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HomeMy WebLinkAboutBusiness Item 1 - GENP-0327-2017 (Zoning Regulation Update) MEMORANDUM DATE: October 25, 2017 TO: Planning Commission BY: Kyle Bell, Associate Planner FROM: Doug Davidson, Deputy Director SUBJECT: Zoning Regulations Update –Table 6 (Parking Requirements by Use) and Transitions Between Land Uses (White Paper). Overview of update to Table 6 The Zoning Regulations Section 17.16.060 Parking Space Requirements is intended to ensure provision of adequate off-street parking, considering the demands likely to result from various uses, combinations of uses, and settings. It is the City's intent, as indicated by the General Plan policies below, to consolidate parking and to minimize the area devoted exclusively to parking and drives when typical demands may be satisfied more efficiently by shared facilities. Land Use Element Policies & Programs • 2.3.8. Parking. The City shall discourage the development of large parking lots and require parking lots be screened from street views. In general, parking should not be located between buildings and public streets. • 2.3.9. Compatible Development. Parking. New development: (a) Outside of the Downtown In-lieu Parking Fee Area, new development will be required to provide adequate off-street parking to match the intended use. (b) For multi-family, parking shall be sited and designed to minimize the visual impact from the public street. Circulation Element Policies & Programs • 2.1.1. Multi-level Programs The City shall support county-wide and community-based efforts aimed at substantially reducing the number of vehicle trips and parking demand. • 14.1.2. Neighborhood Protection The City shall facilitate strategies to protect neighborhoods from spill-over parking from adjacent high intensity uses. PC Business1 - 1 GENP-0327-2017 Memorandum: Zoning Regulations Update Page 2 Table 6 (Parking Requirements by Use) has been re-organized to reflect the changes in Table 9 (Uses Allowed by Zone), as presented to the PC on August 23, 2017, new uses have been provided with recommendations from MIG, and staff has also provided the ITE Demand for specific land uses as available. The Institute of Transportation Engineers (ITE) is an international membership association of transportation professionals who work to improve mobility and safety for all transportation system users and help build smart and livable communities. ITE Demand is used as a common practice to identify parking demand during weekday peak hour times. However, ITE rates do not include all uses listed in Table 9, staff has identified several land use classifications so far and provided a note whether the existing requirements are greater than or less than the ITE Demand based on standard examples, see one example below; General Retail Example: 5,000 square foot tenant space Land Use Number of Off-Street Parking Spaces Required Greater or Less Than ITE Demand Weekday Peak General Retail 1 space per 300 sf gross floor area < 3.9 spaces per 1,000 square feet gross leasable area Existing Requirement = 17 parking spaces ITE Demand = 20 parking spaces Please Note: Revisions to Table 6 have been provided as Attachments 1. These are working files provided as initial suggestions from MIG and Staff and are not to be considered as a formal recommendation. A formal draft of the changes to these documents will be presented to the Planning Commission for discussion at a later date. City staff will provide a presentation and opportunity to review and comment on the following discussion items, to be provided as feedback to the consultant. Discussion Item #1 – ITE Demand The Planning Commission (PC) should comment on the ITE Demand as a base for establishing parking requirements. It is not the intent of staff to use the specific parking ratios, but rather as a guide to assist in identifying appropriate parking requirements consistent with other communities. The PC should comment on whether ITE parking demand rates are too high or too low, for specific land uses. Generally, the City’s parking requirements are higher than (requiring more spaces) than the ITE standards. Adjusting the City’s parking requirements to be more in line with ITE standards could reduce the number and extent of parking reductions. Draft Land Use classifications and Table 9 are available on the City’s website, see link below; http://opengov.slocity.org/weblink/1,1,1,1/doc/67417/Page1.aspx Discussion Item #2 - Simplify parking requirements Based on comments heard from staff and the Resident and Stakeholder interviews, as well as the Open House on June 3, 2017, Table 6 Parking Requirements need to be simplified to clearly reflect adequate parking needs. The existing parking requirements can be difficult to calculate when parking requirements vary based on use of space within a single business, see example below. PC Business1 - 2 GENP-0327-2017 Memorandum: Zoning Regulations Update Page 3 Restaurant Example: 2,000 square foot tenant space Land Use Number of Off-Street Parking Spaces Required Greater or Less Than ITE Demand Weekday Peak Restaurant 1 space per 60 sf customer use area, including waiting seating, counter service areas, and dancing areas, plus 1 space per 100 sf food preparation, including counter space, pantry storage, and dishwashing areas. Walls, halls, restrooms, and dead storage areas do not count as either customer use or food preparation floor area < 22.7 spaces per 1,000 square feet gross floor area (Quality Restaurant) or; 20.6 spaces per 1,000 square feet gross floor area (Casual Restaurant) Existing Requirement = 22 parking spaces Customer area (1,000 s.f.) = 17 Food preparation area (500) = 5 Storage/restrooms/halls (500) = 0 ITE Demand (Casual) = 41 parking spaces Where possible, parking requirements should be based on gross floor area rather than a breakdown of the spaces within a use. The ability to breakdown the parking by space provides too many discrepancies between applicants and staff when a business remodels or changes tenants. Stakeholder Interviews summary, and the Open House summary are available on the City’s website, see link below; http://opengov.slocity.org/weblink/1/doc/64208/Page1.aspx Discussion Item #3 – Parking Reductions An import aspect of Table 6 includes the ability for applicants to request parking reductions, although the specific language of the parking reductions is not included with this memo, staff would like the PC to weigh in on potential ideas to amend parking reductions. The existing parking reductions are identified below; Shared parking up to 10% Mixed-Use parking up to 20% Automobile Trip Reduction – no established limit Bicycle/Motorcycle parking up to 10% for each These parking reductions are available for projects which meet specific requirements and may be combined with other reductions. Examples to amend these parking reductions could include establishing a maximum parking reduction, and/or requiring additional findings/parking studies for projects that exceed an established threshold. Changes to the parking reductions would be done in conjunction with revisions to Table 6 as discussed above. The PC should provide direction to staff to address any revisions to the available parking reductions. PC Business1 - 3 GENP-0327-2017 Memorandum: Zoning Regulations Update Page 4 Discussion Item #4 – Downtown Parking Staff would like to inform the PC that although downtown parking requirements are not included with this memorandum, any proposed changes to parking requirements in Table 6 may also alter the parking calculations downtown. The current parking ratios downtown are available for reference below (Section 17.16.060H); Restaurants, sandwich shops, take-out food, bars, taverns, night clubs, other food service or entertainment establishments, theaters, auditoriums, convention halls, and churches: One- half that required in Table 6; provided, however, that in no case the requirement shall exceed one space per three hundred fifty square feet gross floor area. Dwellings, motels, hotels and bed and breakfast inns: One-half that required in Table 6. In order to support and encourage residential uses in the C-D zone, additional options for meeting parking requirements for residential uses are available as listed in subsection 7 below. All other uses: One space per five hundred square feet gross floor area. Discussion Item #5 – Bicycle Parking On September 21, 2017, staff met with the Bicycle Advisory Committee (BAC) to provide an introduction to the Zoning Regulations Update and discuss current thresholds for bicycle parking requirements and the methods that are used to calculate requirements (Table 6.5). The BAC provided direction to MIG and staff that bike parking should be based on Land Use instead of by Zones as a percentage of required auto spaces as currently in Table 6.5. The BAC would also like to see bicycle parking requirement included in Table 6 reflective of the Circulation Element objective for 20% bicycle trips City-wide. The PC should comment on the idea to include bicycle parking based on Land Use, or possibly square-footage like vehicular parking, and the inclusion of bicycle parking into Table 6. Discussion Item #6 - Uses with Existing Table 6, but not in Table 9 MIG has identified several land uses that are not included in Table 9, but include parking requirements in Table 6. Staff will consolidate these land uses with existing to match Table 9 for consistency, see list below. • Bowling alleys • Florists and photofinishing (retail) • Retail sales and repair of bicycles • Post office • Repair services - Small appliances, shoes, etc. • Self service laundry/dry cleaner • Ambulance services • Water and wastewater treatment plants PC Business1 - 4 GENP-0327-2017 Memorandum: Zoning Regulations Update Page 5 ATTACHMENTS 1. Table 6 for discussion with ITE standards 2. White Paper - Transitions Between Land Uses PC Business1 - 5 No requirementN/AAnimal Husbandry and Grazing No requirementN/A2 parking spaces when there is no on‐street parking allowed adjacent to the community garden