HomeMy WebLinkAboutPC Staff Report - Final Draft
PLANNING COMMISSION AGENDA REPORT
SUBJECT: Review of a new 23,344-square foot performing arts facility and a new 162,909-square
foot parking structure with 404 parking spaces, including architectural review, a General Plan
Amendment changing the project site from Office and Medium-High Density Residential to General
Retail, a zone change from Office with a Historic District Overlay (O-H) and Medium-High Density
Residential (R-3) to Downtown Commercial zone with a Historic Overlay (C-D-H), a deviation to
the floor area ratio maximum for the parking structure, and Use Permits to allow a performing arts
facility and a parking structure within the Downtown Commercial zone with an addendum to the
previously certified Final Environmental Impact Report (FEIR) (EID-0349-2017) which addresses
the rezone and General Plan component of the project.
PROJECT ADDRESS: 609 & 633 Palm BY: Rachel Cohen, Associate Planner
610, 614 & 630 Monterey, 970 & 972 Nipomo Phone Number: (805) 781-7574
E-mail: rcohen@slocity.org
FILE NUMBER: SLO Rep – ARCH-0415-2019 & FROM: Tyler Corey, Principal Planner
USE-0416-2019; Palm Nipomo – ARCH-0448-2019 &
USE-0388-2017; GENP-0389-2017 & RZ-0460-2019
1.0 RECOMMENDATION
Recommend the City Council adopt the Draft Resolution (Attachment 1) that allows the approval of
the proposed project subject to findings and conditions of approval.
2.0 SITE DATA
3.0 SUMMARY
Two new structures are being proposed on the subject properties. SLO Repertory Theatre (SLO Rep
Theatre) is proposing a new 23,344-square foot performing arts facility with two performance spaces,
rehearsal space, workshop and storage areas, lobby, a balcony and roof deck and administrative
offices (Attachment 3, SLO Rep Theatre Project Plans). The City of San Luis Obispo is proposing a
new 162,909-square foot parking structure with 404 parking spaces (Attachment 4, Palm Nipomo
Applicant SLO Rep and City of SLO
Representative SLO Rep – Bryce Engstrom
City of SLO – Richard Burde
Zoning O-H (Office-Historic District
Overlay) and R-3 (Medium-High
Density Residential)
General Plan Office and Medium-High
Residential
Site Area 1.38
Environmental
Status
Certified FEIR and an Addendum
Meeting Date: October 23, 2019
Item Number: 2
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Project Plans). The proposed project requires review of the following:
• Architecture;
• A General Plan Amendment changing the project site from Office and Medium-High Density
Residential to General Retail;
• A zone change from Office with a Historic District Overlay (O-H) and Medium-High Density
Residential (R-3) to Downtown Commercial zone with a Historic Overlay (C-D-H);
• Exception to the floor area ratio for the parking structure;
• Use permits to allow a theater and a parking structure within the Downtown Commercial zone;
and
• An addendum to the certified Final Environmental Impact Report (FEIR).
4.0 COMMISSION’S PURVIEW
The Planning Commission’s role is to review the project for consistency with the General Plan’s Land
Use Element (LUE) Chapter 4 - Land use and development of Downtown; Chapter 5 – Public &
Cultural Facilities; Circulation Element Chapter 13 – Parking Management; Zoning Regulation 17.32
- Downtown Commercial (C-D) Zone; 17.86.200 – Parking as a Primary Use; Community Design
Guidelines for Downtown Development Chapter 4.2; Historic Preservation Program Guidelines
Sections 3.2.1 and 5.2.2; and the Downtown Concept Plan.
The Planning Commission’s role is to also provide a recommendation to the City Council on whether
to adopt the Draft Resolution (Attachment 1) that allows the approval of the proposed project subject
to findings and conditions of approval.
5.0 PREVIOUS ADVISORY BODY REVIEW
The Architectural Review Commission (ARC), Cultural Heritage Committee (CHC), Planning
Commission (PC) and City Council have been involved in various components of review of the
proposed project. Below is the recent background of the advisory bodies that have been involved in
the entitlement process to date.
• July 17, 2018 – City Council reviewed and adopted the Final Environmental Impact Report
(FEIR) Palm Nipomo Parking Structure Project. The CHC, ARC and PC each reviewed the
document and provided comments and recommendations to the City Council.
