CITY OF SANTA ROSA PLANNING AND ECONOMIC DEVELOPMENT DEPARTMENT STAFF REPORT FOR PLANNING COMMISSION FEBRUARY 11, 2016 APPLICANT FILE NUMBER MJP13-002

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1 CITY OF SANTA ROSA PLANNING AND ECONOMIC DEVELOPMENT DEPARTMENT STAFF REPORT FOR PLANNING COMMISSION FEBRUARY 11, 2016 PROJECT TITLE Canyon Oaks ADDRESS/LOCATION 4611 Thomas Lake Harris Drive ASSESSOR S PARCEL NUMBER APPLICATION DATE April 18, 2013 REQUESTED ENTITLEMENTS Hillside Development Permit; Conditional Use Permit; Mitigated Negative Declaration PROJECT SITE ZONING Planned Development Fountaingrove Ranch PROJECT PLANNER Patrick Streeter APPLICANT Oakmont Senior Living, LLC PROPERTY OWNER Oakmont Senior Living FILE NUMBER MJP APPLICATION COMPLETION DATE July 6, 2015 FURTHER ACTIONS REQUIRED Design Review GENERAL PLAN DESIGNATION Low Density Residential (2.0 to 8.0 units per acre) RECOMMENDATION Approval Page 1 of 13

2 Agenda Item #11 For Planning Commission Meeting of: February 11, 2016 CITY OF SANTA ROSA PLANNING COMMISSION TO: FROM: SUBJECT: CHAIR CISCO AND MEMBERS OF THE PLANNING COMMISSION PATRICK STREETER, SENIOR PLANNER PLANNING AND ECONOMIC DEVELOPMENT CANYON OAKS APARTMENTS AGENDA ACTION: APPROVE CONDITIONAL USE PERMIT, HILLSIDE DEVELOPMENT PERMIT, ADOPT MITIGATED NEGATIVE DECLARATION RECOMMENDATION It is recommended by the Planning and Economic Development Department that the Planning Commission, by resolution, approve a Conditional Use Permit allowing multifamily residential development with a density of 9.8 units per acre, approve a Hillside Development Permit, and adopt a Mitigated Negative Declaration for the Canyon Oaks multi-family residential project. EXECUTIVE SUMMARY Oakmont Senior Living, LLC is proposing development of a 9.77-acre hillside site to include 96 multi-family residential units, recreational amenities, a leasing office, and associated site improvements. While the General Plan land use designation for the site envisions densities of two to eight units per acre, the applicant has proposed shifting 18 units from a constrained parcel to the south, as part of a density transfer allowable under the Fountaingrove Ranch policy statement, to accommodate a density of 9.8 units per acre on site. The policy statement identifies the project site as being part of a Housing Bonus Area overlay that allows a residential density of up to 15 dwelling unit per acre. The residential units will be clustered in five buildings along with accessory structures on the flatter portion of the site, with the more steeply graded portions of the site remaining undisturbed. Because of the clustered nature of the development, 72% of the existing trees on site will be protected and preserved. Staff has no outstanding issues with the project as conditioned and is recommending approval.

