HomeMy WebLinkAbout04/01/1997, 3 - LAND USE POLICIES CONCERNING OFFICES AND BAKERIES IN AREAS DESIGNATED SERVICES AND MANUFACTURING council D� -� -
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CITY OF SAN L U I S O B I S P O
FROM: Arnold B. Jonas, Community Development Director by Gq-7?
Prepared By: Glen Matteson, Associate Planner
SUBJECT: Land use policies concerning offices and bakeries in areas designated Services
and Manufacturing
CAO RECOMMENDATION
1. Conceptually approve a negative declaration of environmental impact and an amendment to
the General Plan Land Use Element text, to allow more types of offices in the Services and
Manufacturing category(consistent with current Zoning Regulations), and to clarify the status
of small retail bakeries vs. food manufacturing.
2. Direct staff to aggregate the attached draft resolution of approval with other proposed
General Plan Amendment actions for adoption by a single motion at the end of this meeting.
DISCUSSION
Situation
The General Plan requires that the City's Zoning Regulations be consistent with the General Plan.
Policies in the 1994 Land Use Element update require deleting from the Zoning Regulations
several types of office uses. The alternative to achieving consistency by amending the Zoning
Regulations is to amend the Land Use Element policies, thereby allowing existing zoning
provisions to be consistent with the General Plan. At recent meetings, this latter approach was
supported by the City Council and recommended by the Planning Commission.
Background
The Services and Manufacturing Catesory
The City's General Plan Land Use Element contains a Services and Manufacturing land use
category. Two zones implement this category. The Service Commercial (C-S) Zone is usually
applied to properties along major streets, while the Manufacturing (1V1) Zone is typically applied
to sites with less public visibility (attached map). Allowed uses in these two zones are similar,
though the C-S zone emphasizes sales, while the M zone emphases manufacturing and
distribution. The attached resolution exhibit includes the adopted purpose statement for this land
use category, and shows the recommended changes. Legal, medical, and most walk-in type
financial services would continue to be allowed only in zones other than C-S and M.
A wide range of uses have been developed in C-S zoned area (sometimes with "planned
development" overlays), including vehicle sales, vehicle repair, business supplies and services,
equipment rental, building and home improvement sales, several types of offices, small shopping
centers, individual grocery stores, fight manufacturing, and ministorage. Because C-S zoned land
and buildings tend to cost less than those zoned Office (0) or Retail Commercial (C-R), several
Council Agenda Report- Offices in Services & Manufacturing
Page 2
uses that are allowed in all three zones are attracted to the C-S zone. Also, with the exception of
major shopping centers,the C-S zone has generally provided larger sites than the O or C-R zones.
Most C-S zone developments were originally approved by the City, though a few were originally
approved by the County and were later annexed by the City.
For several years, questions have come up concerning what specific types of uses should be
allowed in the C-S zone generally, and on particular sites. Long standing market pressure for
office uses in the C-S zone has influenced the existing Zoning Regulations. Testimony during
recent hearings included concerns that several types of existing uses would become
nonconforming, and that fewer types of compatible businesses would be allowed in C-S zoned
projects, if the pertinent sections of thel994 Land Use Element were implemented.
Land use data describing existing development in the C-S zone and the capacity for additional
development of various kinds indicates that the types of offices at issue can be developed in C-S
zones without displacing other desired uses, such as research and development or fight
manufacturing, or retail that fits best in C-S zones (attached figure and tables). An informal
review of code enforcement and recent hearing items indicates that there will be few compatibility
problems among the proposed allowable uses.
The following discussion highlights some of the types of uses at issue.
Design Firms
Before adoption of the Land Use Element update in 1994, there was a clear policy prohibiting
"the dispersion of design firms [among other uses]... throughout the city." That reference was
commonly understood to mean planners, architects, landscape architects, and interior designers,
so they were not initially allowed in C-S zones. "Industrial design," in the sense of consumer
products or industrial equipment, was seen as appropriate in C-S zones. Engineers, who often
need space for field vehicles and testing facilities, also were allowable in C-S with use permits.
