNAL CT D WAY THAMES LN R WAY (MAY LN) (BELDEN DR) JORDAN AVE ERA CRUZ AVE CATALINA WAY DELPHI CT PORTOLA CT LE WAY L DR CASITA WAY ATTACHMENT 1

7 Chapter CT COMMERCIAL THOROUGHFARE DISTRICT* Sections: CT District. The regulations, general provisions, and exceptions set forth in this chapter and in Chapter of this title shall apply in the CT District Specific purposes (CT). Specific purposes for CT Districts are as follows: A. To promote the economic and commercial success of Los Altos commercial districts; B. To strengthen the city's economic base through promotion of El Camino Real for high-revenue, destination commercial uses; C. To encourage aggregation of parcels; D. To buffer the impacts of commercial land uses on neighboring residential properties; E. To emphasize a healthy proportion of retail uses as opposed to office and service uses; and F. To allow for mixed uses of commercial and residential Permitted uses (CT). The following uses shall be permitted in the CT District: A. Professional and office-administrative services; B. Restaurants, excluding drive-through facilities; C. Retail and personal services; D. Emergency shelters; and E. Uses which are determined by the city planner to be of the same general character. (Ord (part): Ord (part)) (Ord. No , 2, ; Ord. No , 2, ) Conditional uses (CT). Upon the granting of a use permit in accordance with the provisions of Chapter of this title, the following uses shall be permitted in the CT District: A. Animal clinics, hospitals, and kennels; B. Business, professional, and trade schools; Page 1 ATTACHMENT 2

8 C. Cocktail lounges; D. Commercial recreation; E. Day care centers; F. Hotels and motels; G. Medical and dental clinics; H. Medical and dental offices that are five thousand (5,000) gross square feet or more; I. Mixed-use projects, including a combination of multiple-family dwelling units and nonresidential uses; J. Mortuaries; K. Multiple-family housing; L. Pet shops; M. Printing shops; N. Single-room occupancy housing; O. Upholstery shops; and P. Uses which are determined by the planning commission and the city council to be of the same general character. (Ord (part): Ord (part)) (Ord. No , 3, 4, ; Ord. No , 2, ) Limited conditional uses (CT). Upon the granting of a use permit in accordance with the provisions of Chapter of this title, the following uses shall be permitted except on parcels within fifty (50) feet of an R District: A. Automotive display or salesrooms, servicing and repair; B. Cabinet and carpenter shops; C. Drive-through facilities, including car washes; D. Service stations provided the site has at least one hundred (100) feet of frontage on a street with a minimum site area of twenty thousand (20,000) square feet; E. Sheet metal shops; F. Sign painting shops; and G. Theaters and auditoriums. (Ord. No , 6, ) Required conditions (CT). The following conditions shall be required of all uses in the CT District: Page 2 ATTACHMENT 2

9 A. All businesses, services, and processes shall be conducted within a completely enclosed structure, except for recycling facilities, parking and loading areas, outdoor dining areas, nurseries, the sale of gasoline and oil at service stations, bus depots, or as permitted under the terms of a permit issued pursuant to Chapter of this title. B. No use shall be permitted and no process, equipment, or materials shall be employed which are found by the commission to be objectionable by reason of odor, dust, noise, vibration, illumination, glare, unsightliness, or electrical disturbances which are manifested beyond the premises in which the permitted use is located. C. No property owner, business owner, or tenant shall permit or allow the operation of a business, which violates the requirements of this chapter, including the following general criteria: 1. General screening standard. Every development shall provide sufficient screening to reasonably protect the privacy, safety, and environment of neighboring residential properties and shield them from adverse external effects of that development. Walls up to twelve (12) feet in height shall be required for the purpose of attenuating noise, odor, air pollution, artificial light, mitigation for grade differential between properties, and providing privacy and safety. 2. Sites for screening of refuse collection. Every development will be required to provide suitable space for solid waste separation, collection, and storage, and shall provide sites for such that are located so as to facilitate collection and minimize any negative impact on persons occupying the development site, neighboring properties, or public rights-of-way. 3. Lighting. Lighting within any lot that unnecessarily illuminates any other lot or substantially interferes with the use or enjoyment of such other lot is prohibited. Lighting shall be designed to minimize the glare and intensity of external illumination, and to respect the privacy of neighbors by avoiding direct and reflected illumination onto adjacent properties. 4. Air pollution. Any use that emits any "air contaminant" as defined by the Bay Area Air Quality Management District shall comply with applicable state standards concerning air pollution. 5. Maintenance of common areas, improvements, and facilities. Maintenance of all common areas, improvements, or facilities required by this chapter or any permit issued in accordance with its provisions shall be required except those areas, improvements, or facilities with respect to which an offer of dedication to the public has been accepted by the appropriate public authority. 6. Odors. No use may generate any odor that reasonably may be found objectionable as determined by an appropriate agency such as the Santa Clara County health department and the Bay Area Air Quality Management District beyond the boundary occupied by the enterprise generating the odor. All mechanical, venting, and/or exhausting equipment that generates odors shall be located away from residential properties. 7. Noise. No person shall operate, or cause to be operated, any source of sound at any location within the city or allow the creation of any noise on property owned, leased, occupied or otherwise controlled by such person, which causes the noise level, when measured on any other property, either incorporated or unincorporated, to exceed standards as set forth in Chapter 6.16 of the Los Altos Municipal Code. All mechanical, venting, and/or exhausting equipment that generates noise shall be located away from residential properties. Exterior heating, venting, and air-conditioning facilities shall be muffled. In order to attenuate noise associated with commercial development, walls up to twelve (12) feet in height shall be required at a commercial or residential interface. Page 3 ATTACHMENT 2