3 BACKGROUND 1. Project Description The project involves the development of a currently vacant 9.77-acre site into 96 rental units distributed into five buildings, with associated accessory structures and improvements. The project site is located along the western limit of the City s Urban Growth Boundary and is within the Fountaingrove Ranch planned development district. The project site has steep, tree covered slopes to the south and additional sloping areas along the north and northeastern portions. Pursuant to Santa Rosa s Hillside Development Ordinance, development will be concentrated onto the flatter, central portion of the site, leaving the more heavily sloped and vegetated areas of the property undisturbed. Just under threequarters of the existing trees on-site will be protected and preserved. The project site contains 351 trees, consisting mostly of Coast live oak, valley oak, and black oak. The project would retain approximately 254 trees, or 72 percent of existing trees. Approximately 47 percent of the site would remain as undisturbed open space. Together with the 13 percent of the site that would be landscaped, a total of 60 percent of the site would be natural or landscaped open area The five primary residential buildings will each be three stories tall and designed in a Cape Cod architectural style with gabled and hip roofs and horizontal and shingle siding. The single-story residential office and recreation structure is situated toward the center of the property and its amenity space features an outdoor pool, children s play area, and covered barbecue/entertaining area. Covered parking structures line the periphery of the developed portion of the project site. The 96 rental units will be comprised of approximately 20 one-bedroom, 64 twobedroom, and 12 three-bedroom apartments. 225 on-site parking spaces are proposed, including 96 garages, to accommodate parking demand generated by the residential use. On-site improvements include walking paths and vehicle circulation lanes and off-site improvements include channelizing islands and a left turn pocket lane along Thomas Lake Harris Drive. Primary vehicular access would be provided via a single driveway on Thomas Lake Harris Drive, along the southern boundary of the project site. Internal circulation would consist of 23- to 26-foot drive aisles, vertical curb and gutters, and pedestrian sidewalks. Additional emergency vehicular access would be provided by a driveway along the northeastern portion of the project site, entering east of the primary vehicular entrance along Thomas Lake Harris Drive. The project would include a stormwater collection system that would collect Page 3 of 13

4 overland flow entering the site and convey drainage out to Thomas Lake Harris Drive, consistent with the existing hydrologic pattern. On-site stormwater would be collected and treated via Best Management Practices pursuant to the City of Santa Rosa Low Impact Design Manual. Water and sewer services would be provided through existing infrastructure managed and maintained by the City. 2. Surrounding Land Uses North: South: East: West: Privately owned designated open space Attached and semi-detached single-family residential Detached single-family residential Winery and vineyards The project site is located in the Fountaingrove section of northeast Santa Rosa and borders the City s Urban Growth Boundary. Immediately north of the project site are several acres of permanent open space, managed and maintained by the Fountaingrove Ranch Master Association. Single-family detached residential uses on one-acre or larger lots can be found to the east of the project site, along Skyfarm Drive, and single-family attached and semi-detached residential units, part of the Oaks Unit 1 development, are located south of the project site across Thomas Lake Harris Drive. Also south of the project site, across Thomas Lake Harris Drive, is a private golf course as well as an undeveloped parcel, known as Emerald Isle, that is owned by the applicant. An active vineyard, winery, and event space, is located west of the project parcel and outside of the City s jurisdictional boundary. A private driveway that meanders through the property separates the vineyards from the project site along the eastern edge of the winery property. There is posted no parking on either side of Thomas Lake Harris Drive in the vicinity of the project site. Sidewalks and pedestrian paths run the length of the street and connect the project frontage to other developments and ultimately to Fountaingrove Parkway. 3. Existing Land Use Project Site The project parcel is irregularly shaped and generally slopes from north to south. The central portion of the site, where development is proposed, is bowl shaped, opening onto Thomas Lake Harris Drive to the southeast. The northern, southern, and northeastern portions of the site are characterized by steep, treecovered slopes. There are no watercourses on the property, but overland drainage crosses the slight via natural and manmade swales, eventually entering the City stormwater system beneath Thomas Lake Harris Drive. The site is currently vacant and covered primarily by annual grasses and scattered oak trees in the area proposed for development, with denser stands of Page 4 of 13

