HomeMy WebLinkAbout11/05/1991, 1 - APPEAL OF PLANNING COMMISSION'S ACTION TO DENY A REQUEST TO AMEND THE LAND USE ELEMENT MAP AND ZONING MAP (GP/R 1516) TO CHANGE THE DESIGNATIONS FROM CONSERVATION/OPEN SPACE (C/OS) TO OFFICE (O-PD) AND ADOPT A PRELIMINARY DEVELOPMENT PLAN �IIH^IYIII�III�InIII�II�III
city MEETING DATE:
IIN II I��u�l of san LaIs oBispo 11 -5-91
COUNCIL AGENDA REPORT ITEM NUMBER:
FROM: Arnold B. Jonas, Community Development Director;
By.: Pam Ricci, Associate Planner PIF,
SUBJECT:
Appeal of Planning Commission's action to deny a request to amend the
Land Use Element map and zoning map (GP/R 1516) to change the
designations from Conservation/Open Space (C/OS) to Office (O-PD) and
adopt a preliminary development plan (PD 1517) for property located at
the northeastern corner of Prado Road and Highway 101 (40 Prado Road) .
CAO RECOMMENDATION:
Determine that action on this matter at this time is premature. Continue
Council consideration until after acceptance of an updated Draft Land Use
Element which incorporates changes consistent with`Council direction to
expand the area devoted to potential government office use in the
vicinity of the Prado Road/South Higuera Street intersection.
DISCUSSION
Situation/Previous Review
Planning staff scheduled this request for consideration before the
Planning Commission prior to completion of an initial environmental
study. Staff's strategy was to schedule a conceptual review of the
project to get feedback from the Planning Commission on major issues,
primarily the appropriateness of the proposed land use, before requesting
more information from the applicant to complete the environmental
document and prepare a detailed project analysis. Staff felt that this
kind of `preliminary review would be beneficial to the applicant, staff
and Commission in terms of garnering a general Commission reaction to the
proposal and identifying information that would facilitate its further
evaluation.
On September 25, 1991, prior to the most recent Council discussion on
October 21 of potential expansion of government office uses in the
vicinity of the subject property, the Commission denied the proposed map
amendments and preliminary development plan. In its motion for denial,
the Commission cited several findings backing its lack of project
support. Findings included that the proposal was premature given that
the land use and circulation elements had not yet been updated, the
proposal was inconsistent with current city land use policies and there
was a need for an overall area plan.
On October 2, 1991, the applicant filed an appeal to the Council of the
Planning Commission's action for denial.
/- l
��iw���►►►IVIIIIIII��Ii ��Ill city of San 1 s OBISpo
Mis COUNCIL AGENDA REPORT
GP1516,PD1517
Page 2
commission/council Discussions of Tri-Polar Policy in conjunction with
LUE URdate
In referring the draft update back to the Planning Commission last
summer, the Council specifically asked for reconsideration of land area
which could provide for expansion of the social services center,
especially west of the creek. In November 1990, the Commission re-
evaluated projected space needs and potential expansion area, and
concluded that the potential expansion area shown in the Commission-
recommended draft was adequate for the City size envisioned by the Land
Use Element. That expansion area includes properties west of the creek
currently zoned C-S, but not the parcels zoned for open space.
On October 21, 1991, the Council discussed the South Higuera government
office pole at a LUE update study session. The Council indicated support
for expansion -of the office pole beyond the area shown in the Planning
Commission Draft LUE, in particular requesting consideration of the area
westerly of the creek in the vicinity of the subject property. However,
there are development constraints associated with this area such as
flooding, vehicle circulation and freeway access that require additional
study before a decision should be made on land use configuration which
could lead to project approval.
ALTERNATIVES
1. Adopt Resolution ."A" upholding the Planning Commission' s action
denying the requests to amend the Land Use Element map and zoning map
to change the designations from Conservation/Open Space (C/OS) to
Office (O-PD) and adopt a preliminary development plan for property
located at 40 Prado Road.
2 . Adopt Resolution "B" upholding the appeal.
The Council could not take an action to approve the request prior to
completion of an environmental document (Section 15004. (a) of CEQA
Guidelines) . However, the Council could indicate support for the land
use change with direction to staff to complete the environmental
document and return with a detailed project analysis.
Procedurally, the Council could consider the requests again in the
future without further review by the Planning Commission given the
Commission's action for denial and the subsequent appeal. Staff would
encourage the Council to stipulate that the Planning Commission review
the environmental document and the project analysis if the requests
are pursued.
�������►M►►►�IIIIIIIIII► ���IIIII City Of san L.Ais OBISPO
RIM COUNCIL AGENDA REPORT
GP1516,PD1517
Page 3
Attached: Resolution "A" denying appeal
Resolution "B" upholding appeal
Planning Commission Resolution No. 5069-91
Draft 9-25-91 Planning Commission Minutes (forthcoming)
Appeal to City Council
Planning Commission Staff Report
Social Services Area (from Planning Commission's Draft LUE)
Excerpts from adopted and draft LUE
i
i
i
I
i-3
Resolution "A"
RESOLUTION NO. (1991 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
DENYING AN APPEAL OF THE PLANNING COMMISSION' S ACTION
TO DENY A REQUEST TO AMEND THE LAND USE ELEMENT
MAP AND ZONING MAP TO CHANGE THE DESIGNATIONS FROM
CONSERVATION/OPEN SPACE (C/OS) TO OFFICE (0-PD)
FOR PROPERTY LOCATED AT THE NORTHEASTERN CORNER OF
PRADO ROAD AND HIGHWAY 101 (40 PRADO ROAD)
BE IT RESOLVED by the Council of the City of San Luis
Obispo as follows:
SECTION 1. Findings. That this council, after
consideration of public testimony, the applicants ' request GP/R
1516 and PD 1517, the appellants' statements, the Planning
Commission's action, staff recommendations and reports thereon,
makes the following findings:
1. The proposed project is premature due to the pending
adoption of the Land Use Element and Circulation Element.
2. The proposed project does not conform to the tri-polar
policy contained in the Land Use Element for government
offices.
3. The proposed project as a regional business center will be
detrimental to the downtown area.
4 . The proposed project is in conflict with the city's goal
to maintain county offices in the downtown.
