County of Sonoma Agenda Item Summary Report Agenda Item Number: 36 (This Section for use by Clerk of the Board Only.) Clerk of the Board 575 Administration Drive Santa Rosa, CA 95403 To: Board of Supervisors Board Agenda Date: May 17, 2016 Vote Requirement: Majority Department or Agency Name(s): Permit and Resource Management Department Staff Name and Phone Number: Blake Hillegas (707) 565-1392 Title: Supervisorial District(s): Fifth General Plan Amendment, Zone Change, Major Subdivision, Affordable Housing Alternative Equivalent, and Use Permit; Orrin Thiessen, PLP15-0055. Recommended Actions: Approve a Resolution adopting a Mitigated Negative Declaration and approving a General Plan Amendment, Zone Change, Major Subdivision, Affordable Housing Alternative Equivalent, and a Use Permit; and Adopt an Ordinance approving the Zone Change for Orrin Thiessen s Green Valley Village on a 1.38 acre site - 3001 Bowen Street and 3050 Edison Street, Graton. APN 130-151-005, -006 and -007; Fifth District. Executive Summary: Background: The 1.38 acre site is located in downtown Graton and is bound by a public alley, and three public streets: Edison, Shirley and Bowen Streets. The project involves the subdivision of 1.38 acres into 10 single family residential small lots for the construction of eight market rate homes with six second dwelling units, and the sale of two lots to Habitat for Humanity for construction of two homes affordable to low income households. The Project includes a 0.5 acre community park and garden parcel to be purchased and maintained by the Graton Green Group and a.07 acre parcel to be dedicated to the Downtown Graton Mutual Water Company. On January 6, 2016, the Design Review Committee reviewed and supported the project with recommended design improvements. On January 21, 2016, the Project Review Advisory Committee voted 5-0-1-1 to recommend Conditions of Approval for the project. On April 28, 2016, the Planning Commission held a public hearing and adopted a resolution recommending approval of the project subject to Conditions of Approval. The project site currently contains a well, water storage tanks, filter and pumping system for the Downtown Graton Mutual Water system which will be retained and enhanced with the project. The site also contains an existing community garden. The applicant has a written sales agreement for the Graton
Green Group to purchase 0.5 acres of the project site for long term maintenance of a community park and garden. The applicant has also entered into a written agreement with Habitat for Humanity to sell them two fully improved lots at below market rate so they can build two homes for sale to qualifying low income families. Project Description: The project includes the subdivision of 1.38 acres into 10 single family residential small lots, a 0.5 acre community park and garden parcel to be purchased and maintain by the Graton Green Group, and a.07 acre parcel to be dedicated to the Downtown Graton Mutual Water Company. The entitlements that are necessary to accommodate the project include: 1) General Plan Amendment from the Limited Commercial designation to the Urban Residential 15 du/acre for the residential component and Public/Quasi Public Facility designations for the community park and garden and existing public water system parcels; 2) A corresponding Zone Change from the LC (Limited Commercial) AH (Affordable Housing) District to the R3 B6 15 (High Density Residential 15 du/acre) and PF (Public Facility) Districts; 3) Subdivision of 1.38 acres into 10 single family residential Lots, a.5 acre publicly accessible (privately maintained) park and garden parcel, and a.07 acre community water system parcel; 4) Affordable Housing Alternative Equivalent consisting of two single family residences affordable to low-income households; and a 5) Planned Development Use Permit to allow reduced residential lot sizes, lot widths, and building setbacks in accordance with a Precise Development Plan. Affordable Housing Inclusionary Requirement. The Affordable Housing inclusionary zoning requirement for residential development is to: 1) pay affordable housing in-lieu fees for each residence; 2) provide 20% of the units on-site affordable to low and moderate income households (one low and one moderate income residence for this project); 3) construct second dwelling units on each lot; or 4) propose an Alternative Equivalent. The applicant is proposing an Affordable Housing Alternative Equivalent on lots 9 and 10 as noted below. Proposed Affordable Housing Alternative Equivalent. The applicant s proposed Alternative Equivalent consists of a written agreement with Habitat For Humanity, where the applicant would sell two lots at below market rate so they can construct affordable housing to meet the projects inclusionary requirement. Specifically, the developer has agreed to sell two improved residential lots to Habitat for Humanity at below market rate for a total of $80,000 dollars. This price is approximately $200,000 below market rate. Habitat for Humanity would construct two of the ten single family residences for sale to qualifying low income households. This subsidy is greater than what would be required if in-lieu fees were proposed. For comparison, if in-lieu affordable housing fees were paid instead of an Alternative Equivalent, the fees would amount to approximately $100,000 dollars. The Alternative Equivalent proposal to provide two homes in the low