5 trees along the steeper portions of the property along the periphery. There are 351 trees on the site, most of them native oak varieties. 4. Project History On August 8, 2012, a pre-application neighborhood meeting was held to introduce neighbors to the project and gather feedback from the public. The proposal at the time included 164 residential units in four buildings, with underground parking. On April 18, 2013, applications were filed with the City for a Tentative Map, Conditional Use Permit, Hillside Development Permit, and Design Review to accommodate the 96-unit Canyon Oaks condominium project. On May 1, 2013, a Notice of Application was sent to neighbors of the project site in order to inform them of the applications under review and gather community feedback. On May 16, 2013, a Notification of Incomplete Application was sent to the applicant, which outlined topics that would need to be addressed in greater detail or with greater clarity in order for City staff to complete its review. On April 27, 2015, the applicant supplied a revised set of plans and additional application materials in response to the Notification of Incomplete Application. In addition to addressing staff s issues, the applicant withdrew the Tentative Map application at that time. The project would propose development of 96 rental units as opposed to condominiums. On April 27, 2015, during the resubmittal meeting, City staff consulted with the applicant regarding the provision of on-site affordable housing. Pursuant to Ordinance No. 3526, the applicant has opted to pay fees to the City in lieu of providing on-site affordable units. On July 6, 2015, the Canyon Oaks application was deemed complete by City Staff. On July 7, 2015, a Notice of Revised Application was sent to neighbors of the project site to inform them of changes to the project and gather community feedback. On January 7, 2016 an Initial Study was completed for the Canyon Oaks Apartments Project. The public review period for the Initial Study/Draft Mitigated Negative Declaration (IS/MND) began on January 11, 2016, and ended on February 10, Page 5 of 13

6 PRIOR CITY COUNCIL REVIEW On September 8, 1998, the Council passed Resolution No , which, among other things, found density transfers within the Fountaingrove Ranch Policy Statement to be consistent with the City s General Plan. ANALYSIS 1. General Plan The site is designated Low Density Residential (2.0 to 8.0 units per acre) on the General Plan Land Use Diagram. While the Low Density Residential designation typically relates to detached single-family homes, attached single-family and multi-family residential development is permitted. The project site is located within a Housing Bonus Area in the Fountaingrove Ranch Planned Community District Policy Statement, which allows densities up to 15.0 units per acre through density transfer. The City Council, via Resolution No , made the determination that these density transfers and the resultant increased densities on parcels within the Fountaingrove Ranch district are consistent with and further the goals of the General Plan. The following General Plan goals and policies are applicable to the Canyon Oaks project: LUL-F LUL-F-3 H-A-2 H-A-5 UD-E-2 UD-F-2 Maintain a diversity of neighborhoods and varied housing stock to satisfy a wide range of needs. Maintain a balance of various housing types in each neighborhood and ensure that new development does not result in undue concentration of a single housing type in any one neighborhood. Pursue the goal of meeting Santa Rosa s housing needs when compatible with existing neighborhoods. Development of existing and new higher-density sites must be designed in context with existing, surrounding neighborhoods. Improve community acceptance of higher-density housing through community-based outreach, recognition of existing livable neighborhoods, and assurance of well-designed high-density projects. Provide an open space network that is linked by pedestrian and bicycle paths, and that preserves and enhances Santa Rosa s significant visual and natural resources. Protect natural topographic features such as hillsides, ridgelines and mature trees and stands of trees. Minimize grading of natural contours in new development. Page 6 of 13

7 UD-H-1 UD-H-6 OSC-E OSC-E-2 Minimize the visual prominence of hillside development by taking advantage of existing site features for screening, such as tree clusters, depressions in topography, setback hillside plateau areas, and other natural features. Minimize vegetation removal in hillside areas, and preserve large trees that partially screen development or help blend new development into views. Conserve significant vegetation and trees. Preserve and regenerate native oak trees. The project implements many of the General Plan goals and policies in that it proposes a well-designed, multi-family use while respecting the unique topography and ecology of the space. The project adds a new housing type to this area of the City and by offering one-, two-, and three-bedroom rental units, the project creates options for varying levels of income and household size. All required parking will be offered on-site and the project ties in to the existing pedestrian network along Thomas Lake Harris Drive and Fountaingrove Parkway. The entirety of the development has been concentrated onto the portions of the project parcel with the lowest degree of slope and lowest density of vegetation. More than 72 percent of the existing trees on site will be protected and preserved. All of the trees that are removed will be replaced pursuant to Title 17 of the City Code. The project s landscaping, in addition to the preservation of oak trees throughout the project site, will soften views of the project parcel from Thomas Lake Harris Drive and surrounding properties as well as provide a level of privacy to future residents of the development. In order to minimize the impact on the views of surrounding properties, the tallest structures of the development have been sited on the areas of the parcel with the lowest elevation. The project is proposing 96 apartment units on a 9.77-acre site. The resultant density would be 9.8 units per acre, which is greater than the maximum density envisioned by the Low Density Residential General Plan designation (2 to 8 units per acre), but less than the 15 units per acre allowable through density transfer under the Fountaingrove Ranch Policy Statement. The City Council has already made the finding and determination that increased density through the procedures set forth in the Fountaingrove Ranch Policy Statement is consistent with and furthers the goals of the General Plan. The applicant will transfer density from the nearby Emerald Isle property, which is owned by the applicant, thereby maintaining an average density below 8 units per acre across the cluster residential section of the Fountaingrove Ranch planned development area. Page 7 of 13

