HomeMy WebLinkAbout08/06/1991, 5B - GP/R 1500 -CONSIDERATION OF AMENDING THE LAND USE ELEMENT AND ZONING MAPS TO CHANGE THE DESIGNATIONS FROM SERVICE-COMMERCIAL/LIGHT INDUSTRIAL, SPECIAL CONSIDERATIONS (M-S) TO MEDIUM-HIGH DENSITY RESIDENTIAL, SPECIAL CONSIDERATIONS (R-3-S) I`IN^I�III�IIIIIIIII II MEETING DATE:
cityo San Luis OBIspo 8- &-
COUNCIL AGENDA REPORT ITEM NUMBER:
FROM: iArnold Jonas, Community Development Director; By: Jeff
Hoo ociate Planner
8 CT: GP/R 1500 - Consideration of amending the Land Use
Element and Zoning maps to change the designations from service-
commercial/light industrial, special considerations (M-S) to
medium-high density residential, special considerations (R-3-S)
for property at 1190 Laurel Lane.
CAO RECOMMENDATION
Adopt resolution approving the amendment ' of the Land Use
Element map to Medium-High Density Residential, and pass-to-
print an ordinance rezoning the site to R-3-S.
REPORT-IN-BRIEF
The report concludes that the rezoning is appropriate given the
city's dual objectives of increasing affordable housing and
balancing the jobs/housing supply. The rezoning also appears
consistent with city policies that: 1) encourage housing where
sites are equally suited to either commercial or residential uses;
and 2) encourage the development of multi-family housing close to
needed public facilities. If approved, the rezoning would allow
up to 252 new dwellings once city resources were available. If the
M zoning is retained, the site could easily accommodate about
150, 000 square feet of light-industrial uses, with an estimated
potential employment of 300 persons.
BACKGROUND
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On June 26th, the planning commission recommended that the council
amend the General Plan Land Use Element Map and rezone the site
from Service-Commercial/Light Industrial (M-S) to Medium-High
Density Residential with Special Considerations (R-3-S) . The
commission had previously discussed the item on May 22 nd and
January 30th. Initially, commissioners decided to postpone action
until an economic analysis of the General Plan Land Use Element was
done (minutes attached) . On March 27th the commission reconsidered
that action, and scheduled the item for commission action on June
26th.
Due to business considerations, TRW has decided to consolidate
their operations at a larger existing facility in Colorado Springs,
Colorado. The firm intends to sell this vacant property, as well
as their industrial office building located across the street at
1050 Southwood Drive. TRW believes that the highest and best use
for the vacant property is residential, and has requested rezoning
from manufacturing to medium-high density residential.
To maintain consistency, the general plan must also be amended,
changing the land use designation from service-commercial/light
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COUNCIL AGENDA REPORT
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Page 2
industrial to medium-high density residential. No development is_
planned at this time. TRW, Inc. intends to transfer interest in
the property to a private, non-profit foundation with the intention
that the property eventually be developed with apartments or
residential condominiums.
SIGNIFICANT IMPACTS
The general plan amendment/rezoning will not have a significant
adverse environmental impact. Further environmental review will
be necessary when a specific development project is proposed for
the site.
DATA SUMMARY
Applicant: TRW, Incorporated
Zoning: M-S
General Plan: Service-Commercial/Light Industrial
Environmental Status: Negative declaration
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Site Data: The level, vacant, 7 acre site is located in the
southeast portion of San Luis Obispo, in a neighborhood with a
mixture of commercial, light-industrial, and residential uses, and
public facilities including two city parks and Fire Station No. 3 .
West of the site is the YMCA sports club and offices, and Johnson
and Sinsheimer Parks, and a 168-unit apartment project. To the
east across Laurel Lane are residential condominiums. North of the
site are industrial offices, a bowling alley, a convalescent
hospital, apartments, and houses. To the south is a mix of
industrial, office, and service commercial uses along the west side
of Laurel Lane. Northeast of the site is a small neighborhood
shopping center with stores, restaurants, and beauty salon.
ADVISORY BODY RECOMMENDATION
The Planning Commission has recommended that the City Council amend
the General Plan and rezone the site for residential uses as
requested by the applicant. The commission as a whole preferred
residential uses over manufacturing uses, however three
commissioners wanted to postpone action on the general plan
amendment until the city had adopted a "mixed-use" zone which could
be applied to this site.
The draft Land Use Element update designates this site as a
"Special Design Area", suitable for a offices, housing, or a
combination of both uses. While acknowledging that the City might
rezone the site for mixed uses in the future, the applicant's
representative, Rob Strong, asked the commission to take action on
the requested General Plan change at that meeting. Two neighboring
property owners spoke in support of the amendment request.
City of San L.AIS OBIspo
GiS COUNCIL AGENDA REPORT
Staff Report, GP/R 1500
Page 3
EVALUATION
Status of TRW property
TRW has owned the lot since 1978, and originally planned to develop
the site with expanded industrial facilities across from its
existing offices at 1050 Southwood Drive. Since a production peak
in the mid I980s, TRW's operations have been trimmed, and expansion
plans were abandoned. Although the firm considered keeping the M- j
zoning and selling this lot together with its Southwood Drive
facility, they have decided, for economic reasons, to transfer the
vacant property to a private, non-profit foundation and to sell
their Southwood Drive facility.
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Overview of issues
The key issue is whether the public's interests are best served by
encouraging additional housing, or by expanding job opportunities.
Given the neighborhood character and city land use policies, either i
use could be logically accommodated here. The site is located in
one of the most diverse neighborhoods in the city, with light
industrial and office buildings, apartments, houses, schools,
parks, a small shopping center, convalescent hospital, and a city
fire station located nearby.
Where a site is equally suited for residential or commercial use,
city policies generally favor housing. In relative economic terms,
the conversion of seven acres of manufacturing to housing may
slightly increase public service costs, reduce job growth
potential, and slightly reduce potential city revenues from j
business-related taxes and fees. Due to the site's large size and j
prominent location, whatever development that occurs will strongly
influence the neighborhood's character over time.
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Zoning History
This is part of what was once a large industrial district,
including the area north and west of Orcutt Road/Laurel Lane,
between Broad Street and Augusta Street. Annexed in the 1950s,
this and most of the surrounding area were on the outskirts of the
city, mostly undeveloped, and initially zoned "single-family
residential. " By the early 1960s, the city's interest in expanding
commercial/industrial development resulted in large areas of the
city being allocated for industrial and service-commercial uses.
In 1959, the area was rezoned "C-311; allowing a variety of
industrial and commercial uses. In 1967, the site's zoning was
changed to "C-H", allowing a wide range of service-commercial,
light-industrial, and office uses. In 1978, the site was rezoned
"M", allowing manufacturing uses. The "S" -- Special Considerations
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COUNCIL AGENDA REPORT
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Page 4
overlay zone was added in the late 1970s due to compatibility
concerns with the adjacent residential uses which had built up
around the original manufacturing area.
General Plan
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The general plan designates this site for service-commercial/light j
industrial uses, suitable for a wide variety of industrial, '
manufacturing, and service commercial uses. While city plan
policies do not preclude either manufacturing or residential uses j
here, they do include several policies which are pertinent: !
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A. General Plan policies which favor the rezoning include:
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-$'The City should encourage residential development, promoting
efficient urban densities and diversity of design consistent
with prevailing or proposed neighborhood character, to enable
adequate choice of location, type , tenure, design and cost
by families and individuals working in or enrolled near San
Luis Obispo. "
-"Medium-high-density residential development, allowing a
maximum of is density units per acre shall be encouraged in
areas substantially committed to this type of development,
close to community commercial centers and public facilities.
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The Southwood apartments, 168-unit planned development borders the
site on the northwest; residential condominiums are located on the
south side of Laurel Lane, opposite the site. j
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-"New residential developments or redevelopments involving j
large scale sites (expansions of existing neighborhoods or
major infill or intensification areas) should be designed to
orient low-density housing to local access streets and medium-
or high-density housing to driveways accessible from collector
streets. "
With frontage on Laurel Lane and Southwood Drive, the site has
excellent access for either residential or manufacturing. City
i studies and a traffic study submitted by the applicant (see initial
environmental study) show that the adjacent street system can
safely accommodate either use.
-"The City will discourage activities which would aggravate
the imbalance between residential and employment opportunities
among the communities in the housing market area. "
This general plan change will not affect housing or job growth in
the short-term; however it will allow additional housing once
resources are available to support the growth. Full buildout of
T
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COUNCIL AGENDA REPORT
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Page 5
the site with medium-high density housing (18 density units per_
acre) could increase the city's housing :stock by a maximum of 126
two-bedroom units, 190 one-bedroom units, or 252 studio units.