• August 19, 2019 – ARC reviewed the proposed architecture of the project and the ARC
continued the review and provided seven directional items to the applicants requesting the
applicants produce elevations and renderings that showed the two structures together and to
include a revised western elevation of the parking structure that had more articulation and
design.
• September 16, 2019 – ARC reviewed the revised plans that incorporated their direction and
made a recommendation that the PC find the project consistent with the Community Design
Guidelines with direction that the applicant of the SLO Rep Theatre revise the façade of the
building with better balance and proportion of the wall cladding - specifically, reduce the
variegated terracotta facade at the exterior of the black box theatre and at the upper portion of
the walls of the main theatre projecting above the roof deck level (approximately at the 218.45
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foot elevation and above) and soften the contrast of the terracotta tiles with each other
(Attachment 4, ARC Draft Minutes 9/16/2019). A discussion on the ARC’s direction and the
applicant’s response is provide below is Section 7.4.
• September 23, 2019 – CHC reviewed the proposed project plans and recommended the PC
find the Palm Nipomo parking structure compatible with the Downtown Historic District.
They recommended continuance on the review of the Heyd Adobe component of the project
and continuance of the review of the facade design of the SLO Rep Theatre (Attachment 5,
CHC Draft Minutes 9/23/2019). Further details regarding CHC’s discussion and next steps is
provided in Section 7.5 below.
6.0 PROJECT DESCRIPTION
6.1 Site Rezoning and General Plan Amendment
The applicants are requesting a General Plan Map Amendment to change the project site from Office
and Medium-High Density Residential to General Retail. This also requires a rezone of the 6 parcels
from Office with a Historic District Overlay (O-H) and Medium-High Density Residential (R-3) to
Downtown Commercial zone with a Historic Overlay (C-D-H).
General
Retail
Figure 1: Maps showing the change in General Plan designation; right image - current zoning; left image - proposed
zoning.
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6.2 Site Layout
The project consists of two new
structures that have been planned in
consideration of one another. Figure
3 shows the proposed site layout and
the location of each of the proposed
buildings. The red arrows indicate the
vehicle points of entry and exit at the
parking structure. The blue arrows
indicate where pedestrians leave and
enter the parking structure. The green
arrow indicates the main entrance to
the SLO Rep Theatre.
6.2 SLO Rep Theatre –
Architecture & Use Permit
SLO Rep Theatre is proposing a new
23,344-square foot performing arts
facility with two performance spaces,
rehearsal space, workshop and
storage areas, lobby, a balcony and
roof deck and administrative offices.
The architecture is a contemporary
design with rectilinear form that is
broken up with curved walls and
upper story setbacks. The façade
employs the use of a terra cotta
rainscreen, smooth troweled plaster, a
glass curtain wall, and aluminum
awnings.
Figure 3: Proposed site layout for the SLO Rep Theatre and the Palm
Nipomo Parking Structure.
SLO Rep
Theatre
Parking
Structure
C-D-H
Figure 2: Maps showing the change in zoning; right image - current zoning; left image - proposed zoning.
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Per Table 2-1 of the Zoning Regulations, a theatre in the C-D zone requires a Minor Use Permit
(MUP).
6.2.1 Project Statistics
Site Details Proposed Allowed/Required*
Front Setback 0 feet 0 feet
Maximum Height of
Structure
42 feet 5 inches 50 feet
Max Building Coverage 51% 100%
F.A.R. 1.16 3.0
Total # Parking Spaces
Bicycle Parking
0 (Pay in-lieu fees)
0**
67
13
*2018 Zoning Regulations
**Bicycle parking is a code requirement and the project will have to comply
6.3 Palm Nipomo Parking Structure – Architecture, Use Permit & Deviation from Development
Standards
The City of San Luis Obispo is proposing a new 162,909-square foot parking structure with 404
parking spaces. The architecture is mission style design and the form is based on the functional
requirements of a parking structure. The structure is articulated with arched shaped openings,
rectilinear openings, columns and architectural towers. Exterior materials include smooth troweled
plaster, pre-cast concrete column bases, terra cotta tile roofing, pre-cast masonry along the base of
the towers and stairs and decorative tile. Per Table 2-1 of the Zoning Regulations, a parking structure
within the C-D zone requires a Conditional Use Permit (CUP). The applicant is also requesting
deviations from development standards for additional height and increased Floor Area Ratio (F.A.R.)
for the parking structure (see Table 6.3.1 below).