propertyN/ANo requirement  N/ANo requirement  N/AAs provided in approved use permitN/ASame as Manufacturing ‐ Light1.13 spaces per 1,000 square feet gross floor areaFuel Dealer (propane, etc)1 per 500 sf indoor sales/storage area plus 1 space per 2,000 sf  outdoor sales/storage areaN/ASame as Manufacturing ‐ Light1.13 spaces per 1,000 square feet gross floor area1 space per 400 sf gross floor area>1.13 spaces per 1,000 square feet gross floor area1 space per 300 sf gross floor areaN/AOne space per 500 square feet gross floor area1.13 spaces per 1,000 square feet (gross)1 space per 500 sf gross floor area>1.18 spaces per 1,000 square feet gross floor area 1 space per 300 sf accessory office area plus 1 space per 300 sf to 500 sf manufacturing floor area, to be determined by director according to employment characteristics of each use, plus 1 per 1,500 sf outdoor manufacturing area>1.18 spaces per 1,000 square feet gross floor area One space per 300 square feet office areas plus one space per 500 square feet indoor storage area plus one space per 2,000 square feet outdoor storage area1.13 spaces per 1,000 square feet gross office floor area plus 0.81 spaces per 1,000 square feet gross storage floor areaOne space per 300 square feet gross floor area1.13 spaces per 1,000 square feet grossOne space per 300 square feet gross floor area1.13 spaces per 1,000 square feet gross floor areaRecycling ‐ Small Collection FacilityAs provided in approved use permit~1.13 spaces per 1,000 square feet gross floor areaRecyclingPetroleum product storage and distributionPhoto and film processing labPrinting and publishingBakery, wholesaleFurniture and fixtures manufacturing, cabinet shopHandicraft ManufacturingManufacturing ‐ LightLaboratory ‐ Medical, Analytical, Research, TestingLaundry, dry cleaning plantManufacturing ‐ HeavyINDUSTRY, MANUFACTURING & PROCESSING, WHOLESALINGAGRICULTUREAgricultural Accessory StructureCommunity GardensCrop production Greenhouse/Plant Nursery, CommercialLivestock feed lotLand UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanAttachment 1PC Business1 - 6 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanRecycling ‐ Collection and Processing Facility1 space per 500 sf gross floor area plus 1 space per 10,000 sf outdoor storage area, but in no case less fewer than 4 spaces >1.13 spaces per 1,000 square feet gross floor areaOne space per 500 square feet of gross floor area plus one space per 10,000 square feet outdoor storage area, but in no case less than 4 spaces 1.13 spaces per 1,000 square feet gross floor area1 space per 300 sf office or laboratory area, plus 1 space per 500 sf indoor assembly or fabrication area, plus 1 space per 1,500 sf outdoor work area or indoor warehouse area>1.85 spaces per 1,000 square feet gross floor area1 space per 500 sf gross floor area plus 1 space per 10,000 sf outdoor storage area, but in no case less fewer than 4 spaces >1.13 spaces per 1,000 square feet gross floor area Outdoor Storage1 space per 2,000 sf gross floor area<0.81 spaces per 1,000 square feet gross floor area Personal Storage 1 space per 300 sf office area and common indoor facilities plus 1 space for every 5 storage units that do not have direct drive‐up vehicle access>0.17 spaces per 1,000 square feet gross floor area ; or1.66 spaces per 100 storage unitsWarehousing and Indoor Storage1 space per 300 sf office area plus 1 space per 1,500 sf indoor storage area>0.81 spaces per 1,000 square feet gross floor area Wholesaling and distribution1 space per 300 sf office area plus 1 space per 1,000 sf indoor sales/storage area, plus 1 space per 2,000 sf outdoor sales area>0.81 spaces per 1,000 square feet gross floor area Food bank/packaged food distribution centerOne space per 300 square feet of office plus one space per 1,500 square feet of indoor storageN/A1 space per room or group of rooms to be occupied as a suite, plus 2 for resident manager's quartersN/A2 spaces for the facility plus 1 space for each six occupants at maximum allowed occupancy N/A1 space per five beds, plus 1 space for manager. When the hostel is part of a residence: 1 space per five beds, in addition to two spaces for the residence.N/A1 space per room or group of rooms to be occupied as a suite, plus 1 for resident manager's quarters, plus eating/assembly area requirements<>1.54 spaces per occupied room (hotel)*;or0.85 spaces per occupied room (motel)As provided in approved use permitN/AAs provided in approved use permitN/AWarehousing, Storage, and DistributionLODGINGHomeless shelterHostelHotels and MotelsPUBLIC AND QUASI‐PUBLIC USES Recreational vehicle (RV) park accessory to hotel, motelRV ParksRecycling facilities ‐ Scrap and dismantling yardIndustrial rResearch and developmentSalvage and WreckingBed and Breakfast InnAttachment 1PC Business1 - 7 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanClub, lodge, private meeting hallOne space per 300 square feet office area plus one space per four fixed seats or one space per 40 square feet seating area without fixed seats, in the largest assembly roomN/ACultural InstitutionsStage theaters and auditoriums: 1 for each 6 permanent seats in main assembly area, or 1 for every 60 sf of assembly area where temporary or moveable seats are provided, whichever is greater.Galleries, Libraries, and Museums: 1 for every 1,000 sf of floor area.Other establishments: determined by the Director.<<<0.32 spaces per seat4.19 spaces per 1,000 square feet gross floor area (Library)1.79 spaces per 1,000 square feet gross floor area *(Museum)Golf CourseSee Sports and active recreation facilityN/ALibrary, museumOne space per 500 square feet storage/display area plus government office and meeting room requirements4.19 spaces per 1,000 square feet gross floor area (Library)Library, branch facilityAs provided in approved use permit1.79 spaces per 1,000 square feet gross floor area *Clinic, laboratory, urgent care1 space per 200 sf gross floor area. =4.96 spaces per 1,000 square feet gross floor areaHospital 1 space per bed<7.35 spaces per bed Medical service ‐ Extended careOne space per four beds (adult): one space per five juvenile occupantsN/AConvalescent hospitalSame as Medical service ‐ Extended careN/APark and Recreation Facilities1 space per 500 sf>4.2 spaces per acre * (City Park)Public Assembly Facilities1 space per four fixed seats or 1 space per 40 sf of assembly area without fixed seatsN/AReligious Assembly Facilities1 space per four fixed seats (1 space per 40 sf seating area without fixed seats) in largest assembly room=14.38 spaces per 1,000 square feet gross floor area; or0.25 spaces per fixed seat*As provided in approved use permitN/ASchools ‐ Colleges and Trade SchoolsAs provided in approved use permit~0.38 spaces per school populationOne space per 50 square feet per classroom floor areaN/ASchools ‐ Primary and Secondary2 spaces per classroom plus 1 space per 300 sf office, assembly or common area ~0.21 spaces per student (Elementary);0.10 spaces per student (Middle);0.25 spaces per student (High School) Schools ‐ Specialized Education/TrainingOne space per 50 square feet per classroom floor areaN/ASports and active recreation facilityOne space per 100 square feet of play surfaceN/AHospitals and ClinicsSchool ‐ Boarding school, elementary, middle, secondarySchool ‐ College, university ‐ Satellite classroom facilityAttachment 1PC Business1 - 8 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanSports and entertainment assembly facilityAs provided in approved use permitN/ASingle‐Unit Dwellings, Detached2 spaces per dwelling. In the R‐1 and C/OS zones, 1 space must be covered. <2.14 spaces per dwelling unit.Secondary Accessory Dwelling UnitsSee Chapter 17.21N/AMulti‐family‐Unit Residential dwellings1 per studio apartment, 1‐1/2 for first bedroom plus 1/2 for each additional bedroom in a unit, plus 1 for each five units in developments of more than five units. Also see parking reduction paragraphs under 17.16.060.>1.94 spaces per dwelling unit  (Apartment); or1.52 spaces per dwelling unit (Condominium) Rest home One space per four beds (adult): one space per five juvenile occupants0.54 spaces per dwelling unit Boarding/rooming House, dormitory1 space per 1.5 occupants or 1.5 spaces per bedroom, whichever is greater.N/ACaretaker quarters2 spaces per dwellingN/AContinuing Care CommunitySame as dwelling type or residential care type.>0.54 spaces per dwelling unit Convents and MonasteriesOne space per five occupantsN/AElderly and Long Term Care1 for every 7 residents plus 1 for each live‐in caregiver. Facilitiesserving more than 15 residents shall also provide 1 space for eachcaregiver, employee, and doctor on‐site at any one time.