income category can also be considered equivalent or a slightly deeper level of affordability than the onsite inclusionary requirement of one low and one moderate income units. Proposed Public interest/benefit. General Plan Amendments must be found to be in the public interest according to Government Code 65358 and be found consistent with the overall goals, objectives, policies and programs of the General Plan. To address the public interest requirement, the project proposes the construction of six 500 square foot second dwelling units (affordable by design), the sale of.5 acres of land to the Graton Green Group for a privately owned and maintained community park and garden, and the dedication of.07 acres to the downtown Graton Mutual Water Company to accommodate the existing mutual water system. Project Design: The two story homes would be oriented toward the proposed park and garden and gain access from a new sidewalk adjoining the park. Two-car garages, located at the rear of each lot, would be accessed from an existing alley that would be improved to County standards. Public improvements on Edison Street would consist of new pavement to enhance existing on-street parking and new curb, gutter and sidewalk. Public improvements along Bowen Streets would include new curb, gutter and sidewalk where necessary. Two new water storage tanks are proposed to improve the downtown Graton Mutual Water system and provide fire flow for the project. The existing drainage way traversing the southerly boundary of the site is incorporated into the project (see Exhibit D). The single family residential lots range from 2,613 sq. ft. to 3,920 sq. ft. in size. All of the homes would be two stories and contain flexible floor plans containing 2-3 bedrooms. Eight of the residences would be 1,655 square feet in size. The two affordable units would be smaller, but would be no less than 1,241 square feet in area and would be architecturally consistent with the market rate homes. All of the homes would include sufficient variation in design, but would be integrated through the use of compatible styles, materials, and colors. Building materials consist of Hardiplank siding material manufactured to simulate horizontal lap or shingle siding. All roof materials would be asphalt shingle. Determinations of the Planning Commission: Issue #1: General Plan Consistency The Planning Commission determined that the proposed General Plan land use amendment is in the public interest because the project includes six second dwelling units (affordable by design) in addition to an Affordable Housing Alternative Equivalent, whereby Habitat for Humanity would provide two residences to low income households. The Planning Commission also determined that the sale of.5 acres to the Graton Green Group for the long term maintenance of a public accessible community park and garden, and enhancement of the existing downtown Graton Mutual Water System for improved fire suppression is a public benefit. Finally, the Planning Commission determined that the project is consistent with the applicable General Plan Goals and Policies as noted below.
Land Use The project meets General Plan criteria for a change in land use to Urban Residential in that the property is an infill site within an Urban Service Area, adequate public facilities and services are available, convenient access to commercial services are provided, the project has convenient access to designated arterial roads, and environmental constraints are limited. Further, the project would specifically implement Sebastopol Planning Area Policy LU-17d: to consider designation of vacant sites east of Bowen Street and south of Graton Road from commercial/industrial use to urban residential use because adequate infrastructure is available and the project would not adversely impact public services or the neighborhood. Housing Affordable Housing Alternative Equivalent The Planning Commission determined that the proposed affordable Housing Alternative Equivalent, consisting of the applicant s sales agreement with Habitat for Humanity to construct two low income units, conforms with General Plan Housing Goal 3: to promote the production of affordable housing and is equivalent to paying affordable housing in-lieu fees or otherwise constructing on-site affordable housing. The project implements Housing Element Objective HE-1.1 to continue existing County and Community Development Commission efforts to provide affordable housing because the Conditions of Approval require the recordation of a 30 year Affordable Housing Agreement between the County Community Development Commission and the developer. While the second dwelling units are not subject to affordability restrictions, they are considered affordable by design according to recent surveys. The Planning Commission clarified in the Conditions of Approval that second dwelling units must be made available for rent to another household, and that transient occupancy is prohibited. The Planning Commission also clarified that the two affordable units must be constructed prior to or concurrent with the market rate units. Open Space and Conservation The Planning Commission determined that the developer s partnership with the Graton Green Group to acquire land for the long term maintenance of a community park and garden implements General Plan Open Space and Conservation policies calling for the provision of public park facilities to serve communities. The Planning Commission determined the project to be consistent with the urban design principles of Policy OSRC-5b because the layout of the residential lots, with homes backing onto an alley and fronting onto the proposed community park and garden, provides physical and visible access to the park, and encourages social interaction amongst neighboring residents. The two-story scale of the homes is compatible with the mix of existing single and two story structures found in the neighborhood. Finally, the Planning Commission determined that the development appropriately incorporates the riparian drainage way traversing the project site. Circulation and Transit Major local intersections at Graton Road/Highway 116 and Mueller Road/Highway 116 and are signalized and operating at acceptable levels. A focused traffic study was prepared addressing site
