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HomeMy WebLinkAbout02/16/1993, 4 - CONSIDERATION OF A PLANNED DEVELOPMENT REZONING AND PRELIMINARY DEVELOPMENT PLAN TO ALLOW OFFICE USES AT TWO LOCATIONS WHERE THE BASE ZONING IS MEDIUM-HIGH-DENSITY RESIDENTIAL (R-3) AND TO REDESIGN A PARKING LOT WHICH HAS BOTH OFFICE (0) A IIfNAIyIIIn,llllll�l IIUIII MEETING DATE: II NN lu la` city of San ' Is oBIspo .9-/(.- ' �3 COUNCIL AGENDA REPORT ITEM NUMBER: 0 From: Arnold Jonas, Community Development Director Prepared by: Whitney McIlvaine, Associate Planner Subject: Consideration of a Planned Development rezoning and preliminary development plan to allow office uses at two locations where the base zoning is Medium-high-density Residential (R-3) and to redesign a parking lot which has both Office (0) and Medium- high-density Residential (R-3) zoning. (PD 192-92) CAO RECOMMENDATION Introduce an ordinance to print amending the official zoning map from O to O-PD and from R-3-H to R-3-H-PD, and approving the preliminary development plan, based on findings and subject to conditions. DISCUSSION Planning Commission Action and Purpose of Proposal On January 13 , 1993 , the Planning Commission voted 4 to 1 (with 1 absence and 1 vacancy) to recommend approval of a Planned Development request to (1) enable San Luis Medical Clinic to utilize a duplex at 958 and 960 Pismo Street for the clinic's administrative offices; (2) convert a residence at 1336 Morro Street to a combination residence and professional office; and (3) increase the capacity of the parking lot at the interior of the block by using tandem parking for employees. The Planning Commission's specific recommendation is outlined in an attached letter, dated January 15th, notifying the applicant of commission action. The attached commission staff report and hearing minutes provide more detailed discussion of the project and its land use implications. Physical Impact of Proposal Overall the proposal's impacts on the physical environment would be negligible. The primary construction activity involves resurfacing and restriping an existing parking area. Minor changes to the duplex to improve handicap access and some interior remodelling to better accommodate the proposed office use are anticipated. An addition to the residence at 1336 Morro Street to house a professional office as well as the dwelling is also proposed. The addition to 1336 Morro Street is still in the conceptual stage and will require architectural review. General Plan Consistency The main issue associated with this request is consistency with 111111%1► IIIIII$1110��111 city of San L s OBISPO COUNCIL AGENDA REPORT general plan land use policies regarding the location of office uses and the conservation of housing. Staff's analysis concluded that locating offices near the downtown appears to be consistent with general plan policy. The Planning Commission concluded that the project is also consistent with housing conservation policies for two reasons: (1) A dwelling will be maintained at 1336 Morro Street; and (2) establishment of an office in the duplex at 958 and 960 Pismo Street does not represent a loss of housing because the duplex has not in fact been used for residential purposes since 1977 when a use permit was granted to Grace Church to allow classrooms for Bible study at this location. For further analysis of relevant general plan office and housing policies, please refer to the attached planning commission staff report. ALTERNATIVES The Council may: (1) continue the item for additional information or discussion; or (2) adopt the attached resolution and deny the planned development, finding it to be inconsistent with general plan policies. RECOMMENDATION Pass to print an ordinance which affirms the project' s negative declaration, changes the official zoning map designation from O to 0-PD and from R-3-H to R-3-H-PD, and approves the preliminary PD plan, subject to the recommended findings and conditions. Attachments vicinity map draft ordinance Attachment "A" proposed zoning Attachment "B" proposed development plan Attachment "C" environmental mitigation draft resolution existing zoning and site plans notice of Planning Commission action Planning Commission staff report (including other dept. comments) minutes from 1/13/93 initial environmental review 02 Land Use Element Update Hearing Draft Ll V. ol 01 00 0 W4 s `• I i p� O`� f f: ... ° ` : ::....... .. : ::: ; e:.• `: :• ••?'::::: •: _ In.'.'::� w +� ....... ...... ... �S :'r :::•:::::::::'•.'•:.:::::::" 0, .�:s€�� �•:.::::::::::::•'.. : :� of ............ .. ...... ... .. ........... .. ..... ... '.. r N. �.. a '.............. ... r ........... . ................... . _ 4 RACNEL ............. . ......... .. .:::....... 1/0 CT N SCALE r=soo• CORE FIGURE 3 DOWNTOWN PLANNING AREA #�-3 • 36 n• 1 ORDINANCE NO. (1993 SERIES) AN ORDINANCE OF THE CITY OF SAN LUIS OBISPO APPROVING THE PLANNED DEVELOPMENT PRELIMINARY PLAN FOR AFFECTED LOTS IN THE BLOCK BOUND BY OSOS, PISMO, MORRO, AND PACIFIC STREETS, AND AMENDING THE OFFICIAL ZONE MAP FROM 0 TO O-PD AND FROM R-3-H TO R-3-H-PD (PD 192-92) WHEREAS, the Planning Commission and the City Council have held hearings to consider appropriate zoning for the subject site in accordance with Section 65800 et. seq. of the California Government Code, and Chapter 17 . 62 of the Municipal Code. -NOW THEREFORE BE IT ORDAINED by the City Council of San Luis Obispo as follows: SECTION 1. Environmental Determination. The City Council has determined that the project's Negative Declaration adequately addresses the potential significant environmental impacts of the proposed rezoning, and that conditions of approval correctly reflect the mitigation measures outlined in Attachment "C" , Appendix "A" of the initial environmental study (ER 192-92) . SECTION 2 . Zoning Map Amendment. The site shall be rezoned O-PD and R-3-H-PD as shown on the map marked Attachment "A" and included herein by reference, subject to the findings and conditions below. SECTION 3 . Preliminary Development Plan. The preliminary development plan, marked Attachment "B" and included herein by reference, is hereby approved subject to the findings and conditions below. 'SECTION 4. Findings and Conditions. Findings. 1. The proposed project provides exceptional public benefit by enabling a compatible mix of office and residential uses that would not otherwise be feasible with conventional residential zoning. 2 . The proposed project is consistent with the general plan policies related to the appropriate location of office uses and the conservation of housing. Specifically the project would not eliminate existing housing and meets all of the following criteria for expanding office uses outside the peripheral area of the Central Business District: a. The --project has direct access from other than residential streets and will not encourage �-y 2 circulation of commercial traffic through residential areas. b. The project will provide a transition between existing commercial uses and residential areas . C. The project is based on an established group of offices. 3 . The proposed project is consistent with general plan policies related to housing conservation. Specifically, the project will not eliminate -existing housing. 4 . The proposed project is appropriate at the proposed location and will be compatible with surrounding land uses. 5. By readapting rather than replacing existing structures, the proposed project is consistent with City policy regarding the preservation of historic neighborhood character. 6. The proposed project will not be detrimental to the health, safety, and welfare of persons living or working in the area or at the site. 7 . The Planning Commission reviewed and concurs with the draft mitigated negative declaration, which concludes that the project will not have any significant adverse impacts on the environment, subject to the mitigation measures shown in the attached Appendix A being incorporated into the project. Conditions. 1. Parking layout, landscaping, and access shall be redesigned to avoid new construction within 15 feet of the valley oak tree, and provide additional screening of the parking area from the street to the approval of staff. Seven pairs of tandem parking spaces are approved for use by employees only during normal office hours. Parking for the new offices at 958 and 960 Pismo Street and at 1336 Morro shall be provided either on or off site in addition to the 86 spaces currently provided on site. 2 . A minimum of one dwelling shall be maintained as part of the floor area at 1336 Morro Street, in addition to the allowed office uses. 3 . An exception to allowed signage in a residential zone is hereby granted to allow a maximum of one wall sign with a total area not to exceed three square feet for each of the two new office uses. 4 . Any change in addressing as a result of project approval shall �-s 3 be to the approval of the Community Development Director. 5. Both dwelling structures at 958 and 960 Pismo Street and at 1336 Morro Street shall be retained. The residential and historic character of the structures shall be preserved. 6. Prior to any construction or demolition activity which the City Arborist determines could adversely affect the valley oak at 1336 Morro Street, a tree preservation bond in the amount of $7 , 500 shall be submitted to the Community Development Department and shall be held for a period of one year from the date of project completion. 7 . Construction or grading of any type shall be prohibited within 15 feet of the valley oak tree. The tree shall be protected from any nearby construction or grading activity by a rigid fence to be located 15 feet out from the tree to the satisfaction of the City Arborist. 