10 Site area (CT). The minimum site area shall be twenty thousand (20,000) square feet. The minimum site frontage shall be seventy-five (75) feet Residential density (CT). The maximum permitted residential density shall be thirty-eight (38) dwelling units per net acre of land Front yard (CT). The minimum front yard depth shall be twenty-five (25) feet, with a minimum of fifty (50) percent of which shall be landscaped Side yards (CT). No side yards shall be required, unless the property abuts an R district (excluding access corridors) in which case the following requirements shall apply: A. When the side property line of the site is across a street or alley from property in an R District, in which instance the minimum width of that side yard shall be thirty (30) feet; B. When the side property line of the site abuts on property in an R District, in which instance the minimum width of that side yard shall be forty (40) feet; C. A minimum twenty (20) foot landscape buffer of evergreen trees and shrubs to provide screening shall be provided, all of which shall be permanently maintained by the property owner. No below grade garage construction or excavation is permitted within this landscape buffer Rear yard (CT). No rear yard shall be required, unless the property abuts an R district (excluding access corridors) in which case the following requirements shall apply: A. When the rear property line of the site is across a street or alley from property in an R District, the rear yard setback shall be thirty (30) feet for all structures thirty (30) feet or less in height and seventy (70) feet for all structures over thirty (30) feet in height; B. When the rear property line of the site abuts on property in an R District, the rear yard setback shall be forty (40) feet for all structures thirty (30) feet or less in height and one hundred (100) feet for all structures over thirty (30) feet in height; C. A minimum twenty (20) foot landscape buffer of evergreen trees and shrubs to provide screening shall be provided, all of which shall be permanently maintained by the property Page 4 ATTACHMENT 2

11 owner. No below grade garage construction or excavation is permitted within this landscape buffer. (Ord. No , 1, ) Off-street parking (CT). As provided in Chapter of this title Off-street loading (CT). As provided in Chapter of this title Height of structures (CT). No structure shall exceed forty-five (45) feet in height. Commercial and mixed-use projects that include ground floor commercial floor area shall provide a ground floor with a minimum interior ceiling height of twelve (12) feet. (Ord : Ord (part)) (Ord. No , 2, ) Design control (CT). All structures in the CT District shall be subject to the provisions of Chapter of this title. A. No structure shall be built or altered including exterior changes in color, materials, and signage except as prescribed in Chapter of this title. B. Scale: Because of the relationship of this district to a larger region, a mixture of scales may be appropriate with some elements scaled for appreciation from the street and moving automobile and others for appreciation by pedestrians. C. The proportions of building elements, especially those at ground level, should be kept close to human scale by using recesses, courtyards, entries, or outdoor spaces. D. The proportions of building elements at a commercial or residential interface shall be designed to limit bulk and to protect residential privacy (including but not limited to window placement), daylight and environmental quality. E. Rooftop mechanical equipment must be within the height limit and screened architecturally from public view. F. Firewalls: Consideration should be given to the aesthetic treatment of firewalls including increased side yard setback, contouring the firewall to the building, use of noncombustible roofing materials, and creative use of architectural features in the firewall. Page 5 ATTACHMENT 2

12 Signs (CT). As provided in Chapter of this code. (Ord (part); Ord. No , 12, ) Fences (CT). As provided in Chapter of this title Nonconforming use regulations (CT). As provided in Chapter of this title. Page 6 ATTACHMENT 2