6.3.1 Project Statistics
Site Details Proposed Allowed/Required*
Front Setback 0 feet 0 feet
Maximum Height of
Structures
50 feet
with 17-foot 4-inch
elevator/stair tower
features and approx. 10-
foot-tall solar structures
50 feet
Max Building Coverage 80% 100%
F.A.R. 4.1 3.0
Total # Parking Spaces
Electric Vehicle Parking
Bicycle Parking
404
43 EV Ready
32
No specific requirement
40 EV Ready
Director’s Determination
*2018 Zoning Regulations
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7.0 PROJECT ANALYSIS
Staff carefully evaluated the proposed project’s General Plan Amendment, Rezone, Architecture and
Use Permits in the context of General Plan goals and policies and the City’s Zoning Code, and
received feedback from the ARC and the CHC regarding consistency of the project with the
Community Design Guidelines and Historic Preservation Guidelines. Based on the project’s
contribution to and alignment with these goals, policies, and requirements, staff is recommending that
the Planning Commission recommend that the City Council adopt a resolution approving the project.
7.1 Consistency with the General Plan
The Land Use Element (LUE) dedicates Chapter 4 to policies regarding land use and development of
Downtown. Policy 4.1 states,
Downtown is the community’s urban center serving as the cultural, social,
entertainment, and political center of the City for its residents, as well as home for
those who live in its historic neighborhoods. The City wants its urban core to be
economically healthy, and realizes that private and public investments in the
Downtown support each other. Downtown should also provide a wide variety of
professional and government services, serving the region as well as the city. The
commercial core is a preferred location for retail uses that are suitable for pedestrian
access, off-site parking, and compact building spaces. Civic, cultural and commercial
portions of Downtown should be a major tourist destination. Downtown's visitor
appeal should be based on natural, historical, and cultural features, retail services,
entertainment and numerous and varied visitor accommodations (underlining added to
highlight project consistency).
The LUE further discusses Entertainment and Cultural Facilities located in the downtown. Policy 4.3
states, Cultural facilities, such as museums and galleries should be Downtown. Entertainment
facilities, such as nightclubs and theaters shall be in the Downtown. Additional policies regarding
Cultural Facilities state:
5.2.2. Mission Plaza Area – The City shall promote the area around the Mission Plaza for
cultural facilities (Figure 5).
5.2.3. Community Arts Support – The City shall continue to support community arts programs
through a variety of means, such as loans, grants, and help in obtaining sites.
5.2.5. Land Acquisition – The City will work with community organizations to secure land for
cultural facilities in the Downtown area.
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As proposed, the SLO Rep Theatre will be located near Mission Plaza along Monterey Street in the
Cultural Facilities Area.
Parking
Policy 4.14 states, The City shall ensure there is a diversity of parking opportunities in the Downtown.
Any major increments in parking supply should take the form of structures, located at the edges of
the commercial core, so people can walk rather than drive between points within the core. Retail uses
outside the core, and professional office developments, may have on-site parking for customers and
clients. The proposed parking structure is consistent with fulfilling this policy.
Circulation Element, Policy 13.2.4. (Public Parking Structures) states the City shall only approve
construction of additional public parking structures after considering the findings and results of a
parking supply and demand study. Early in the Downtown parking discussion, a parking study was
completed that estimated that the City would have an increased parking demand of 250-500 spaces
every 5 years. The Palm Nipomo Parking Structure was initially envisioned to accommodate
approximately 450 spaces for 10 years of growth1. As the project has been refined, the total number
of actual spaces is now 404. As proposed, the new parking structure is consistent with the policies
for providing parking within the Downtown.
1 919 Palm Street Parking Structure contains 242 parking spaces and was built to accommodate the loss of the Court Street
surface parking lot and the Chinatown surface parking lot and was not designed for future growth of the Downtown.