5. The proposed project will conflict with the existing and
draft policies of the Land Use Element.
6.• There is a need to address flood control for the area.
7 . There is a need for an overall plan for the area.
SECTION 2 . The request for amendments to the Land Use
Element map and zoning map to change designations from
Conservation/Open Space (C-OS) to Office (O-PD) and a preliminary
development plan for a four-building regional office complex is
hereby denied.
On motion of
seconded by and on the following roll
call vote:
AYES:
NOES:
ABSENT:
the foregoing resolution was passed and adopted this day
of , 1991.
Mayor
ATTEST:
City Clerk
APPROVED:
<:'ty Adm nistrative Officer
t to ne
;//
G:Z.., I&
CommunJ Development Director
Resoltuion "B"
RESOLUTION NO. (1991 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
UPHOLDING AN APPEAL OF THE PLANNING COMMISSION'S ACTION
TO DENY A REQUEST TO AMEND THE LAND USE ELEMENT MAP
AND ZONING MAP TO CHANGE THE DESIGNATIONS FROM
CONSERVATION/OPEN SPACE (C/OS) TO OFFICE (O-PD)
FOR PROPERTY LOCATED AT THE NORTHEASTERN CORNER OF PRADO ROAD
AND HIGHWAY 101 (40 PRADO ROAD)
BE IT RESOLVED by the Council of the City of San Luis
Obispo as follows:
SECTION 1. Findings. That this council, after
consideration of public testimony, the applicants ' request GP/R
1516 and PD 1517, the appellants' statements, and the Planning
Commission's action, staff recommendations and reports thereon,
makes the following finding:
1. The proposed project warrants further consideration and
environmental review and detailed project analysis should
be completed.
SECTION 2 . The proposed amendments and preliminary
development plan will continue to be processed by the Community
Development Department: Further processing of the requests will
include review by the Planning Commission.
On motion of
seconded by , and on the following roll call
vote:
AYES:
NOES:
ABSENT:
the foregoing resolution was passed acid adopted this day
of , 1991.
Mayor
ATTEST:
City Clerk
APPROVED:
City Admi istrative Officer
J("
#C' orn y
.f
Communi Development Director
SAN LUIS OBISPO PLANNING COMMISSION
RESOLUTION NO. 5069-91
WHEREAS, the Planning Commission of the City of San Luis Obispo did
conduct a public hearing in the City Council Chamber of the San Luis Obispo City Hall,
San Luis Obispo, California, on September 25, 1991, pursuant to a proceeding instituted
under applications No. GP/R 1516 and PD 1517 by Maxine Oliver Morosky et al,
applicant.
GENERAL PLAN AMENDMENT AND REZONING REQUESTED:
To amend the Land Use Element map and zoning map to change designations
from Conservation/Open Space (C-OS) to Office (O-PD) and a preliminary
development plan for a four-building regional office complex.
PROPERTY DESCRIPTION:
On file in the office of Community Development, City Hall.
GENERAL LOCATION:
40 Prado Road.
EXISTING GENERAL PLAN LAND USE ELEMENT:
Interim Conservation/Open Space.
PRESENT ZONING:
C/OS-10.
WHEREAS, said commission as a result of its inspections, investigations, and
studies made by itself, and in behalf and of testimonies offered at said hearing, has
established existence of the following circumstances:
1. The proposed project is premature due to the pending adoption of the Land Use
Element and Circulation Element.
2. The proposed project does not conform to the tri-polar policy contained in the
Land Use Element for government offices.
/—U
s .
Resolution No. 5069-91
General Plan Amendment & Rezoning
GP/R 1516 and PD 1517
Page 2
3. The proposed project as a regional business center will be detrimental to the
downtown area.
4. The proposed project is in conflict with the city's goal to maintain county offices
in the downtown.
5. The proposed project will conflict with the existing and draft policies of the Land
Use Element.
6. There is a need to address flood control for the area.
7. There is a need for an overall plan for the area.
NOW, THEREFORE, BE IT RESOLVED that applications No. GP/R 1516 and
PD 1517 be denied.
The foregoing_resolution was adopted by the Planning Commission of the City of
San Luis Obispo upon the motion of Commr. Kouralds, seconded by Commr. Schmidt,
and upon the following roll call vote:
AYES: Comm s. Kouralds, Schmidt, Karlesldnt, Peterson, Hoffman
NOES: Comm . Williams
ABSENT: Comm . Gurnee
Arnold B. Jonas, Secretary
Planning Commission
DATED: September 25, 1991
VI� U�II�
Ellll�' cityo.� sin: �s o��s o
p
990 Palm Street/Post Office Box 8100 • San Luis Obispo, CA 93403-8100
APPEAL TO CITY COUNCIL
In accordance with the appeals procedure as authorized by Title I, Chapter 1.20 of the San Luis Obispo
Municipal Code,the undersigned hereby appeals from the decision of Planning Commission
rendered on 9-25-91 which decision consisted of the following (Le. set forth factual
situation and the grounds for submitting this appeal. Use additional sheets as needed):
Denial of* a request .for a General Plan amendment (and related PD rezoning)
from interim open space 'to office use. Our application also allows for
support commercial uses, day care and a traffic .demand management program
under the PD.
The Commission feYt .that. onsideration of. this change is premature. We
feel that our request reflects sound long-range planning for this part .of
the City. We believe our request will address both a current and long-
term need, to be implemented over several years. Technical issues such as
drainage and traffic impacts will also need to be addressed, but the
fundamental question raised by this appeal '.is: what is the best longrterm
land use for this area? Additional supporting material will be submitted
under separate cover.
The undersigned discussed the.decision being appealed with:
Arnold Jonas on *September 30; 1991
Pam Ricci
DATE &TIME APPEAL RECEIVED: Appellant:
Dennis. Moresco, applicant
ame ilia
• Michael Multari
z� � � i � � ®
Representative
641 Higuera Street, Suite 200
OCT .- 1991 Address San Luis Obispo, CA 93401
e" �a, 541-3848.