>0.54 spaces per dwelling unit Family Day Care ‐ Small Same as for applicable "General Residential Housing Type"; no additional parking requiredN/AFamily Day Care ‐ Large1 space in addition to required residential parking.N/AFraternities and Sororities1 space per 1.5 occupants or 1.5 spaces per bedroom, whichever is greaterN/AResidential Hospice In‐Patient Facility1 space per four beds (adult); 1 space per five juvenile occupants>0.54 spaces per dwelling unit High occupancy residential useThe parking requirement shall be greater of: 1. The number of space required for dwellings. or 2. One off‐street parking space per adult occupant, less one.N/ALive/work units2 spaces per unitN/AN/AMobile Home Park1.5 spaces per unit; 1 space to be with unitN/A1 space per four beds (adult); 1 space per five juvenile occupants>0.54 spaces per dwelling unit 1 space per four beds (adult); 1 space per five juvenile occupants>0.54 spaces per dwelling unit Same as dwelling type, plus 1 space for each every two employees providing on‐site services to residents, as applicable>0.54 spaces per dwelling unit Work/live units2 spaces per unitN/ASupportive and/or Transitional Housing, with On or Off‐Site ServicesGeneral Residential Housing TypesRESIDENTIAL USESResidential Care Facilities ‐ 6 or fewer residentsResidential Care Facilities ‐ 7 or more residentsMobile home as temporary residence at building siteAttachment 1PC Business1 - 9 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanMixed-use project DevelopmentSame as  Multi‐family dwellingsN/AAdult Entertainment BusinessesRetail: Same as General RetailBar/Club: Same as Bars, Nightclubs, and TavernsTheater (without alcohol): Same as TheatersN/AAnimal Boarding/Kennels1 per employee plus three spaces for loading and unloading animalson‐site.N/AAnimal Grooming1 per 500 sf of floor areaN/AAnimal Retail Sales1 per 300 sf of floor area<3.9 spaces per 1,000 square feet gross leasable area Veterinary Services, Large Animal1 space per 500 sf gross floor areaN/AVeterinary Services, Small Animal1 space per 300 sf gross floor areaN/AOne space per 300 square feet gross floor areaN/ABakery, retailOne space per 200 square feet gross floor areaN/AATMsNo requirement, except those required for the associated useN/ABanks and Credit Unions1 space per 300 sf gross floor area<5.67 spaces per 1,000 square feet gross floor areaCheck Cashing Shops/Payday Loans1 space per 300 sf gross floor areaN/ABusiness Support Services1 space per 300 sf gross floor areaN/ACemetery, mausoleum, columbarium 1 space per 500 sf of building areaN/ACopying and Quick Printer ServiceN/ACommercial recreation facility ‐ OutdoorOne space per 500 square feet outdoor use areaN/ACommercial Recreation facility ‐ Indoor Large Scale1 space per 300 sf gross floor area N/AFitness/health facility Commercial Recreation ‐ Small Scale1 space per 300 sf gross floor area<5.03 spaces per 1,000 square feet gross floor areaNeighborhood Store1 space per 500 sf gross floor area<5.5 spaces per 1,000 square feet gross floor area (851 )Day Care Center 2 spaces plus 1 space per 14 clients  1 space per employee plus additional parking as provided in the Pick‐up/Drop‐Off Plan required by Section XXX.<1 space per 2 students Eating and Drinking EstablishmentsAnimal Care, Sales and ServicesBanks and Financial InstitutionsVeterinary clinic/hospital, boarding, small animal, outdoorMIXED USESCOMMERCIAL USESAttachment 1PC Business1 - 10 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanBars, Nightclubs, and Taverns1 space per 60 sf of customer use plus 1 space per 100 sf of food preparation areaN/ANight clubOne space per 60 square feet floor or outdoor ground area for customer use, including seating and dancing areas, plus one space per 100 square feet food preparation areaN/AOutdoor BBQ/Grill, accessory to restaurantN/ARestaurant1 space per 60 sf customer use area, including waiting seating, counter service areas, and dancing areas, plus 1 space per 100 sf food preparation, including counter space, pantry storage, and dishwashing areas. Walls, halls, restrooms, and dead storage areas do not count as either customer use or food preparation floor area<22.7 spaces per 1,000 square feet gross floor area (Quality Restaurant)*; or20.6 spaces per 1,000 square feet gross floor area (Casual Restaurant)*Restaurant with late hour alcohol serviceSame as RestaurantN/AWine tasting room ‐ off siteOne space per 200 square feet gross floor area N/AGroceries, specialty foodsGeneral Market1 space per 200 sf gross floor area=5.05 spaces per 1,000 square feet gross floor area Convenience Store2 spaces for employee parking, plus 1 space per 500 sf of gross floor area and a minimum of 5 bicycle parking spaces shall be provided per business<5.5 spaces per 1,000 square feet gross floor areaProduce Stand1 space per 300 sf gross floor areaN/ALiquor Store/Alcohol Sales1 space per 200 sf gross floor areaN/ACatering service Food Preparation1 space per 100 sf food preparation areaN/AMortuary, Funeral Parlors and Internment Services 1 per four fixed seats or 1 per 40 sf assembly area, whichever is greaterN/AInstructional Services1 space per 200 sf gross floor area N/AMaintenance and Repair Servicesservice, client site services1 space per 300 sf gross floor area 1 space per 600 sf gross floor area, plus one space for each fleet vehicleN/AOne space per 500 square feet gross floor areaN/AOffice ‐ AccessoryAs required for principle useN/ABusiness and Professional Offices1 space per 300 sf gross floor area =3.45 spaces per 1,000 square feet gross floor areaMedical and Dental Offices service ‐ Doctor office1 space per 200 sf gross floor area>4.27 spaces per 1,000 square feet gross floor area Office ‐ Business and serviceOne space per 300 square feet gross floor area3.45 spaces per 1,000 square feet gross floor areaOffice ‐ GovernmentOffices: one per 300 square feet gross floor area. Meeting rooms: one per four fixed seats or one per 40 square feet of seating area without fixed seats.  6.13 spaces per 1.000 square feet gross floor areaRepair service ‐ Equipment, large appliances, etc.Food and Beverage SalesOfficesAttachment 1PC Business1 - 11 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanOffice ‐ ProcessingOne space per 200 square feet gross floor area3.45 spaces per 1,000 square feet gross floor areaOffice ‐ Production and administrativeOne space per 300 square feet gross floor area3.45 spaces per 1,000 square feet gross floor areaOffice ‐ ProfessionalMedical dental and other health services: one per 200 square feet gross floor area. All others: one space per 300 square feet gross floor area.4.27 spaces per 1,000 square feet gross floor areaSocial service organizationOne space per 300 square feet gross floor areaN/APersonal Services1 space per 200 sf gross floor area  N/AResidential Support ServicesN/APersonal services ‐ RestrictedN/AAuto parts sales, with installationOne space per 500 square feet gross floor area2.74 spaces per 1,000 square feet gross floor area *Auto parts sales, without installationOne space per 500 square feet gross floor area2.74 spaces per 1,000 square feet gross floor area *Building Materials and Services ‐ Indoor1 space per 300 sf office area plus 1 space per 500 sf indoor sales area plus 1 space per 2,000 sf warehouse areaN/ABuilding Materials and Services ‐ Outdoor1 space per 300 sf office area plus 1 space per 500 sf indoor sales area plus 1 space per 2,000 sf warehouse or outdoor sales areaSame as Building Materials and Services ‐IndoorN/AEquipment rentalOne per 300 square feet office area plus 1 per 500 square feet indoor display/storage plus 1 per 1,000 square feet outdoor display/storageN/AGeneral retail ‐ 2,000 sf or lessOne space per 300 square feet gross floor area3.9 spaces per 1,000 square feet gross leasable area General retail ‐ More than 2,000 sf, up to 15,000 sfOne space per 300 square feet gross floor area3.9 spaces per 1,000 square feet gross leasable area General retail ‐ More than 15,000 sf, up to 45,000 sfOne space per 300 square feet gross floor area3.9 spaces per 1,000 square feet gross leasable area General retail ‐ More than 45,000 sf, up to 60,000 sfA maximum of one space per 200 square feet gross floor area, with the exception for more spaces if structured multi‐level parking is used3.9 spaces per 1,000 square feet gross leasable area General retail ‐ More than 60,000 sf, up to 140,000 sfA maximum of one space per 200 square feet gross floor area, with the exception for more spaces if structured multi‐level parking is used3.9 spaces per 1,000 square feet gross leasable area Extended hour retailSame as specific type of retailN/AGeneral Retail1 space per 300 sf gross floor area<3.9 spaces per 1,000 square feet gross leasable area Large Format RetailA maximum of 1 space per 200 sf gross floor area, with the exception for more spaces if structured multi‐level parking is used>3.9 spaces per 1,000 square feet gross leasable area Nurseries and Garden Centers1 space per 300 sf office area plus 1 space per 500 sf indoor sales area plus 1 space per 2,000 sf warehouse or outdoor sales areaN/ARetail SalesAttachment 1PC Business1 - 12 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanFarm supply and feed storeOne per 500 square feet indoor sales/storage area plus one space per 2,000 square feet outdoor sales/storage area.N/AFurniture, furnishings, and appliance storesOne space per 500 square feet gross floor area  1.13 spaces per 1,000 square feet gross floor areaPhotographer, photographic studioOne space per 200 square feet gross floor areaN/AWarehouse stores ‐ 45,000 sf or less gfaMinimum one space per 300 square feet gross floor area N/AWarehouse stores ‐ more than 45,000 sf gfaA maximum of one space per 200 square feet gross floor area, with the exception for more spaces if structured multi‐level parking is used5.54 spaces per 1,000 square feet gross floor area *Studio ‐ Art, Dance, Martial Arts, Music, etc.One space per 200 square feet gross floor area N/ATheaters1 space per four seats<0.32 spaces per seat Theaters ‐ Drive‐InNo requirementN/AOffice‐supporting retail, 2,000 sf or lessOne space per 300 square feet gross floor areaN/AOne space per 300 square feet gross floor areaN/AAuto and Vehicle Sales and Rental1 space per 300 sf office area plus 1 space per 500 sf parts sales service area, plus 1 space per 2,000 sf outdoor sales areaN/ALarge Vehicle, Construction and Heavy Equipment Sales, Service, and Rental1 space per 300 sf office area plus 1 space per 500 sf parts sales service area, plus 1 space per 2,000 sf outdoor sales area1 space per 6,000 sf of lot area, plus 2 per service bay for any accessory vehicle repairN/AMobile home, RV, and boat salesOne space per 300 square feet office area plus one space per 500 square feet parts sales service area, plus one space per 2,000 square feet outdoor sales areaN/AService/Fueling Stations 1 space for attendant booth plus two per service bay plus 1 space per four fuel pumps<1.03 spaces per fueling positionVehicle services ‐ Major Repair/Body Work 1 space per 500 sf gross floor areaN/AVehicle services ‐ Minor Repair/Maintenance1 space per 500 sf gross floor area N/AVehicle services ‐ Washing2 spaces plus sufficient waiting line(s) or two spaces plus washing area(s)N/AAirportsAs provided in approved use permitN/AAntennas and Telecommunications FacilitiesNone requiredN/AFreight/Truck Terminals or Warehouses1 space per 300 sf office plus 1 space per 1,000 sf garage/warehouse area N/A1 space per 300 sf office area plus 1 