8 . The applicant shall file a precise development plan for City approval within six months of preliminary plan approval for the project. The precise plan shall address all conditions of preliminary plan approval as well as any phasing details with associated deadlines for submitting precise plans for each phase. The preliminary development plan shall expire if the precise development plan is not filed and approved. 9 . Any change to the uses approved as part of the PD rezoning, except reversion to residential use, at 1336 Morro Street shall require approval of an administrative use permit. Proposed changes shall be at least as compatible with the surrounding neighborhood as the approved uses. 10 Administrative office use for the San Luis Medical Clinic is the only nonresidential use hereby approved for the property at 958 and 960 Pismo Street. At such time as the clinic ceases to use this structure for administrative offices, the structure shall be immediately restored for residential use. Any construction necessary to meet building code requirements for residential occupancy shall be the responsibility of the San Luis Medical Clinic, to the satisfaction of the Chief Building Official. SECTION S. Publication and Effective Date. This ordinance, in summary form, together with the names of council members voting for and against, shall be published at least five (5) days prior to its final passage in the Telegram Tribune, a newspaper published and circulated in this city. This ordinance shall go into effect thirty (30) days after its final passage. �r �p 4 INTRODUCED AND PASSED TO PRINT by the Council of the City of San Luis Obispo at its meeting held on the day of , 1993 , on motion of seconded by , and on the following roll call vote: AYES: NOES: ABSENT: Mayor Peg Pinard ATTEST: City Clerk APPROVED: OIL-, r City Ad inistrraator ' tor ey Community Deve pment Director Attachments: "A" - proposed rezoning "B" - preliminary development plan "C" - mitigation measures '� '1•wY �. U .d' ..^ 'r a h0.{ f� ' 444 p �P rj. �O .r6 •� V �6 ^ r c Tq % Ir r G GRAPHIC SCALE: 0 s0 100 200 r' �• VICINITY MAP PD 192-92 NORTH Proposed Zoning A ArTW M em ��A -8 I �• � -C O ' er 1 I s I !E Pacific Slreel 971 1171 17 71 Pismo 5Veel T 1 iir -.1.1 I'ru��aacd Silc 1'I.05 e .es LI I 1 �i• 5au Luiv 9cdirel Clinic •. mac_ III STAFF RECOMMENDATION Staff recommends the project be granted a mitigated negative declaration of environmental impact The project should be modified to include the following mitigation measures: 1. To offset the loss of housing as a result of the proposed office uses, the project should (1) retain at least one dwelling unit, however reconfigured, on each of the parcels where new offices are proposed, and/or (2) conditions of the planned development should stipulate that upon cessation of the specifically approved office use, the affected structures shall be returned to a condition suitable for residential occupancy. 2. Prior to any construction or demolition activity which the City Arborist determines could adversely affect the valley oak at 1336 Morro Street, a tree preservation bond in the amount of $7,500 shall be submitted to the Community Development Department and shall be held for a period of one year from the date of project completion. 3. Construction or grading of any type shall be prohibited within 15 feet of the valley oak tree.The tree shall be protected from any nearby construction or grading activity by a rigid fence to be located 15 feet out from the tree to the satisfaction of the City Arborist. A-WHW 1111 RESOLUTION NO. (1993 SERIES) A RESOLUTION OF THE SAN LUIS OBISPO CITY COUNCIL DENYING A REQUEST TO AMEND THE OFFICIAL ZONING MAP TO CHANGE THE DESIGNATIONS FROM OFFICE (0) TO O-PD AND FROM MEDIUM-HIGH-DENSITY RESIDENTIAL WITH AN HISTORIC OVERLAY (R-3-H) TO R-3-H-PD ON AFFECTED LOTS IN THE BLOCK BOUND BY OSOS, PISMO, MORRO, AND PACIFIC STREETS. (PD 192-92) WHEREAS, the Planning Commission and the City Council have held public hearings to consider appropriate zoning for the subject site in accordance with Section 65800 et. seq. of the California Government Code and Chapter 17 . 62 of the Municipal Code; and WHEREAS, the City Council has considered public testimony, the applicant's request, PD 192-92 , the Planning Commission's action, and staff recommendations and reports. NOW THEREFORE, the City Council resolves as follows: SECTION 1. Findings . 1. The proposed rezoning is inconsistent with housing conservation and neighborhood preservation policies in the general plan. Specifically, the rezoning would effectively commit an area zoned for residential use to nonresidential uses. 2 . The proposed rezoning is premature due to the pending adoption of an update of the Land Use Element. SECTION 2 . Rezoning and Preliminary Development Plan. The requests to amend the official zone map for affected lots in the block bound by Osos, Pismo, Morro, and Pacific streets as shown on Attachment "A" , and the request for approval of the preliminary development plan as shown on Attachment "B" are 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 1993 . Mayor Peg Pinard ATTEST: City Clerk APPROVED: �Cityministrator � � L l�li✓S'1/✓` A ng Community Dev pment Director Attachments: "A" - proposed rezoning "B" - preliminary development plan �'/'/� �• res' ,�,. �,e � Y\. � P' qO\,a° . � `;`eye- .h .:: ✓ f'O � ,o t � � Pj �. S Z 1� .•\ u c ... . n `Sees°occ°iaaece`e-icc �'i-` '' ':F�cc e-r.}• ` -r c:i �..=_ v ° oeeo a e°ei°O 'c- a°°€'c:G-ie°°<` 2ci°ilii`. -< <e _ ae`°°e°c`oeee - `���•_ °vecaeSS�a ie °°eee°p°"i<`ccOr°e(cos°o<<°e`e°peeece<°- ? ' oaoaeaeeeoe° o Mond"°aec e- ° c° � .... ... .. ie`.`o-oecai< G a es°°° a oee s°°°°cc oe o 000a °c ee e<o'e°ao°Ooe°cee r. •i ° e oe eo°o$$`°�°•_'e $�!!� c o°eca eeo° eS� ee°oeCea°eee°°pe° - A _ S/(y `o° Ge o eeooeeoe °e oe`v a°o° 0:95 < oc` eef °Cel°`�� ^'yam:c,<oo00pOO<ee< cie`aie°i oiaicc!e� 1°i-.r��ei_°e_';.� e�- c i6fi c: .-- 7-ikcE!O._.c•c °i c:- ° GRAPHIC SCAL� •'j a iiiveisR< «cOe io.;' , 0 s0 100 200 '-- Al ` c-'��=�c.f�:_ 4t �/v ; ,� GSC LO:•L �` ± -r1 \ �, 1 b'1x qof� K, 4 rt eo a c` '� U 4 ti C Ge..•.,e ro's VICINITY MAP PD 192-92 NORTH Existing Zoning A I o- ' I - O �. i`------ I j I i I j l r j -- ---_______�--_� j 1 77 .. f' I a•y-- I'` i R 4 i.."� I j i j-1',�,1/ ice—:! -'I' �� I I j . l � . I...� � .. . . .i. _ . . ._ . -. . I ? I' i. 4 •, ic,r... I � ..r. C:------------------------ z I I I� I it li i r1Y1f:0•i.CC I , � V I!ll' ii1111 II�IIII �i:,l�lj •ter.". .. - •_- I ,d!IiIIIIIII;jllli6:illi{!liliiillllilil;llliljii I I IjIII'Il���.i sAn Cly tuis oaspo In - 'ail qll I.I II III II 990 Palm Street/Post Office Box 8100 • San Luis Obispo, CA 93403-8100 January 16, 1993 San Luis Medical Clinic 1236 Osos Street San Luis Obispo, CA 93401 Subject: Planned Development Rezoning PD 192-92 1236 Osos Street, 968 Pismo Street, 1336 Morro Street The Planning Commission, at its meeting of January 1.3, 1993. recommended that the City Council approve your request to allow office uses in the Medium-density Residential. zone (R-3) and to redesign a parking lot with Office (0) and Medium-density Residential zoning based on the following findings and subject to the following conditions: Findings 1. The proposed project provides exceptional public benefit by enabling a compatible mix of office and residential uses that would not otherwise be feasible . _. ..., . with conventional residential zoning ��....:..:. ..:......:: 2. The proposed project is consistent with the general plan policies related to the appropriate location of office uses and the conservation of housing. Specifically the project would not eliminate existing housing and meets all of the following criteria for expanding office uses outside the peripheral area of the Central Business District: a. The project has direct access from other than residential streets and will not encourage circulation of commercial traffic through residential areas. b. The project will provide a transition between existing commercial- uses ommercial-uses and residential areas. C. The project is based on an established group of offices. 3. The proposed project is consistent with general plan policies related to housing conservation. Specifically; the project will not eliminate existing, housing. San Luis Medical Clinic January 15, 1993 Page 2 4. The proposed project is appropriate at the proposed location and will be compatible with surrounding land uses. 5. By readapting rather than replacing existing structures, the proposed project is consistent with City policy regarding the preservation of historic neighborhood character. 6. The proposed project will not be detrimental to the health, safety, and welfare of persons living or working in the area or at the site. 7. -_The Planning Commission reviewed and concurs with the draft mitigated negative _. declaration, which concludes that the project will not have any significant adverse impacts on the environment, subject to the mitigation measures shown in the attached Appendix A being incorporated into the project. Conditions 1. Parking layout, landscaping, and access shall be redesigned to avoid new construction within 15 feet of the valley oak tree, and provide additional screening of the parking areafrom'the street to the approval of staff. Seven pairs of tandem parking spaces are approved for use by employees only during normal office hours. Parking for the new offices at 958 and 960 Pismo Street and at 1336 . Mono'shall-be provided either on-or off site -in addition to the 86 spaces currently provided on site. 2. A minimum of one dwelling shall be maintained as part of the floor area at 1336 Morro Street, in addition to the allowed office uses. 3. An exception to allowed signage in a residential zone is hereby granted to allow a maximum of one wall sign with a total area not to exceed three square feet for each of the two new office uses. 4. Any change in addressing as a result of project approval shall be to the approval of the Community Development Director. 