Cm CLERK
SAN LUIS OBISPO,CA Phone
Original to City Clerk
City Attorney
Calendared for. j Copy to Administrative Officer
Copy to the-following department(s):
/D � 01h
MEETING DATE:
II11�I��NI�1111111IIII��G�pw'j city p • 9-as- 9i
�iidl� ci o san r =s OBISPO
ITEM NUMBER:
PLANNING COMMISSION STAFF riEPORT
BY: PK Pam Ricci, Associate Planner FILE # GP1516/PD1517
SUBJECT: Consideration of amendments to the Land Use Element map and zoning map to
change the designations from Conservation/Open Space (C/OS) to Office (O-PD)
and review of a preliminary development plan for property located at the
northeasterrt corner of Prado Road and Highway 101.
SUMMARY RECOMMENDATION
Introduce the item and continue it to a date uncertain.
BACKGROUND
ituation
The project site is shown on the city's existing Land Use Element (LUE) map as
Interim/Conservation Open Space. Open space policies contained within the LUE indicate
that the Interim/Conservation Open Space designation is applied to sites where future
urbanization would be appropriate once environmental constraints or circulation and
infrastructure deficiencies are addressed. In the case of the subject site, the LUE specifies
that urban land uses may be considered once the flood hazard is mitigated, but does not
anticipate any specific urban designation. The LUE also stipulates that a development plan
must be approved prior to these sites being urbanized.
The applicant has made application to the City for a general plan amendment and planned
development rezoning to initiate urbanization of the site. The goal of the applications is
to secure City approval of plans to develop a phased regional office complex on the site.
Data Summary
Applicant: Maxine Oliver Morosky, et. al.
Representative: Crawford, Multari and Starr
Existing Zoning: Conservation/Open Space with 10-acre minimum (C/OS-10)
Existing General Plan Land Use Designation: Interim Conservation/Open Space
Proposed Zoning: Office-Planned Development (O-PD)
Proposed General Plan Land Use Designation: Office
Environmental Status: Not yet completed.
Project Action Deadline: Legislative actions not subject to processing deadlines.
Site Description
The nearly level site is occupied by a service station at the southwest comer and a house
near the southeast comer. High-voltage transmission lines on towers cross the northern
part of the site. The remaining area is vacant, and has been used for non-irrigated field
crops. Surrounding uses include the city corporation yard, drive-in theater, a residence, and
service-commercial uses. San Luis Obispo Creek channel lies, at its closest, about 150 feet
to the east.
I=W
a
GP1516,PD1517
Page 2
Project Description
The initial phase of the project (Building C), consisting of 33,040 square feet of office space
in one three-story building and 110 parking spaces, would be constructed on the
southeastern part of the site, within one to two years of completion of City processing.
Government agencies would be the primary target of leasing efforts, though all types of
offices would be allowed.
Subsequent phases would be built out as demand for new offices warrants their
construction. Building A (38,160 square-foot, three-story building with 128 parking spaces)
and Building B (40,280 square-foot, four-story building with 134 parking spaces) would be
built north of Building C and constitute the next two phases of site development. The
phasing plan calls for a new building to be constructed every two to three years. The final
phase (Building D) consisting of 14,256 square feet in a three-story building with 48 parking
spaces would be developed in approximately 10 years.
Access would be derived from Prado Road and development of an extension of Elks Lane
through the site. Right-of-way for an enlarged Prado Road interchange with Highway 101
would be offered for dedication.
DISCUSSION
Staff has not completed the initial study for the project. Several issues need to be further
researched and staff is awaiting additional input by other agencies including Caltrans, the
County Air Pollution Control District and County Airport Land Use Commission. Prior to
formulation of an official environmental determination for the project, staff would like input
from the commission on some basic project issues.
The following is an outline the major land use and environmental issues staff has identified
associated with the proposal. The commission may use the outline to structure their
discussion of project concerns.
PRADO ROAD REGIONAL CENTER
DISCUSSION OUTLINE
I. Land Use Issues
A. Are office uses appropriate at this site?
1. Is expansion of offices consistent with the "tri-polar" policy contained
in the LUE for governmental offices? Is this a logical extension of the
South Higuera/Prado Road government pole?
2. Are general types of offices appropriate here(non-governmental offices
that are not prohibited from LUE policy discussed under 3. below from
being dispersed)?
GP1516,PD1517
Page 3
3. Should there be restrictions on types of offices allowed here? For
example, should those types of offices referenced in the LUE which
are not allowed to be dispersed (design firms, banks, real estate offices,
financial institutions, medical clinics, and doctors offices, and lawyers
offices) be allowed?
4. Should subsidiary retail uses be allowed within the project? The PD
proposal would allow up to 15% of building floor space to be occupied
by related retail and commercial uses.
U. Traffic and Circulation Issues
A. Future Highway 101 Interchange
Project plans show a significant portion of the western area of the site being
dedicated to the City for development of an enlarged future freeway
interchange/overpass. Two alternatives,a cloverleaf and diamond interchange
design, have been reviewed by City and Caltrans staff and can be
accommodated in the dedication area shown on plans. Development of an
interchange at this location, as well as its design, require review and approval
by both Caltrans and the Federal Highways Administration.
1. Without approval of an interchange at this location would office uses
be logical and reasonable?
III. Environmental Issues
A. Flooding/Drainage Issues
The site has remained largely undeveloped and in an Interim/Conservation
Open Space land use designation primarily because of flooding concerns.
Flooding would be due primarily to overflow from San Luis Obispo Creek to
the north and east, and from the nearby tributary which runs south of the site.
During heavy storms, Prado Road and Elks Lane near their intersection act
as a levee trapping water on the site causing ponding to almost 4 feet deep.
A key feature of the proposal is to accommodate development without
changing the San Luis Obispo Creek channel to mitigate flood hazards.
The site is within flood zone "A', subject to flooding between about 1-4 feet
during a 100-year storm. The city's Flood Damage Prevention Regulations
will require that floors be at least.one foot above the 100-year flood level
.(137' elevation) and that development not displace flood water sufficient to
raise the flood elevation. These requirements would apply regardless of land-
use zone.
l-1,3
GP1516,PD1517
Page 4
1. Is raising buildings out of the floodplain adequate mitigation to address
flooding concerns? Would participation in creek improvements and
drainage facilities by the project be a desirable alternative?
IV. Other Issues/Information Needs
Direction to staff and the applicant about information needs of the commission that
would enhance and improve their review of the project.