space per 1,000 sf garage/warehouse areaN/ABacklots and SoundstagesAs provided in approved use permitN/ABroadcast Studios1 space per 300 sf gross floor areaN/AMedia ProductionVehicle Sales and ServicesOffice‐supporting retail, More than 2,000, up to 5,000 sfTRANSPORTATION & COMMUNICATIONSAmbulance, taxi and/or limousine dispatchLight Fleet‐Based ServicesAttachment 1PC Business1 - 13 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less ThanAs provided in approved use permitN/AParking facilityN/AParking facility ‐ Multi‐leveln/aN/APublic Safety Facilities1 space per 500 sf gross floor areaN/ARailroad facilitiesOne space per 300 square feet office or waiting roomN/ATransit station or terminal1 space per 300 sf office/waiting area plus 1 space per 1,000 sf house/garage areaN/ATransit stopN/APublic Utilities Facilities1 space per 300 sf office area plus 1 space per 1,500 sf warehouse/service area plus space for fleet vehiclesN/AOne space per 300 square feet office plus one space per 1,000 square feet warehouse/service area N/AEducational conferencesAs provided in approved use permitN/AHomestaySee Section XXXN/AHome occupationSee Section 17.08.090N/ASee Section XXXN/AOffice ‐ TemporarySee Section 17.08.010 CN/AOutdoor temporary and/or seasonal salesSee Section 17.08.020 N/AParking facility ‐ Temporaryn/aN/ASafe Parking As provided in approved use permitN/ASpecial event1 space per 500 sf or As provided in approved use permitN/AVending machineNone requiredN/ACommercial MiningDrive‐Through or Drive‐Up FacilitiesLarge Scale Retail over 140,000 square feetLivestock Feed LotAs provided in approved use permitMineral ExtractionSchool ‐ College, university ‐ Satellite classroom facility1 space per 50 sf per classroom floor areaVacation RentalPROHIBITED USESWater and wastewater treatment plants and servicesHeliportFood TrucksSPECIFIC AND TEMPORARY LAND USESAttachment 1PC Business1 - 14 Land UseNumber of Off‐Street Parking Spaces RequiredTable 6 - Parking Requirements by UseITE Demand Weekday PeakGreater or Less Than2 spaces per lane plus 1 space per four seats spectator/eating area <5.58 spaces per lane1 space per 500 sf floor areaN/A1 space per 500 sf floor area N/A1 space per 300 sf office, sorting, customer service area plus 1 space per 500 sf bulk handlingN/A1 space per 300 sf N/A1 space per each four washers or dryers>2.44 spaces per 1,000 square feet gross floor area 3 spaces per emergency vehicle N/AAs provided in approved use permitN/AAmbulance servicesWater and wastewater treatment plants Uses with Existing Parking Regs but not in Table 9Florists and photofinishing (retail)Retail sales and repair of bicyclespost officeRepair services ‐ Small appliances, shoes, etc.Self service laundry/dry cleanerBowling alleysITE Demand Weekday PeakRequired ParkingAttachment 1PC Business1 - 15 1 White Paper: Transitions Between Land Uses SEPTEMBER 2017 Introduction The City of San Luis Obispo is in an evolutionary stage. While several master-planned developments are being considered on greenfield lands abutting long-established neighborhoods and business districts, the City is also experiencing development pressures in infill areas, where landowners are looking to reuse, repurpose, and demolish existing buildings to create more urban and pedestrian-scale developments that deviate from the suburban character that has long defined the community. Many infill development proposals have raised concern from local residents, as they see change occurring at the edges of their neighborhoods, along local streets, and even within neighborhoods. While the new approaches to development are implementing policy direction in the Land Use Element, policy implementation involves working through details that may not have been thoroughly identified during the planning phase. One such issue residents have identified is the need to create appropriate transitions between uses— from lower- to higher-density residential uses, and from nonresidential to residential uses—with the goals of preserving neighborhood character, protecting privacy, and ensuring “good neighbor” conditions wherever new development occurs. As a related but more detailed concern expressed during the Land Use and Circulation Element (LUCE) update, residents focused specifically on the impacts of infill development in residential neighborhoods. This paper examines land use and site design issues and options that might be considered in the process of updating the Zoning Regulations to address concerns residents have identified with recent development projects. The paper also provides examples of approaches other municipalities have adopted that the City may consider appropriate in San Luis Obispo to provide appropriate transitions between lower- and higher-intensity uses. Finally, as a companion piece to this paper and included as an appendix is a document Planning staff prepared in 2016 to address infill development within residential neighborhoods. The focus of this second paper is more fine grained, with the emphasis on “incompatible large houses” and infill development in existing neighborhoods (as opposed to transitions between commercial and residential uses and higher intensity to lower intensity development). This latter effort was initiated to implement LUCE Program 2.13, which states: The City will consider new regulations, for Low-Density (R-1) and Medium-Density Residential (R-2) areas, to require special review for (1) incompatibly large houses, (2) Attachment 2 PC Business1 - 16 2 replacement or infill homes in existing neighborhoods, and (3) accessory buildings with plumbing facilities allowing easy conversion to illegal second dwellings 1 . The City will periodically update Community Design Guidelines for larger homes, infill housing and accessory single-story buildings. Both the Zoning Regulations (Title 17 of the Municipal Code) and Community Design Guidelines (dated June, 2010) define how development can occur. This paper focuses on the Zoning Regulations since they are currently being updated but references the Community Design Guidelines because select guidelines could be codified as part of the Zoning Regulations update program. Community Input: Key Themes Community comments made during public engagement activities for the Zoning Regulations update— which echoed comments made at recent public hearings on development applications—identified the following key concerns regarding transitions between new development and established neighborhoods and districts.  Greater clarity and consistency for land use and design policies: The Zoning Regulations should provide intent statements and clearer definitions, as well as more illustrations and graphics. The code should clearly delineate what is required (zoning code) and what is discretionary (design guidelines).  Strengthen design compatibility requirements: Policies/regulations/guidelines should outline a range of considerations for the design of new uses and how they fit into existing neighborhoods. This includes improving the appearance and relationship to the street, providing guidelines on specific locations in the City, and requiring more design guidelines for upper floors, including solar gain and view preservation.  Strengthen use compatibility requirements: More certainty is needed around the impacts of new uses, such as noise from roof-top decks and concern with the imbalance of renter/owner occupied homes, especially for multi-family developments converted to student housing.  Improve relationships between public and private spaces: Residents expressed general concern about the design of development and the appearance from the public street, including the amount and design of off-street parking in certain locations of the City.  Allow for greater flexibility: Policies could allow for smaller lots in more zones, alternatives to density incentives for common spaces and amenities such as FAR, flexibility for setbacks on unusually shaped lots, and more flexible parking standards. 1 Item 3 (conversions) was implemented in the July 2014 Zoning Regulations amendments which established new regulations for accessory spaces (specifically accessory structures and guest quarters) in order to prevent the easy conversion of such spaces into illegal dwelling units Attachment 2 PC Business1 - 17 3 Perceived Barriers Created by Existing Standards The comments shared by the public provide a focus of review as to how current zoning standards address transitions between different land uses. Existing regulations regulate transitions between uses in two primary ways: permitted land use types (e.g., single-family or multi-family residential) and physical scale and separation (i.e., maximum height and required setbacks and yards). Land Uses  Nonspecific housing types: Currently, the Zoning Regulations allow a high degree of flexibility for residential uses in nonresidential zones (see Table 1 below). However, the Regulations could list more specific mid-range housing types that can provide transition between higher and lower intensities. These could include attached townhomes, multiplexes, courtyard or garden apartments, and townhomes. Also, single-family dwellings are permitted in the densest residential zones, which may be better suited for medium- to higher-density housing types. Table 1: Zones Permitting Residential Development Land Use Type Residential Zoning Nonresidential Zoning R-1 R-2 R-3 R-4 O C-N C-R C-D High-Occupancy Residential Use D D Multi-Family Dwellings A A A A D D Mixed Use A A A A Single-Family Dwellings A A A A A D D Accessory Dwelling Units (ADUs) A A A A A Key: A=Allowed, D=Director approval Note: The High-Occupancy Residential Use classification may be eliminated as part of the Zoning Regulations update due to possible conflict with fair housing laws.  Zoning that does not invite transition: Currently, zoning patterns in the City have created several locations where zoning is not used to transition between higher intensity zones/uses and lower intensity zones/uses. For example, in the northwest (along Foothill Road), much of the low-density R-1 zone directly abuts high-density R-4 zoning.  