All these types of offices were also allowed in Office, Retail Commercial, and Central Commercial
zones, and they will continue to be.
This approach to office location was mainly to reinforce the vitality of downtown, and to help
minimize trips between the offices and agencies which often deal with each other. (Apparently,
there was not a specific concern that allowing offices in the C-S zone would unacceptably reduce
the space available in that zone for the uses that would be most appropriate there, though there
was a general concern with a "chain of displacement" that would result in some fairly intensive
types of uses locating in unincorporated areas south of the City, where there were minimal public
services and design standards.) However, the combination of many disciplines related to land
development in individual firms did not fit well with the intended categories of the pre-1994 Land
Use Element. Other related activities are frequently integral to the work of engineering and
development firms. Mainly for this reason, in 1993 as part of"development review streamlining,"
the Zoning Regulations were amended to allow architects in C-S zones and to eliminate the use
permit requirement for engineers.
3
Council Agenda Report- Offices in Services & Manufacturing
Page 3
Utility Companies
Utility company offices were a significant component of downtown for many years. They
provided service for walk-in customers, internal management, and services for project designers.
As utility staffs and equipment storage needs grew and downtown space became more valuable,
the relocation of functions other than customer service (such as maintenance yards) to outlying
sites was seen as desirable. The Zoning Regulations reflected this situation by allowing utility
company administration and engineering offices in C-S zones. While the 1994 LUE update had
the effect of discouraging utility company offices in C-S zoned areas, there was not a discussion
of this intent during the hearings leading to adoption.
LaMe Offices
For many years, concerns have been expressed about the detrimental impacts on residents and
neighborhood character due to replacing downtown houses with offices. One response was to
amend the Zoning Regulations to require use permits to regulate residential conversions to offices
in the Office zone. More recently, the Land Use Element and the Housing Element were updated
to contain programs (which are yet to be implemented) for finther refinement of the zoning rules
applying to downtown offices and dwellings. There were also concerns about the adequacy of
space for offices, especially those that do not fit in dwelling conversions or small scale, downtown
buildings that would be compatible with historic neighborhood character.
A 1986 study commissioned by the City surveyed office supply and demand, and concluded that
there were unmet demands for large office spaces. The study recommended ways to meet
projected demands, including a strategy for allowing large office complexes. This
recommendation lead to the existing Zoning Regulations provision allowing "planned
developments" in C-S and M zones for certain types of large offices. This allowance was
reflected in the 1994 Land Use Element. Further, a recent C-S planned development (The
Brickyard) was approved allowing small offices if they are grouped with common facilities in the
form of"executive offices." The practical result of this approach, along with eliminating the
minimum parcel size for"PD's," is an opening of all C-S zoned areas to nearly all types and sizes
of offices.
Small and Start-up Businesses
Market trends since the early 1980's and recent experience indicate that the demand for large
office space is not as strong as was thought during the preparation of the 1986 study. Another
type of office demand has become more significant: the small firm and start-up or incubator
business. These businesses often are seeing if a new product or service can be produced or will be
profitable. They typically seek low cost facilities at they develop their product. Before the recent
Zoning regulations revision, these types of business were allowed in the C-S zone under
categories covering advertising, graphic design, printing, computer services, offices for industrial
design, and light manufacturing. With the new zoning provisions, they will typically come under
"research and development."
33
Council Agenda Report- Offices in Services & Manufacturing
Page 4
Bakeries
In the most recent batch of revisions to the Zoning Regulations, the City Council decided to not
allow retail sales of groceries, liquor, and specialized foods in the C-S zone (except at warehouse
stores or convenience stores). Bakeries had been listed parenthetically in the Zoning Regulations
use chart as an example of specialized foods. However, the Land Use Element mentions bakeries
specifically in the "purpose" section of Services and Manufacturing as an appropriate use (policy
3.5.1). The intent in the Land Use Element was to use bakeries as a concise example of food
manufacturing, as opposed to a retail bakery. However, the text does not make this obvious.