5. Both dwelling structures at 953 and 960 Pismo Street and at 1336 Morro Street shall be retained. The residential and historic character of the structures shall be preserved. 6. Prior to any construction or demolition activity which the City Arborist determines could adversely affect the valley oak at 1336 Morro Street, a tree preservation bond in the amount of $7,500 shall be submitted to the Community Development San Luis Medical Clinic January 15, 1993 Page 3 Department and shall be held for a period of one year from the date of project completion. 7. Construction or grading of any type shall be prohibited within 15 feet of the valley oak tree. The tree shall be protected from any nearby construction or grading activity by a rigid fence to be located 15 feet out from the tree to the satisfaction of the City Arborist. S. The applicant shall file a precise development plan for City approval within sir months of preliminary plan approval for the project. The precise plan shall address all conditions of preliminary plan approval as well as any phasing details with associated deadlines for submitting precise plans for each phase. The preliminary development plan shall expire if the precise development plan is not filed and approved. 9. Any change to the uses approved as part of the PD rezoning. except reversion to residential use, at 1336 Morro Street shall require approval of an administrative use permit. Proposed changes shall be at least as compatible with the surrounding neighborhood as the approved uses. 10 Administrative office use for the San Luis Medical Clinic is the-Q-uly nonresidential use hereby approved for the property at 958 and 960 Pismo Street. At such time as the-clinic ceasesto use this structure for administrative'office's,"' the structure shall be immediately restored for residential use. Any construction necessary to meet building code requirements for.residential occupancy shall be the responsibility of the San Luis Medical Clinic, to the satisfaction of the Chief Building Official. The action of the Planning Commission is a recommendation to the City Council and, therefore, is not final. This matter has been tentatively scheduled for a public hearing before the City Council on February 16, 1993. This date, however, should be verified with the City CIerk's office. If youhaveany questions, please contact Whitney Mc.Ilvaine at 781-7175. Since erely, ► J ' Arnold B. Jonas, re for Community Develop ent cc: Rob Strong CITY OF SAN LUIS OBISPO PLANNING COMMISSION STAFF REPORT ITEM # BY: Whitney Mcllvaine, Associate Planner MEETING DATE: January 13, 1993 FILE NUMBER: PD 192-92 PROJECT ADDRESS: 1235 Osos Street PROJECT SITE: Block bounded by Osos, Pismo, Morro, and Pacific Streets SUBJECT: Request for a Planned Development rezoning to allow office uses at two locations where the base zoning is Medium-high-density Residential (R-3) and to redesign a parking lot which has both Office (0) and Medium-high:density Residential (R-3) zoning. RECOMMENDATION Recommend that the City Council approve the rezoning with conditions. BACKGROUND Data Summary Applicant: Ken Chambers, San Luis Medical Clinic Representative: Rob Strong, Strong Planning Services Zoning: Medium-high-density Residential (R-3) and Office (0) in an Historic District General Plan Designation: Medium-high-density Residential (R-3) and Office (0) Environmental Review: A mitigated negative declaration is under review. The draft is attached to this report. Situation An application was received by the Community Development Department-requesting-a Planned Development rezoning to enable the location of administrative offices for the San Luis Medical Clinic in a residential zone. Zoning regulations require uses established in a PD zone to conform with the general plan. The Community Development Director determined that the establishment of independent office uses in a residential zone is inconsistent with the general plan, and that therefore, PD rezoning was not the appropriate mechanism for processing the request. Staff suggested that the applicant instead apply to amend the general plan land use map by rezoning the affected parcels from Medium-high-density Residential to Office. The Director's determination was appealed to the Planning Commission on November 18, 1992. The Commission upheld the appeal and determined that a Planned Development rezoning is an appropriate mechanism for requesting office uses in this location, subject to review for consistency with the general plan. The applicant is now requesting approval of the PD rezoning. This report examines project consistency with general plan policies related to the location of offices and the conservation of housing. Planning Commission action on this request will be in the form of a recommendation to the City Council. Site Description and Location The site is located very near the downtown commercial core and contains eight separate lots. It is relatively flat and roughly 55,000 square feet in area. It includes an 86-space parking lot, an office at 1322 Morro Street, a duplex at 958 and 960 Pismo Street, and a single family residence at 1336 Morro E A. The three remaining parcels ..ie block, which are not part of this rezoning request, are developed with residential uses and a church. Surrounding development includes housing, offices, another church, a park, and a neighborhood grocery. Significant vegetation on the site includes a large valley oak tree. Proposal San Luis Medical Clinic proposes to apply a Planned Development rezoning to most of the block bounded by Pacific, Morro, Pismo, and Osos streets. Roughly half the block facing Pacific Street is currently zoned Office (0). The remaining half of the block, facing Pismo Street, is zoned Medium-high-density Residential with an Historic zone overlay (R-3-H). The applicants propose to rezone four parcels, currently developed with parking and an office, to O-PD, and two parcels, currently developed with two residential structures and parking, to R-3-H-PD. Please refer to the vicinity maps showing existing and proposed zoning. The applicant hopes to achieve the following through the PD rezoning: 1. Conversion of a residential duplex at 958 and 960 Pismo Street to administrative office use for the medical clinic. This structure has been used by Grace Church for child care and bible study classrooms since 1978 (use permit U 0700). 2. Facilitation of future mixed-use development and office conversion on Pismo and Morro streets. Specifically, the residential property at 1336 Morro Street would be converted to a combination residence and professional office. 3. In the capacity of the parking lot at the interior of the block, using tandem employee parking spaces. EVALUATION General Plan Consistency This section of the report examines whether the project is consistent with community goals related to the appropriate location of office uses and protection and replacement of housing near the downtown. Taken as a whole, general plan policy favors protection of existing residential areas and the expansion of housing opportunities and discourages the replacement of housing and residential areas with office uses. Both the land use and housing elements policies encourage protection of existing housing and development of additional housing to better accommodate the wide range of households wishing to reside within city limits. Office uses are encouraged to locate . in the peripheral area of the Central Business District, however they are not encouraged to replace peripheral residential neighborhoods. The following discussion indicates that locating office uses near the downtown is consistent with general plan policy. However, the loss of housing stock is not. Staff recommends that the project be modified to provide for some housing in order to avoid conflict with community plans and goals. related to the housing preservation. (See condition 2.) Page 2 A(-/9 The proposal to locate ac iistrative offices for the medic. ,; inic at 958 and 960 Pismo Street and a professional urfice at 1336 Morro Street appe `s to be consistent with the following general plan land use policies: From the 1977 Land Use Element - ■ Professional office uses should be encouraged to develop in peripheral areas of the Central Business District and other specialized centers such as medical complexes to (1) take advantage of the close proximity to governmental and retail uses in the downtown, and (2) provide a transition between the heavily used central commercial core and surrounding residential neighborhoods. "Peripheral areas" is not clearly defined in this statement. A broad interpretation would include the subject site which is within easy walking distance of the downtown. A narrow interpretation would exclude sites beyond the Office zone which rings the downtown Central Commercial zone. 3 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 established group of offices. The proposal to use the.structure at 958 and 960 Pismo Street for the San Luis Medical.Clinic.. administrative offices meets the three criteria outlined for expansion of office uses outside the periphery of the Central Business District. The proposal to use the residential structure at 1336 Morro Street for an office use unrelated to the medical clinic does not appear to_ meet the third criterion, unless the Planning Commission