8 2. Zoning North: South: East: West: Fountaingrove Ranch Planned Community Fountaingrove Ranch Planned Community Fountaingrove Ranch Planned Community Sonoma County Jurisdiction Since 1972, the area surrounding the project site has been zoned Planned Community (PC) based on a development plan and policy statement for what was then a 1,970-acre ranch property. The Fountaingrove Ranch Planned Community District (FRPCD) was amended in 1981 to apply to 1,250 acres of the 1,970 acres in the district, and subsequently amended in 1992 to rezone 105 acres from Campus Industrial to Cluster Residential land use. The Policy Statement identifies the project site for Cluster Residential land use (though the project site was not part of the 1992 amendment). The intent of this land use is to create and enhance areas for a range of residential uses. The site has an additional Housing Bonus Area overlay that allows a residential density of up to 15 dwelling unit per acre. In the Fountaingrove Ranch Planned Community District, development standards are determined by Use Permit. For sites exceeding 10 percent slope, a Hillside Development Permit is also required to ensure that projects are designed in accordance with the standards set forth in Section of the Zoning Code. Parking requirements are determined by the Section of the Zoning Code: Parking The Zoning Code requires that multifamily residential uses provide 1.0 covered space plus 0.5 visitor spaces per studio or one bedroom apartment and 1.0 covered space plus 1.5 visitor spaces per two or more bedroom unit. Since the project proposes 20 one-bedroom units and 76 two- and three- bedroom units, a total of 220 parking spaces are required. The proposed development includes 225 spaces, including 96 garages, and therefore satisfies the Zoning Code requirement. Because each unit will have access to a garage, no additional bicycle parking is required. The Landscape & Lighting Plan (Sheet L1) identifies an area near the recreation center where additional bike storage is provided. Development Standards Development standards are determined by Use Permit. The tallest structures on the site are the three story apartment buildings which reach a maximum height of 37.5 feet. The slope from the proposed elevation of the building pads to the north and east property lines includes a rise of at least 30 feet in most cases, resulting in development that is for the most part, set in to the hillside. All structures are set back at least 20 feet from property lines or the road. Because Page 8 of 13

9 development is limited to the flattest portions of the site, more than 60% of the project site will remain undisturbed natural open space or landscaped area. Hillside Development As is depicted in Attachment 4 Percent Slope Map, much of the project site, primarily along the northeast and southwest, exceeds 10% slope. The central portion of the site, where development is proposed, is bowl shaped, opening onto Thomas Lake Harris Drive to the southeast. Section of the City Code requires a Hillside Development Permit for any proposed development taking place on portions of a site with a slope of 10% or greater. The Planning Commission is the stated review authority for hillside projects other than single-family dwellings. In granting a Hillside Development Permit, the Planning Commission must find that the site plan minimizes alteration of topography and drainage on slopes of 10% or more, is graded to respect natural features, and avoids development that cuts into hillsides in a visually prominent way. Staff finds that in clustering development in the bowl shaped portion of the site, the project is able to achieve its desired density without substantially altering the hillside or disturbing native vegetation. The thoughtful landscaping proposed and the preservation of native oak trees will help to screen the project in views of the hillside. By breaking the development down into several buildings, the project is able to work a site plan into the existing site topography without the need for excessive grading or excavation. The project would include a stormwater collection system that collects overland flow entering the site and conveys drainage out to Thomas Lake Harris Drive, consistent with the existing hydrologic pattern. On-site stormwater would be collected and treated via Best Management Practices pursuant to the City of Santa Rosa Low Impact Design Manual. 3. Design Guidelines The following is a summary of the most appropriate City of Santa Rosa Design Goals and Guidelines which apply to the proposed project. Neighborhood Design 1.1 I D To promote neighborhoods that feature a variety of housing types (both single-family and multiple-family) as well as a variety of price ranges 1.1 II A 5 Incorporate a range of residential densities and price ranges within a neighborhood. While remaining consistent with General Plan density requirements, providing a range of housing opportunities supports affordable housing goals as well as creating more interesting neighborhoods. Page 9 of 13