Therefore, staff suggests replacing "bakeries" with "food manufacturing" in the Land Use
Element text.
Environmental Determination
The impacts of making the Land Use Element policies match the existing Zoning Regulations
have been addressed in previous actions on the Zoning Regulations
Advisory Body Review
The Planning Commission, on December 11, 1996, voted seven to none to recommend
approval of the amendment as presented in the attached draft resolution. No testimony was
offered. Testimony in opposition to reducing the types of offices allowed in Services and
Manufacturing areas is noted above and has been summarized in previous agenda reports.
CONCURRENCES
No City departments have objected to the proposed amendment.
FISCAL IlVIPACT
No significant fiscal impacts are anticipated to result from the recommended action.
ALTERNATIVES
1. Council may deny the amendment (second attached resolution). This would require further
changes to the Zoning Regulations, contrary to recent Council direction.
2. Council may approve different language for the text. A policy which is not consistent with
the rest of the General Plan would require further amendments to maintain the General
Plan's internal consistency. A substantially different amendment may need additional
environmental review or Planning Commission review before the Council acts.
3. The Council may continue action. There is no deadline set by State law, but the General
Plan and Zoning Regulations should be brought into conformance within a reasonable time.
Council Agenda Report- Offices in Services & Manufacturing
Page 5
Attachments
Resolution approving Land Use Element text amendment
Resolution denying Land Use Element text amendment
Map of Services and Manufacturing areas
Figure and tables of uses and vacancy in commercial zones
Planning Commission Staff Report
3 S
RESOLUTION NO. (1997 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
AMENDING THE LAND USE ELEMENT TEXT CONCERNING
OFFICES AND BAKERIES IN SERVICES AND MANUFACTURING AREAS
(GP 115-96)
WHEREAS, the City Council conducted a public hearing on April 1, 1997, and has
considered testimony of interested parties, the records of the Planning Commission hearing and
action, and the evaluation and recommendation of staff.
BE IT RESOLVED by the Council of the City of San Luis Obispo as follows:
SECTION 1. Environmental Determination. The City Council finds and determines that
the potential impacts of making the Land Use Element consistent with the existing Zoning
Regulations has been adequately addressed in previous environmental review for the adoption and
revision of the Zoning Regulations.
SECTION 2. Findings. That this Council, after consideration of a General Plan Land
Use Element text amendment concerning offices and bakeries in the Services and Maufacturing
land use category (GP 115-96) and the Planning Commission's recommendations, staff
recommendations, public testimony, and reports thereof, makes the following finding:
A. The proposed text amendment is consistent with other policies of the General Plan.
SECTION 3. Approval The request for approval of the Land Use Element
amendment GP 115-96, as shown in the attached Exhibit A, is hereby approved.
SECTION 3. The Community Development Director shall cause the amendment to be
reflected in documents which are on display in City Hall and which are available for public
use.
SECTION 4. This amendment shall take affect at the expiration of 30 days following
approval.
Resolution.No.
Page 2 _
On motion of - -- -= -_ .- - seconded'by_ ----- ------- -- -,.
and on the following roll call vote:
AYES:
NOES:
ABSENT:.
the foregoing,resolution was adopted.this_day of ; 1997:
Mayor Allen K. Settle
ATTEST:.
City Clerk Bonnie Gawf
APPROVED AS TO FORM:
MY Jor . n�
smoff ces-cores
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Exhibit A
LAND USE ELEMENT AMENDMENT
(GP 115-96)
Added text is under ' Deleted text is Umd o
3.3.2 Office Locations
A. All types of offices are appropriate in the downtown General Retail district, but
are discouraged at street level in storefronts of the commercial core.
