CITY OF SANTA ROSA PLANNING AND ECONOMIC DEVELOPMENT DEPARTMENT STAFF REPORT FOR PLANNING COMMISSION JUNE 23, 2016 APPLICANT. Joseph Rubin MJP15-005

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1 Item No. 9 CITY OF SANTA ROSA PLANNING AND ECONOMIC DEVELOPMENT DEPARTMENT STAFF REPORT FOR PLANNING COMMISSION JUNE 23, 2016 PROJECT TITLE ADDRESS/LOCATION 3785 Cleveland Avenue ASSESSOR S PARCEL NUMBER APPLICATION DATE March 9, 2015 REQUESTED ENTITLEMENTS Conditional Use Permit PROJECT SITE ZONING CG (General Commercial) PROJECT PLANNER Patrick Streeter APPLICANT Steven Sharpe, Sharpe Associates PROPERTY OWNER Joseph Rubin FILE NUMBER MJP APPLICATION COMPLETION DATE February 16, 2016 FURTHER ACTIONS REQUIRED Design Review GENERAL PLAN DESIGNATION Retail and Business Services RECOMMENDATION Approval Page 1 of 9

2 PAGE 2 OF 9 Agenda Item #9 For Planning Commission Meeting of: June 23, 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 EL POLLO LOCO DRIVE-THROUGH AGENDA ACTION: ADOPT RESOLUTION RECOMMENDATION It is recommended by the Planning and Economic Development Department that the Planning Commission, by resolution, approve a Conditional Use Permit for a drivethrough facility at the proposed El Pollo Loco restaurant at 3785 Cleveland Avenue. EXECUTIVE SUMMARY A commercial development is proposed for 3765 Cleveland Avenue to include a 2,973 square-foot El Pollo Loco restaurant with a drive-through as well as a 2,000 square-foot retail space in a separate structure. The restaurant and retail space are permitted by right, but a Conditional Use Permit is required for the drive-through use. Because the applicant has worked closely with City staff to refine the project design and has demonstrated consistency with the City s standards for drive-through commercial uses, staff is recommending approval. BACKGROUND 1. Project Description The proposed project is located at 3785 Cleveland Avenue at the eastern terminus of Hopper Avenue and near the US Highway 101 southbound ramp. The project site occupies the northeastern corner of a large commercial block with shared ingress/egress drives connecting to Hopper Avenue to the north and Cleveland Avenue to the east. The project site will retain and take access from these private drives. The project includes demolition of a restaurant building that was constructed in 1978 and has been vacant since The site will be improved with two new buildings along the Cleveland Avenue frontage and Page 2 of 9

3 PAGE 3 OF 9 parking and utility structures to the interior of the block. The larger building proposed will be a 2,973 square-foot El Pollo Loco restaurant with a drive-through window and drive aisle. The restaurant will include patio areas for outdoor dining as well as landscaping and structural elements to screen the drive-through aisle from the public way. The restaurant proposes a staff of 45 employees, with eleven employees on site each shift. Proposed hours of operation for both the restaurant and the drive-through are 10:00 a.m. to 10:00 p.m., seven days per week. The proposed project would also include a separate building with approximately 2,000 square-feet of retail space. No proposed tenants or operating details have been disclosed for this retail structure at this time. Shared off-street, orchard style parking is provided for both buildings and includes a total of 51 parking stalls, four of which will be accessible to Americans with Disabilities Act (ADA) standards. ADA-compliant on-site pedestrian circulation is designed into the site plan. 2. Surrounding Land Uses North: South: East: West: Cleveland Avenue, highway right-of-way beyond Take-out restaurant, large retailer beyond Cleveland Avenue, highway right-of-way beyond Hotel, café with drive-through, hotel beyond The project site is located in the northeast portion of a large commercial block bounded by Hopper Avenue to the north, Cleveland Avenue to the east, Industrial Drive to the South, and Airway Drive to the west. The surrounding area is characterized by large surface parking lots and retail commercial storefronts and hotels. In addition to a hotel and take-out restaurant, a café (currently operating as a Starbucks) with drive-through sales is directly adjacent to the subject property. The project site is within close proximity to the US 101 South ramp and is separated from any parcels to the north and east by the highway corridor. There are no residential uses, churches, or schools within close proximity to the site. 3. Existing Land Use Project Site The 1.25-acre project site is currently developed with a parking lot and vacant building. The existing structure was constructed in 1978 as a restaurant and had retained that use intermittently until most recently vacated in The parcel shares access drives with adjacent parcels, connecting to Cleveland Avenue on the north and the east. The northeast portion of the parcel, surrounding the restaurant structure is landscaped with a grass lawn. There are 28 on-site trees, Page 3 of 9