This could provide housing for up to 602- persons (2.39 persons per
household, Department of Finance figures, January 1990) -- a
population increase of about 1.4 percent.
If the site were developed with manufacturing uses, staff estimates
that it would create about 300 new jobs, and increase the city's i
housing demand -- thus exacerbating the city's disparity between
jobs and housing.
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B. General Plan policies which support keeping the current M
zoning include:
-"Commercial and industrial land uses should be developed in
appropriate areas where the natural slope of the land is less
than 10 percent. Commercial and industrial uses should have
service access from the city's arterial and collector street
system so as to avoid the concentrated use of residential
streets for truck delivery and customer traffic. "
-111n designated service commercial/light industrial areas, the
city should support the concept of "planned unit" industrial
developments and subdivisions where unified landscaping,
signing, building design, service capabilities and adequate
circulation can be ensured and thereby avoid compatibility
conflicts created by piecemeal development. "
C. General Plan policies which are pertinent but neutral in terms
of policy impact include:
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"The allocation of land resources for service
commercial/light industrial uses should be periodically
reviewed and revised as necessary to reflect the realistic
needs and opportunities of the City of San Luis Obispo based
on changes in the work force and resource availability. "
The proposed general plan amendment and rezoning could be
considered consistent with any or all of the above policies.
Moreover, they provides the opportunity to "review and revise" the
allocation of service-commercial/light-industrial land as the city
proceeds with its general plan update. The change may promote the
city's goal of achieving a better balance between job growth and
housing.
Land use allocation - M and R-3 Zones
Table I shows the current supply of developed and vacant M-, C-S,
and R-3 zoned land. In the last decade, one of the city's land use
city of San .._.IS OBISpo
= COUNCIL AGENDA REPORT
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trends has been the reduction of service-commercial/light_
industrial land in favor of more housing. This is particularly
evident in the Broad Street/Orcutt Road/Southwood Drive areas.
Since 1989, the city has received applications to convert 37 acres
of land M-zoned land to other uses -- a potential decrease of about
74% in the total supply of vacant M-zoned land in the city. The
6.5 acre Orcutt I rezoning was considered by the City Council
February 5, 1991. Due to a voting tie, the item must return to
council for final action. Orcutt II was denied; and the Brickyard
project has been resubmitted as two separate new developments
an 89-unit residential planned development, and an Orchard Supply
and Hardware store and restaurant adjacent to Broad Street.
TABLE I - SUPPLY OF M, C-s, AND R-3 LAND
Zone Total Acres Vacant Acres Absor
ption
Rate*
M 170 42 1 acre/year
C-S 287 40 5 acres/year
R-3 102 3 30 DU/year
*Absorption Rate shows the average number of vacant acres
developed or residential units developed annually, based on
Community Development Department figures for 1984 through
1988. (DU = dwelling units)
Manufacturing
Since 1980, much of the city's industrial job growth has been and
will continue to be in unincorporated airport areas south of the
city, whether or not this site is rezoned. In balance, while this
site is a significant portion of the city's vacant M-zoned land and
suitable for light-manufacturing uses, its rezoning would not, in
staff' s view, significantly impact the city's economy or job
growth. Based on past absorption rates, the city would have a 35-
year supply of M-zoned land even with the proposed rezoning. The
actual demand for M-zoned land will vary, however, depending on
availability of resources, statewide and regional economic factors,
and city policies regarding industrial growth. Assuming the city's
past industrial land use pglicies continue, the supply of C-S and
M zoned land should be adequate for the foreseeable future.
General plan growth management policies set a 1% target for annual
population growth between 1990 and 2000. If this site were
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COUNCIL AGENDA REPORT
Staff Report, GP/R 1500
Page 7
developed with manufacturing, staff estimates that it could
reasonably accomodate an industrial building "of about 150, 000"
square feet. Using a factor of one light-industrial job per 500
square feet of feet of floor area, industrial development of the
site would generate about 300 new jobs. If we assume that at least
one-half of the employees relocate to the city of San Luis Obispo,
this would represent a total" estimated increase of about 360
persons -- a population increase of about 0. 6
Commercially-zoned properties typically generate more municipal
revenues than residential properties, and cost less in terms of j
police, fire, and other public service. However due to Proposition
13, taxes on commercially-zoned properties have accounted for an
increasingly smaller share of municipal revenues. The city's
Strategic Planning Program notes that: i
"The greatest amount of vacant commercial land inside San Luis
Obispo is earmarked for service commercial and manufacturing
uses, while the least amount is in the downtown central
commercial district. The city has, the most vacant land for
uses which constitute the smallest part of the city/s economic
base (manufacturing) and the least vacant land for a
significant part of the local economy (retail commercial) . "
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Medium-high density residential
Of San Luis Obispo's four residential zones, the supply of R-3
zoned land is the smallest, representing only about 4% of the
city's total "residential acreage, as shown in Table II:
TABLE II
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Residential Zone Total Acres
R-1 1,677 j
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R-2 371
R-3 102
R-4 128
Total residential 2,278
The rezoning would not affect short-term population growth; however
it would allow future population increases once resources are
available to support the growth. Full buildout of the site with
medium-high density housing (18 density units per acre) could
increase the city's housing stock by up to 126 two-bedroom units,
Il��l��n►i►�►illlllllllill 1111111 city of San --,is osispo
COUNCIL AGENDA REPORT
Staff Report, GP/R 1500
Page 8
190 one-bedroom units, or 252 studio units. This could provide
housing for up to 602 persons (2. 39 persons per household,
Department of Finance figures, January 1990) -- a population
increase of about 1.4 percent- over the city's current population
of 42, 136. The additional housing could significantly improve the
city's jobs/housing balance, and our efforts to provide affordable
housing close to employment centers and schools.
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At least two factors are acting to control the timing and rate of
residential development: the city's water allocation regulations
and the residential growth management regulations. The city has
adopted stringent regulations limiting new water hook-ups until
sufficient water resources are available to support growth. This
is likely to postpone development of this site for an indefinite
period. Moreover, the growth management regulations set a growth
target of one percent during the 19901s, an increase of 150
dwelling units per year. Development of this site will require
phasing to comply with growth targets.
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Draft General Plan policies
The Planning Commission draft land use element (April 1990)
designates this site as a "special design area", suitable for the
development of housing, offices, or a combination of the two.
Presumably through creation of a new mixed-use zone, or through PD
rezoning when a specific development is proposed, the city could j
allow a wider range of land uses than would normally be permitted
subject to precise plan approval. Such approval might also include
specific conditions on development phasing, allowed uses, and on- j
and off-site improvements.
ALTERNATIVES . j
1. Continue the general plan/rezoning request with specific
direction to provide additional information;
2 . deny the general plan amendment/rezoning request subject to
the recommended findings, Exhibit "D. "
RECOMMENDATION
Adopt a resolution amending the General Plan Land Use Element from
Service-Commercial/Light Industrial to Medium-High Density
Residential, and pass-to-print an ordinance rezoning the site from
M to R-3-S (Medium-High Density Residential with Special
Considerations) .
j�IIIIII city of san CJS 051spo
COUNCIL AGENDA REPORT
Staff Report, GP/R 1500
Page 9
Attachments:
-Vicinity map
-Aerial photo
-Draft Council Resolution and Ordinance
-Exhibit "A" -. Applicant's statement
-Exhibit "B" - GP map amendment
-Exhibit "C" - Rezoning map !
-Exhibit "D" - Initial Environmental Study, ER 1-
91
-Planning Commission minutes
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RESOLUTION NO. (1991 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
AMENDING THE GENERAL PLAN MAP AT 1190 LAUREL LANE FROM SERVICE-
COMMERCIAL/LIGHT INDUSTRIAL, SPECIAL CONSIDERATIONS, TO MEDIUM-
HIGH DENSITY RESIDENTIAL, SPECIAL CONSIDERATIONS
(GP/R 1500)
WHEREAS, the Planning Commission and the City Council have
held public hearings on the proposed amendment in accordance with
the California Government Code; and
WHEREAS, the amendment comes to the council upon the
recommendation of the Planning Commission; and
WHEREAS, the potential environmental impacts of the amendment
have been evaluated in accordance with the California Environmental
Quality Act and the City's Environmental Guidelines.
NOW, THEREFORE, the Council of the City of San Luis Obispo,
resolves as follows:
SECTION 1. Findings.