B. All types of office activities are appropriate in the Office district which
surrounds the downtown commercial area, though offices needing very large
buildings or generating substantial traffic may not be appropriate in the area
which provides a transition to residential neighborhoods.
C. Medical services should be near the hospitals.
D. Government social services and the regional offices of state and federal
agencies should be near the intersections of South Higuera Street, Prado Road,
and Highway 101 (Figure 5);
E. Large offices, with no single tenant space less than 2,500 square feet, and
having no substantial public visitation or need for access to downtown
government services may be in Services and Manufacturing districts, subject to
approval of a Planned Development zoning application.
F. Certain business and professional services having no substantial public
visitation or limited need for access to downtown government services may be
in Services and Manufacturing districts Examples of such uses are computer
services utilities engineering and administration architects and engineers.
industrial design advertising building contractors labor and fraternal
organizations veterinarians and insurance and financial services that do not
directly serve retail customers.
3.5 Services and Manufacturing
3.5.1 Purpose The City should have sufficient land designated for Services and
Manufacturing to meet most demands of the City, and some demands of the region, for
activities such as business services, wholesaling, building contractors, utility company
yards, auto repair, printing, bakeries food manufacturing and other light
manufacturing, and retail sales of large items, bulk quantities, and items often stored
outdoors (vehicles, building materials, plants). Areas reserved for these uses may also
accommodate convenience restaurants and other activities primarily serving area
workers.
��0
Exhibit A (continued)
3.5.2 Appropriate Uses The following types of uses are appropriate in areas
designated Services and Manufacturing. Certain area designated Services and
Manufacturing may be reserved through special zoning provisions for certain types of
uses, to assure compatibility among the wide range of potential uses, and to assure
adequate land for certain types of uses.
A. Wholesaling, warehousing, and storage;
B. Vehicle sales and rental;
C. Retail sales of products which require outdoor areas or large floor areas
for display and storage, such as warehouse stores, lumber and building
materials dealers, home improvement centers, furniture and appliances
stores, and plant nurseries;
D. Repair shops, printing services, laundries, animal hospitals, sporting
goods stores, auto parts stores, and some recreation facilities;
E. Light manufacturing, research and development, and laboratories. (See
also "Business Parks" in the Airport section, page 74.)
F. Large offices, with no single tenant space less than 2,500 square feet,
and having no substantial public visitation or need for access to
downtown government services may be in Services and Manufacturing
districts, subject to approval of a Planned Development zoning
application.
G. Certain business and professional services having no substantial public
visitation or limited need for access to downtown government services
may be in Services and Manufacturing districts. Examples of such uses
are computer services. utilities engineering and administration. architects
and engineers. industrial design, advertising. building contractors, labor
and fraternal organizations. veterinarians. and insurance and financial
services that do not directly serve retail customers.
smnffices-en
34
RESOLUTION NO. (1997 Series)
A RESOLUTION OF THE COUNCIL OF THE CITY OF SAN LUIS OBISPO
DENYING AN AMENDMENT OF THE LAND USE ELEMENT TEXT CONCERNING
OFFICES AND BAKERIES IN SERVICES AND MANUFACTURING AREAS
(GP 115-96)
WREREAS, the City Council conducted a public hearing on April 1, 1997, and has
considered testimony of interested parties, the records of the Planning Commission hearing and
action, and the evaluation and recommendation of staff.
BE IT RESOLVED by the City Council of the City of San Luis Obispo as follows:
SECTION 1. Findings. That this Council, after consideration of a General Plan Land
Use Element text amendment concerning replacement of hillside houses in limited situations
(GP 5496) and the Planning Commission's recommendations, staff recommendations, public
testimony, and reports thereof, makes the following finding:
A. The proposed text amendment is not consistent with policies of the General Plan.
SECTION 2. Denial. The request for approval of the Land Use Element amendment
GP 115-96 is hereby denied.