Single mixed-use zone: A single mixed-use zone overlay (MU) applies to the entire city. The overlay r refers to the underlying zone for development standards, which may not address transition and interface conditions. And while the design guidelines Figure 1: Zoning in Northwest San Luis Obispo Attachment 2 PC Business1 - 18 4 typically provide additional direction for the design of individual developments, current guidelines have minimal guidance on mixed-use development, especially for upper-floor uses. The Mixed Use overlay zone has clear goals and is intended to align with the unique context of adjacent uses. However, the City may be better served by having two or more mixed-use zones that are based on the unique needs and character of specific districts or neighborhoods.  Direction on use conversions: The Office (O) zone currently functions as a mixed-use zone, allowing for a range of residential and nonresidential uses. Yet, limited standards regulate the conversion of residential uses to nonresidential uses in the Office zone, or to allow multifamily housing adjacent to an R-1 or R-2 zone, which has the potential to lead to surprising outcomes for neighboring residents. Design  Limited variation in design requirements: In zones that allow residential uses, minimum lot sizes all fall within the 5,000- to 6,000-square foot range, with larger lots required in the Retail Commercial (C-R) zone. Similarly, most residential zones have 50-foot minimum lot widths, which limit flexibility in the design of new development to match unique settings, or to encourage a scaled transition between different land use intensities and types. (Specific plans for master- planned developments have addressed this issue by establishing development standards different from the traditional zones. Also, common interest and airspace subdivisions allow for flexible lots sizes.) Maximum heights also have limited variation across the zones. Table 2: Design Regulations for Zones that Allow Residential Uses (17.24-17.30, 17.34, 17.38, 17.40) Land Use Type Residential Zoning Nonresidential Zoning R-1 R-2 R-3 R-4 C-D O C-N C-R Maximum Lot Coverage 40% 50% 60% 60% 100% 60% 65% 100% Minimum Lot Area 6,000 sf 5,000 sf 5,000 sf 5,000 sf 3,000 sf 5,000 sf 6,000 sf 9,000 sf Maximum Building Height 25’-35’ 35’ 35’ 35’ 50’-75’ 25’-35’ 35’ 45’ Units/Acre (max.) 7 12 18 24 36 12 12 36  Limited direction for smaller nonresidential developments: Commercial zones have large maximum floor area requirements, including 45,000 square feet in the Neighborhood Commercial zone (C-N) and 60,000 square feet in the C-R zone. However, there are limited standards requiring smaller building footprints that are to scale with residential uses, and some zones (including the Office zone) lack a maximum size requirement. Attachment 2 PC Business1 - 19 5  Standardized setbacks regardless of setting: The Zoning Regulations currently prescribe a scaled setback or yard requirement based on building height, with several exceptions that provide limited objective criteria. Also, limited consideration of setbacks is provided based on land use or street type. Furthermore, no guidance is provided as to what should be included in the yard or setback space.  Minimal parking design guidance: The design standards for off-street parking are similar regardless of zone. Parking can be used as an effective transition area between higher- and lower- intensity uses. Intent and Function Overall, the Zoning Regulation provide only a few graphics, illustrations, and precedent photos to convey the intent and design direction. The design guidelines are not regulatory in nature but are used as a basis for approving or denying projects. The guidelines provide several design review criteria that could be codified to provide more certainty to applicants and the public, such as building façade lengths and off- street parking location and design standards. Potential Transition Considerations Communities throughout California and the U.S. similar in scale to San Luis Obispo experience the transition issues of concern locally. Presented here are examples of approaches used both at a district level and more generically citywide. Reference is made both to codified standards and design guidelines, with the recognition that some design guidelines could be adopted as standards (not just suggestions). And although a few form-based approaches are described, the City is not considering a form-based code approach to any area except possibly in Downtown. Encouraging “Missing Middle” Housing Existing zoning prescribes standards for single-family housing and multifamily housing, with minimal emphasis on housing types that provide a transition between lower-density detached housing and denser, or multistory multifamily housing. The “missing middle” housing refers to housing largely absent from many communities that provides a medium-density housing type, providing a functional buffer between contrasting land uses. As an example, courtyard housing provides an approach to denser housing without the need for taller buildings. This housing type clusters one- or two-story apartment units around a central courtyard or greenspace shared by residents. The massing of buildings can oftentimes fit the surrounding context of nearby lower-density housing (single- family detached) or even Figure 2: Courtyard housing, Portland, Oregon Attachment 2 PC Business1 - 20 6 stand-alone two-story apartment buildings. The adjacent image shows a development in Portland, Oregon with detached and attached condominiums designed around a common open space that resemble surrounding detached single-family housing. Developing a Perimeter Design District The City of Bellevue, Washington adopted a Transition Area Design District that provides a buffer between residential uses in a residential land use district and a land use district which permits development of a higher intensity. The primary function of the district is to incentivize improvements that would serve to provide a transition with established uses, such as underground parking, pitched roof, upper floor step- backs, and others. The standards also prescribe minimum landscaping and setbacks for uses that are adjacent to higher-intensity development. Identifying Neighborhood Transition and Conversion Districts In Chula Vista, California, the Neighborhood Transition Combining District (NTCD) regulates the character of zones within an adopted Specific Plan area to be compatible with and complement surrounding residential areas. The zoning limits the upper-floor step backs to a 60-degree plane extending from each step back line. In Davis, California, the City has adopted multiple transition zones. The Residential Transitional District provides areas for separating intense commercial development from residential development, while the Interim Residential Conversion Zone provides a transition between older, established or historic neighborhoods, while allowing for the conversion for residences as dwelling or commercial uses, or a combination of the two. The zones control for parking design, fencing, landscaping, and signage to ensure that new development blends with the existing residential character of surrounding neighborhoods. Emphasizing Upper Floor Orientation The City of Santa Monica, California recently adopted design guidelines for its mixed-use corridors. The guidelines specifically require that upper-level balconies, terraces, and roof-top open spaces are oriented toward public streets and away from residential land uses and structures. The document uses text as well as illustrative graphics to convey the intent of the guidelines. Figure 3: Chula Vista’s upper-floor step-back standards Source: City of Chula Vista Municipal Code Attachment 2 PC Business1 - 21 7 Emphasizing Neighborhood Context The city of Seattle, Washington’s design guidelines for its downtown prioritize the unique local setting of proposed developments. The design guidelines call for developments to respond to a variety of design considerations, including local landmarks, public amenities or institutions, and other unique design elements. The guidelines also require a transition in building bulk, height, and scale through the topographic relationship and gradual or stepped changes in perceived height, bulk, and scale with adjacent zones and uses. Figure 4: Upper floor orientation diagram Source: https://www.smgov.net/departments/pcd/agendas/Planning-Commission/2012/20121128/Draft- Mixed-Use-Design-Guidelines.pdf Figure 5: Neighborhood context guidelines SCifSl Attachment 2 PC Business1 - 22 8 Providing Characteristics and Visuals to Describe Context Tacoma, Washington uses a Transitional District between commercial or industrial areas and residential areas. Land uses within this zone are characterized by lower traffic generation, shorter operation hours, smaller-scale buildings, and less signage than general commercial areas. The City also has several mixed- use zones that range from a neighborhood scale (45-foot heights) to an urban center (with 75-foot heights). Similarly, the Linden Hills Neighborhood in Minneapolis, Minnesota uses a series of policies and graphics to convey how new and denser development should fit within the context of surrounding residences and lower-density uses. Concepts Presented at June 3, 2017 Workshop At the June 3, 2017 community workshop on the Zoning Regulations update, participants commented on proposed approaches shown on the next two pages for addressing transitions between residential uses. Figure 6: Linden Hills, Minnesota neighborhood context example Source: Linden Hills Neighborhood Attachment 2 PC Business1 - 23 9 Attachment 2 PC Business1 - 24 10 Attachment 2 PC Business1 - 25 11 Regulating Building Form by Street Type and Impact Avoidance In El Cerrito, California, the City’s San Pablo Avenue Specific Plan outlines a comprehensive and form- based approach to the design, use, and function of the community’s major arterial, San Pablo Avenue, with sensitivities to adjacent residential districts. The Specific Plan uses a context-sensitive design approach by regulating building and street-front design by street and block. The plan provides visual examples of allowable building types, public spaces and sidewalk standards, and relation and design of upper floors based on adjacent residential uses, including regulations to avoid adverse shade and shadow impacts. The regulations are extensive regarding building design approaches along all sides of a building. Considerations for San Luis Obispo As the City investigates potential solutions to improving transitioning between higher- and lower-intensity land uses—and in particular, addressing privacy, shading, and similar concerns—the following questions and discussion points can help guide the conversation. Figure 7: Shade and Shadow Regulations Source: City of El Cerrito, San Pablo Avenue Specific Plan Attachment 2 PC Business1 - 26 12  A new zoning tool consisting of a transition overlay, perimeter district, or various subdistricts could help create functional buffers between higher-intensity uses and lower-density residential uses. These could be applied on location-specific basis. If this is a desired tool, which interface areas are of greatest concern (for example, the area shown in Figure 1)?  