OTHER DEPARTMENT COMMENTS
The Public Works Department expressed strong concerns with the potential flooding
impacts of the project recommending that the best mitigation would be improvements to
San Luis Obispo Creek and that%floodproofing of buildings was not considered a viable
alternative.
Additionally, Public Works felt that a more comprehensive specific plan should be
developed for the area bounded by San Luis Obispo Creek on the east, Prado Road on the
south, Highway 101 on the west and including the Sunset Drive-in, Elks Lodge and
cemetery to the north, before plans for development of this site were approved.
RECOMMENDATION
Introduce the item and continue it to a date uncertain.
Attached: Vicinity Map
Proposed Map Amendments
Reduced copy of site plan
Applicant Statements
Massing perspective
C-s-S 1 t TA AAvt
\ 9 O
cl-s
O
C/os-lo
1
SUNSET DRIVE-W., \ 1 '•
1 \-111_.'1...,:_ ••
c/os-lo
c
(5-s LJ
Z I
ir
r l
m
4F 3
klo 10
•O �JNTEIF BROtjHERS' CENTER d .r
^ 0 1'1
CORP
ORATI N YARD( , ! iiC—N
PF PF
i-r \ m-f��•1 1 �
rll
• I^^1•• . Al1U:lllth
S-5
VICINITY MAP 40 PRADO ROAD NORTH
GP 1516, PD 1517
—IJ
"The Prado-Elks Regional Center"
Proposed Zoning Map Amendment
C-T-Z$ Q y
= 5
-- bre
c- F C-S
C/o C/OS '
C-T •'� C—
f
ti C-R ' . -S-S
R F
AS
9+
q oq C
I Y • 'Y
)Y �, � Cir f
`' r� C-R-PD
C/OS-10
S
Change from C/OS-to
:I to O-PD
O/ti_S
v v1
PF
1 / y
• V
�-/ C-S d
H6
"The Prado-Elks Regional Center"
Pro posed General Plan Map Amendment
N
.. ........ .............0
>
.. .......A
S�,,wx
......... ..
J
X
...... .....
->;v�N.,
7
A2,
Fx
.. ...... ....
. ..4
r
WWII 'J.-
.He
ir .................
. . ........
......................... .
.. ....................
...................
....................
. .....................
Change from interim Open Space
to Office
................
................
7
. .... . ... ....
E
......... . ...... ......
............................
...... ..... .................
........................
No.
..r.'.
uo-WWI 2"
1 s�. ✓ t
K a
i
!1 •t �i:i: .:itiiii::�i L
. I� , '`� ;,; III I I I I I � -r \ • —1r1
I , � r
_ — +•/�:;;`' .gyp,,, r '•,}``
,—• / j .I ` J —;moi .,,.,i
!ill
It
II IIl
1""'" � �J, ..�.�,�1'�" �,.7+ '�:� •sem_>:`.�+•
U >
General Plan Amendment Application
"The Prado-Elks Regional Center"
Request
1) Amend the General Plan Land Use Element Map for the subject property
from Interim Conservation/Open Space to Office. This would be
implemented through an O-PD zone. See the corresponding PD Re-
zoning application materials.
The property is proximate to land already designated for office to the east
of this site and near the Higuera-Prado intersection, which is one of the
"poles" designated for government offices in the City. It is also across
Prado from the City Corporation Yard and its related offices.
2) Amend the text of the Land Use Element to allow up to 15% of the square
footage of the buildings in this area to be used for commercial activities
which relate to and support the offices. These could include food service,
copying and printing, office supplies, etc.
Suggested text additions are shown underlined, below.
Add to Section C.5.b. (p. 22):
Other areas reserved for urban use include:
- An area north of Prado Road and east of Elks Lane, which may be
changed to an urban land-use designation when the flood hazard is
mitigated. The portion of this area abutting Prado Road is suited for office
uses. including oovernment offices. This area shall be considered apart of
the "Social Services pole" for government offices. which is generally
focused on the intersection of Prado and Higuera. UQ to 15% of the floor
area of new buildings may be devoted to commercial uses which are
related to offices. such as (but not limited to) food service, copying and
printing, and office supply sales.
The format of the LUE is likely to change in the update, which is currently
being considered. We request that the intent of this proposed amendment
be incorporated into the new format/language of any update of the LUE.
H9
General Plan Am ment
Application Stater,..nt
General Plan Amendment Statement
How the amendment carries out existing policies of the General Plan.
The general plan designates the subject property as "interim
conservation/open-space". This site (the area north of Prado Road and east of
Elks Lane) is specifically reserved for urban use; the land use designation may
be changed to allow urban development if the flood hazard is mitigated.
The proposal mitigates the flood hazard by allowing for all buildings to be
raised above the flood zone and/or flood proofed. Development will be
concentrated into a few buildings; most of the site will remain in open space.
By limiting development to a few, relatively small building pads, the amount of
water displaced by the raised pads is insignificant relative to expected volumes
during flood times.
The site is proximate to one of the three government "poles" called out in the
General Plan. Recently, the City has received several requests to allow
expanded government office locations. The City has generally directed that
these should continue to concentrate at the three designated areas, including
the South Higuera/Prado Road node. The subject site is part of the logical
extension of the government office uses currently allowed on the northwest side
of Higuera and Prado, across the creek to the east from this location.
The site is also directly across from a significant concentration of City offices
and facilities including the corporation yard, sewer treatment plant, transit
center, and related offices, training rooms, and similar uses.
The site is immediately adjacent to a freeway interchange, which will facilitate
easy access not only for employees, many of whom will be from outside the
area, but also for the public served by these offices. Many government offices
have a regional nature and serve a much larger community than just San Luis
Obispo proper. Thus, the convenient freeway access is an attractive component
of this plan.
The proposed amendment would also allow some related commercial
development to serve the workers in the new offices and in the nearby City,
County and other office complexes. This will help achieve goals related to
reduce dependence on the automobile by locating mutually supporting uses
proximate to one another.
A designation that affords the flexibility to allow office and some related
commercial is the preferred one for this location. Because of its proximity to the
freeway, the site is not suitable for residential purposes. There are no nearby
residential neighborhoods which could be affected by an office project in this
location.