On motion of seconded by, and
on the following roll call vote:
AYES:
NOES:
ABSENT:
the foregoing resolution was adopted this_day of . 1997.
Resolution'No:
Page 2
Mayor Allen K. Settle
.ATTEST:
-- -- -------------- - -----
City Clerk. ..
-APPROVED AS TO FORM:
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by City of SLO
C-S ZONE: DEVELOPED FLOOR AREA
VACANT
ARCHITECTS & ENGINEERS
ALL OTHER PRIVATE OFFICES
PUBLIC ADMINISTRATION
RETAIL - GENERAL MERCHANDISE
\N
RETAIL - FOOD STORES
ORGANIZATIONS
ALL OTHER USES
SQUARE FEET
300r000 -
200,000 -
1 MOW
00,000200,000 -
100,000 -
Source: City of S.L.O. Land Use Inventory, August 1996
3 -13
C-S ZONE LAND USE COMPARISONS
(OCCUPIED FLOOR AREA IN SQUARE FEET)
LAND USE CATEGORY CITYWIDE C-S ZONES OTHER ZONES
Retail: General Merchandise
(includes department & variety stores) [SIC 275,600 22,700 252,900
531
Retail: Food Stores [SIC 541 236,000 48,800 187,200
Office: Engineering [SIC 87111 43,800 23,500 20,300
Office: Architecture [SIC 87121 32,600 61400 26,200
Contractors*[sic 15, 16, 171 151 ,900 81 ,600 70,300
Utilities' [SIC 4911, 4923, 49531 34,750 12,750 22,000
Organizations [SIC 861 401 ,500 35,600 365,900
All Other Nonresidential Uses 81946,750 11736,850 7,209,900
(excluding those listed above)
• City's land use coding does not distinguish between offices associated with work and
storage yards and offices not associated with such yards.
Source: City of S.L.O. Land Use Inventory, August 13, 1996.
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OFFICES IN C-S-PD
(OCCUPIED FLOOR AREA IN SQUARE FEET)
LAND USE CATEGORY ALL C-S ZONES C-S-PD
Engineers & Architects 29,900 3,900
[SIC 8711, 87121
Public Administration [SIC 91 through 41 ,600 18,000
971
Organizations [SIC 861 35,600 1 ,700
Other Office Types (excluding 67,400 20,000
contractors, advertizing, computer services &
utilities) [includes SIC 60 thru 67, 80, 81, 8721,
87411
Source: City of S.L.O. Land Use Inventory, August 13,1996.
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Planning Commission Staff Report - Services and Manufacturing Uses Pagel
CITY OF SAN LUIS OBISPO
PLANNING COMMISSION STAFF REPORT rrEM a
BY: Glen Matteson, Associate Planner MEETING DATE: December 11, 1996
FROM: John Mandeville, Long Range Planning Manager
FILE NUMBER: 115-96
PROJECT ADDRESS: Citywide
SUBJECT: General Plan Land Use Element policies concerning (1) offices, bakeries, and
convenience services in the Services and Manufacturing category and(2)building heights in retail
areas near the downtown core.
SUMMARY RECOMMENDATION
1. Recommend that the City Council amend the General Plan Land Use Element text to allow
more types of offices in the Services and Manufacturing category(consistent with current Zoning
Regulations), and to clarify the status of small retail bakeries vs. food manufacturing.
2. If appropriate, reaffirm the Commission's previous determination regarding the current Land
Use Element height standard for buildings in General Retail areas next to the downtown core.
DISCUSSION
General Background: Services A Manufacturing Uses
The General Plan requires that the City's Zoning Regulations be consistent with the General Plan.