4 PAGE 4 OF 9 located primarily along Cleveland Avenue and on vegetated islands within the parking areas. 4. Project History On August 21, 2014, the project went before the Santa Rosa Design Review Board (DRB) for Concept Design Review. On March 5, 2015, applications were submitted for a Conditional Use Permit for drive-through service and for Design Review for the proposed commercial development. On March 12, 2015, a Notice of Application was sent to nearby property owners in order to introduce the project and gather feedback. On April 2, 2015, an issues letter was sent to the applicant with a request for additional information to assist the City in its review. On July 7, 2015, revised plans were submitted to the City. This was followed by several meetings between City staff and the applicant team to discuss dedications and roadway improvements. On February 16, 2016, a revised set of plans, reflecting discussions between City staff and the applicant team, were submitted. PRIOR CITY COUNCIL REVIEW Not applicable to this project. ANALYSIS 1. General Plan The General Plan land use designation for the site is Retail & Business Services. This land use designation envisions retail and service enterprises, offices, and restaurants. The following General Plan goals and policies are applicable to the project: LUL-I-1 LUL-J-1 Provide a range of commercial services that are easily accessible and attractive, that satisfies the needs of people who live and work in Santa Rosa and that also attracts a regional clientele. Maintain an adequate supply of employment centers in a variety of locations and settings to ensure the city s continued economic vitality. Page 4 of 9

5 PAGE 5 OF 9 UD-D-4 UD-F-4 T-K-3 EV-B EV-C Provide continuous sidewalks and bicycle lanes on both sides of major regional/arterial streets. Provide visual interest in building, site, and landscape design that avoids the sense of a monotonous tract development. Orient building plans to allow for easy pedestrian access from street sidewalks, transit stops, and other pedestrian facilities, in addition to access from parking lots. Facilitate the retention and expansion of existing businesses and provide sufficient land for business expansion and attraction of new employers that utilize the area s existing labor pool. Promote new retail and higher density uses along the City s regional and arterial corridors. As identified above, several General Plan policies call for neighborhood serving commercial uses that satisfy the needs of people who live and work in Santa Rosa, as well as attract a regional clientele. Being located in a major commercial district with easy access to US Highway 101, the proposed restaurant drive-through will serve local employees and residents as well as visitors from elsewhere in the region. The building design on-site as well as the landscape plan creates visual interest and minimizes spillover impacts from light pollution, noise, or traffic. In addition to the two access driveways, the site plan has pedestrian paths of travel throughout the site and connecting to the public way. Further, the proposed drive-though is a component of a business that will create new jobs and reactivate a long-vacant parcel. 2. Bicycle and Pedestrian Master Plan The Santa Rosa Bicycle and Pedestrian Master Plan (BPMP) envisions a Class II bike lane along Cleveland Avenue and providing a connection between Hopper Avenue and Piner Road. The project proposes to install a bike lane along the project frontage, which at this time would tie in to the existing Class III bike route on Hopper Avenue. 3. Zoning North: South: East: Highway Right-of-way CG (General Commercial) Highway Right-of-way Page 5 of 9