1. The proposed general plan amendment and rezoning are
consistent with the adopted policies in the Land Use and
Housing Elements of the General Plan.
2. Residential land use is appropriate at this location, and will
be compatible with surrounding land uses.
3. The proposed general plan amendment will not be detrimental
to the health, safety, or welfare of persons living or working
on the site or in the vicinity of the project site.
SECTION 2. Environmental Determination. The Community
Development Director has evaluated the proposed subdivision under
the California Environmental Quality Act and the City's
Environmental Guidelines, and has granted a negative declaration
(ER 1-91) . The City Council hereby approves a negative declaration
for the general plan amendment.
SECTION 3. May Amendment. The General Plan Land Use Element
map is hereby amended from Service-Commercial/Light Industrial to
Medium-High Density Residential as shown in Exhibit "B. " The
Community Development Director shall cause the change to be
reflected on maps on display and published by the city.
On motion of , seconded by
and on the following roll call vote:
58-1D
Council Resolution No. (1991 Series)
Page 2
AYES:
NOES:
ABSENT:
the foregoing resolution was passed and adopted this day
of , 1991.
Mayor Ron Dunin
ATTEST:
City Clerk, Pam Voges
APPROVED:
d
City A inistrative Officer
iA rn y
Community Devel p nt Director
Attachment: Exhibit "B", Land Use Map amendment
5�-II
ORDINANCE NO. (1991 SERIES)
AN ORDINANCE OF THE CITY OF SAN LUIS OBISPO
REZONING PROPERTY AT 1190 LAUREL LANE
FROM M-S TO R-3-S (GP/R 1500)
WHEREAS, the Planning Commission and the City Council have
held hearings to consider the appropriate zoning on the subject
property in accordance with Section 65800 et. seq. of the
California Government Code; and
WHEREAS, the Planning Commission has found the rezoning to be
consistent with the General Plan and recommends City Council
approval of the rezoning; and
WHEREAS, the text amendment has been evaluated according to
the California Environmental Quality Act and the City's
Environmental Guidelines, and has been granted a negative
declaration (ER 1-91) ; and
WHEREAS, the proposed rezoning promotes the public health,
safety, and general welfare.
NOW THEREFORE BE IT ORDAINED by the Council of the City of San
Luis Obispo as follows:
SECTION 1. Findings.
1. The proposed "R-3-S" zoning will more effectively acheive
general plan goals since it will allow the City review
specific development proposals to ensure compatibility with
adjacent uses, encourage affordable housing and help balance
the City's jobs/housing supply.
2. The "S" (special considerations) overlay zone is applied to
this property to ensure compatibility with and buffering from
adjacent land uses, to mitigate Laurel Lane traffic and noise
impacts, to secure necessary public infrastructural
improvements, and provide adequate screening of residential
uses from Laurel Lane.
SECTION 2. Environmental Determination. The proposed rezoning
has been evaluated under the city' s Environmental Guidelines and
the California Environmental Quality Act, and will not have a
significant adverse impact on the environment (ER 1-91) . The City
Council hereby affirms the Community Development Director's
negative declaration.
SECTION 3. Zoning May Amendment. The Community Development
Director shall amend the Zoning Map for property located at 1190
Laurel Lane to change the designation from M-S to R-3-S, as shown
Exhibit "B. "
�� Vcok
Ordinance No. (1991 Series)
Page 2
SECTION 4. Publication. This ordinance, together with the
names of councilmembers voting for and against, shall be published
once in full, at least (3) days prior to its final passage, in the
Telegram-Tribune, a newspaper published and circulated in this
city. This ordinance shall go into effect at the expiration of
thirty (30) . days after its final passage.
INTRODUCED AND PASSED TO PRINT by the Council of the City
of San Luis Obispo at its meeting held on the day of
1991, on motion of ,
seconded by , and on the following roll call
vote:
AYES:
NOES:
ABSENT:
Mayor Ron Dunin
ATTEST:
City Clerk
APPROVED:
City Administrative Officer
i A o n
�•
Community Deve o ent Director
Attachment: Exhibit "C", Zoning Map amendment
RESOLUTION NO. (1991 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
DENYING AN APPLICATION TO AMEND THE GENERAL PLAN
LAND USE MAP DESIGNATION FOR PROPERTY LOCATED AT
1190 LAUREL LANE (APPLICATION GP/R 1500)
WHEREAS, the Planning Commission conducted public
hearings on application No. GP/R 1500 on January 30, May 22 and
June 26, 1991, and recommended approval of the application; and
WHEREAS, the City Council has conducted a public hearing
on August 6, 1991, and has considered the testimony and statements
of the applicant, and other interested parties, and the records of
the Planning Commission hearing and action, and the evaluation and
recommendation of staff;
NOW, THEREFORE, the council resolves to deny application
No. GP/R 1500 to amend the General Plan Land Use Map and Official
Zoning Map designations for the site from Neighborhood Commercial
to Office, based on the following findings:
SECTION 1. Findings.
1. The proposed amendment to the General Plan Land Use Map is
not consistent with adopted policies in the Land Use Element
of the General Plan.
2 . Residential land use is not appropriate at this location and
will not be compatible with surrounding land uses.
3 . The proposed general plan amendment will be detrimental to the
health, safety or welfare of persons living or working at the
site or in the vicinity of the site.
On motion of ,
seconded by , and on the
following roll call vote:
Resolution No. (1991 Series)
GP/R 1500
Page 2
AYES:
NOES:
ABSENT:
the foregoing resolution was passed and adopted this day
of , 1991.
Mayor
ATTEST:
City Clerk
APPROVED:
City A 'nistrative Officer
APE
y /Aftoifrney 7
Community Develo me t Director
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TRW, Inc.
General Plan Amendment
Application Statements
A. How the amendment carries out. existing policies of the
general plan, and
B. How the proposed change in policies is warranted by new
conditions or community desires.
General plan policy 3 .e. 1 states: "The allocation of
land resources for service commercial/light industrial uses
should be periodically reviewed and revised as necessary to
reflect the realistic needs and opportunities of the City of
San Luis Obispo based on changes in the workforce and
resource availability." The plan notes the primary concern
regarding such uses is that excessive area is committed to
this type of use considering actual land absorption trends
(Pg. 7, Q 10. f. )
This amendment would convert 7 acres of the current
undeveloped service commercial/light industrial land
inventory to medium-high density residential , already
established and developed to the northwest and southeast.
The proposed general plan update includes a non-residential
growth management policy 1.3 which states: "The City will
consider rezoning vacant , suitably located office,
commercial and industrial land for residential use, and on
page 39 of the planning commission draft, specifically
recommends "Laurel Lane at .Southwood" as a candidate area
"for development of housing, offices or a combination of the
two. "
The requested general plan amendment and rezonings would
enable both increased office and housing uses while reducing
excessive industrial land inventory.
C. How the proposed change relates to other general plan
elements.
The requested general plan amendment involves only a map
change of designated land use from service commercial/light
industrial to medium-high density residential. (No policy
changes are implied. ) This change increases residential
potential thus promoting improved housing availability as
encouraged by the housing element. Other elements such as
circulation, open space, etc. appear unaffected.
EXHIBIT A--Ioa
RECEIVED
Re: General Plan Amendment Application DEC '1 o Oyu
TRW, Southwood & Laurel Lane aty of Un lm 00aw
Community O"etMerr
Attached is a revised 8h"x11" map with the related M-PD rezoning
excluded from the General Plan/LUE map change. Additionally,
your letter of November 21, 1990, requested further discussion
of the affect of the change in terms of circulation, housing and
LUE element policies (3c. of application checklist) .
Land Use Element: The map change will reclassify 7 . 0 acres of
undeveloped industrial land previously reserved for TRW
expansion (the existing plant at 1050 Southwood Drive is
concurrently being rezoned to M-PD to facilitate large scale
office use or other compatible clean industry) . It was evident
that there is ample or excessive inventory of industrial zoned
property both inside and outside the City without retaining this
vacant seven acres located within a developed residential area.
More suitable undeveloped industrial acreage within the City is
available along the Broad Street corridor, particularly near
Orcutt Road, and near South Higuera Street and Tank Farm Road.
Hundreds of acres of County industrial zoned properties compose
the Airport Area south of Prado Road between Broad Street and
South Higuera . These large industrial areas adjoin major
arterial and collector routes more accessible to the freeway and
most are unsuited to residential development due to airport
noise and other factors.