The 1994 Land Use Element (LUE) update contains policy language which requires deleting
from the Zoning Regulations several types of office uses. The alternative to achieving consistency
by amending the Zoning Regulations is to amend the particular policy language so as to allow
existing zoning provisions to be consistent with the General Plan. This issue has been explained in
previous reports and has been considered by the Planning Commission and City Council at various
meetings over the last few months. The Planning Commission directed that staff return with an
amendment to the LUE to establish consistency with existing Zoning Regulation provisions
regarding certain office uses in the C-S zone. General Plan amendments must be analyzed for
internal consistency with all of the goals and policies of the General Plan. The following
discussion provides an analysis of the proposed amendment.
A basic concept in land use planning is the designation of enough land in suitable locations for
desired activities, without depleting the land which is available for other desired uses. These
community choices are expressed in General Plan policies and by applying relatively broad land
use categories to mapped areas. To implement the General Plan land use designations and
policies in greater detail, zoning regulations provide lists of specific uses which are allowed by
—/ 7
Planning Commission Staff Report - Services and Manufacturing Uses Paget
right, allowed with special approval, or not allowed within corresponding zones. For zoning
provisions to be the determinant of general plan policy can be the equivalent of the tail wagging
the dog, as zoning is an implementation tool for the general plan. However, should a situation
arise in which an existing zoning provision better serves a community need than new general plan
policy, it is appropriate to review the general plan and the issue at hand.
It should also be recognized that in taking a comprehensive, long-range view, the General Plan
may create certain opportunities and constraints which go beyond fixing immediate problems.
Achieving a long-term goal may require incremental changes to the status quo that individually do
not seem necessary, but collectively constitute a strategy for meeting future goals. With specific
regard to offices in the C-S zone, accomplishing goals for maintaining an adequate inventory of
land for Service Commercial uses, compatibility between neighboring uses, public convenience,
and reinforcement of public investment may involve the creation and relocation of non-
conforming uses in the short tern, to be replaced with the desired uses in the long-term. The
proposed LUE amendment should be reviewed in this context.
Focused Background: Offices in C-S
The City's General Plan Land Use Element contains a Services and Manufacturing land use
category. Two zones implement this category. The Service Commercial (C-S)Zone is usually
applied to properties along major streets, while the Manufacturing(Ivl)Zone is typically applied
to sites with less public visibility(attached map). Allowed uses in these two zones are similar,
though the C-S zone emphasizes sales, while the M zone emphases manufacturing and
distribution.
A wide range of uses have been developed in C-S zoned areas (sometimes with"planned
development" overlays), including vehicle sales, vehicle repair, business supplies and services,
equipment rental, building and home improvement sales, several types of offices, small shopping
centers, individual grocery stores, light manufacturing, and ministorage. Because C-S zoned land
and buildings tend to cost less than those zoned Office(0) or Retail Commercial (C-R), several
uses that are allowed in all three zones are attracted to the C-S zone. Also, with the exception of
major shopping centers, the C-S zone has generally provided larger sites than the O or C-R zones.
Most C-S zone developments were originally approved by the City, though a few were originally
approved by the County and were later annexed by the City.
For several years now, questions have come up concerting what specific types of uses should be
allowed in the C-S zone generally, and on particular sites. The general plan - zoning consistency
review of further limiting the allowed uses to conform to the Land Use Element update has raised
concerns about making existing uses non-conforming, and reducing the number of potential
occupants for C-S zoned developments.
Evolution of Existing Office Uses in the C-S Zone. A steady market pressure for office uses in
the C-S zone has persisted for many years and has influenced the existing Zoning Regulations.
Before adoption of the Land Use Element update in 1994, there was a clear policy prohibiting
.3�0
Planning Commission Staff Report - Services and Manufacturing Uses Pagel
"the dispersion of design firms [among other uses]... throughout the city." That reference was
commonly understood to mean planners, architects, landscape architects, and interior designers,
so they were not initially allowed in C-S zones. "Industrial design" (in the sense of consumer
products or industrial equipment)was seen as appropriate in C-S zones. Engineers, who often
need space for field vehicles and testing facilities, also were allowable in C-S with use permits.