Cranford Multarl & Starr planning - architecture • public policy
2
/-20
General Plan Am& -►ent
Application Statem�..,
How the or000sed change relates to other General Plan elements
The most important element besides land use which has bearing on this
proposal is the Circulation Element. A draft revised element contemplates the
extension of Prado over the.freeway. The subject site is sufficiently large to
accommodate the likely overpass/interchange design. If the proposed over-
freeway link is built, the.argument for office use at this location is strengthened.
With appropriate mitigations, there will be no flood hazard or other safety
concerns; noise impacts from the freeway can be readily mitigated for the
proposed non-residential uses.
No other element directly affects this-site or this project.
Crmvrord Multarl& Starr planning -architecture •public policy
3
- -J
PD Rezoning Application
"The Prado-Elks Regional Center"
Request
Rezone the property (see attached map) from C/OS-10 to O-PD. The General
Plan Amendment application includes a discussion of how this proposed
change carries out existing LUE policies and suggests text amendments to
clarify the intent for this area.
Preliminary Development Plan
A. Legal Description.
See attached.
B. Statement of Objectives.
The principal objective is to transfer this property from interim open space
to urban uses, specifically, a phased office development, including
offices for public agencies. The PD will be developed in phases as
demand for office space, particularly in the public sector, increases. The
site is a logical extension of the government office node designated at
Prado and Higuera: it is proximate to and can be easily linked with the
existing office facilities; it is directly across from the City offices and
facilities at the Corporation Yard, transit center and sewer treatment
plant; it has immediate freeway access for employees and for office
clients; it is not proximate to any residential neighborhood which could
be disturbed by traffic associated with office uses; the site is not suitable
for residential development due to proximity to the freeway and the over-
crossing of transmission lines.
Some commercial development in conjunction with the offices would be
preferred. The commercial uses would be intended to serve the workers
in the offices on the subject site, at the City facilities across Prado Road,
and in the other government offices existing and contemplated at the
intersection of Prado and Higuera. The PD, with the accompanying
General Plan text amendment, provides the flexibility to accommodate
some related commercial uses with the offices.
The intent is to create a more campus-like environment by developing
large landscaped setbacks along the street frontages and around the
buildings. The buildings will surround and focus on a large central plaza.
—z0�.a
PD Re-zoning
Preliminary Develc ant Plan
The proposed project also includes 2000 square feet reserved for a day
care center in Phase One (Building C). Note the adjacent play area,
which would be protected by a solid wall or fence.
The site also includes areas for transit pick-up and drop-off (for example,
see the turn-out in front of the fountain and plaza).
Pedestrian access to Higuera-Prado will be achieved by sidewalks along
Prado (secondary pedestrian access to the Walter Brothers Center may
be possible over the creek; there is currently an intervening parcel
between the subject site and the creek).
The attachment of the PD suffix allows the City to review and approve a
preliminary development plan at this time, which can address the
preliminary land use mix, circulation patterns and development
standards for the property.
See also the General Plan Amendment Statement for further discussion
of objectives and intent.
C. Schedule,
Building C would be the first phase of the project. It would be constructed
in approximately one to two years from approval of the Planned
Development. This building will include the day care center and play
area.
Later phases would be built as demand for additional office space
increases. Buildings A and B would constitute the next two phases. A
likely scenario would be development of one additional building every
two to three years. Total build-out would occur over a period of 10 years
or so.
D. Sales/Lease of the Property,,
No definite plans on the further sale or lease of the property has been
determined. The option for sale or. lease will largely depend on the
needs of the end users.
E. Project Statistics.
See attached site plan.
Crawrord Multari S Starr planning - architecture - public policy
2
/-,�3
PD Re-zoning
Preliminary Dever, hent Plan
F. Variances.
A height exception is proposed for all the buildings. The usual height
limit in the O district is 35 feet (with approval of a minor use permit). The
following heights are proposed for each building:
Building A: 45 feet (three stories)
Building B: 65 feet (four stories)
Building C: 55 feet (three stories)
Building D: 55 feet (three stories)
These limits will allow three to four story buildings with some roof line
variety. The additional height also allows the building footprints to be
more compact, reducing the area which needs to be raised out of the
flood zone.
The same floor area can be developed by designing lower, more spread-
out buildings. The preferred approach will make the pads smaller,
increasing the landscaping around each building to create a more open
environment, oriented around a large plaza.
A four story building will be of comparable scale with the hotel which is
almost directly across the freeway from this site and with the drive-in
movie screen on the adjacent property.
G. Site Plan and Maps.
See attachments.
H. Nearby Land Uses.
East of the property is Highway 101. North is the drive-in theater. South
is the City corporation yard facility. East is another narrow parcel which
is largely vacant, San Luis Obispo Creek, and across the creek, the
"Walter Brothers" office complex.
As noted elsewhere, the proximity to the Higuera-Prado government
office node, the existing City facilities, and to the freeway all argue that
this is a logical expansion of office opportunities here.
The drive-in theater site will likely transition to new uses some time in the
future. The owners are currently not interested in including this property
in this plan.
Crawford Multari S Starr planning • architecture • public policy
3
PD Re-zoning
Preliminary Develof ani Plan
The site is capable of accommodating the proposed uses and the
freeway overpassAnterchange if that is necessary. The applicants will
offer to dedicate adequate area for the interchange.
A new road is proposed extending from Prado Road which would provide
access to the newly created buildings and parking lots. This road will
align with one of the main entrances to the corporation yard.
Other Information.
1. Uses
The proposed building area is approximately 127,000 s.f. total (all
phases). Of this all would be devoted to offices except 2000 s.f. for a day
care center and up to 15% of any building which may be used for
commercial uses related to the offices. We propose that the type of
commercial uses be spelled out in the precise plan for each building.
2. Land for the Interchange and Road.
The applicants propose to offer to dedicate land necessary for a future
interchange/overpass and to develop and offer to dedicate the road that
serves the project itself (the re-routing of Elks). Dedication of the land for
the interchange and the new road would be offered to the City, unless the
City indicates that they would prefer the interchange dedication be made
directly to CalTrans.
3. Common area and reservations.
Approximately 248,000 s.f. or 87% of the site remaining after roadway
dedications will be reserved as common open space. See site plan for
break down between parking/drives and landscaping/plaza areas.