Conversely, the subject seven acres is within a predominantly
developed residential neighborhood located east of the Southern
Pacific Railroad, convenient to Laurel Lane neighborhood
commercial center, Sinsheimer Elementary School and Sinsheimer
Community Park and Pool within walking distance to the north and
west. This site would be able to accommodate up to 126 units of
multiple family housing in a location sandwiched between similar
density condominiums and apartments to the east and west. In
contrast to the industrial land supply, the inventory of vacant
R-3 property in the City is very limited.
Circulation Element : Traffic from housing rather than
industrial development of this seven acres would be composed
mostly of automobiles, with bikes , pedestrian and transit
providing alternative or complimentary circulation. Service
vehicles would compose the limited truck traffic generated by
residential use, with only occasional tractor-trailor trucks for
special purposes such as moving. Peak morning departures and
peak evening return trips are characteristic of most residential
traffic, while industrial trips are generally the opposite.
Based on the employment intensity of the former TRW plant (250+
employees in existing building located on four acres) , it is
estimated that the seven acre site could have accommodated more
than 435 employees. Residential traffic from 126 units, the
maximum density allowed, should produce equivalent average daily
traffic (ADT) but with less intensive morning and evening peak
hours than industrial use. Both Southwood Drive and -Laurel Lane
will experience the most increased traffic , providing
connections to Johnson Avenue and Orcutt Road and Broad Street.
EXHIBIT A: 2
513 -19
This traffic may further warrant consideration of a signal at
Laurel Lane and Southwood Drive intersection. Additionally, the
widening of Orcutt Road between Laurel Lane and Broad Street,
including the railroad crossing, will be beneficial to area
circulation, including the subject property . The close
.proximity of convenience shopping, business and industrial
employment, and numerous recreation opportunities in the
vicinity of this housing site make walking or biking more
practical alternative circulation.
Housing Element: Development of the housing enabled by this
general plan amendment will be dependent on water allocation and
other factors. It is probable that construction will be phased
over several years to facilitate resource allocation and
residential absorption. The multiple family character of the
development will tend to make it most attractive to college
students, families without children and seniors, but diversity
of unit size and price for more precise composition is
premature. The proximity of extensive recreation, including
YMCA fitness center, Sinsheimer pool and Community Park,
baseball and tennis, Sinsheimer School playgrounds and Laurel
Lanes Bowling Center make .this an unusually desirable housing
location.
Other Elements : Other general plan policies , such as open
space, conservation, parks and recreation, seismic safety,
scenic highways and rural land use are not directly affected by
this proposal.
EXHIBIT -:
58 -x0
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GENERAL PLAN AP1]NDD'IEM': Change designation from service-comercial/light industrial to
1500 medium-density residential.
EXH11231T
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=` REZONING: Rezone nror)erty at 4` '• G pS
1190 Laurel Lane from X `+ ,
m Manufacturing with snecia X
considerations (M-S) to
itedium-high density residen *al
with special considerations,
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E,"v,.'uIBIT C 4° JA
city of San 1U1S OBISpo
���►IIIIIII�LIIi;�lj�!IIIi►'il�li!I
INITIAL STUDY OF ENVIRONMENTAL IMPACT
SITE LOCATION 1190 Laurel Lane TER APPLICATION NO. 1-91
PROJECT DESCRIPTION Amend the General Plan and rezone a vacant, 7 acre site fron Service-
commercial/light industrial al-S) , special considerations, to medium-hi&h density
residential with special considerations (R-3-S) .
APPLICANT TRY, Incorporated; Representative, Joseph Larkin.
STAFF RECOMMENDATION:
X NEGATIVE DECLARATION MITIGATION INCLUDED
EXPANDED INITIAL STUDY REQUIRED ENVIRONMENTAL IMPACT REPORT REQUIRED
PREPARED BYJam, SOClate Planner DATE 1/30/91
COMMUNITY DEVELOPMENT DIRECTO 'S A ON: DATE
KE6Aa1U PJ.
SUMMARY OF INITIAL STUDY FINDINGS
L DESCRIPTION OF PROJECT AND ENVIRONMENTAL SETTING
II.POTENTIAL IMPACT REVIEW POSSIBLE ADVERSE EFFECTS
A. COMMUNITY PLANS AND GOALS ................................................... None*
B. POPULATION DISTRIBUTION AND GROWTH.......................................... =Tone*
C. LAND USE ....................................................................... ?Ione*
D. TRANSPORTATION AND CIRCULATION .............................................. None*
E. PUBLIC SERVICES ................................................................ None*
F. UTILITIES........................................................................
None*
G. NOISE LEVELS .......................................... .ione
H. GEOLOGIC&SEISMIC HAZARDS&TOPOGRAPHIC MODIFICATIONS .................... None
I. AIR QUALITY AND WIND CONDITIONS..............................................• 'lone
J. SURFACE WATER FLOW AND QUALITY .............................................. Mone
K PLANTLIFE....................... ........... None
L ANIMAL LIFE............ None
M. ARCHAEOLOGICALIHISTORICAL ................................................... None
N. AESTHETIC None
0. ENERGVRESOURCE USE .......................................................... None
P. OTHER ............................................................................
III.STAFF RECOMMENDATION
PMATWE r)ECIA'tATIO:i EXIIION""'IT - �
'SEE ATTACHED REPORT
I. DESCRIPTION OF PROJECT AND ENVIRONMENTAL SETTING
Due to business considerations, TRW has decided to consolidate their operations at a
larger existing facility in Colorado Springs, Colorado. The 'firm intends to sell this
vacant, 7 acre property, as well as their industrial office building located across the
street at 1050 Southwood Drive. TRW believes that the highest and best use for this
large site is residential, and has requested that the property be rezoned from
manufacturing to medium-high density residential. To maintain consistency, the general
plan must also be amended, changing the land use designation from service-
commercial/light industrial to medium-high density residential.
No development is planned at this time. The city is being asked to rezone the property
to allow residential development of up to 18 density units per acre. In evaluating
proposals of this kind, the city follows a two-tiered approach: first, the initial study
examines the potential environmental effects of policy changes. Next, future development
proposals receive more detailed review focusing on the environmental effects of specific
design alternatives. For a discussion of a related TRW application for PD rezoning of
1050 Southwood Drive, see initial environmental study ER 41-90, on file in the
Community Development Department.
The level site is located in the southeast portion of San Luis Obispo, in a neighborhood
with a mixture of commercial, light-industrial, and residential uses, and public facilities
including two city parks and Fire Station No. 3. West of the site is the YMCA sports
club and offices, and Johnson and Sinsheimer Parks, and a 168-unit apartment project.
To the east across Laurel Lane are residential condominiums. North of the site are
industrial offices, a bowling alley, a convalescent hospital, apartments, and houses. To
the south is a mix of industrial, office, and service commercial uses along the west side
of Laurel Lane. Northeast of the site is a small neighborhood shopping center with
stores, restaurants, and beauty salon.
II. POTENTIAL IMPACTS
A. Community Plans and Goals.
Evaluation: Not significant. City policies allow the general plan to be amended three
times per year, with amendments introduced at regular Planning Commission meetings
in January, May, or September of each year. Requests to amend the general plan and
rezone property are evaluated by the Planning Commission and City Council considering
city land use policies, environmental effects, applicant and public comment.
The general plan designates this site for service-commercial/light industrial uses; however
the neighborhood has a mixture of commercial, residential and recreational uses.
General plan policies do not preclude either manufacturing or residential uses at this site.
They do, however, set broad objectives for various land uses. For example, relevant
Land Use Element policies include:
EXHIBIT D . z
-"Commercial and industrial land uses should be developed in appropriate areas
where the natural slope of the land is less than 10 percent. Commercial and
industrial uses should have service access from the city's arterial and collector
street system so as to avoid the concentrated use of residential streets for truck
delivery and customer traffic."
-'The allocation of land resources for service commercial/light industrial uses
should be periodically reviewed and revised as necessary to reflect the realistic
needs and opportunities of the City of San Luis Obispo based on changes in the
work force and resource availability."
-"Medium-high-density residential development, allowing a maximum of 18 density
units per acre shall be encouraged in areas substantially committed to this type
of development, close to community commercial centers and public facilities.
-"New residential developments or redevelopments involving largescale sites
(expansions of existing neighborhoods or major infill or intensification areas)
should be designed to orient low-density housing to local access streets and
medium-or high-density housing to driveways accessible from collector streets."