10 Multi-Family Residential Design 3.2 II A 5 When existing public amenities such as parks or school playgrounds are in the immediate vicinity, provide pedestrian access to take advantage of these features. 3.2 II B 3 Integrate multiple-family projects with pedestrian and bicycle circulation systems that extend to neighborhood centers, along creek corridors, and to adjacent neighborhoods and shopping centers. 3.2 II E 1 Orient dwellings and windows of frequently used rooms (living and dining rooms) to overlook common open space and child play areas. 3.2 II F 1 Incorporate common open spaces into a site plan as a primary design feature. The open spaces should not be remnant spaces or space left over after the buildings are placed on the site. 3.2 II F 2 Provide common useable open space for all multiple-family projects with 10 or more units. 3.2 II F 5 Create a sense of enclosure for the common open space, for example with the dwellings that the space serves and/or with low walls or fences, and/or with landscaping such as hedges or trees. The common space should have a parking area bordering no more than one side of the space. A common space should be visible by as many of the dwellings it serves as possible. Residents are more likely to respect and protect a common space when the perception is that it belongs to them. 3.2 II G 1 Provide each unit with a minimum of 40 square feet of semi-private open space directly adjacent to the unit. It is not intended for the space to have a privacy (6 foot) wall. The intent is to provide a balcony on units above the ground level and a small patio area on the ground level. 3.2 II G 2 These semi-private spaces should feature an open rail, low wall, or hedge or other element that defines the space but permits the resident to have a presence on the street or open space. Building Design 3.2 III A 1 Break up the mass of larger structures with articulation of the form, use of color and the use of multiple materials, including: horizontal wood, cement fiber and composite siding, vertical wood siding, stucco, wood shingles, real and cultured masonry. Page 10 of 13

11 3.2 III A 4 Avoid dressing up fronts of building with higher quality materials and switching to less expensive siding material on the sides and back. Design all four sides of buildings. 3.2 III C 1 Incorporate features such as balconies, cantilevers, dormers, bay windows, patios, entries, accent materials, etc. to provide articulation and interest. 3.2 III C 2 Avoid buildings with a massive appearance. Divide buildings into segments that break down the scale. 3.2 III E 2 Locate garages or carports so as to minimize their impact from the public street. The main buildings should be the dominant visual statement along the public streetscape. Hillside Considerations B C E.1 Avoid grading to create benched or terraced hillside sites. Grading on sloping terrain for the purpose of accommodating houses designed for flat land conditions will not be a basis for an acceptable hillside site plan. Place buildings to take advantage of existing vegetation in the foreground and in the background. Utilize landscaping to screen structures from the downhill direction. This is particularly important when tall pony walls occur on the downhill side. The project, as designed, is consistent with the City s Design Guidelines for multi-family residential projects in hillside areas. Instead of one large structure, the units and amenities are divided into several smaller buildings to reduce massing and soften the perceived bulk of the development. Preservation of natural features is given priority in the site design while providing an attractive and logical built landscape for residents. In addition to a Hillside Development Permit decided upon by the Planning Commission, the project will be subject to a public hearing before the Design Review Board for Preliminary Design Review approval. 4. Neighborhood Comments The Planning and Economic Development Department has received a substantial volume of comments related to the proposed project. The majority of neighborhood comments have been in opposition to the project and cite issues related to increased traffic, the aesthetic impact of three story buildings, inconsistency between the General Plan designation and the proposed density of the project, multi-family use being out of character with the surrounding Page 11 of 13