access and bicycle and pedestrian facilities. Conditions of Approval #65 and #103 require the trimming of vegetation on Edison and Bowen Streets to improve vehicular site distance. The Planning Commission determined that the project responds to GOAL CT-3: to establish a viable transportation alternative to the automobile because sidewalks will be provided on Bowen and Edison Streets, and Bowen Street will continue to function as Class III bikeway, providing an important link in the Class I West County Regional Trail. Condition of Approval #106 requires that bike racks be provided within the proposed park near Bowen Street. The project is an infill development located within walking distance to existing bus stops serving downtown Graton. In coordination with the County s project to improve sidewalks in Graton to compy with the American Disabilities Act, the Planning Commission added the following language to Conditions of Approval #72, #73, and #77, to provide cost sharing of curb, gutter, and sidewalk improvements on Bowen Street. Alternatively, the Developer may pay to the Department of Transportation and Public Works 50% of its cost to remove and replace the same as part of County Project No. C015016 (Phase 2 Graton ADA). Payment is due prior to issuance of the first building permit on the lots within the subdivision. An invoice will be provided upon request; Public Facilities Objective PF-1.1: is to plan for healthful water supplies and wastewater facilities adequate to serve the growth projected in the General Plan. The Planning Commission determined that existing water supply and sanitation facilities are adequate to serve the project. The Graton Mutual Water Company well, storage and pumping system is located on the project site, and would be enhanced with additional water storage tanks to serve the project and improve fire flow in downtown Graton. The water system is regulated by the State and draws from a major natural recharge area. The State has not identified any water supply issues and the water company has issued a will-serve letter for the project. At the recommendation of the Planning Commission, the applicant agreed to pursue relocating the proposed water tanks to the south of the existing water tanks if drainage way setbacks can be met. Sanitation facilities are operated by the Graton Community Services District which has also issued a willserve letter for the project. The sanitation facilities were recently upgraded to tertiary treatment. Goal PF-2: is to assure that park and recreation, public education, fire suppression and emergency medical, solid waste services, and public utility sites are available to the meet future needs of Sonoma County residents. The Planning Commission determined that adequate public services and facilities exist to serve the project. As noted above the project would include a new.5 acre community park and garden and dedicate land to accommodate the existing downtown Graton Mutual Water System. The recently constructed Graton Fire Station is located within ½ mile of the site. No capacity issues were identified with local schools and other services. The applicant would pay school and park mitigation impact fees to address potential increase in demand on these facilities. The Planning Commission required that a drinking fountain be installed in the proposed park and garden (Condition #106). To provide more flexibility in securing long term maintenance of the proposed park and garden parcel, the Planning Commission Modified Condition of Approval #111 to allow the privately owned and maintained park to be conveyed to a public entity provided long term maintenance is secured as would
be defined in the public use easement required by Condition #108. Issue #2: Zoning Consistency The current zoning for the project site is LC (Limited Commercial) with an AH (Affordable Housing) combining District. In the Limited Commercial/Affordable Housing zoning district the site could be developed with a commercial use, mixed use, or 100% affordable housing. While the AH zoning allows a 100% affordable housing proposal, it is not mandated. The proposed project includes 10 residential units on.7 acres, which equates to a density of 15 du/acre. The Planning Commission determined that the proposed High Density Residential 15 du/acre (R3 B6 15) Zoning District is appropriate to accommodate the project, including the proposed Affordable Housing Alternative Equivalent. The Planning Commission also determined that the proposed zoning is consistent with the General Plan and would implement the Urban Residential 15 du/acre land use designation. Planned Developments are permitted by Use Permit in R3 B6 15 zoning district to provide flexibility from standard lot size and setback requirements provided there are unique circumstances, innovation in design, or the provision of affordable housing. The project is proposed as a Planned Development because the typical R3 lot size and building setbacks are not met as follows: Maximum Building Height Proposed Building Height 35 ft. 31 ft. Minimum Lot Size Proposed Lot Size 6,000 sq. ft. 2,613 3,920 sq. ft. Minimum Lot Width Proposed Lot with 80 ft. 27-36 ft. Maximum Lot Coverage Proposed Lot Coverage 60% 59% Minimum Setbacks Proposed Setbacks Front 15, Side 5, Rear 10 Front 5, Side 2-4 *, Rear 5 * maintenance access easements are required in side yards (Condition #107). The Planning Commission determined that the project meets the requirement for a Planned Development in that six second dwelling units (affordable by design) will be provided, which is beyond the proposed Alternative Equivalent inclusionary requirement. In addition, the developer s agreement with the Graton Green Group is unique in that it will provide an accessible neighborhood park and garden at no cost to the County.