The proposed general plan amendment and rezoning could be considered consistent with
any or all of the above policies. Moreover, they provides the opportunity to "review and
revise" the allocation of service-commercial/light-industrial land as the city proceeds with
its general plan update. The change may promote the city's goal of acheiving a better
balance between job growth and housing. Hence, this proposal will not significantly
impact, and in fact, may promote community plans and goals.
B. Population Distribution and Growth
Evaluation: Not significant. This general plan change will not directly affect population
or growth in the short-term; however it will allow future population increases once
resources are available to support the growth. Full buildout of the site with medium-
high density housing (18 density units per acre) could increase the city's housing stock
by a maximum of 126 two-bedroom units, 190 one-bedroom units, or 252 studio units.
This could provide housing for up to 602 persons (2.39 persons per household,
Department of Finance figures, January 1990) — a population increase of about 1.4
percent.
At least two factors are acting to control the timing and rate of residential development:
the city's water allocation regulations and residential growth management regulations.
As discussed under section F, the city has adopted stringent regulations limiting new
water hook-ups until sufficient water resources are available to support growth. This is
likely to postpone development of this site for an indefinite period. Moreover, the
growth management regulations set a growth target of one percent during the 1990's,
an increase of 150 dwelling units per year. Development of this site will require phasing
to comply with growth targets.
E XI 1 T D
5B-a5
C. Land Use
Evaluation: Not significant. The neighborhood includes residential and industrial uses,
so that rezoning from service-commercial/light industrial to medium-high density
residential will not introduce a new use to the area, or substantially alter or disrupt
existing or planned land uses.
Conversion of 7 acres of manufacturing-zoned land to residential would not significantly
reduce the supply of land allocated for service-commercial/light industrial uses. San Luis
Obispo's land allocation for these types of uses totals about 462 acres: 175 acres of M-
zoned land, including 47 acres which are vacant; plus 287 acres of C-S zoned land, of
which 50 acres are vacant.
D. . Transportation and Circulation
Evaluation: Not significant.
The general plan amendment and rezoning will not affect transportation and circulation
since traffic increases resulting from development under either residential or
manufacturing zoning can, with one exception, be adequately handled by the existing
street system. Westbound traffic movements on Orcutt Road are constrained by several
factors, including substandard street width and design, railroad grade crossing, and mis-
alignment of Bullock/McMillan Lanes. An engineering traffic study has been submitted
by the applicant, and is incorporated into this initial study. Staff concurs with the study's
main conclusions: (staff comments in italics)
1. Traffic volume. Residential development would generate 793 vehicle trips per day,
with a PM peak hour volume of 88 vehicles. Industrial development would
generate 363 vehicle trips per day, with a PM peak hour volume of 52 vehicles.
2. Traffic pattern. Residential and industrial uses would have a similar pattern of
vehicle trips, nearly equally distributed to and from the north on Laurel Lane, with
about 2 percent of the total trips from the east.
3. Street capacity. With one exception, the adjacent streets have ample capacity to
handle expected traffic increases. Total traffic volume increase on Laurel Lane,
a four-lane arterial street, south of Southwood Drive will range from about 400 -
800 vehicles, a 4 to 8 percent increase over current traffic volumes.
Traffic operation on the two-lane section of Orcutt Road is currently constrained and
the additional traffic from development of this site would worsen conditions.
Computer traffic models prepared by the city's traffic consultant, DKS Associates,
indicate however that under Laurel Lane and Orcutt Road would continue to operate
at Level of Service-"C"or better under projected growth scenarios, including residential
or commercial development of this site. E X. I B 110", �rL
58-a(
The city plans to widen and improve Orcutt Road however the work is not
programmed or funded at this time The City Engineer estimates that the work will
be done by 1995. When specific development proposals are received for this site,
staff expects to have a traffic impact fee ordinance in place, allowing the city to
apportion costs for the street improvement on a project-by-project basis.
4. Southwood/Laurel intersection capacity. The 4-way stop at Southwood Drive and
Laurel Lane is operating satisfactorily at present volumes, and its operation is not
likely to be significantly degraded by industrial or residential development of this
site.
Based on staff studies, the Southwood/Laurel intersection appears to meet, or come
close to meeting signal warrants. With any development of the site, staff anticipates
the need for signalization at this intersection. Developer contribution toward
intersection improvements would be an appropriate mitigation measure when a specific
development is proposed
5. Laurel/Orcutt intersection capacity. This is a "I" intersection with six possible
traffic movements. All but one of the six movements currently operate as
unrestricted (ie. yield right-of-way) movements or at a level of service A. The
southbound left turn leg from Laurel to Orcutt operates at a level of service D.
The other traffic movements would not be significantly affected by development
of the property.
6. Parldng. There are 57 on-street parking spaces on Southwood Drive between
Laurel Lane and Sinsheimer Park. During two days of field observations, on
street parking appeared related entirely to YMCA employees and visitors. On-
site parking for other uses on Southwood Drive appeared adequate.
E. Public Services
Evaluation: Not significant. Fire department staff note that the proposed rezoning is
compatible with emergency response concerns, but that the more intense residential use
will have the net effect of increasing emergency medical services required in that area.
Depending upon the type and intensity of development, and upon future funding and
staffing levels, site development may impact the department's ability to maintain current
service levels.
F. Utilities
Evaluation: Not significant. The proposed rezoning will not affect utilities in the near
future. It would, however, increase the site's potential water demand since medium-
high density residential land uses are generally require more water than industrial uses.
Expected water demand increases would be offset, however, through implementation of
the city's water conservation policies, or by postponing development until water supplies
are adequate to support growth.
The City is entering its fifth year of below-normal rainfall, and has adopted regulations
to control increases in water use and to help correct the current imbalance between
E."XiHIBIT D -5
water use and supply. The regulations limit issuance of building permits and require
retrofitting to offset increases in water demand for new development, or new uses. The
city is worldng to secure new water sources, and policies which require businesses and
residences to conserve water and penalize excessive water use will continue in effect until
adequate water supplies are available.
Attachments: Vicinity map, applicant's project description, general plan amendment
map, engineering traffic study.
E%fxxA"I , D�-�
Gerald W. Skile,
CONSULTING TRAFFIC ENGINL_
4855 Windsor Boulevard Cambria,California 93428
(fills)9274453
January 21, 1990
HEChlVtL,
Mr. Rob Strong JAN 2 ? 1991
The Planning Mill City of San Luis Obispo
One Buena Vista --.._....
San Luis Obispo, CA 93401
Traffic Study for TRW Properties
Dear Mr. Strong:
This report summarizes the results of a traffic study conducted for
two TRW properties in San Luis Obispo. The purpose of the study
was to identify the traffic impacts of proposed changes in
allowable uses of the two properties.
The study was conducted in accordance with my proposal dated
December 30, 1990 with the addition of a survey of on-street
parking availability on Southwood Drive, and the identification of
Projected volume levels on Orcutt Road at the Southern Pacific
Company railroad crossing. The latter two items were included at
the request of City staff.
Project Descriptions
One proposed project is a change in use of an existing 60,000 sf
industrial building on Southwood Drive west of Laurel Lane. The
building has been used in the past for design, development and
assembly of .electronic equipment. It is proposed to convert the
building to general office use.
Employment level has been reduced from over 800 at one time to
approximately 250 at the time this study was begun (end of
November, 1990 ) , and to about 5o at the time it was completed.
The building has two parking areas with an internal connection and
with five driveways, including driveways serving a shipping-
receiving dock. It is understood that the off-street space is
adequate for approximately 200 vehicles. This has not been
confirmed as the parking area has been resurfaced and parking space
markings have not been replaced.
The second project is the proposed development of a 7-acre parcel
on the southwest corner of Southwood Drive and Laurel Lane. The
property is in an industrial use zone and it is proposed to be
developed to multiple residential use.
EXiti
"MIT D ---/'
Mr. Rob Strong Page 2
Method of Study
Review of area traffic operations indicated that the locations most
likely to be affected by increased traffic flow would be the two
adjacent intersections on Laurel Lane at Southwood Drive and at
Orcutt Road. Consequently, traffic flow impacts were evaluated
primarily by analysis of relative flow conditions at the two
intersections under several estimated traffic flow conditions:
1. Traffic levels calculated with the TRW building not in use
(termed Existing Less TRW for the purposes of this study) .
2. Existing less TRW traffic plus traffic from industrial use
of the TRW building.
3 . Existing less TRW traffic plus traffic from office use of
the TRW building.
4 . Condition 2 above plus traffic from industrial use of the
vacant parcel.
S. Condition 2 plus traffic from residential use of the vacant
parcel.
6. Condition 3 plus traffic from industrial use of the vacant
parcel.