4. Archaeology Report.
An archaeology/history report for the property has been prepared and is
attached.
5. Traffic Study.
A traffic study is being prepared for the proposal (in anticipation of the
environmental review) and should be complete within two weeks.
Crawford Multari & Starr planning - architecture - public policy
4
" /
San Luis Obispo
PCAE Tower
i .�r-�-.p ,._� yi ylC�.i "' �. r� R'f �}"Y'__'� .."y'�+'!�,� '4•
lot
FIL
� LTi i.,.��Q ;J�e �p'ity �'Y :^S .." 4� .%.et��P' �y.. �� � •-�� ° '( �• +t F ,_�� �a� :��.. �" ;F-:
c 1�
i
MassingStudy of proposed • • • (-1the RegionalCenter, • • R• San LuisObispo,
I
PHO
Mum
Reference Plan
::
SOCIAL SERV ES AREA
S • •
It
• •
o i 0
Ul
Z.
• ..........
— .� ..s i �J =i I •
lit
.i:
[%•::.;:>;:•;;::;;: •>:.>,;;:: .r?::. ti/ ..« i' elm :.__.\ J •j Sl.. 3•+: �� i
•� _ .. ..�....�..;..: (a
•
O
u
T
r. M
k€[ J
. -- wevueRAau
.
f .
.. I
t; . .� . . . . • • •
ON, E. _1
EMPRESA DRIVE
r �t...yyy���ryryrysv j
11 i 1..:11 .: + D ALIGJTA CT.
• I: - D N _ I SI''"ate !�_ i ,1
D 4 O
I
� o'o
"MELLIA CT.
Ln 0
1 < � •'
D
Source: City of SLO Planning Division (from Planning Commission's vC!3°el "
draft LUE Update)
Dotted line: Approximate boundary COURT° G
Shaded areas: some potential development sites —,'� 7
Profess ions
} ce Fdl c'es X77 LUE
2. Isolated office uses within residential areas or convenience
commercial centers should be discouraged. Top priority should be
given to infill of professional office development in areas adjacent
to the Central Business District. Continued use and limited
expansion of office areas outside the periphery of the Central
Business District may be provided for only when such areas (1) have
direct access from other than residential streets, and will not
require or encourage circulation of commercial traffic through
residential areas, (2) provide transition between residential and
existing commercial or industrial uses, and (3) are based on an 'C
established group of offices. Commercial or professional office uses
locating in such areas should be limited to those with >3 close ;'-
functional relationship to medical and legal-government-financial
centers elsewhere in the city. Large professional office buildings
which can include multiple tenants but with no single tenant space
less than 2,500 square feet may be established in service
commercial/light industrial areas subject to the approval of a
Planned Development (PD) zoning application and compliance with
criteria set forth in the zoning regulations. This last provision
notwithstanding the dispersion of banks, real estate offices,
financial institutions, medical clinics, and doctors offices, and
lawyers offices throughout the city is prohibited.
3. Where historic or architecturally significant -buildings are located
in districts designated for office use, the city should encourage
their long-term conversion and conservation rather than replacement.
4. The city should review all requests for conversion of residential
uses to professional office activities to ensure (1) their ability to
adequately function as office uses, compatible with the surrounding
neighborhood, and (2) the preservation of the historic and
architectural character of the structure where such features are
considered significant.
S. Professional office uses should be conditionally permitted within
comparison retail commercial areas of the Central Business District
and encouraged to utilize floor space above street level, thereby
avoiding interference with or the reduction of valuable ground-floor
retail activities.
6. Primary access to professional office activities should be provided
from commercial arterial or collector streets and should avoid the
use of local residential circulation.
7. As an alternative to or as a transition in professional office areas,
medium-density residential uses may be conditionally considered.
8. Regional administrative and financial offices shall be considered as
appropriate uses in certain comparison retail commercial areas and
shall not be allowed to disperse to convenience shopping, service
commercial/light industrial or professional office areas.
17 -z
Retail activities and offices not directly associated with permitted
commercial or industrial uses should be discouraged. However, large
professional office-buildings which can include multiple tenants but
with no single tenant.spaces less than 2,500 square feet may be
-established in service commercial/light industrial areas subject to
the approval of a Planned Development (PD) zoning application and
compliance with criteria set forth in the zoning regulations.
f. Rural Industrial Policies
1. Rural industrial activities should (1) be situated on parcels not
less than five to ten acres in area, (2) be adequately served by
private on-site water and sewer systems, (3) be limited to activities
which are not employment-intensive (less than 25 employees each), (4)
be situated on parcels which have 300 feet or more frontage on
present county roads, and (5) not include any commercial or service
commercial/light industrial uses.
2. Residential dwellings should generally be prohibited within rural.
industrial areas; rural industrial uses may include on-site
provisions for caretaker facilities as accessory to the use.
3. Owners of property within areas designated as rural industrial should
be encouraged to participate in short- and/or long-term agricultural
preserve contracts with minimum allowable parcel sizes of five to ten
acres or larger.
4. The city should consider the eventual discharge of treated effluent
from the city's sewage treatment plant at Prado Road to nearby rural
industrial/agricultural areas to encourage the continuation of
agricultural uses in these areas.
4. Public Facility Land Use Objectives
City Hall will remain at its present location. County courts and legal
and general administrative functions (such as technical services,
assessor, planning, engineering, elections, board of supervisors staff,
clerk) should remain and expand as necessary in the downtown. County
hospital and health department should remain and if necessary expand on
county property on Johnson Avenue.
County Welfare (social Service Department), the California Employment .
Development Department, and eventually Social Security should relocate to
a consolidated social services center on South Higuera Street near Prado
Road. Probation should be located near courts or near the sheriff's
facility. The juvenile facility should be located near the existing
county sheriff's facilities.
The city will locate its facilities and advocate location of other
agency's facilities in order to:
(a) Remove nonconforming uses from residential neighborhoods.
1—�9
21
(b) Foster convenient public access to those uses serving the public
directly.
(c) Grouprelated public offices together.
(d) Locate facilities with significant numbers of employees or clients
near complementary non-governmental services (restaurants,
convenience shopping).
(e) Make economical use of land and buildings already owned by public
agencies and minimize the displacement of existing private businesses
or residents.