All these types of offices were also allowed in Office, Retail Commercial, and Central Commercial
zones. This approach to office location was mainly to reinforce the vitality of downtown, and to
help minimize trips between the offices and agencies which often deal with each other.
Apparently there was not a specific concern that allowing offices in the C-S zone would
unacceptably reduce the space available in that zone for the uses that would be most appropriate
there. However, there was a general concern with a"chain of displacement" that would result in
some fairly intensive types of uses locating in unincorporated areas south of the City, where there
were minimal public services and design standards.
The combination of many disciplines related to land development in individual firms did not fit
well with the intended categories, however. Other related activities are frequently integral to the
work of engineering and development firms. Mainly for this reason, in 1993 as part of
development review streamlining, the Zoning Regulations were amended to allow architects in C-
S zones and to eliminate the use permit requirement for engineers.
Utility company offices were a significant component of downtown for many years. They
provided service for walk-in customers, internal management, and services for project designers.
As utility staffs and equipment storage needs grew and downtown space became more valuable,
the relocation of functions other than customer service(such as maintenance yards)to outlying
sites desirable. The Zoning Regulations reflected this situation by allowing utility company
administration and engineering offices in C-S zones.
Limitation on Office Uses in the Downtown. For many years, concerns were expressed about the
detrimental impacts on residents and neighborhood character due to replacing downtown houses
with offices. One response was to amend the Zoning Regulations to require use permits to
regulate residential conversions to offices in the Office zone. More recently, the Land Use
Element and the Housing Element were updated to contain programs(which are yet to be
implemented)for further refinement of the zoning rules applying to downtown offices and
dwellings. There were also concerns about the adequacy of space for offices, especially those that
do not fit in dwelling conversions or small scale, downtown buildings that would be compatible
with historic neighborhood character.
1986 Office Supply and Demand Study. A 1986 study commissioned by the City surveyed office
supply and demand, and confirmed many of the previous observations described above. The Study
concluded that there was a demand for large office spaces. It outlined options for meeting
projected demands, including a recommendation that the City enact a strategy for allowing large
office complexes. . This lead to the existing Zoning Regulations provision for allowing"planned
developments" in C-S and M zones for certain types of large office tenants. This allowance was
reflected in the 1994 Land Use Element. Further, a recent C-S planned development (The
Brickyard)was approved allowing small offices if they are grouped with common facilities in the
Z -�/
Planning Commission Staff Report - Services and Manufacturing Uses Page4
form of"executive offices." The practical result of this approach, along with eliminating the
minimum parcel size for"PD's," is an opening of all C-S zoned areas to nearly all types and sizes
of offices, provided the required conditions are met.
Recent experience and market trends that have emerged since the early 1980's indicate that the
demand for large office space is not as strong as was thought during the preparation of the Study.
In that time another type of office demand has become more significant-the small firm and start-
up or incubator businesses. These firms typically operate on start-up or investment capital with
the purpose of seeing if a new concept, product, or service can be produced or will be sustainable
or profitable. These businesses typically seek low overhead facilities at they develop their concept
or product. Lower cost office space is needed by these firms.
Information Presented at Previous Public Hearings and in Previous Staff Reports. Several owners
and occupants of C-S projects objected to narrowing the range of uses in the C-S zone, even if
existing uses could remain or be replaced in kind. The general opinion expressed was that the C-
S zone provided a valuable location for these uses. In previous staff reports, information has been
presented describing the existing development in the C-S zone and the capacity for additional
development of various kinds. Although precise quantitative information is not available, it
appeared that the types of offices at issue could be developed in C-S zones without displacing
such uses as research and development or light manufacturing, or retail uses that fit best in C-S
zones, and without compatibility problems.