Figure 4: LUE map (Figure 5) showing the location of the Cultural Facilities Area including Mission Plaza and
Monterey Street from Mission Plaza to Nipomo Street
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7.2 Consistency with the Downtown Concept Plan
The Downtown concept Plan was adopted in July 2017. The Downtown Concept Plan is the
community’s vision for how downtown San Luis Obispo should be developed over the next 25 years
and is to be used as a guidance for development projects and for public improvements downtown .
The proposed project is described in this Plan within “Block 10;” A new parking structure on the
corner of Palm and Nipomo Streets is envisioned to include office mixed use along Nipomo Street,
the Theatre relocated along Monterey Street,
and public use on a portion of the rooftop.
Additionally, the Concept Plan describes the
Central Downtown to include an expanded,
vibrant, and art-filled Cultural District, the
focus of which is along Monterey Street
between Nipomo and Chorro Streets (blocks
10, 11, and 19). Visitors arriving in cars can
park in the new parking structure at Palm and
Nipomo Streets, then walk to the theater,
Children’s Museum, expanded History Center,
Museum of Art, Mission San Luis Obispo de
Tolosa, and Mission Plaza in a short two-block
stretch (Blocks 11 and 19).
7.3 Consistency with the Zoning Regulations
7.3.1 SLO Rep Theatre
The SLO Rep Theatre proposal complies with the lot coverage, floor area ratios, and building
height requirements for the Downtown Commercial zone with a Historic District overlay (see
Section 6.2.1 Project Statistics above). The performing arts facility use requires a Minor Use
Permit. The SLO Rep Theatre mission is to strengthen theatre’s cultural influence and
enriches the Central Coast by producing professional theatre, nurturing artists and providing
theatre education for children and adults. This is consistent with the definition in the Zoning
Regulations that states Theaters are Facilities for indoor display of films, motion pictures, or
dramatic, musical, or live performances. This classification may include incidental food and
beverage services to patrons.
The SLO Rep Theatre has administrative office hours, and public hours (performances).
Administrative office hours are Tuesday-Saturday, 8:00 AM-6:00 PM and Public Hours are
Wednesday - Friday: 5:30 PM - 10:00 PM and Saturday-Sunday: 12:00 PM - 10:00 PM.
Services and activities that occur on the site include: administrative office work; theatre
rehearsals; theatre performances; youth classes/camps; adult classes/camps; and internal and
outside meetings and events. The new space will have 7 full-time and 17 part-time employees.
With the two theater spaces in the new venue, there is the potential for two performances
happening simultaneously thus there is a proposed minimum of 50 attendees and a maximum
of 300 attendees. As proposed, the theatre is consistent with the Zoning Regulations.
The project includes a retaining wall and six-foot-tall fence with a maximum combined height
of 9 feet. Per Zoning Regulations section 17.70.070(F)3 - Where fences are located on
retaining walls within interior side or rear setbacks, fences shall not exceed six feet as
Figure 5: Snapshot of Block 10 of the Downtown Concept Plan
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measured from the uphill side if erected or replaced on top of the retaining walls, and the
combined fence and retaining wall height shall not exceed nine feet from the lower side. As
proposed, the project’s fence is consistent with code. Staff recommends that the Planning
Commission find the proposed project description consistent with the Zoning Regulations.
7.3.2 Parking Structure
Per Table 2.1, Parking Facilities require a Conditional Use Permit for a parking structure
within the C-D zone. The Zoning Regulations further state in Section 17.86.200 (Parking as a
Primary Use), Where parking as a primary use is permitted in compliance with Table 2-1:
Uses Allowed by Zone … discretionary permit approval may include deviations from
otherwise applicable development standards. The Palm Nipomo Parking Structure is
requesting deviations from the F.A.R. requirements of the Downtown Commercial zone. The
Parking Structure has a 4.1 F.A.R. and the Zoning Regulations states the maximum F.A.R. of
3.0 for the C-D zone. These deviations are necessary to meet the project goal of maximizing
the parking on the site and meeting as close as possible the goal of 450 parking spaces.