S. Open Space Policies
Areas not designated for urban uses will be designated within an open
space category. As described in the Growth Management Objectives (C.La
above), the city will not designate more land for urban uses than its
resources can be expected to support. Open space lands will define the
edges of the city so that it will remain a comprehensible, identifiable
place.
a. Conservation/open space
Areas intended for permanent open space will be designated
"conservation/open space.' This designation will be applied to land
which is unsuited to urban use because of: infeasibility of
providing access or utilities consistent with policies under C.Ld
above; excessive slope or slope instability; wildland fire hazard;
noise exposure; flood hazard; scenic value; ecological sensitivity;
and agricultural value.
Uses within this designation will generally be those not requiring
urban services, major structures, or extensive landform
modifications. Parcels will be kept large, generally five to 40
acres. Minimum parcel size will be determined when the area is
zoned, considering consistency with general plan policies and the
development potential of the land.
b. Interim conservation/open space
Areas to be kept open until urbanization is appropriate will be
designated "interim conservation/open space." Such areas, and the
prerequisites for their conversion to an urban use, are identified
below.
Allowed uses and parcel sizes within interim conservation/open space
areas will be the same as in conservation/open space areas. However,
there will be an emphasis on maintaining productive agricultural uses
until urbanization is actually needed.
Before any interim conservation/open space area is urbanized, a
development plan (under specific plan, planned development, or use
permit) must be approved.
22 /-30
Major expansion areas which may eventually be used for residential
development are identified by name on the plan map: Irish Hills,
Dalidio, Margarita, Orcutt. They may not be urbanized until their
water supply and treatment needs, in addition to those of all
potential development within the city, can be met. Specific plans
for these areas will determine basic circulation and subdivision
patterns and may provide for a range of densities within the overall
potential of low-density residential, in order to meet the goals of
the Housing Element.
Other expansion areas, located on South Broad Street, are reserved
largely for residential development consistent with the Edna-Islay
Specific Plan, with some service commercial/light industrial uses
along Broad Street.
Other areas reserved for urban use include:
An area north of Prado Road and east of Elks Lane, which may be
changed to an urban land-use designation when the flood hazard is
mitigated.
- About 11 acres between Los Verdes Park and San Luis Obispo Creek,
which may be used for residential development when the flood hazard
is mitigated and, if the area is still beyond the four-minute fire
response time, when the fire marshall approves fire safety measures.
A sizable easement shall be maintained for the creek and an equitable
contribution obtained towards the Los Osos Valley Road interchange.
- An area bounded by Elks Lane, San Luis Obispo Creek, and Highway
101, which may be changed to an urban land-use designation when the
flood hazard is mitigated.
D. HILLSIDE PLANNING POLICIES AND STANDARDS
L . Statement of Purpose
The City of San Luis Obispo establishes comprehensive standards and
policies for hillside development for the following reasons:
a. To protect and preserve scenic hillside areas and natural features
such as the volcanic Morros, ridge lines, rock outcroppings, and
steep slope areas that function as landscape backdrops for the
community.
b. To set the limits of commercial and residential development in
hillside areas by establishing a permanent open space green belt at
the edge of the community.
C. To protect the health, safety and welfare of community residents by
directing development away from areas with hazards such as
landslides, wildland fires, rapid drainage and erosion.
23 k_31
Land Use Element Upc,__.: .ening Commission Draft
S. Airport area
Desired land uses and development patterns for this area are included under.
the "rural industrial" heading, .page 37. In addition to these limits, there are
standards of the County Airport Land Use Commission, intended to assure
compatibility with airport operations. These standards include limits on the
height of structures, outdoor lights, reflective roof materials, and radio
interference. Avigation easements may be required in this area.
6. Damon-Garcia area, south of the Prado Road extension
[An appropriate use for this area has not been resolved, even tentatively.
Further work on the Margarita Specific Plan and the Airport Land Use Plan is
expected to lead to a choice among the possible agricultural, rural-industrial,
recreational, or residential uses.]
7. Drive-in theater at Prado Road and Elks Lane
This area may be further developed only if flooding can be mitigated without
significant harm to San Luis Obispo Creek. Continuation of agricultural use or
low-intensity recreational use is appropriate.
8. Mid-Higuera area
[Desired uses for this area would be determined after the proposed sorting-out
of allowed uses/areas in the C-S zone; see policy 3.17.]
The city will prepare and adopt a plan for this area showing any desired street
and driveway changes, and creek channel widening. The plan could also serve
as a "conceptual redevelopment plan," guiding private construction on sites
affected by widening of Higuera Street and the creek.
moo: LU&SDA P 42 /_��
MEETING
AGENDA
Crawford Multari & Starr DATE - - iTEM#�_
planning architecture public policy
iE ry C—Or: STO:
R E C E I V
I � CGiLlOQ LJ CLt�I�..�!�.
NOVf 1 G^o ❑ i� U. I
November 1, 1991 d 1991 �cro O r:ricl,T
CIN CLERK if CL:1K/C" u PILI_ C�.r.
Honorable Mayor and City Council CA•!'LL's O�!Op(j CA ❑ il:C`.T%T= Li BIi1
City of San Luis Obispo c r:.�r L [jr_�
990 Palm Street �� -� F/LE "
San Luis Obispo, CA -----
Dear Mayor Dunin and Council Members,
On Tuesday, you are scheduled to consider our request for a General Plan Amendment and PD
Re-zoning to create a master planned area for regional offices at the comer of Prado and Elks.
This request was denied by the Planning Commission, the majority of whom thought the change
in land use designations was premature (among other reasons). Our discussion with the
Commission was cordial, and we understand what they recommended. However,we disagree
with their conclusions. We think this change in use is logical,timely and in the best interests of the
community. Much of our rationale is contained in our application materials (see pp. 1-19 through
1-25 in your staff report).
In this letter,we would like to respond to the Planning Commission's findings for denying the
request. But first, here is a brief summary of our concept:
The site would be used for a master-planned regional office center, designed with a campus-
like character,to be implemented in phases over several years. The center is intended for
larger offices, specifically,the regional offices of government agencies and private
companies.
We think this location is a logical extension of one of the office"poles"in the General Plan.