7. Condition 3 plus traffic from residential use of the vacant
parcel.
Driveway movements at the TRW building were counted over a 24-hour
period at the beginning of the study. Short-period turning
movement counts were made at that time at the adjacent intersec-
tion. Manual turning movement counts were made at a later time at
the two intersections identified above,, covering the periods 6:00-
8 :00 AM and 4 :00-6:00 PM. In calculating traffic volumes for the
without TRW traffic condition, it was assumed that TRW traffic at
the time of the later counts was in direct proportion to the
employment levels on that date and on the date driveway movements
were counted.
Future traffic generation for the alternate developments was
estimated using average trip rates identified in Trip Generation,
4th Edition, Institute of Transportation Engineers, 1987. ITE land
use classifications used were General Light Industry, General
Office, and Apartment (assumed at 18.6 units per acre) . Trip rates
for weekdays and for the maximum hour in 7-9 AM and 4-6 PM periods
are:
Daily AM Peak Hour PM Peak Hour
Industrial, 1,000sf 6.967 0. 960 (88%in) 1.037 (12%in)
Industrial, acre 51.803 7.732 (83%in) 7. 426 ( 22%in)
Office, 1,000sf 15.790 2.170 (87%in) 2. 200 (16%in)
Residential, unit 6.103 0.532 (18%in) 0.673 (68%in)
The directional pattern of tripslon the access street system for
each type of use was assumed to be the same as present distribu-
EX 1 IT D
5830
Mr. Rob Strong Page 3
tions of trips to and from similar land uses in the vicinity. The
residential and industrial site trips were found to have a similar
pattern, nearly equally distributed to and from the north and south
on Laurel Lane, with about 2% to and from the east. Office trips
were more heavily oriented to the south (65%) .
On-street parking -availability on Southwood Drive was determined
from measurement of curb space and from observation of parking
occupancy at various times of the day on different week days.
Traffic Generation Comparisons
Following are the estimated trip ends that will be generated by the
two alternate uses on each site (numbers in parenthesis are entry-
exit movements) :
Type of Use Weekday AM Peak Hour PM Peak Hour
a. Existing Building
Industrial 418 58 (51-7) 62 (7-55)
Office 947 130 (113-17) 132 (21-111)
b. Vacant Parcel
Industrial 363 54 (45-9) 52 (11-41)
Residential 793 69 (13-56) 88 (60-28)
Driveway movements counted at the TRW building when at an employ-
ment level of 250 people were almost identical to the calculated
volumes using the ITE average rates for a 60fOOOsf building: 419 in
24 hours, 53 in the AM peak (7:00-8:00) , and a PM peak of 61 (5:00-
6:00) , where volumes were totaled only- at the end of each hour.
Street Secment Imvacts
With one exception, the access street segments have ample capacity,
and traffic added by the study sites will not represent a signifi-
cant increase in loading at non-intersection points. Traffic added
on Laurel Lane south of Southwood Drive will range from about 400
vehicles per day to some 800 per day for the combinations of
project alternatives, representing daily volume increases of 4% to
8%. While those are appreciable percentage increases, they will
not materially affect the quality of movement on the 4-lane access
route.
Traffic operation on the two-lane section of Orcutt Road is much
more constrained by non-intersection conditions; however, even on
this segment, intersection conflicts generally control the capacity
and the quality of operation.
The City plans to improve the restricted-width section, but the
work is not programmed at this time. Eventually, it is planned to
grade separate the railroad crossing, depending upon the availabil-
ity of State funding. For the purpose of potential apportionment
of a part of future improvement costs, traffic volumes estimated to
EXHIBIT D � .
583
Mr. Rob Strong Page 4
be added on Orcutt Road by the proposed projects are:
Proiect Alternates Daily AM Peak Hr. PM Peak Hr.
a. Existing Building
Industrial 200 28 30
Office 615 85 86 .
b. Vacant Parcel
Industrial 175 - 26 25
Residential 380 33 42
Intersection Volume Impacts
Laurel Lane and Southwood Drive
Operation of this 4-way stop intersections is satisfactory with
present volume levels. Individual vehicle delay is quite low.
Queues of more than 2 or 3 vehicles were ,not observed during this
study.
Capacity of an all-way stop intersection has not been well-
established. Studies at 4-way stop intersections have shown that
relative demand on the two streets has an influence on capacity and
on vehicle delay at volume levels below capacity (and, hence, an
influence on level of service) . With an equal number of approach
lanes, capacity is highest when volumes on the two streets are
nearly equal.
Recent studies have shown that level of service (as represented by
delay) is related to the proportion of left turns; that is, for a
given volume level and demand ratio, delay is increased with higher
proportions of left turns.
In addition to increasing total intersection movements, traffic
from the alternatives which generate the most traffic tend to
increase the proportion of left turns, but to improve the approach
demand ratio.
Intersection capacity was estimated to vary from about 2000
vehicles per hour (neither site in use) to 2200 per hour (office
use is existing building, either alternative use on the vacant
parcel) . On that basis, the volume/capacity ratio varied in nearly
direct proportion to total traffic generated by the two sites, but
only in the range from 0.54 (neither site in use) to 0.60 for the
office and residential use combination.
With the relatively good quality of present operation, it is
doubtful that any of the alternative use combinations would result
in cumulative delay during peak periods.
Tables 1 and 2 show a comparison of intersection movements at the
two intersections on Laurel Lane. The relative effect of alternate
uses of the existing building is shown in Table 1. In Table 2,
volumes are shown for each movement for alternate uses on the
EX111BIT D
58 3a
Mr. Rob Strong Page 5
vacant parcel with industrial use of the existing building. Most
movements which are affected by the development projects would be
slightly higher with office use of the building.
Laurel Lane and Orcutt Road
This is a T-type intersection with Laurel Lane entering at a flat
angle, with the Laurel Lane approach controlled with a stop sign,
and where the major movement is between Laurel Lane and the west
leg of orcutt Road. Table 3 is a capacity analysis worksheet for
the intersection. The calculation results indicate the effect of
each alternative site use combination on utilization of capacity
for movements from Laurel Lane and for the left turn to Laurel
Lane.
None of the site use combinations results in a change in level of
service designation for any of the movements, as compared with the
"less TRW" condition.
The movement with greatest individual vehicle delay is the left
turn from Laurel Lane, calculated to be in Level of Service D for
all conditions. Traffic from the TRW projects would not increase
the volume of that movement, and the reserve capacity is changed
very little by alternative project traffic.
There is a slight reduction in reserve capacity for the other two
movements with increased project traffic generation.
On-Street Parking
Land uses in the block between Laurel Lane and Sinsheimer Park are:
on the north side -. Laurel Lanes bowling center, TRW and YMCA;
on the south side - vacant TRW parcel, Parkwood Village
apartment complex.
West of the westerly TRW driveway and the driveway to Parkwood
Village on the opposite side of Southwood Drive, there is suffi-
cient curb space for 22 vehicles, at 22' per vehicle. East of
those driveways, the curb space is adequate for 35 vehicles.
All on-street parking observed during this study was related to the
YMCA, to the extent that could be determined. Typically, the curb
space west of the TRW parking lot was about 50% occupied throughout
the day.
On two different weekdays in late afternoon, 24 vehicles were
counted. in that section with an additional 3 to 4 vehicles parked
to the east of the Parkwood Village driveway. on those occasions,
the YMCA lot was filled to capacity. Additionally, some of the
spaces at the park swim stadium may have been used by' individuals
at the YMCA, with about 25 vehicles parked there.
EXHIBIT D
56-33
Mr. Rob Strong Page 6
There was no observed use of curb space by tenants or visitors to
the apartment complex. Also, there was no observed use of curb
space in the easterly portion of the block, except for parking
thought to be related to the YMCA (all near the Parkwood Village
driveway) . However, the- TRW parking areas were under utilized
during the period of observations, so observed conditions do not
reflect possible demand from future use of that site.
Mitigation Measures
The traffic volumes summarized in Table 1 indicate- that a warrant
for traffic signal control (Interruption of Continuous Traffic
Warrant) would be satisfied at Laurel Lane and Southwood Drive with
either office use or industrial use of the TRW building, assuming
that the eighth highest hour is 65% to 70$ of the peak hour. As
operation has apparently been satisfactory with the building in use
in the past, it may be preferable to retain the all-way stop
control until the vacant .parcel is developed.