Encouraging and better defining housing types with a greater specificity (for example, not just density but building approach) could influence what type of new housing is constructed in interface areas. This approach may even help encourage the so-called “missing middle” housing type for new home ownership opportunities.  Figures 3 and 4 above illustrate required transitions in, respectively, Chula Vista and Santa Monica. Including such graphics will enhance the regulations, should the City decide to require a step-back approach to address edge/transition conditions.  The Zoning Regulations could include direction for the design and location of required off-street parking, including incentives to use well-designed surface parking as a transition between uses.  Are there provisions in the Community Design Guidelines that City staff believes should be codified to support design approaches that work toward suitable transitions? Conclusion Residents of San Luis Obispo are proud of the city’s historic and cultural heritage, and feel strongly about protecting the unique setting of different neighborhoods. While traditional zoning helps organize the location of different land uses based on function and intensity, the City also relies on the subjective Community Design Guidelines to provide greater detail to produce development that is context sensitive and of long-lasting quality. Recent projects that respond to Land Use Element policy directives have created a sense among some community members that current regulations and guidelines used in tandem do not adequately address edge conditions in some areas of town, particularly adjacent to single-family neighborhoods. Updating the Zoning Regulations to respond to concerns will require: 1) defining the geographic areas of concern and 2) determining and selecting the appropriate regulatory approach for San Luis Obispo. As a subsequent work effort, the City may also consider revising the Community Design Guidelines to address transitions/edge conditions that cannot fully be addressed in a regulatory document. Attachment 2 PC Business1 - 27 13 Sources City of Bellevue Municipal Code, accessed July 2017: https://www.codepublishing.com/WA/Bellevue/ City of Boise, Downtown Design Guidelines City of Chula Vista Municipal Code, accessed July 2017: http://www.codepublishing.com/CA/ChulaVista/ City of Davis Municipal Code, accessed July 2017: http://qcode.us/codes/davis/ City of El Cerrito, San Pablo Avenue Specific Plan Form-Based Code City of Santa Monica Mixed Use Design Guidelines: https://www.smgov.net/departments/pcd/agendas/Planning-Commission/2012/20121128/Draft- Mixed-Use-Design-Guidelines.pdf City of Seattle Design Guidelines: http://www.seattle.gov/dpd/cs/groups/pan/@pan/documents/web_informational/p2083771.pdf City of Tacoma Municipal Code, accessed July 2017: http://cms.cityoftacoma.org/Planning/Zoning_booklet_FINAL_2015update.pdf Courtyard Housing, accessed July 2017: http://www.courtyardhousing.org Linden Hills Neighborhood Small Area Plan, December 2013, http://www.ci.minneapolis.mn.us/www/groups/public/@cped/documents/webcontent/wcms1p- 126733.pdf Consultant for this White Paper MIG, Inc. 537 S. Raymond Avenue, Pasadena, CA 91105 (626) 744-9872 www.migcom.com Attachment 2 PC Business1 - 28 14 Attachment 2 PC Business1 - 29 APPENDIX Report and Recommendations Neighborhood Compatibility Attachment 2 PC Business1 - 30 Attachment 2 PC Business1 - 31 Report and Recommendations Neighborhood Compatibility Marcus Carloni, Special Projects Manger INTRODUCTION.................................................................................................................................................. 2 BACKGROUND ................................................................................................................................................... 2 1. PROJECT INITIATION ............................................................................................................................................... 2 2. PERTINENT BACKGROUND MATERIALS ....................................................................................................................... 3 EXISTING REGULATIONS ..................................................................................................................................... 3 1. ZONING REGULATIONS ........................................................................................................................................... 3 2. COMMUNITY DESIGN GUIDELINES (CDG) .................................................................................................................. 3 RESEARCH (CASE STUDIES) ................................................................................................................................. 4 1. COVERAGE AND FLOOR AREA RATIO.......................................................................................................................... 4 2. FLOOR-TO-FLOOR HEIGHT AND SETBACKS .................................................................................................................. 5 3. DESIGN GUIDELINES ............................................................................................................................................... 6 4. DRAWINGS AND PHOTOGRAPHS TO SUPPORT GUIDELINES ............................................................................................. 6 5. OTHER METHODS .................................................................................................................................................. 7 PUBLIC WORKSHOPS .......................................................................................................................................... 7 1. APRIL 6, 2016: PUBLIC WORKSHOP AT TEACH ELEMENTARY SCHOOL ............................................................................ 7 2. JULY 14, 2016: PUBLIC WORKSHOP AT SLO CHURCH OF THE NAZARENE ........................................................................ 8 STUDY SESSIONS ................................................................................................................................................ 8 1. MAY 2, 2016: ARCHITECTURAL REVIEW COMMISSION STUDY SESSION .......................................................................... 8 2. AUGUST 24, 2016: PLANNING COMMISSION STUDY SESSION ....................................................................................... 9 RECOMMENDATIONS ......................................................................................................................................... 9 1. UPDATE COMMUNITY DESIGN GUIDELINES ................................................................................................................. 9 2. UPDATE ZONING REGULATIONS .............................................................................................................................. 12 3. CONTINUED DISCUSSION ....................................................................................................................................... 12 Attachment 2 PC Business1 - 32 Neighborhood Compatibility Report 2 Introduction The purpose of the subject report is to provide background information on the workshops and study sessions which were conducted to receive input and ultimately to obtain direction on the topic of neighborhood compatibility. This report provides access to all pertinent background materials (e.g. staff reports and presentations) and concludes with recommendations for the Community Development Department to consider when moving into the phase of drafting language. Background 1. Project Initiation In June of 2015 the City Council deemed earlier implementation of General Plan Land Use Element Program 2.13 a priority and amended the Neighborhood Wellness Work Program to add a work task for staff to move up the implementation timeline for LUE Program 2.13. Staff was directed to explore amendments to the Zoning Regulations, Subdivision Regulations, Community Design Guidelines, or other pertinent documents (or other means) to address neighborhood compatibility. The concern revolved around scale and density of infill projects leading to incompatibility with existing residences in established neighborhoods. Land Use Element Program 2.13: “The City will consider new regulations, for Low-Density (R-1) and Medium- Density Residential (R-2) areas, to require special review for (1) incompatibly large houses, (2) replacement or infill homes in existing neighborhoods, and (3) accessory buildings with plumbing facilities allowing easy conversion to illegal second dwellings1. The City will periodically update Community Design Guidelines for larger homes, infill housing and accessory single- story buildings.” 