That pole is focused on the intersection of Elks and Prado, and our site is between the pole's
center and the freeway ramps. There are already government offices directly across Prado
from the site at the Corporation Yard. Our adjacency to the freeway reinforces our belief that
the site is appropriate for offices serving a regional clientele. There would be less traffic on
our local streets and in our neighborhoods.
Our master plan has the flexibility to accommodate the possible freeway overpass and revised
interchange if the city and Cal Trans decide to go forward with it, by reserving the necessary
land in open space. In the mean time,we can use that land for landscaping, recreation
facilities or extra parking.
Our proposal includes several features the City has encouraged in new development. For
example,we have included an on-site day care center in the first phase. We will initiate a traffic
demand management(TDM) program to encourage ride sharing and non-auto transportation
to the site. The concentration of employees on this site and in the vicinity generally
(especially so close to the freeway), makes it ideal for realistically implementing such a program
in this area. The plan includes transit drop-offs and pick-ups next to a large plaza. This transit
stop could be used by persons working elsewhere in the office pole,too. We also envision
pedestrian links to the remainder of the pole, not only on the sidewalks, but also over the
creek, someday,to the Walter Brothers complex.
We also suggest a change in the General Plan text to allow up to 15%of the square footage of
the buildings to be used for office-related commercial such as blueprinting or food service.
This way, there will be fewer car trips off the site to these kinds of services.
641 Higuera St.. Suite 202 - San Luis Obispo. CA 9301 !605) 541-3848 Fax ;605) G1-9260
City Council
Prado/Elks Appeal
Page 2
We would now like to address the Planning Commissions reasons for denying the project.
I. "The proposed project is premature due to the pending adoption of the LUE and Circulation
Element."
We think this project is a case where the City can be pro-active about a land use problem,
namely,the proper location of large-scale regional offices. Currently these offices have
difficulty locating in San Luis Obispo and are increasingly scattered in the CS zones. There
are some distinct advantages in having them locate together such as opportunities for transit,
ride-sharing and other TDM programs, day care, as well as convenience for customers.
We also understand that the City is working on a natural gas service station in the vicinity of our
site. Locating more jobs nearby makes sense and may enhance the feasibility of that facility.
Our project is envisioned in phases, to be built as demand grows, over perhaps as long asl0
years. By approving a master-planned center, the City would be able to direct these kinds of
uses to an appropriate place (similar in concept, perhaps,to the Higuera Commerce Park),
where the character would be pre-planned and the public benefits like transit stops and day
care already built in.
The Council has already indicated that General Plan amendments in the urban reserve may be
processed while the update is going on, so this request, by Council policy, is timely. Frankly,
the update is progressing at a slow pace and we think our proposal is an idea which warrants
approval now.
2. "The proposed project does not conform to the tri-polar policy regarding government offices."
The tri-polar policy has evolved over time and by practice the City has encouraged all types of
government offices to concentrate in this pole. We think there are good reasons why larger,
regional offices, of both public and private entities, should locate together in this area, as
noted above. If necessary,we can suggest text changes to the tri-polar policy which would
clarify what the City has been practicing for many years, similar to the ideas raised by
Commissioner Gurnee, recently.
3. "The proposed project as a regional business center will be detrimental to the downtown area."
The project is for larger scale, regional serving offices, not commercial uses. These larger
offices are not, and generally can not, be located downtown. Empirically, there are no large
scale regional offices downtown (except for the city and the county). The City explicitly
allowed larger offices outside the downtown when it permitted them in the CS zones subject
to PD approval, in recognition of the fact that these uses are not feasible downtown. As
noted above,we think putting them in a center associated with an existing and growing
government office node near the freeway makes more sense than to continue to allow them
to be dispersed throughout the City.
Planning Commissioner Dodie Williams,who was the BIA administrator for several years,
stated at the hearing that she did not believe that locating regional offices at this site would
have any substantial impact on the downtown's vitality.
4. 'The proposed project is in conflict with the city's goal to maintain county offices in the
downtown."
It is not clear how the subject proposal would affect the county's downtown presence. The
county is already building,with city approval, a new social services office complex near our
site. It is unlikley that the county would move any downtown offices to our center.
Crawford Multari& Starr planning • architecture • public policy
r City Council
Prado/Elks Appeal
Page 3
5. The proposed project will conflict with the existing and draft policies of the L UE"
With the relatively minor text amendments we suggest, the project should reconcile with the
existing LUE quite well.,We acknowledge that our proposal is decidedly different from the
Planning Commission's recommendation for the draft LUE. The Commission envisions this
area as open space or commercial recreation uses. We do not believe that those uses are
best for this location, which is proximate to a government node and to the freeway. We
believe the existing LUE is more on the mark: the land can be used for development subject
to the flooding problem being solved. That brings us to the next issue.
6. "There is need to address flood control for the area.
We agree . There are three possible ways to address flooding here. 1)The land can remain in
open space. That is clearly an option. We believe for the reasons cited above and in our
application,this is not the best use of the site. 2) The creek can be modified to accommodate
flood flows. This will require massive grading in a large area of the creek. We just do not
believe that is the way the community is looking at flood control today. 3) Do not disturb the
creek and make sure all development is concentrated on small pads to minimize floodwater
displacement and is raised above the flood levels. We have chosen the last option in our
plan. The offices are concentrated into four multi-level buildings, such that the amount of
floodwaters that maybe displaced is insignificant. Further,the buildings themselves will be
raised above the flood levels. Thus, the buildings are safe,the creek is undisturbed and
adjacent properties and facilities are unaffected. This seems to be the best solution.
7. "There is a need for an overall plan for the area.
Our proposal provides a long term master plan for a substantial amount of land. We have
talked to our neighbors to the north (Sunset Drive-in) who did not object to our proposal but
requested that they not be included in any planning at this time. We have respected their
request. We do not think that such a plan is necessary. Our proposal makes sense given its
location on the corner and at the the freeway interchange, and given the existing office uses
in the vicinity.
In sum,we think we have a good idea which is timely and beneficial. We look forward to
presenting our ideas to you further at the meeting.
Sincerely,
�/L G'LG�CClii'
Michael Multari
cc: Pam Voges,John Dunn,Arnold Jonas
Crawford Multari&Starr planning • architecture • public policy