A Minimum vehicular Volume warrant would be satisfied at Laurel
Lane and Orcutt Road with office use of the TRW building. A normal
warrant would not be satisfied with other development alternates,
if allowance is made for probable overlapping movements. However,
the City plans to modify the intersection, realigning Bullock Lane
south of Orcutt Road so as to form a four-leg intersection. It
would be desirable to signalize the intersection at that time.
No conclusion is reached on the adequacy of present on-street
parking space, except that there is an-obvious need for additional
off-street space at the YMCA. Any special requirements related to
parking at the TRW building should be considered at the time a
specific use is considered.
I will be happy to answer any questions you may have regarding the
study.
Very truly yours,
' Gerald W. Skiles �;�;�0 0 W. '"• . .-.
Consulting Traffic Engineer
:1.t Exp. 3/31/92
�l
TR4 F ,��
9lFOF CWVS'S h
EXHIBIT D -/z
TABLE 1
INTERSECTION PEAK HOUR VOLUMES
WITH ALTERNATE USES OF EXISTING BUILDING
Laurel Lane and Southwood Drive Laurel Lane and Orcutt Road
Movement Existing Industrial Office Movement Existing Industrial Office
Less TRW Use Added Use Added Less TRW Use Added Use Added
AN PM AM PM AN PM AM PN AM PM AM PM
NS Left 7 46 31 49 80 60 EB Left 287 414 311 417 360 428
NB Thru 237 398 237 398 237 398 EB Thru 60 211 60 211 60 211
NB Right 24 46 24 46 24 46 WB Thru 148 140 148 140 148 140
SB Left 41 68 41 68 41 68 WB Right 17 14 17 14 17 14
SB Thru 231 275 231 275 231 275 SS Left 5 18 5 18 5 18
SB Right 14 62 39 66 51' 69 SS Right 322 428 325 454 333 500
EB Left 46 51 50 79 52 88 SS Total 327 446 330 472 338 518
ES Thru 5 6 5 8 5 9 ES Thru+WB 225 365 225 365 225 365
EB Right 30 49 33 75 41 121 965X 146 237 146 237 146 237
WB Left 16 26- 16 26 16 26
WB Thru 6 6 8 6 9 7 Notes:
WS Right 49 49 49 49 49 49 NS is northbound, etc.
HB+SB Total 554 895 603 902 664 916 Existing Less TRW is traffic from counts on 1/9-16/91
EB Total 81 106 88 162 98 218 with movements to/from the TRW building deleted.
a65X 53 69 57 105 64 142
WB Total 71 81 73 81 74 82
TABLE 2
INTERSECTION PEAK HOUR VOLUMES
WITH ALTERNATE USES OF 7 ACRE PARCEL
Laurel Lane and Southwood Drive Laurel Lane and Orcutt Road
Movement Existing Industrial Residential Movement Existing Industrial Residential
Plus TRW Use Added Use Added Plus TRW Use Added Use Added
AN PM AM PM AM PM AM PM AM PM AN PM
NB Left 31 49 33 51 34 63 EB Left 311 417 333 422 317 446
NB Through 237 398 237 398 237 398 ES Through 60 211 60 211 60 211
NS Right 24 46 24 46 24 46 WS Through 148 140 148 140 148 140
SB Left 41 68 41 68 41 68 WS Right 17 14 17 14 17 14
SB Through 231 275 231 275 231 275 SS Left 5 18 5 18 5 18
SB Right 39 66 49 69 42 81 SB Right 325 454 329 474 353 467
EB Left 50 79 52 89 64 86 SB Total 330 472 334 492 358 485
ES Through 5 8 6 9 6 9 ES Thru+WB 225 365 225 365 225 365
EB Right 33 75 35 85 47 81 a65X 146 237 146 237 146 237
WS Left 16 26 16 26 16 26
WB Through 8 6 9 7 8 . 8 Notes:
WS Right 49 49 49 49 49 49 NB is Northbound, etc.
NB+SB Total 603 902 615 907 609 931 Existing Plus TRW in Table 2 is calculated volume with
EB Total 88 162 93 183 117 176 industrial use of existing TRW building.
a65X 57 105 60 119 76 114 Access movements are apportioned 60% each to access on
WB Total 73 81 74 82 73 83 Southwood Drive and on Laurel Lane.
EXHIBIT D -'/'-'
58-3 '
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EXiti IT D �/¢
APPENDIX
LEVEL OF SERVICE AND CAPACITY ANALYSIS
Level of Service
Level of service is a term used to describe the quality of
traffic operation on a road or at an intersection. Six levels of
service are defined for most highway facilities, each representing
a range in quality of operation, and given letter designations from
A to F. Level of Service A represents free-flow, unimpeded con-
ditions, and succeeding levels denote increasingly more congested
ranges of operation. Level of Service E represents operation at or
near capacity where operation is unstable. Level of Service F is a
condition of forced flow, highly congested, stop and go operation
experienced when demand exceeds capacity.
For most purposes, level of service is calculated for a short
time period, usually a 15-minute maximum demand period. For some
types of analysis, a full one-hour period of flow is used.
It is customary to design for operation at Level of Service C
or better, but it is becoming increasingly common to design for
Level of Service D conditions in major urban areas.
Procedures have been developed for calculating level of service
for a variety of highway facilities, but not for all types of
facilities nor for all conditions. The authoritative reference work
for capacity analysis is the Highway Capacity Manual, Special Report
209 , Transportation Research Board, 1985.
Highway and Arterial Street Capacity
Capacity of a two-lane highway is 2,800 vph under ideal
conditions (level, passing permitted, passenger cars only, 50/50
directional split) . Capacity analysis procedures have been
developed for multi-lane rural and suburban highways, signalized
urban arterials, and two-lane rural highways, but not for two-lane
urban routes or for four lane arterials of type involved in this
study.
Capacity Analysis , Unsignalized Intersections
The Manual gives capacity values for various configurations of
4-way stop controlled intersections with 50/50 demand split, but
level of service criteria have not been specified, and capacity for
other demand ratios has been identified only for a 2 land by 2 lane
intersection.
A recent study has shown that delay, a measure of level of
service, at a 4-way stop intersection- is related to proportion of
left turns, as well as to total volume and demand split (Yupo Chan,
et al, Volume-Delay Relationship at Four-Way-Stop Controlled
Intersections: A Response-Surface Model, ITE Journal, March 1989) .
At intersections controlled only with stop signs on the minor
road, through movement on the major road is unconstrained.
A-1
E�CIiji v �/�
Consequently, the capacity analysis procedure designated in the
Manual provides a calculated level of service only for the con-
trolled movements and for left turns from the major road.
The analysis procedure is based upon random flow on the through
road. When flow is non-random, the occurrence of gaps suitable for
entering traffic may be more frequent (or the gaps may be longer)
than would occur in a given time period with random flow.
Level of service is defined in terms of calculated reserve
capacity for the movement concerned:
Reserve Capacity Level of Expected Delay to
(Dcph) Service Minor Street Traffic
> 400 A Little or no delay
300-399 B Short traffic delays
200-299 C Average traffic delays
100-199 D Long traffic delays
0- 99 E Very long traffic delays
0 F May be extreme
A-2 EXHIBIT D -/
P .C. Minutes '
February 13, 1991
Page 9 .
Commr . Schmidt said he .had mixed feelings about this kind of use
of a PD and he felt the -Commission was being_ used to enhance the
sale value of the building.
Commr . Kourakis moved to affirm the negative declaration of
environmental impa t and recommend to the City Council approval
of the planned dev lopment rezoning and preliminary development
plan subject to th recommended findings and conditions, and with
the deletion of ath tic and health clubs, gymnasiums, fitness
centers, tanning cent bowling alleys and skating rinks, with
the assumption if buyers the building wanted one of these uses
for its employees, it would considered an auxiliary use and
would be allowed .
COMM . Williams seconded the mo on.
Commr . Gurnee said he would s port the motion . He explained
what . he was proposing as a ed restriction was not intended to
be mean spirited but to co form to the general plan policy of
keeping government office in the downtown area .
Commr . Hoffman said he ould support the motion and he does
support the tri-polar co ept, but agreed with Commr . Kourakis
that a deed restriction co d be interpreted by the County as a
combative move .
VOTING: AYES - Commrs . Koirakis, Williams, Gurnee, Karleskint,
Peterson, and Hoffman .
NOES - Commr . Schmidt .