determines that proximity alone would satisfy the requirement that new offices be related to "an established group of offices." ■ 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. The proposed office conversions are located in residential rather than an office zone. However, the proposal to retain the existing structures, which are located in an historic preservation district and representative of two different bungalow styles of architecture, is consistent with the City's goal of preservation rather than demolition and replacement. Page 3 �f-ai The proposal to convert residential structures at 958 and 960 Pismo and at 1336 Morro streets to office uses may not be consistent with the following general plan policies: From the 1977 Land Use Element - ■ The city should design appropriate land use and zoning controls which will direct commercial expansion and intensification into existing "underdeveloped" and/or committed commercial districts, avoiding intrusions into stable residential areas. ■ Medium-high-density residential development, allowing a maximum 18 dwelling units per acre, shall be encouraged in areas substantially committed to this type of development, close to community commercial centers and public facilities. Consistent with this policy, zoning regulations do not allow office uses in residential areas, except as home occupations or as incidental to an allowed use such as a church or day care facility. However, given the legal nonconforming status of offices and parking lots on and nearby the project site, it is arguably not a "stable residential area," substantially committed to residential uses. From the 1986 Housing Element - ■ Existing housing will be conserved and the displacement of residents will be minimized. Without provisions for replacement housing, conversion of residential structures to other uses can result in depletion of housing stock. Housing and Land Use Element Updates - ■ Policies and programs outlined'in the 1992.updates of both the land use and housing elements reinforce the goals of housing conservation and protection from replacement by commercial and office uses. Both updates include programs that would establish "no net loss" provisions to prevent housing loss from conversion of dwellings to non-residential uses. Relevant policies from the updates are attached for reference. Conclusion: Policy Consistency and Land Use Implications Approval of the PD to allow office uses at two locations in the residentially zoned portion of the block essentially commits the entire block to nonresidential uses. While it is not anticipated that the apartment complex at the corner of Osos and Pismo streets would convert to office uses in the near future, project approval:would put pressure on the residential uses at the corner of Pismo and Morro street to convert. (Refer to the "proposed zoning" map.) Without some provision for retaining housing as a component of development on the block, staff questions the need for retaining the residential zoning for any part of the block other than the apartment complex. If the Planning Commission and City Council determine that housing should remain a viable component of development on the block, then staff suggests the project be conditioned to include housing as well as office uses (condition 2). Without this condition, the project would not seem to be consistent with general plan policies regarding the appropriate application of the R-3 zoning, nor with policies encouraging housing conservation. Page 4 Another approach to estar 'ng consistency with general pla )using policies would find no loss to the housing stock as a result of the proposed office use at 958 and 960 Pismo Street since the structure has been used for nonresidential purposes since 1978. The PD rezoning could also be conditioned to require the structure be returned to residential use should the clinic cease to need the space for administrative offices (condition 10). Physical Impacts of the Project Traffic - Based on Institute of Transportation Engineers' estimates, the number of vehicle trips generated by the proposed office conversion would be comparable to or less than the number of trips generated by residential use. (See the attached initial study.) Circulation - Reduction in the number of driveways accessing the parking area will reduce the potential for conflict with circulation on surrounding streets. Parking Layout - The parking layout would be altered to accommodate 12 additional spaces. The proposed layout would include 16 tandem spaces. Staff feels the tandem spaces for employees are not a desirable solution and would be inconvenient for users. Staff is also recommending additional landscaping be provided to better screen the parking area from the street. - =, The clinic is legally non-conforming due to parking. When the last addition to the clinic was approved in 1977, there was no parking required for the use under its then C-2 (Central Commercial) zoning. Subsequent zoning map and text changes increased its requirement over what was originally provided for the use. Zoning regulations would require approximately 12 spaces for offices at 1336 Morro and 958 and 960 Pismo (total sqft: 3700 / 300 = 12.3 or 12). The exact number cannot be determined until the ultimate square footage of new office use is identified. As residences,,6 parking spaces. are required (2 per dwelling). As a condition of project approval, staff recommends the parking lot be redesigned to accommodate only those additional spaces needed for new offices without using tandem spaces. Trees: The proposed parking lot layout would impact 7 trees. Please refer to the proposed site plan. The City Arborist recommends that the layout be redesigned to avoid construction under a valley oak, a very large specimen tree at 1336 Morro. Although commonly found further inland, these trees are very rare in San Luis Obispo. The Arborist has approved the proposed removal of a Monterey pine, an Ailanthus, a California pepper, and a Blackwood acacia. The Arborist suggests two other Monterey pines at 1321 Osos Street be replaced because of bore infestation. Comments from the Arborist are attached. Availability of Office Space As an option, the medical clinic could expand its office use in an Office zone. Commercial realtors and "For Lease" signs indicate there is a glut of office space throughout the city, and that vacant office space on property zoned for office uses is available in the immediate vicinity. At the corner of Osos Street and Marsh Street, in the building that was formerly Santa Barbara Savings, where San Luis Medical Clinic now has offices, vacant office space is available. Page 5 y-02 Application of PD Rezon Staff believes that the PD zoning is intended primarily to provide for flexibility in physical site development, and is concerned that it not be utilized as a zoning 'Wild card" to circumvent City land use policy. Staff would prefer to see suggested revisions to land use policy be addressed directly through changes to the text and/or map of the general plan. However, past project approvals have established a precedent for employing Planned Development rezoning to enable a mix of uses not otherwise allowed in the base zone. ALTERNATIVES The Planning Commission may: 1. Instruct the applicant to revise his application to request that the underlying zone of the subject property be changed from Medium-high-density Residential (R-3) to Office (0) with a concurrent general plan map amendment. This could be accommodated in the same time frame needed to review the Planned Development rezoning request or possibly sooner, since the land use issues are the same in either case and review of a precise development plan would not be required. 2. Continue consideration of the project pending completion of the Land Use Element update since proposed policy changes could be more consistent with the submitted project. The recommendation in the update that the City should apply a "residential/office" mixed-use designation to areas which already contain a mix of residential and office uses may be particularly relevant to the project site. 3. Recommend that the City Council support the Planned Development rezoning with : conditions ,-.. . . .... . .. .... .. :._.,...,. . 4. Recommend that the City Council deny the Planned Development rezoning based on findings of inconsistency with the adopted General Plan. STAFF RECOMMENDATION Recommend that the City Council approve the Planned Development rezoning subject to the following findings and conditions: Findings 1. The proposed project provides exceptional public benefit by enabling a compatible mix of office and residential uses that would not otherwise be feasible with conventional residential zoning. 2. The proposed project is consistent with the general plan policies related to the appropriate location of office uses and the conservation of housing. Specifically the project would not eliminate existing housing and meets all of the following criteria for expanding office uses outside the peripheral area of the Central Business District: Page 6 y-,2 3 a. The project ha; pect access from other than i aential streets and will not encourage circulation of commercial traffic through residential areas. b. The project will provide a transition between existing commercial uses and residential areas. C. The project is based on an established group of offices. 3. The proposed project is consistent with general plan policies related to housing conservation. Specifically, the project will not eliminate existing housing. 