Parking The provision of two-car garages for each residence satisfies the project s parking requirement of one covered parking space per single family residence and one space per second dwelling unit. The Planning Commission supported the proposed parking plan and recognized that the demand for visitor parking would be accommodated along the project s multiple street frontages, including 13 angled parking spaces on Edison Street, 7 parallel parking spaces on Bowen Street, and informal parking on Shirley Street. The Planning Commission indicated support for the applicants plan to record CC&R s, which would require homeowners/tenants to utilize garages for parking. Issue # 3: Design Review The following is a summary of the Design Review Committee s direction on design improvements: 1. On front porches, eliminate lattice and utilize siding material instead. Consider alternate porch roof designs on some units. 2. Provide separation between second unit decks and neighboring garages. 3. Simplify the plant palette and make it less random. Address the newest Water Efficient Landscape Ordinance. 4. Consider Bio-infiltration sod as an alternate grass in the swale that withstands inundation. Condition of Approval #105 requires that the applicant obtain Final Design Review and approval prior to recording the Map. Issue #4: Environmental Review Site specific biological resource, cultural resource, geology and soils, and traffic studies were conducted for the project. As documented in the Initial Study for the project, potentially significant environmental impacts can be mitigated to less than significant by Conditions of Approval. The Planning Commission recommended that a Mitigated Negative Declaration be adopted for the project. Issue #5: Neighborhood Compatibility The Planning Commission determined that the project achieves compatibility with the neighborhood based on the orientation, size, scale, density, and design, of the homes. The layout of the residential lots, with homes backing onto an alley and fronting on to the proposed neighborhood park and garden provides physical and visible access to the park and encourages social interaction amongst neighboring residents. The two story scale of the homes is compatible with the mix of single and two story structures found in the neighborhood. The project incorporates an existing on-site drainage way and a remnant water tower. New on-site parking will be provided in garages accessible from the alley and existing on-street parking will be improved to current standards.
Prior Board Actions: N/A Strategic Plan Alignment Goal 2: Economic and Environmental Stewardship The project will provide infill ownership and rental housing opportunities, including low income housing at a density that is compatible with the neighborhood, responsive to site constraints, and capitalizes on existing services. Expenditures Fiscal Summary - FY 15-16 Funding Source(s) Budgeted Amount $ $ Add Appropriations Reqd. $ State/Federal $ $ Fees/Other $ $ Use of Fund Balance $ $ Contingencies $ $ $ Total Expenditure $ Total Sources $ Narrative Explanation of Fiscal Impacts (If Required): The project will not result in direct fiscal impacts. The project would result in potential indirect fiscal impacts related to the potential demand for certain public services such as fire protection and public safety. Upon recordation of the Map and the sale of the individual lots, the tax base will be increased to address fiscal impacts related to potential increase in demand for services. Position Title (Payroll Classification) Staffing Impacts Monthly Salary Range (A I Step) Additions (Number) Deletions (Number) Narrative Explanation of Staffing Impacts (If Required): N/A Attachments: Draft Board of Supervisors Resolution EXHIBIT A: Conditions of Approval EXHIBIT B: Draft Ordinance and Sectional District Map EXHIBIT C: Aerial Photos EXHIBIT D: Subdivision Map, Precise Development Plan, Grading and Drainage, and Landscaping EXHIBIT E: Architectural Plans
EXHIBIT F: Planning Commission Resolution No. 16-004 EXHIBIT G: Planning Commission Actions Dated April 28, 2016 EXHIBIT H: Planning Commission Draft Minutes Dated April 28, 2016 EXHIBIT I: Planning Commission Staff Report and Attachments dated April 28, 2016 EXHIBIT J: Mitigated Negative Declaration EXHIBIT K: Agreement with Habitat For Humanity EXHIBIT L: Agreement with Graton Green Group EXHIBIT M: Correspondence Related Items On File with the Clerk of the Board: Full Size Subdivision and Architectural Plans