The parking structure will be accessible 24 hours a day, seven days a week. Currently the first
60 minutes are free and $1.25/hour or fraction thereof. Parking rates for the structure will
apply as follows:
8:00 AM to 7:00 PM Monday through Wednesday
8:00 AM to 11:00 PM Thursday through Saturday
1:00 PM to 7:00 PM Sunday
The parking structure will also operate DROP (Downtown Residential Overnight Parking
Program) for those residents who live Downtown and include short-term and long-term
bicycle parking. Staff recommends that the Planning Commission find the proposed project
description and deviation to the F.A.R. consistent with the Zoning Regulations.
7.4 Architectural Review Commission Recommendation
The ARC recommended that the Planning Commission find the Parking Structure and the SLO Rep
Theatre architectural designs consistent with the Community Design Guidelines with specific
direction to the SLO Rep Theatre applicant. The applicant’s response to ARC direction is discussed
below.
ARC Direction: Review the balance and proportion of the wall cladding - specifically, reduce the
variegated terracotta facade at on the exterior of the black box theatre and at the upper portion of
the walls of the main theatre projecting above the roof deck level (approximately at the 218.45 -foot
elevation and above), and soften the contrast of the terracotta.
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Response: The applicant has provided revised façade improvements based on the ARC’s direction.
Figure 6 shows the original façade colors and materials. The applicant has provided a rendering that
follows the ARC’s direction very strictly; the white tile has been replaced with a color that is darker
and provides less contrast with the other tile colors. The upper levels that are set back and the black
box theater have all been given a solid color. Strict compliance with ARC direction leaves the black
box theater façade very plain and with minimal articulation.
Figure 6: Original facade design
Figure 7: Facade redesign with strict adherence to the ARC's direction
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The applicant also provided renderings that are a compromise between the ARC direction and the
original façade design. Figure 8 replaces the white terra cotta tile and uses a smooth stucco finish on
a portion of the upper floor setback, but instead of a random color combination of terra cotta tiles, the
exterior tiles of the black box theater and the upper floor setback are given a specific design layout.
Staff finds that the exterior façade of Figure 8 satisfies ARC’s direction, and is consistent with the
Community Design Guidelines (CDG) for Downtown development (Chapter 4.2, Section C.5) that
discusses that wall surfaces should be varied and interesting. Staff recommends the Planning
Commission find the revised design consistent with ARC direction and the CDG and recommend the
City Council approve the architectural design of the SLO Rep Theatre.
7.5 Cultural Heritage Committee Recommendation
The CHC provided three recommendations regarding the proposed project. These recommendations
are listed below.
1. Parking Structure - Recommended that the Planning Commission find the Parking Structure
architectural designs compatible with the Downtown Historic District.
2. Heyd Adobe - Recommend continuance of the Heyd Adobe component of the project to a
date uncertain, having found that the destruction of the Hyde Adobe, an element of the project
that makes it incompatible with the historic preservation guidelines and goals of the City, and
continue the item directing city staff and the applicant to present feasible options for leaving
the adobe in the current location, moving it to another location on the same site or to another
site altogether.
3. SLO Rep Theatre - Recommended continuance of the SLO Rep Theater component of the
project to a date uncertain, with direction that the applicant present more cohesive coloring
and materials treatment of the exterior fabric, a less busy and variegated design such that it’s
compatible with the immediately surrounding historic buildings of the downtown historic
district.
Figure 8: Staff's recommended facade
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Staff Discussion: The CHC recommended a continuance of the Heyd Adobe component of the project
and recommended that the project evaluate within its design the preservation of the Heyd Adobe in
situ (current location), relocation on site, or moving the structure to another site. When certifying the
Final EIR, the City Council, was provided information concerning impacts to the historic structures
on site and all alternatives, which included a discussion of retaining the Heyd Adobe and other
Contributing Historic Resources. The City Council’s decision to certify the Final EIR, including
Findings of Overriding Considerations, supported the determination that preserving the historic
properties on site does not satisfy project objectives of establishing a performing arts venue (SLO
Rep Theatre) and the development of a new parking structure.
The CHC’s purview or scope of review for the project, was to provide a recommendation on the
proposed project’s consistency with development in the vicinity within the Downtown Historic
District. Therefore, it is staff’s opinion that it was not within the CHC’s purview to recommend a
continuance of the project with direction to explore retaining the Heyd Adobe onsite by redesigning
the project or to evaluate relocation alternatives.