4. The proposed project is appropriate at the proposed location and will be compatible with surrounding land uses. 5. By readapting rather than replacing existing structures, the proposed project is consistent with City policy regarding the preservation of historic neighborhood character. 6. The proposed project will not be detrimental to the health, safety, and welfare of persons ;. living or working in the area or at the site. 7. The Planning Commission concurs with a mitigated negative declaration, granted by the - Community Development Director on January _, 1993, which concludes that the project will not have any significant adverse impacts on the environment, subject to the mitigation measures shown in the attached Appendix A being incorporated into the project. Conditions 1. Parking layout, landscaping, and access shall be redesigned to eliminate tandem parking, avoid new construction within 15 feet of the valley oak tree, and provide additional screening ofi�fhe p" kind area from the street to the approval of staff. Parking for the new offices at 958 and 960 Pismo Street and at 1336 Morro shall be provided either on or off site in addition to the 86 spaces currently provided on site. 2. A minimum of one dwelling shall be maintained as part of the floor area at 958 Pismo Street and at 1336 Morro Street, in addition to the allowed office uses. 3. An exception to allowed signage in a residential zone is hereby granted to allow a maximum of one wall sign with a total area not to exceed three square feet for each of the two new office uses. 4. Any change in addressing as a result of project approval shall be to the approval of the Community Development Director. 5. Both dwelling structures at 958 and 960 Pismo Street and at 1336 Morro Street shall be retained. The residential and historic character of the structures shall be preserved. 6. Prior to any construction or demolition activity which the .City Arborist determines could adversely affect the valley oak at 1336 Morro Street, a tree.preservation bond in the amount of $7,500 shall be submitted to the Community Development Department and shall be held Page 7 W�-'/ for a period of one yek. am the date of project completic 7. Construction or grading of any type shall be prohibited within 15 feet of the valley oak tree. The tree shall be protected from any nearby construction or grading activity by a rigid fence to be located 15 feet out from the tree to the satisfaction of the City Arborist. 8. The applicant shall file a precise development plan for City approval within six months of preliminary plan approval for the project. The precise plan shall address all conditions of preliminary plan approval as well as any phasing details with associated deadlines for submitting precise plans for each phase. The preliminary development plan shall expire if the precise development plan is not filed and approved. 9. Any change to the uses approved as part of the PD rezoning, except reversion to residential use, at 1336 Morro Street shall require approval of an administrative use permit. Proposed changes shall be at least as compatible with the surrounding neighborhood as the approved uses. 10 Administrative office use for the San Luis Medical Clinic is the i2aly nonresidential use hereby approved for the property at 958 and 960 Pismo Street. At such time as the clinic ceases to use this structure for administrative offices, the structure shall be immediately restored for residential use. Any construction necessary to meet building code requirements for residential occupancy shall be the responsibility of the San Luis Medical Clinic, to the satisfaction of the Chief Building Official. ALTERNATIVE RECOMMENDATION If the Planning Commission and City Council do not feel that a portion of the floor area at 958 and 960 Pismo Street should be maintained as a residence since there has been no residential use of the duplex since 1978, staff suggests the following modification to recommended findings. To the list of findings, insert: ■ Establishment of administrative offices for the San Luis Medical Clinic at 958 and 960 Pismo Street does not constitute a loss of housing because the structure has been used for nonresidential purposes since 1978 when the City approved a use permit (U 0700) to allow the property to be used for a church school. If the Planning Commission and City Council feel that it is not necessary for the duplex on Pismo Street to be returned to a residential use when the medical clinic ceases to use the structure for administrative offices, staff recommends deletion of condition 10, and the following modification to condition 9 (redline indicates added language): ■ Any change to the uses approved as part of the PD rezoning, except reversion to residential use, at 1336 Morro Street ar d`95 '>'a d< > Pis <Streef shall PP require approval of an Q administrative use permit. Proposed changes shall be at least as compatible with the surrounding neighborhood as the approved uses. Page 8 ,t� q Relevant Goals and Policies from the 1992 Updates of the Land Use Housing Elements Land Use Element Update ■ Downtown residential uses contribute to the character of the area, allow a 24-hour presence which enhances security, and help the balance between jobs and housing in the community. Existing residential uses within and around the commercial core should be protected, and new ones should be developed. Dwellings should be provided for a variety of households, including singles, couples, and groups. Dwellings should be interspersed with commercial uses. All new, large commercial projects should include dwellings. ■ Residential uses.within some downtown areas designated for office use prior to this element's 1990 update should be maintained, or replaced as new offices are developed. The city should identify areas which are predominantly residential, and redesignate them for residential use. It should designate for office use the areas which are completely or almost completely developed with offices. For the areas which are a mix of residential and office uses, the city should apply a "residential/office" mixed-use designation. This designation would allow existing offices to be maintained and replaced. However, enlarging an office, or replacing a residential use with office, would require replacement dwellings to be built on site or somewhere within the "residential/office" zone, or in the downtown office or commercial zones. ■ In designing development at the boundary between residential and nonresidential uses, protection of a residential atmosphere is the first priority. ■ Substantial areas designated for residential use should not be changed to nonresidential designations. ■ The City may adjust land-use boundaries in a way that would reduce land designated as residential, only if: A. A significant, long-term neighborhood or citywide need, which outweighs the preference to retain residential capacity, will be met, and; B. The need is best met at the proposed location and no comparable alternative exists. ■ In downtown residential areas (Figure 3), the City should encourage the rehabilitation and maintenance of existing housing. Additional dwellings may be permitted, in keeping with density limits, provided that the existing character of the area is not significantly changed. Demolition of structurally sound dwellings shall be strongly discouraged. ■ Downtown should provide a wide variety of professional and government services, serving the region as well as the city. ■ All types of offices are appropriate in the downtown commercial area. Also, all types of office activities are appropriate in the surrounding office district, though offices needing very large buildings or generating substantial traffic may not be appropriate within that district, which provides a transition to residential neighborhoods. Some types of offices may be Page 9 y0� accommodated in loco s other than downtown: A. Medical services should be near the hospitals; ■ Existing office buildings outside the areas described in policy 3.10 (above) may continue to be used and may have minor expansions if they: A. Have access directly from collector or arterial streets, not local residential streets; B. Will not significantly increase traffic in residential areas; C. Will not have significant adverse impacts on nearby uses. ■ Historic or architecturally significant buildings located in office districts should be conserved, not replaced. ■ Neighborhoods shall include a mix of uses to serve the daily needs of nearby residents, including schools, parks, churches, and convenience retail stores. Neighborhood shopping and services should be available within about one mile of all dwellings. 1992 Housing Element Update ■ Where property is equally well suited for commercial or residential uses, the City will give preference to residential use. ■ Maintenance of Existing Housing: Maintain housing to provide safe, attractive housing for renters and owners at all income levels. ■ Discourage conversion of downtown housing to.non-residential uses. _ . .. .. ,. . .._ . ■ Establish policies and programs to minimize the housing impacts of converting of housing to offices in the 0 zone, including mixed-uses, transfer of density credits, and establish "no net loss" provisions to prevent housing loss from conversion of dwellings to non-residential uses. Page 10 MEMORAND January 21, 1993 TO: Whitnwy McIlvaine FROM: Tom Baasch, Chief Building Official SUBJECT: Residence to Office Conversion @ 958 Pismo The plans submitted for review did not include interior floor plans and correspnding remodeling work. However, the following issues must satisfactorily resolved: 1. The building shall be equipped with an automatic fire sprinkler system. 