1 Item 3 (conversions) was implemented in the July 2014 Zoning Regulations amendments which established new regulations for accessory spaces (specifically accessory structures and guest quarters) in order to prevent the easy conversion of such spaces into illegal dwelling units Map at right illustrates R-1 zoned properties in light yellow and R-2 zoned properties in dark yellow Attachment 2 PC Business1 - 33 Neighborhood Compatibility Report 3 2. Pertinent Background Materials (documents provided in the Appendix) Appendix A Project Plan Appendix B Case Studies (Steve Orozco, Long Range Planning) Appendix C Workshop #1 Materials 4-6-2016 (Teach Elementary School) Appendix D Workshop #1 Notes Appendix E ARC Study Session Materials 5-2-2016 (Staff Report, Presentation, Notes) Appendix F Workshop #2 Materials 7-14-2016 (SLO Naz Church) Appendix G Workshop #2 Notes Appendix H PC Study Session Materials 8-24-2016 Existing Regulations The City’s existing regulations include the Zoning Regulations’ maximum/minimum requirements for the R-1 (Low Density) and R-2 (Medium Density) zones and the Community Design Guidelines. 1. Zoning Regulations The below table provides a summary of the Zoning Regulations’ requirements for the R-1 and R- 2 zones. The Zoning Regulations do not include standards for maximum Floor Area Ratio 2, nor specific setbacks for upper floors, as is utilized by some of the other communities researched by staff. Zone Max Density Max Height Max Coverage Parking Side & Rear Setbacks Min. Lot Size R-1 7 du/acre 25 feet 40% of lot area 2 spaces 5' - 10.5' 6,000 sf R-2 12 du/acre 35 feet 50% of lot area See footnote* 5' - 15' 5,000 sf *R-2 Zone Parking Requirements: 1.5 spaces for 1st bedroom +.5 spaces for each additional bedroom in a unit 2. Community Design Guidelines (CDG) 2 Floor Area Ratio: The gross floor area of a building or buildings on a lot divided by the lot area. Attachment 2 PC Business1 - 34 Neighborhood Compatibility Report 4 Sections that provide guidance for compatible infill residential projects include Chapter 5.3 “Infill Development,” Chapter 5.4 “Multi-Family and Clustered Housing Design,” and Chapter 5.5-C “Additions and Alterations in Older Neighborhoods.” Their contents are text-based and include some of the following guidance: 1. General Principles: Infill projects should be compatible in scale and overall character with the neighborhood. 2. Building Design: Infill structures should incorporate traditional characteristics from the neighborhood 3. Building Height: Height should be consistent with existing structures in the neighborhood and upper floors should be setback from the edge of the first floor. 4. Materials/Colors: Use predominant materials and compatible colors with the neighborhood. Research (Case Studies) Staff researched a number of communities that have experienced the issue of neighborhood compatibility. Specifically highlighted are the communities of Davis, Modesto, Pasadena, and Sunnyvale who have developed regulations to address the areas of open space, structure location on the site, design, mass and scale, height and setbacks, privacy, materials/colors, and more. Staff research found that these communities have tried to address neighborhood compatibility from a regulatory basis (e.g. “second floors shall be setback 5 feet from the wall of the first floor”) and/or from a guideline basis (e.g. a “second-story addition should be located away from the front of the house to reduce its prominence”). Specific excerpts from the regulations/guidelines of Davis, Modesto, Pasadena, and Sunnyvale are provided in Appendix B. The following sections highlight different techniques that have been used to address compatibility: 1. Coverage and Floor Area Ratio The City of San Luis Obispo has a maximum coverage 3 of 40% and 50% in the R-1 and R-2 zones, respectively. The City’s coverage regulation is essentially a limitation on the size of a structures footprint, but does not regulate the square footage of a structure that can fit within that maximum footprint; often leading to two-story stacked floor plans. Other communities establish a maximum floor area ratio to address the maximum size of a residence. For example, a floor area ratio of 40% would allow a maximum home size of 2,400 3 Coverage: The area of a structure on or above the ground including upper level projections and living areas, as well as covered or uncovered decks, balconies, porches and similar architectural features expressed as a percentage of the total lot area. Attachment 2 PC Business1 - 35 Neighborhood Compatibility Report 5 square feet, including garage square footage (assuming a 6,000 square foot lot size); the ratio can be adjusted for compatibility with the floor area ratio of a given neighborhood. 2. Floor-to-Floor Height and Setbacks Some communities have established specific regulations for floor heights and upper floor setbacks as a way of addressing compatibility. (Pasadena) Floor-to-Floor Height Limits. The maximum top plate height of the first story of the main structure shall not exceed ten feet. The maximum top plate height of the second story of the main structure shall not exceed 20 feet. (Pasadena) Second Story Setbacks. The second story of the main structure, and any portion of the main structure over ten feet in height, shall be set back a minimum of five feet from the existing first floor side walls. Second story additions and any portion of the main structure over ten feet in height shall be set back a minimum of 10 feet from the first-floor front wall. Example of Existing Regulations: • 6000 square foot lot • 40% Coverage Example with “Floor Area Ratio”: • 6000 square foot lot • 40% Coverage • FAR of .40 = Max 2,400 sq.ft home size • Results in no second story or reduced footprint size Attachment 2 PC Business1 - 36 Neighborhood Compatibility Report 6 3. Design Guidelines The City of Modesto (Appendix B) created the “Neighborhood Compatibility Guidelines” to improve compatibility of infill residences. These guidelines are intended to provide clarity to a user by indicating the types of projects that are preferred by the community through additional specificity in their guidelines. For example, some guidelines may indicate that an infill residential structure should “provide a sense of visual continuity with existing structures in the neighborhood”, however, more specificity is added to reduce subjectivity of the guideline; “provide a sense of visual continuity with existing structures in the neighborhood by aligning the front and sides of a new building with other structures in the neighborhood”. Additionally, some of the guidelines include: 1. Neighborhood Surveys. Neighborhood surveys to identify neighborhood characteristics (see Appendix B, Sunnyvale, Pages 5 – 8) 2. Definition. A clear definition of a “neighborhood” for compatibility context (see Appendix B, Modesto, Page 3) 3. Goals with Strategies. Guidelines arranged by goals with listed strategies to carry out those goals (see Appendix B, Davis, Page 89) For additional clarity, the guidelines are often supported by descriptive graphics to illustrate the text, as provided in the 4. Drawings and Photographs to Support Guidelines Many communities have used drawings and photographs to support the text. The graphics provide callouts and descriptions for additional clarity, some examples are provided below. (Davis) The primary building face should not exceed the width of a typical single family building in a similar context. •A single wall plane should not exceed the maximum façade width of a typical residence. If a building is wider overall than those seen typically, divide the large façade into subordinate wall planes that have dimensions similar to those of traditional single family buildings in the neighborhood. (Sunnyvale) Design second floors to complement first floor forms and minimize their visual impact •The area of the second floor should not exceed the common standard of the neighborhood. Do This Not This Attachment 2 PC Business1 - 37 Neighborhood Compatibility Report 7 5. Other Methods Other methods of addressing neighborhood compatibility include the following: 1. Overlay Zone/District. Several communities (e.g. Davis, Pasadena) have used overlay zones/districts to establish specific design guidelines or zoning regulations to a given neighborhood. 2. Design Review Threshold. Communities (e.g. Sunnyvale) have established formal design review requirements based on the size of a proposed addition or based on the overall size of the proposed residence. 3. Additional Parking Requirement. The City of Davis requires additional parking spaces once a residence (in their Low Density Zone) proposes five or more bedrooms. Public Workshops 1. April 6, 2016: Public Workshop at Teach Elementary School Purpose: Obtain feedback and ideas from public Outcome: Notes from workshop On April 6, 2016 staff conducted a Neighborhood Compatibility Workshop at the Teach Elementary/SLO Classical Academy elementary school campus for the purpose of obtaining public feedback and ideas on the subject. (Modesto) In predominantly one- story neighborhoods, and where existing second stories are reduced in prominence, utilize an additional setback for the second floor to reduce the impact of increased massing from new second stories. Do This Not This Attachment 2 PC Business1 - 38 Neighborhood Compatibility Report 8 The format included a presentation of staff research followed by “break-out sessions” to discuss which approaches (including new ideas) should be used to improve neighborhood compatibility. Each table reported their discussions back to the main group while staff facilitated and took notes on the deliberations; said notes are provided in “Outcome” above. 