Conclusion. The foregoing analysis indicates that the proposed amendment is consistent with the
basic planning purpose of providing enough land in the Services and Manufacturing district for the
activities desired. The office uses proposed would not adversely affect the Services and
Manufacturing district's ability to accommodate the light industrial uses intended, and in fact may
provide needed facilities for start-up or incubator design firms. The later benefit furthers the
implementation the City's economic development goals in the Land Use Element. The
recommended text(attached)would provide for consistency between the existing zoning
provisions for offices in the C-S zones and the Land Use Element. (Legal, medical, and some
financial services would continue to be allowed only in zones other than C-S and M.) The
proposed policy changes would be consistent with the General Plan as a whole.
Focused Background: Bakeries in C-S
In the most recent batch of revisions to the Zoning Regulations, the City Council decided to not
allow retail sales of groceries, liquor., and specialized foods in the C-S zone(except at warehouse
stores and convenience stores). Bakeries had been listed parenthetically in the use chart as an
example of specialized foods. However, the Land Use Element mentions bakeries specifically in
the"purpose" section of Services and Manufacturing as an appropriate use(policy 3.5.1). The
intent was to use bakeries as a concise example of food manufacturing, as opposed to a retail
bakery. However, the text does not make this obvious. Therefore, staff suggests replacing
"bakeries" with"food manufacturing".
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Planning Commission Staff Report - Services and Manufacturing Uses Page5
Background: Building Heights
The 1994 Land Use Element update includes a section concerning downtown. Much of this
section describes the types of activities and public improvements, and the form of buildings,
desired in the downtown core. Policy 4.18 addresses the issue of appropriate form for downtown
retail areas that are not in the designated core(attached map). It says"buildings should not
exceed two stories(about 35 feet in height)". This policy follows from work by an ad hoc
advisory group which focused on downtown during preparation of the Land Use Element update.
This building height limit was intended to maintain the perception of the core as a horizontally
bounded area with the most intense development in the city. It also helps avoid view blockage
and overlook for downtown residential areas which the General Plan says should be protected.
When considering the recently proposed package of Zoning Regulations changes for General Plan
consistency, the Planning Commission determined that Policy 4.18 was appropriate and
recommended that the City Council adopt ordinance language that would lower the 45 foot height
limit in the C-R zone to 35 feet. The Council hearing process on this amendment packet was
initiated but continued until January 21, 1997. During the Council hearings, new testimony on the
35 foot height limit was presented by the Chamber of Commerce, local architects, and drafters of
the Downtown Physical Concept Plan. As a result of this new input, the Council appears ready to
leave the height limit at 45 feet. Since doing so would require an amendment to the General Plan,
the Commission should discuss the issue again and determine whether you want to uphold your
earlier recommendation or to propose revised policy language.
Environmental Determination
The impacts of making the Land Use Element policies match the existing Zoning Regulations
have been addressed in previous actions on the Zoning Regulations. There will be no impacts
from clarifying policies concerning bakeries.
ALTERNATIVES
The Commission may recommend that the changes not be approved. The Commission may
recommend different language for the text. A policy which is not consistent with the rest of the
General Plan would require further amendments to maintain the General Plan's internal
consistency. A substantially different amendment may need environmental review before the
Commission acts. With regard to the height standard for the C-R zone surrounding the
downtown core area, make an alternative recommendation as deemed appropriate.
The Commission may continue action.
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Planning Commission Staff Report - Services and Manufacturing Uses Page6
RECOMMENDATION
1. Recommend that the City Council amend the General Plan Land Use Element text to allow
more types of offices in the Services and Manufacturing category(consistent with current Zoning
Regulations), and to clarify the status of small retail bakeries vs. food manufacturing.
2. If appropriate, reaffirm the Commission's previous determination regarding the current Land
Use Element height standard for buildings in General Retail areas next to the downtown core.
Attached
Proposed Land Use Element text amendment - offices, bakeries
Map of Services and Manufacturing areas
Map of downtown PCR2.CSZ