2. Esterior wall and opening protection shall be as required by Table 5-A of the Uniform Building Code or as allowed by the Uniform Code for Building Conservation. Setbacks to property lines are not dimensioned on plan submitted. 3. Disabled access shall be provided at a primary entrance,including path-of-travel from HC parking stall to such entrance. 4. Sanitary facilities shall be accessible to the disabled per State building code reqquirements. 5. The structure shall be review by a Civil Engineer or Architect with the resulting report submitted to the building and safety division for review and approval. The report shall show the structure complies with the requirements of the uniform building codes (UBC, UMC, UPC, and the NEC). A. Vertical loading B. Lateral loading C. Exiting D. Roof covering E. Plumbing, mechanical, and electrical MEMORANDUM TO: Whitney McIlvaine, Department of Community Development FROM: Spencer Meyer, Fire Department SUBJECT: 958 Pismo Street DATE: December 22, 1992 ACCESS: Street access is adequate. FIRE-FLOW: Public distribution mains appear adequate to serve the proposed conversion. HYDRANT LOCATIONS: Public fire hydrant densities are inadequate with reference to the proposed land use. Fire 'hydrants- hall be'spaced pei SLO FD Development Guide Standards and shall be capable of supplying the required fire-flow(s). An additional fire hydrant will be required at the Northeast corner of Pismo and Morro Streets. General Notes: (1) It appears the proposed conversion will trigger the fire sprinkler ordnance. cc: Jerry Kenny, Engineering Department Dan Gilmore, Public Utilities Department John Madden, Fire Department Draft PC Minutes January 13, 1993 Commr. Willi s seconded the motion. Commr. Cross s id he would not be supporting the motion because of the exception t allow a gravel driveway. He said it could set a precedent allow ng future projects to have gravel driveways in order to cut dev lopment costs. Commr. Karleskint isagreed with Commr. Cross . Commrs. Hoffman said the gravel driveway was appropriate for this project because it as in keeping with the character of the neighborhood. VOTING: AYES - Commrs. Senn, Williams, Hoffman and Karlkskint. NOES - Commr. Cross. ASSENT - Commr. Peterson. The motion passed. ----------------------------------------------------------------- Item 4 . Planned Development Rezoning PD 192-92 : A request for a planned development rezoning to allow office uses in the _ Medium-density Residential zone (R73) and, to redesign a. , parking. lot with Office (0) and Medium-density Residential zoning; 1235 Osos Street, 958 Pismo Street, and 1336 Morro Street; O zone; San Luis Medical Clinic, applicant. ----------------------------------------------------------------- Greg •• Smith presented the staff report and said the Commi:s'si.on' ' '" previously decided it would be appropriate for the applicant to file this request as a PD Rezoning. He recommended the Commission recommend approval of the rezoning to the City Council subject to 10 conditions . He read and explained the 10 conditions to the Commission. Ron explained that an initial study would be reviewed by the Community Development Department before the proposal is considered by the City Council. Commr. Karleskint asked if it was appropriate for the Commission to approve a draft. Cindy Clemens explained that the Commission was not approving the development, but making a recommendation to the City Council. She suggested the words "The Planning Commission has reviewed and concurs with the draft" be added to finding 7 to ensure that the City Council is aware that the Commission only saw the draft proposal. Commr. Cross said he did not agree with finding 1. He felt that the project was not so innovative that it should be allowed to be approved as a PD. h�-3o i Arnold Jonas said the Commission had already decided that it would be appropriate for the applicant to request a PD rezoning. Chairman Karleskint opened the public hearing. Robert Strong, 1 Buena Vista, applicant's representative, said that the Commission had decided that it would be appropriate for the applicant to pursue a PD rezoning. He explained the diagram of the proposal. He said parking spaces would be increased from 86 to 98 spaces and the parking lot would have more lighting, more landscaping and improvements for increased pedestrian use. He said parking requirements could be met without tandem parking, but requested tandem parking be allowed to make the parking lot more aesthetically pleasing. He explained that tandem parking was feasible because hospital staff arrive and leave at the same time, and church members who would be sharing use of the lot on Sundays, also arrive and leave at the same time. He said the spaces could be assigned so that employees would always know who was parked behind their vehicles in the event they had to leave work for an emergency. He said the applicant agreed with the conditions except for conditions 1 and 2 . He asked that 958 Pismo Street be eliminated from condition 2 because it was an existing duplex. He said the project would not result in a net decrease in residential use because the building in question had not been used as a residence for many years. In answer to a question by Commr. Cross, Mr. Strong said a parking variance was not being pursued because the City discourages parking variances. Brian Christensen, 818 Pismo - Street; ' expressed - concern -�theit normally a General Plan Amendment would be needed for a PD rezoning. He said approving the PD request would be spot zoning and would be detrimental to the area. He said the General Plan Housing Element calls for protection of existing housing areas, and he believed the City should be encouraging residential use of this property. He said there was no shortage of office space in the area. He expressed concern about the architectural character of the proposal having a detrimental effect on the historical setting of downtown. He felt that because land zoned for office use is more expensive than land zoned for residential use, approval of this rezoning could have a detrimental effect on affordable housing in the downtown area and adversely affect him and his neighbors because they are living on low incomes. He said he did not see an exceptional public benefit in this proposal. He asked that the Commission consider his request to deny the rezoning. Stuart Jenkins, 1336 Morro Street, said that because he will continue to live and work in one of the dwellings and the other dwelling had not been used as a residence for many years, the proposal would not result in a loss of available housing. He said the neighbor closest to the site has not objected to the rezoning. In answer to a question by Commr. Cross, Mr. Jenkins said as an �L- 2 attorney he does a lot of research work at home, and he supported the rezoning because it would allow him to have his clients come to his home. He said he was considering raising the house and building a garage underneath to park a car he is restoring. Chairman Karleskint closed the public hearing. Commr. Cross said he did not see the intent of the PD zone in this proposal and he could not make any of the findings for approval . He expressed concern that it would be spot zoning, that it would result in a loss of possible housing, and that the site was adjacent to a park. Commr. Senn said the, applicant had come back to the Commission with this request because the Commission had given the applicant an interpretation that a PD rezoning was a suitable request. He said he had seen the inside of Mr. Jenkins' home and it needed repairs he believed Mr. Jenkins would be able to accomplish with the PD rezoning. He said he was sensitive to Mr. Christensen' s view, but that he had been persuaded that no one in the immediate proximity of the site opposed the request. He said he had some concerns about tandem parking. He believed the San Luis Medical Clinic provides an exceptional benefit to the Community. He felt it would be bad government for the Commission to make it overly cumbersome for the San Luis Medical Clinic to obtain needed office space. Commr. Cross said the Commission had not approved the request for a rezoning at the last meeting. He said that before the PD zoning could be approved, the Commission would have to determine that it was consistent with the General Plan. Cindy Clemens said that she had reviewed the minutes and Commr. Cross was correct. She said the Commission had to determine that the applicant has shown the proposal is consistent with the General Plant to approve the rezoning. Commr. Williams believed the housing stock would not be reduced because one of the .buildings had been used as offices by Grace Church and not as housing. She felt it made sense for the San Luis Medical Clinic to have offices at this location. She said she could agree to tandem parking. She said it was an innovative plan. Commr. Hoffman felt that if there was an exceptional value in pursuing the proposal in this manner, it would be appropriate for the Commission to approve the request for a PD rezoning. He did not believe there would be a net loss of housing. He said he would support eliminating conditions 1 and 2. Commr. Karleskint said he agreed with Commr. Senn and that he could make the findings. He said because one structure is now deteriorating and would be improved if it was rezoned, the PD rezoning could upgrade surrounding housing in the area. Commr. Hoffman suggested that 958 Pismo Street be eliminated from Condition 2 . Commr. Senn requested that tandem parking spaces, or at least those spaces blocked by cars parked behind them, be required to be only used by employees during normal weekday office hours. Cindy Clemens suggested that . the first part of condition 1 be changed to state: "Parking