_ ABSENT - None .
l
----------------------------------------------------------------
Item 6 . General Plan Amendment & Rezoning GP/R 1500 : con-
sideration of amending the Land Use Element map and
zoning map to change the designations from service-
commercial/light industrial, special considerations
(M-S ) to medium-high density residential, special con-
siderations (R-3-S ) for property at 1190 Laurel Lane;
TRW, Inc. , applicant . (Continued from January 30,
1991 )
----------------------------------------------------------------
Jeff Hook presented the staff report and recommended the
Commission affirm the Negative Declaration of environmental
impact and recommend to the City Council to amend the General
Plan and rezone the property as shown in Exhibits B and C from
manufacturing to medium-high density residential and rezone it
from M-S to R-3-S, special considerations .
Answering a question of Commr . Schmidt, Jeff Hook said 252 units
was the worst case scenario using studio units with maximum
allowed density.
��-vq
P .C. Minutes
February 13 , 1991
Page 10 .
Commr . Schmidt was concerned with the traffic report, the
estimated traffic generation rate of pases, D-4 and D-8, because
six trips per day per unit seemed low considering some of the
residents would be students, and density units were confused with
dwelling units . He was also concerned that the environmental
review contained no mitigations for traffic .
Jeff Hook said the figures used were based on standards ITE used
throughout the United States for this type of calculation . The
project would increase traffic on Laurel Lane by 3-4 percent .
Chairman Hoffman opened the public hearing .
Rob Stzong, one Buena vista, applicant ' s representative, said
prior to TRW' s decision to leave San Luis Obispo, TRW talked with
local people including himself and believed this site was more
suitable for mixed use, housing, or office than industrial . He
said the site is in between two residential uses . He said the
ITE numbers may not be an appropriate calculation, but they have
been accepted in previous traffic studies .including the City' s
circulation element . He believed the study showed streets could
handle the increase in traffic and said the applicant is open to
mitigation for traffic circulation .
Commr . Kourakis questioned Rob Strong about a statement in the
applicant ' s request stating residential was the highest and best
use for the property. She was concerned that those terms were
economic ones, making it easier to market the property, and did
not believe that was an appropriate basis for a zoning change .
Robert Strong said highest and best use was not meant solely to
be an economic, appraisal or planning term but a general
expression .
Patrick Smith, 1045 Southwood Drive, representing Parkwood
village, said he supported the zoning change because he believed
residential zoning would help improve the neighborhood and
prevent Parkwood village from being surrounded by areas zoned for
manufacturing.
Kathleen Copeland, 1255 Orcutt Road, said as an owner of one of
the condominiums that faces the property, she favors the change
to residential . she added that she would like to see potential
impacts of noise and traffic addressed when the property is
developed .
Brett Cross, 1217 Mariners Cove, expressed concern that the
Commission was looking at General Plan amendments on individual
sites instead of areas as a whole and suggested the Commission
delay making a decision on this rezoning .
Chairman Hoffman closed the public hearing.
5�-
P .C. Minutes
February 13, 1991
Page 11 ,
Commr . Gurnee believed R-3-S was appropriate for the property
because there is R-3 zoning to the east and west, and because the
S designation would require that traffic and design be monitored .
Commr . Peterson said he could support the rezoning because it
would be compatible with surrounding uses .
Commr . Schmidt said originally this site was discussed by city
staff as appropriate for a mixed use of commercial and
residential . He said he was reluctant to support the proposal
because he would like to see it developed as mixed use and
suggested making it R-3-PD .
Commr . Karleskint agreed with Commr . Schmidt and did not want to
lose the possibility of this site having a mixed use . He said the
area was between two residential areas, but was also between two
commercial\office areas . He was also concerned about M zones
disappearing within city limits .
Commr . Kourakis agreed with Commrs . Schmidt and Karleskint .
Commr . Gurnee said to request the applicant to initiate a PD
would be inappropriate because of the time involved .
Commr . Gurnee moved to approve the change of the General Plan to
a zoning of R-2-S, with the S designation to address traffic., and
the requirement for a mixed use project that shall be primarily
residential .
Commr . Hoffman questioned using an S designation to insure the
property is developed as a mixed use .
Chairman Hoffman reopened the public hearing .
Rob Strong asked the Commission to consider changing the General
Plan Amendment from industrial to predominantly residential and
possibly using a PD designation . He did not want to see the M
designation stay on the property until a PD was submitted . He
said he preferred an R-3-5 with the General Plan having a PD. He
believed a zoning decision should be treated as a separate issue
from the General Plan .
Monte Lukov, Business Improvement Association representative,
said he believed residential was most appropriate for this site
or subsidiary businesses to the County could use that office
space, making the other TRW property desirable for the County.
Chairman Hoffman closed the public hearing .
Commr . Kourakis was concerned about requiring a property owner to
do something that is not clearly defined in the General Plan or
zoning regulations .
56- 41
P .C. Minutes
February 13, 1991
Page 12 .
Commr . Peterson said that as more manufacturing zones are
rezoned, manufacturing is getting pushed out of the city and may
cause the city to lose revenues . He suggested the economic study
for mixed use be completed before a decision is made .
Commr . Gurnee ' s motion died for lack of a second .
Commr . Peterson moved to postpone the discussion until an
economic impact study Is- completed as part of the General Plan
update .
Commr . Kourakis seconded the motion.
Rob Strong requested that the public hearing be re-openend .
Cindy Clemens said possibly a fairness argument could be made
that he might have a new suggestion . She suggested the Commission
give him 3-4 minutes to make comments .
Chairman Hoffman re-opened the public hearing .
Rob Strong said his suggestion was different from Commr . Gurnee ' s
motion . He suggested recommending the General Plan Amendment and
give additional direction to the City Council stating the
Commission prefers a mixed use development . He said he hoped the
item would not be continued . He said the General Plan Amendment
could be acted on now, with zoning changed at a later date .
Chairman Hoffman re-opened the public hearing.
Commr . Schmidt said he would support the motion and- wanted to
make a second motion regarding initiation of rezoning. He felt
a majority of the Commission was making a land use decision.
VOTING: AYES - Commrs . Peterson, Kourakis, Karleskint,
Schmidt, Williams, and Hoffman .
NOES - Commr . Gurnee .
ABSENT - None .
The motion passed .
Rob Strong expressed disappointment that the General Plan
Amendment was continued to resolve GP Amendments and recommended
a recommendation to the City Council to see if they agree instead
of making the applicant wait for six months . He said he believed
the Commission made an error and added he was going to see if the
applicant could appeal the continuance because of the inaction of
the Commission .
In answering a question of Coramr . Schmidt, Arnold Jonas said the
Commission could initiate a recommendation to the City council to
amend city zoning ordinances to allow mixed uses .
P .C. Minutes
February 13, 1991
Page 13 .
Cindy Clemens recommended noticing it for a public hearing as it
is an action that was not on the agenda . She suggested directing
staff to come back with a staff report.
Arnold Jonas said since work had been started by a subcommittee,
it might be appropriate to add a member to that committee to
draft a proposal and staff could assist .
Commr . Schmidt volunteered to be on the subcommittee .
----------------------------------------------------------------
Item 7 . General Plan Amendment & Rezoning GP/R 1502 : consid-
eration of amending the Land Use Element map and
zoning map to change the designations from neighbor-
hood-commercial (C-N) to medium-density residential
(R-2 ) for property at 2011 Chorro Street and 2012
Broad Street; City of San Luis Obispo, applicant .
(Continued from January 30, 1991 )
----------------------------------------------------------------
Jeff Hook presented the staff report and recommended the
Commission affirm the negative declaration and recommend that the
City Council amend the General Plan and rezone the property from
neighborhood-commercial to medium-density residential, with or
without changes discussed in the staff report . He presented
several scenarios for rezoning . one lot at High and Chorro is
R-2, the rest are C-N. The proposal before the Commission would
rezone 2 lots to R-2 . one alternative was to rezone the 2 lots
and 3 additional lots, and another alternative was to rezone
residential use on Chorro and keep commercial zoning on Broad
with 2 lots on Chorro being rezoned to R-2 . Staff recommended the
Commission recommend to the City Council any of the alternatives
as they are all consistent with the General Plan .
Commr . Kourakis mentioned that leaving current residential lots
as legal non-conforming make it hard for residents to get a loan
for home improvements .
Chairman Hoffman opened the public hearing.
Alan MacMeekin, 2011 Chorro Street, said he did not have any
obJections to any of the proposed zoning option. He said his
preference was to have residential R-2 on both Broad and
Chorro Streets . He said Paul Porter was did not care about the
zoning change .
Chairman Hoffman closed the public hearing.
Commr . Gurnee moved to approve the rezoning shown on� Exhibits A
and B with the recommended findings .
Commr . Schmidt seconded the motion .
5643