12 neighborhood, and accountability for site maintenance and tenant activity associated with rental units. Most of these issues are addressed in the project s environmental review document or elsewhere in this staff report. Staff finds that the project is consistent with the City s policies and regulations and is unlikely to result in significant adverse impacts. Over the course of development review, City staff and the applicant have held several meetings with representatives of the Paradise Ridge Winery, adjacent to the site. Representatives of the winery had concerns about moving new residents next to an active agricultural area and event space as well as impacts to views from the winery resulting from the new development. Staff made sure to include discussion of the relationship between the winery and new residents in the environmental review, which resulted in additional mitigation measures. After meeting about Paradise Ridge s concerns, the applicant has agreed to revise the site plan and set Building 3 further from the property line (See Revised Site Plan ). The relocation of Building 3 softens the views from the winery property, creates a greater buffer between the two land uses, and creates four additional on-site parking spaces. 5. Public Improvements/On-Site Improvements In addition to on-site circulation and parking, Fire Department designated fire lanes will be included through the property. A new Emergency Vehicle Access (EVA) will be installed toward the eastern end of the project s Thomas Lake Harris Drive frontage. New striping and a channelized island with left turn pocket lane will be installed along Thomas Lake Harris Drive to provide safer ingress and egress and to provide a measure of traffic calming. FISCAL IMPACT Should the proposed development proceed, tax-generating revenue would increase from the project site as the use would be elevated from its current vacant status to a 96- unit apartment complex. ENVIRONMENTAL IMPACT An Initial Study was prepared in compliance with the California Environmental Quality Act (CEQA) on January 7, A Notice of Intent to adopt a Mitigated Negative Declaration was posted with the California State Clearinghouse and Sonoma County Clerk s Office initiating a thirty day public comment period beginning January 11, 2016 and ending February 10, At the time of this writing, no comments have been received regarding the Initial Study/Mitigated Negative Declaration. Page 12 of 13

13 BOARD/COMMISSION/COMMITTEE REVIEW AND RECOMMENDATIONS As a multi-family residential development, the project is subject to Design Review at a public hearing before the Design Review Board prior to building permits being issued. NOTIFICATION The project was noticed as a Public Hearing per the requirements of Chapter of the City Code. Notification of this public hearing was provided by posting an on-site sign, publishing notice in a newspaper of general circulation, mailed notice to surrounding property owners, electronic notice to parties that had expressed interest in projects taking place in this geographic area of Santa Rosa, and bulletin board postings at City Hall and on the City website ISSUES City staff has no unresolved issues with the project at this time. Over the course of review, the primary issues were related to the project s interaction with its neighbors, potential environmental impacts and appropriate mitigation, and precedence for density transfers in the Fountaingrove Ranch Planned Development. ATTACHMENTS Attachments: Attachment 1 - Disclosure Form Attachment 2 - Location Map Attachment 3 - Percent Slope Map Attachment 4 - Project Plan Set (Includes Neighborhood Context Map, Site Plans, Landscape Plans, Elevations) Attachment 5 - Revised Site Plan Attachment 6 - Initial Study/Mitigated Negative Declaration Attachment 7 - City Council Resolution No Attachment 8 - Public Correspondence 2013 Attachment 9 - Public Correspondence to Attachment 10 - Public Correspondence to Draft Resolution - Mitigated Negative Declaration Draft Resolution - Conditional Use Permit Draft Resolution - Hillside Development Permit CONTACT Patrick Streeter, Senior Planner Planning and Economic Development 100 Santa Rosa Avenue, Room 3 (707) PStreeter@SRCity.org Page 13 of 13