layout, landscaping, and access shall be redesigned to designate tandem parking for employees only from 7: 00 a.m. to 7 : 00 p.m. Monday through Friday. " Commr. Hoffman moved to recommend to the City Council, approval of the PD rezoning with the findings and conditions suggested by staff; with a statement included in finding 7 indicating that the Planning Commission reviewed and concurred with the draft; with the first part of condition 1 changed to state: "Parking layout, landscaping, and access shall be redesigned to designate tandem parking for employees only from 7: 00 a.m. to 7: 00 p.m. Monday through Friday; " and the elimination of 958 Pismo Street from condition 2 . Commr. Karleskint seconded the motion. Commr. Cross said he could not support the motion because he could not make any of the findings. He said there was plenty of office space available in the area and that it was inappropriate to change underlying uses with a PD overlay. VOTING: AYES - Comm s. Hoffman, Karleskint, Senn, and ...Williams. NOES - Commr. Cross. ABSENT - Commr. Peterson. The motion passed. COMMENT AND DISCUSSION Arnold Jonas informedthe Commission that the City Council upheld its action 3-2 denyin the message therapy home occupation in a mobile home park. He said the City Council also approved a commemorative bench pr ject for downtown. He said a new commissioner would prob bly be at the next regular Planning Commission meeting. AiSEQUA seminar on Februa 13 , 1993 , and a Land Use Planning Conference on January 22 , 1 3 , were announced. The Commissioners indicated t t they preferred to have a separate evening meeting to discuss the. Open Space Element. Commr. Senn asked if it would be ppropriate for the Commission to form sub-committees to examine pa is of the Open Space Element, Of,-3� city of San WIS OBISpo INITIAL STUDY OF ENVIRONMENTAL IMPACT 91 SITE LOCATION 1614S ��n /X��/�-!&NG�I� (l I n �A, YI��!/�1✓�� * f k4ld LIGATION NO. / PROJECT DESCRIPTION �nl./l.��1 I r i-� ��A tilt .•j F ' �.�+r !� n��r,��i,tilG �� 4 LJ i'• //C /i1 r��i !-rir_l ��J Iy •i "1 '��7i(. YV /I/ �G�•���li I'r /'� ��F L Ill �"(11'!� �� ~f�� �I 'L� I/a L {LI -1,( rr� K6:' ` 1 ch I i � J rNl; APPLICANT �A !•-��'�� �f(•I/Il �(.- II ��N1�• �.�� uses .JI 6e STAFF RECOMMENDATION: NEGATIVE DECLARATIONS MITIGATION INCLUDED EXPANDED INITIAL STUDY REQUIRED ENVIRONMENTAL IMPACT REPORT REQUIRED PREPARED 3Y y�J J i V f�` � �t �: _ 1 ii_I- .I l l_ �. L COMMUNITY DEVELOPMENT DIRECTOR'S ACTION: r ' \ n \`; DATE I II Z5I93 {�1 .[7 ISrc� 7lUE. t1Tloe.i J SUMMARY OF INITIAL STUDY FINDINGS I. DESCRIPTION OF PROJECT AND ENVIRONMENTAL SETTING IL POTENTIAL IMPACT REVIEW POSSIBLE ADVERSE EFFECTS A. COMMUNITY PLANS AND GOALS ................. . ............ . ...... .. ..... . :.. . . B. POPULATION DISTRIBUTION AND GROWTH.............. ..... . ....... ... .. . . . .. .. ... C. LAND USE .. . . . . .... ..... . .... ..... . . . ... . ....... . . ..... . .. . .. .. . . . . . . . . . . . . . . .. A 5, D. TRANSPORTATION AND CIRCUlAT10N . . . . . . . . . . . .. . . . . . . . . . . . .. . . . . . . . . . . E. PUBLICSERVICES ........ . . . ... .. .. ............ ......... .... ........ . . .. .. . . . . . .. N �IV� F. UTILITIES. .. . . .. .. .. . ... ... ... . ..... ... . . . . . .... . . .. . . . . .. . ........ . . . . . .. . . . . . . . .. `: G. NOISE LEVELS . .. .. . . . . . . . . . . . .. .. . . .. . . . . . . . . . . . . . . .... . . . .... . .. . .. . . . .. . . . . . .. H. GEOLOGIC&SEISMIC HAZARDS&TOPOGRAPHIC MODIFICATIONS . . .. . . .. . . . . .. . . . ... I. AIR QUALITY AND WIND CONDITIONS . ... ... .. .. . . . . .... . . . . . . . .. . .. . . . . . . . . . . . . . . . . J. SURFACE WATER FLOW AND QUALITY . .. .. . . . . ...... . .. . . .... . . .... . ... . . .... . . . ... K. PLANT LIFE . . . . . . . . . .. . . . . .. . ..... . . . . . . . . . . . .... . .. . .. ... . . . . . .. . .. . I . . . . . . . . . .. LANIMAL LIFE....................................... .................... ..... .. ... M. ARCHAEOLOGICAL/HISTORICAL ................... ........ .. ......... .. ........ ... I��'� N. AESTHETIC . .... ....... ................. .. .......... .... ....... ...... . ..... .... .. N0Ii1`,el O. ENERGWRESOURCEUSE ................ . ............ .. . ........ .... .. . . . . .... . . .. N(/n'�I•� P. OTHER . .. . . . .. .. ... . . .. .. .. ... . . .. . . . . . .. . . . . . . . . . . ... .... . ... . .. . .. .. . . . . . . . . . . III. STAFF RECOMMENDATION SEE ATTACHED REPORT sa as H-3h I. PROJECT DESCRIPTION AND SETTING San Luis Medical Clinic has applied for a Planned Development (PD) rezoning for most of the block bounded by Pacific, Morro, Pismo, and Osos streets. Roughly half the block facing Pacific Street is currently zoned Office (0). The remaining half of the block, facing Pismo Street, is zoned Medium-high-density Residential with an Historic zone overlay (R-3- H). Applicants propose to rezone four parcels, currently developed as a parking area, to O-PD, and two parcels, currently developed with two residential structures and parking, to R-3-H-PD. Please refer to the attached vicinity maps. At its meeting of November 18, 1992, the Planning Commission determined that the Planned Development zoning is an appropriate mechanism for requesting an office use in a residential zone, subject to review for consistency with general plan policies. The applicant hopes to achieve the following through the PD rezoning: 1. Conversion of a residential duplex at 958 and 960 Pismo Street to administrative office use for the medical clinic. This structure has been used by Grace Church for child care and bible study classrooms since 1978 (use permit U 0700). 2. Facilitation of future mixed-use development and office conversion_ on Pismo and Morro streets. Specifically, the residential property at 1336 Morro Street would be converted to a combination professional office / residential use. 3. Increase the capacity of the parking area at the interior of the block,using tandem. parking for employees. _: ... _. . ... :. :. . Site Description and Location The site is located at the periphery of the downtown commercial core. It is relatively flat and roughly 55,000 square feet in area. It includes an 86-space parking lot, an office at 1322 Morro Street, a duplex at 958 and 960 Pismo Street, and a single family residence at 1336 Morro Street. The three remaining parcels on the block, which are not part of this rezoning request, are developed with residential uses and a church. Surrounding development includes housing, offices, another church, a park, and a neighborhood grocery. Significant vegetation on site includes Monterey pines, and Ailanthus, and a valley oak. II. POTENTIAL IMPACTS Overall the proposal's impacts on the physical environment would be negligible. The primary construction activity involves resurfacing and restriping an existing parking area. And the conversion of residential floor area to office space is a less intensive use in terms of Uniform Building Code occupancy standards. ER 192-92 Page 2 Consistency with adopted land use policies is the most significant issue related to the project. Locating office uses near the downtown appears consistent with general plan policy. However,without modifying the proposal to protect existing housing or to include provisions for replacement housing, the project may conflict with community plans and goals related to the preservation of housing. A. Community Plans and Goals The proposal to locate administrative offices for the medical clinic at 958 and 960 Pismo Street and a professional office at 1336 Aforro Street appears to be consistent with the following general plan land use policies: From the 1977 Land Use Element - ■ Professional office uses should be encouraged to develop in peripheral areas of the Central Business District and other specialized centers such as medical complexes to (1) take advantage of the close proximity to governmental and retail uses in the downtown, and (2) provide a transition between the heavily used central commercial core and surrounding residential neighborhoods. "Peripheral areas" is not clearly defined in this statement. A broad interpretation would include the subject site which is within easy walking distance of the downtown. A narrow interpretation would exclude sites beyond the Office zone which rings the downtown Central. ..commercial-zone.--- ,. . ..: : .. -. .. ■ 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 established group of offices. The proposal to use the structure at 958 and 960 Pismo Street for the San Luis Medical Clinic administrative offices meets the three criteria outlined for expansion,of office uses outside the periphery of the Central Business District. The proposal to use the residential structure at 1336 Morro Street for office uses unrelated to the medical clinic does not appear to meet the third criterion„ unless the Planning Commission determines that proximity alone would satisfy the requirement that new offices be related to "an established group of offices." �3� ER 192-92 Page 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. The project is located in a district designated for residential and not office use. However, the proposal to retain the existing structures, which located in an historic preservation district and representative of two different bungalow styles of architecture, is consistent with the City's goal of preservation rather than demolition and replacement. The proposal to convert residential structures at 958 and 960 Pismo and at 1336 Morro streets to office uses may not be consistent with the following general plan policies: From the 1977 Land Use Element - ■ The city should design appropriate land use and zoning controls which will direct commercial expansion and intensification into existing "underdeveloped" and/or committed commercial districts, avoiding intrusions into stable residential areas. ■ Medium-high-density residential development, allowing a maximum 18 dwelling units per acre, shall be encouraged in areas substantially committed to this type of development, close to community commercial centers and public facilities. Consistent with this policy, zoning regulations do not allow-office•usesin residential,areas,:�.I except as home occupations or as incidental to an allowed use such as a church or day care facility. However, given the legal nonconforming status of offices and parking lots on and nearby the project site, it is arguably not a "stable residential area," substantially committed to residential uses. From the 1986 Housing Element - ■ Existing housing will be conserved and the displacement of residents will be minimized. Without provisions for replacement housing, conversion of residential structures to other uses can result in depletion of housing stock. 