2. July 14, 2016: Public Workshop at SLO Church of the Nazarene Purpose: Obtain additional public feedback and ideas, obtain feedback on visual survey using Google Earth. Outcome: Notes from workshop, input on visual survey. On July 14, 2016 staff conducted the second neighborhood compatibility public workshop at the San Luis Obispo Church of the Nazarene for the purpose of obtaining additional public feedback and ideas from interested parties. The format included an update on progress (including the feedback received from the ARC) and a presentation on ways to address neighborhood compatibility. The presentation was followed by an interactive Google Earth photo-survey where participants reviewed infill projects and provided written feedback on whether the built project was “compatible,” “not compatible,” or “close to compatible.” Staff compiled the results of the visual survey which were attached to the Planning Commission staff report and provided in “Outcome” above. The workshop concluded with a general discussion about successful and unsuccessful strategies to address compatibility as well as discussion regarding concerns of incompatible infill homes. Staff took on-screen notes which are provided in “Outcome” above. Study Sessions 1. May 2, 2016: Architectural Review Commission Study Session Purpose: Review progress, provide feedback, public input Outcome: Eight directional items (same as PC Study Session below) Attachment 2 PC Business1 - 39 Neighborhood Compatibility Report 9 On May 2, 2016 the ARC held a study session to review progress, provide feedback, and offer an opportunity for public input on the project. Upon review, the ARC provided several points of feedback which were summarized and confirmed at the end of the hearing. This feedback is provided in “Planning Commission Study Session” below – the Planning Commission supported the same directional items as the Architectural Review Commission. 2. August 24, 2016: Planning Commission Study Session Purpose: Review progress, obtain feedback on strategies to address neighborhood compatibility, obtain public input Outcome: Seven directional items (same as ARC) 1. Consider a design review threshold 2. Consider using overlay districts 3. Consider using Floor Area Ratio approach 4. Consider requiring specific setback standards for upper floors 5. Consider policy requiring maximum buildable area be a function of average lot size of properties in a given radius 6. Consider guidelines with goals and supporting strategies 7. Consider use of more specific text supported by graphics On August 24, 2016 the PC held a study session to review progress, provide feedback, and offer a fourth opportunity for public input. Upon review, the PC supported the same seven directional items as the ARC. Recommendations As indicated above, the Architectural Review Commission and Planning Commission provided the same list of directional items which are provided below. The following recommendations are intended to assist the Community Development Department in carrying out the remaining research and implementation to comply with ARC and PC direction. In addition, it is important to remember that LUE 2.13 is specific to “incompatibility large houses” and “replacement or infill homes in existing neighborhoods” in the low- density (R-1) and medium-density (R-2) residential areas. 1. Update Community Design Guidelines As indicated previously in this report, CDG sections that provide guidance for compatible infill residential projects include Chapter 5.3 “Infill Development,” Chapter 5.4 “Multi-Family and Clustered Housing Design,” and Chapter 5.5-C “Additions and Alterations in Older Neighborhoods.” Attachment 2 PC Business1 - 40 Neighborhood Compatibility Report 10 The existing language within these sections, however, is too broad and does not provide enough clarity of the intent of each guideline. This coupled with a lack of graphical support creates ambiguity. Recommendations: 1. Establish Design Review Threshold (compliant with directional item #1). Update to CDG Chapter 1.2 “When is Design Review Required?” a. Include a design review threshold that requires design review when the size of an infill home (or total home size with a new addition) exceeds a determined threshold. E.g. ARCMI design review is required when the total home size exceeds the average square footage of homes within a 100 foot radius by 20%. E.g. ARCMI design review is required when an addition is proposed to be 20% or larger than the existing floor area of the structure (including garage). See Sunnyvale “Things to Know” for additional examples. Additional research is required to determine proper threshold. 2. Establish Guidelines with Goals and Supporting Strategies (compliant with directional item #6) and support the goals/strategies with example graphics (compliant with directional item #7). Update to CDG Chapter 5 specifically Chapters 5.3 “Infill Development,” Chapter 5.4 “Multi-Family and Clustered Housing Design,” and Chapter 5.5- C “Additions and Alterations in Older Neighborhoods.” a. Goals and Strategy Guidelines. For additional clarity, provide more specificity in the guidelines by updating each applicable section to be arranged with general goals for design and compatibility. Each goal will then be supported by multiple strategies to indicate how to reach the goals. Example: i. Include language that requires upper story setbacks if such setbacks are prevalent in the established neighborhood (compliant with directional item #4). It is not uncommon for infill homes to propose two-story stacked floor plans which appear bulky and more massive than existing homes with setback upper stories. It is recommended that the CDG include language for upper story setbacks to provide flexibility in home design, rather than regulating setbacks through the Zoning Regulations. Proper Commented [CM1]: Add this document to Sunnyvale Appendix Attachment 2 PC Business1 - 41 Neighborhood Compatibility Report 11 support from graphics (see 2b below) will clearly illustrate the intent of upper floor setback design. ii. Note: Review notes from the workshops (see appendix) to see comments provided by interested parties. Pertinent comments should be addressed in updated CDG language. b. Graphics. Support the goals/strategies text with graphics to help illustrate the text. The graphics can be actual example photographs or created images and should include callouts for clarity. Example: Do This Not This Attachment 2 PC Business1 - 42 Neighborhood Compatibility Report 12 2. Update Zoning Regulations Recommendations: 1. Establish Maximum Floor Area Ratio for R-1 and R-2 zones (compliant with directional item #3). Although not specifically addressed by LUE 2.13, this effort should apply to all residential zones. Update to Zoning Regulations Section 17.16.030 (Coverage), Chapter 17.24 (Low-Density Residential Zone) and Chapter 17.26 (Medium-Density Residential Zone). a. Use GIS Data to determine lot sizes and County Assessor Data to determine home sizes in order to calculate existing floor area ratios for R-1 and R-2 zones. Use calculation as basis for establishing maximum FAR requirement. b. The existing definition of Floor Area Ratio (Zoning Regulations Chapter 17.100) is sufficient. 3. Continued Discussion The following directional item(s) from the ARC and PC require additional discussion or analysis to determine feasibility. 1. Directional Item #5. Implementation of directional Item #5 “Consider policy requiring maximum buildable area be a function of average lot size of properties in a given radius” requires additional analysis to determine feasibility. The policy would be very similar to establishing a maximum floor area ratio (which is already a directional item) and has the potential to create confusion. If the department is interested in pursuing directional item #5 it is suggested that efforts focus on establishing a design guideline for the maximum buildable floor area of a residence that would not be able to exceed a determined percent increase (E.g. 30%) of the average size of homes within a given radius (e.g. 300 feet), rather than focusing on average lot sizes. Another option, that would address potential fluctuations in lot size, is to establish the average Floor Area Ratio of homes within a given radius. A new or remodeled home would not be allowed to exceed a determined percent increase beyond the average FAR of homes within that determined radius. If either of these approaches are pursued the guideline should include language to remove homes/properties from the calculation that deviate significantly from the mean. 2. Directional Item #2. Directional item #2 is to consider using overlay districts or zones. Overlay districts in this application would be to have design guidelines that are particular to an established district(s) within the city. Overlay zones would be a new zoning overlay (amendment to the Zoning Regulations) to establish prescriptive regulations to a sub-area within the city. Attachment 2 PC Business1 - 43 Neighborhood Compatibility Report 13 It is not recommended that the department pursue overlay zones at this time due to the potential to create non-conformities. Following the above recommendations will address the issue of incompatibility while still allowing flexibility in design. Overlay zones may be pursued at a later time if desired. Establishing overlay districts is also not recommended at this time. Discussion at workshops and with the ARC/PC focused on performing neighborhood surveys to document neighborhood characteristics of each district and then establishing guidelines for each overlay district. As noted, following the above recommendations will address the issue of incompatibility from a global perspective without requiring the resources to establish overlay districts. In addition, proper training on the new design guidelines for planning staff will ensure they have a deep understanding of the guidelines and strong ability to communicate the principles to designers and properly shape projects. Additional support could be provided by working with neighborhood groups to document the general characteristics of pertinent neighborhoods. If the department is interested in pursuing overlay districts it is recommended that a consultant with specific related experience is hired to lead the effort (see City of Davis Design Guidelines in the Appendix). Attachment 2 PC Business1 - 44