The CHC also provided feedback regarding the design of the SLO Rep Theatre (item #3 above). Staff
requested the CHC provide specific direction on what needed to be changed to be compatible with
the Downtown Historic District, but no specifics were given. The direction discusses revising the
exterior materials and color variation; very similar to the direction provided by the ARC. As discussed
in Section 7.4 above, the applicant has made changes to the exterior design to provide a more cohesive
façade treatment that is less busy and variegated.
The CDG and the Historic Preservation Program Guidelines (HPPG) overlap in their review criteria
for the Historic District and characteristics that make the district unique (Section 5.2.2). HPPG
Section 3.2.1 discusses that new structures within a Historic District shall be designed to be
architecturally compatible with the district’s prevailing historic character. Based on the changes made
by the applicant, staff recommends that the PC recommend that the City Council approve the revised
design and find it compatible with the Downtown Historic District and consistent with HPPG Sections
3.2.1 and 5.2.2.
8.0 ENVIRONMENTAL REVIEW
On July 17, 2018, the City Council certified the Final Environmental Impact Report (FEIR State
Clearinghouse Number 2017051011), adopted a Mitigation Monitoring and Reporting Program,
adopted the following CEQA Findings and Mitigation Measures related to the Palm Nipomo Parking
Structure Project, and made a Statement of Overriding Considerations (Attachment 7). The adopted
FEIR identified that the project will result in significant and unavoidable impacts to: 1) Aesthetics –
The scale and massing of the parking structure interrupting the transition from the Dana Street
grouping of historic resources from the remainder of the Downtown Historic District to the east; 2)
Cultural and Tribal Cultural Resources – Removal of two historic resources from the project site; and
3) Noise – Short-term construction noise. The FEIR also found that there would be significant impacts
that can be mitigated to less than significant in the categories of aesthetics, cultural and tribal cultural
resources, transportation, air quality, biological resources, geology and soils, and hazardous materials.
Some impacts related to aesthetics, cultural resources, noise, and transportation were found to be less
than significant.
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The project is proposed to remain the same as the project assessed in the adopted FEIR; however the
project now proposes to change the land use designation from Public to Downtown Commercial and
the zoning from Public Facility with a Historic Overlay (PF-H) to Downtown Commercial with a
Historic Overlay (C-D-H) to allow for the uses as they are described and analyzed in the FEIR. No
physical changes to the project or proposed uses are proposed to occur which were evaluated
previously in the certified FEIR. The change in the land use designation necessitated preparation of
an Addendum (Attachment 6) to the certified FEIR to address the project changes, per State CEQA
Guidelines Section 15162. The Addendum includes an updated project description, and incorporates
the additional analysis for inclusion in the environmental record. The updated analysis does not
materially change the findings and conclusions of the FEIR, making a Subsequent EIR unnecessary
pursuant to Section 15162 of the State CEQA Guidelines.
9.0 OTHER DEPARTMENT COMMENTS
All City Departments have reviewed the project and have provided comments that are incorporated
into the recommended resolution as conditions of approval.
10.0 ALTERNATIVES
10.1 Recommend the Council deny the project. An action denying the application should include
findings that cite the basis for denial and should reference inconsistency with the General Plan,
Community Design Guidelines, Historic Preservation Program Guidelines, Zoning Regulations or
other policy documents.
10.2 Continue the item. An action to continue the item should include a detailed list of additional
information or analysis required to make a recommendation on the project. Staff does not recommend
this alternative since the City Council will be reviewing this project at their November 5, 2019 regular
meeting. A recommendation from the Planning Commission is necessary for this to occur.
11.0 ATTACHMENTS
1. Draft Resolution
2. SLO Repertory Project Plans
3. Parking Structure Project Plans
4. ARC Draft Minutes (9.16.2019)
5. CHC Draft Minutes (9-23-2019)
6. Addendum - also available online at:
https://www.slocity.org/Home/ShowDocument?id=24199
7. Resolution No. 10923 - Certifying Final EIR for Palm Nipomo Parking Structure Project
8. Final EIR available online at: https://www.slocity.org/government/department-
directory/community-development/documents-online/environmental-review-documents/-
folder-1903