1992 Land Use and Housing Element Updates - ■ Policies and programs outlined in the 1992 updates of both the land use and housing elements reinforce the goals of housing conservation and protection from replacement by commercial and office uses. Both updates include programs that would establish "no net loss" provisions to prevent housing loss from conversion of y-3 ; ER 192-92 Page 4 dwellings to non-residential uses. Conclusion: This project will result in the loss of three dwellings, one currently occupied and two not currently occupied. The project will have the effect of surrounding the remaining residential uses on the block with nonresidential uses, and increasing the pressure to convert remaining housing to nonresidential uses. As an isolated case, the impact of this project on the availability of housing may not be significant. However, the cumulative impact of allowing office uses to establish in a residential zone without some provision to offset the loss of housing could significantly undermine the integrity of residential neighborhoods which border commercial areas, especially near the downtown. Recommended Mitigation: To offset the loss of housing as a result of the proposed office uses, the project should (1) retain at least one dwelling unit, however reconfigured, on each of the parcels where new offices are proposed, and/or (2) conditions of the planned development should stipulate that upon cessation of the specifically approved office use, the affected structures shall be returned to a condition suitable for residential occupancy. C. Land Use Approval of the PD to allow office uses at two locations in the residentially zoned portion of the block essentially commits the entire block to nonresidential uses. While it is not anticipated that the apartment complex at the corner of Osos and Pismo streets would convert to office uses in the near future, .project.approvalwould put pressure on the residential uses at•the corner of Morro and-Pismo, to-convert. : As-discussed above, this particular case will not significantly alter the present or planned land use of the area, which serves as a transition between more homogeneous residential neighborhoods and the downtown commercial core. However, the cumulative impact of similar projects would diminish the availability of housing in residential neighborhoods surrounding the downtown. Recommended Mitigation: Same as noted above under "Community Plans and Goals." D. Transportation and Circulation Trips Generated Based on trip generation data developed by the Institute of Transportation Engineers, the conversion from residential to office uses would result in a reduced number of vehicle trips generated. The ITE estimates a single dwelling generates roughly 10 trips per day. If all three affected dwellings were occupied for residential use only, the estimated number of trips generated would be 30. If the duplex at Pismo Street becomes office space and the house at 1336 Morro Street is converted to a combination office/residence, the estimated number of trips generated would y:� ER 192-92 Page 5 be roughly 20. A summary of trip generation rates is attached for reference. Circulation In redesigning the parking area, which covers most of the center of the block, the project would eliminate at least three, and possibly four, driveways. This will minimize conflicts between vehicles entering and exiting the parking lot and through traffic on the surrounding streets. Staff is recommending that on-site circulation be redesigned to avoid tandem parking spaces, and to avoid construction under the dripline of a valley oak tree. Conclusion: No significant traffic and circulation impacts are likely as a result of this project. K. Plant Life The proposed parking lot layout would impact 7 trees. Please refer to the proposed site plan. The City Arborist recommends that the layout be redesigned to avoid construction under a valley oak, a very large specimen tree at 1336 Morro. Although commonly found further inland, these trees are very rare in San Luis Obispo. The Arborist has approved the proposed removal of a Monterey pine, an Ailanthus, a California pepper, and a Blackwood acacia. The Arborist suggests two other Monterey pines at 1321 Osos Street be replaced because of bore infestation. Comments from the Arborist are attached. Demolition of an existing garage at the rear of 1336 Morro Street and installation of new parking stalls would involve construction activity inside the drip line of the valley oak tree. Removal of the garage could be accomplished without serious harm to the tree, and may be beneficial in the long term. However, the Arborist has advised against locating parking under the dripline of the tree because the resulting soil compaction will harm the tree's root system. Recommended Mitigation: Prior to any construction or demolition activity which the City Arborist determines could adversely affect the valley oak at 1336 Morro Street, a tree preservation bond in the amount of $7,500 shall be submitted to the Community Development Department and shall be held for a period of one year from the date of project completion. Also, construction or grading of any type shall be prohibited within 15 feet of the valley oak tree. The tree shall be protected from any nearby construction or grading activity by a rigid fence to be located 15 feet out from the tree to the satisfaction of the City Arborist. y-�9 ER 192-92 Page 6 III STAFF RECOMMENDATION Staff recommends the project be granted a mitigated negative declaration of environmental impact. The project should be modified to include the following mitigation measures: 1. To offset the loss of housing as a result of the proposed office uses, the project should (1) retain at least one dwelling unit, however reconfigured, on each of the parcels where new offices are proposed, and/or (2) conditions of the planned development should stipulate that upon cessation of the specifically approved office use, the affected structures shall be returned to a condition suitable for residential occupancy. 2. Prior to any construction or demolition activity which the City Arborist determines could adversely affect the valley oak at 1336 Morro Street, a tree preservation bond in the amount of $7,500shall be submitted to the Community Development Department and shall be held for a period of one year from the date of project completion. 3. Construction or grading of any type shall be prohibited within 15 feet of the valley oak tree. The tree shall be protected from any nearby construction or grading activity by a rigid fence to be located 15 feet out from the tree to the satisfaction of the City Arborist. office parking SUMMARY OF TRIP GENERATION RATES FOR 3700 TH.GR. SQ. FT. OF GENERAL OFFICE TRIPS PER 1TH.GR. SQ.FT. 1/93 AVG MIN MAX NO TRIP TRIP TRIP STD OF RATE RATE RATE DEV DATA AVG WKDY 2-WAY VOL 8 . 46 0 . 00 0. 00 0. 00 0 7-9 AM PK HR ENTER 1. 07 0. 00 0. 00 0. 00 0. 7-9 AM PK HR EXIT 0. 13 0 . 00 0. 00 0. 00 0 7-9 AM PK HR TOTAL 1. 20 0 . 00 0 . 00 0. 00 0 4-6 PM PK HR ENTER 0 . 18 0 . 00 0 . 00 0 . 00 0 4-6 PM PK HR EXIT 0 . 90 0 . 00 0. 00 0. 00 0 4-6 PM PK HR TOTAL 1. 08 0. 00 0 . 00 0. 00 0 AM GEN PK HR ENTER 0 . 00 0. 00 0. 00 0 . 00 0 AM GEN PK HR EXIT 0 . 00 0. 00 0. 00 0. 00 0 AM GEN PK HR TOTAL 0 . 00 0. 00 0. 00 0. 00 0 PM GEN PK HR ENTER 0 . 00 0 . 00 0 . 00 0. 00 0 PM GEN PK HR EXIT 0 . 00 0 . 00 0. 00 0. 00 0 PM GEN PK HR TOTAL 0. 00 0. 00 0. 00 0. 00 0 SATURDAY 2-WAY VOL 2 . 37 0. 00 0. 00 0. 00 0 PK HR ENTER 0. 22 0. 00 0. 00 0. 00 0 PK HR EXIT 0. 19 0. 00 0. 00 0. 00 0 PK HR TOTAL 0. 41 0. 00 0. 00 0. 00 0 SUNDAY 2-WAY VOL 0. 98 0. 00 0. 00 0. 00 0 PK HR ENTER 0. 08 0. 00 0. 00 0. 00 0 PK HR EXIT 0 . 06 0. 00 0. 00 0. 00 0 PK HR TOTAL 0 . 14 0 . 00 0. 00 0. 00 0 Note: A zero rate indicates no rate data available The above rates were calculated from the following equations: AWD 2-Way Vol. (=<800 TGSF) : Ln(T) = 0.756Ln(A) + 3 .765, R'2 = 0.82 AWD 2-Way Vol. (>800 TGSF) : T = 8 .46 * A 7-9 AM Pk Hr Total (=<800 TGSF) : Ln(T) = 0. 777Ln(A) + 1. 674 R"2 = 0 . 81, 89% Enter, 11% Exit 7-9 AM Pk Hr Total (>800 TGSF) : T = 1. 2 * A, 891. Enter, 11% Exit 4-6 PM Pk Hk Total (=<800 TGSF) : Ln(T) = 0 .737Ln(A) + 1. 831 R"2 = 0. 78, 17% Enter, 83% Exit 4-6 PM Pk Hr Total (>800 TGSF) : T = 1. 08 * A, 17% Enter, 83% Exit Sat. 2-Way Vol . : T = 2 . 37 * A, S.D. = 2 . 08 Sat. Pk Hr Total: T = 0. 41 * A, S. D. = 0. 68 , 54% Enter, 46% Exit Sun. 2-Way Vol . : T = 0. 98 * A, S.D. = 1. 29 Sun. Pk Hr Total: T = 0. 14 * A, S.D. = 0. 38, 58% Enter, 42% Exit Source: Institute of Transportation Engineers Trip Generation, 5th Edition, 1991 .