6 PAGE 6 OF 9 West: CG (General Commercial) The proposed project is located in the northeast corner of a CG (General Commercial) zoning district. This type of district supports a broad range of retail and service uses serving businesses and residents throughout the City and region. Drive-through Retail and Service Facilities Santa Rosa Zoning Code (Code) section discusses the standards for drive-through retail and service facilities. In addition to setting dimensional standards, site planning requirements, and wayfinding requirements, the Code states that the driveway be appropriately screened to prevent headlight glare from impacting adjacent streets and parking facilities. The adequacy of queuing capacity and location of transaction facilities is left to the discretion of the review authority. The proposed drive-through facility is located along the north and east sides of the restaurant building and set back from the sidewalk and street by 15 to 22 feet. The drive-through aisle is set behind a 5-foot wide planter and 5-foot tall retaining wall at the pick-up window with a screening wall and screening shrubs along the rest of the length. Trellising, integrated into building design, creates an arbor over the drive-through lane adjacent to the restaurant building. Landscaping and berming along the street frontage provide additional screening. The drive-through is situated so as not to interfere with the on-site circulation pattern and to allow adequate automobile stacking. Parking Per Table 3-4 of the Zoning Code, the project requires one space for every 250 square-feet of retail floor area and one space per every 75 square-feet of counter-ordering restaurant floor area. By these parking standards, the project requires a total of 48 parking spaces. The project is proposing to install 51 onsite spaces. No on-street parking is proposed with this project. 4. 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.C To encourage neighborhood design that supports pedestrians, bicyclists, and use of public transit as well as automobile use. Page 6 of 9

7 PAGE 7 OF 9 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. 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 2 Avoid buildings with a massive appearance. Divide buildings into segments that break down the scale. Landscaping: 4.1.II II II.8 Integrate landscaping into all site development. Provide special attention to incorporation of trees in all landscape design. Utilize planting areas to break up large expanses of paving, to visually separate masses of parked cars, and to provide a shady canopy. These planting areas within paved areas should be a minimum of 5 wide. Infill Development 4.3 I A To provide for continuity of design between existing and new development. 4.3 I B To ensure that projects are designed in such a way as to reduce to a minimum possible negative consequences, such as: loss of privacy, noise, increased traffic and lighting overspill that infill development may have on existing neighbors. 4.3 II 1 Integrate new development carefully into existing neighborhoods with respect to scale, level of detailing, use of materials, landscaping, and other characteristics of the neighborhood. As described in the Design Concept Narrative, attached to this report, the project makes use of high quality materials and architectural features on the buildings. Based partly on direction given during Concept Design Review, the project has been designed with a special emphasis on outdoor enjoyment through the use of patios, trellising, landscaping, and pedestrian circulation. Because of the special consideration given to the building design, landscaping, and control of spillover impacts, as well as the new pedestrian and bicycle network connections being proposed, staff finds the project consistent with the City s Design Guidelines. Page 7 of 9

8 PAGE 8 OF 9 5. Neighborhood Comments At the time of this writing, no public comments have been received relating to the proposed drive-through use. 6. Public Improvements/On-Site Improvements The curb along the project frontage will be redesigned to allow installation of a southbound bike lane. On-site stormwater capture and treatment best management practices will be included in the project during and post construction pursuant to the Russian River Watershed s current National Pollution Discharge Elimination System (NPDES) permit. FISCAL IMPACT While approval or denial of the proposed drive-through use will not have a direct fiscal impact on the General Fund, the proposed project will create close to 5,000 square-feet of new commercial floor area and employment opportunities on a currently vacant, underdeveloped site. ENVIRONMENTAL IMPACT The proposed project is statutorily exempt from the provisions of the California Environmental Quality Act (CEQA) under CEQA Guidelines Section 15183, in that the project is consistent with existing zoning and the Santa Rosa General Plan 2035, for which an environmental impact report was certified and there no project-specific impacts which are peculiar to the project or its site. Additionally, the project qualifies for a Class 3 exemption, under CEQA Guidelines Section 15303, as it involves construction of a new restaurant and retail center, with fewer than four buildings and under 10,000 square-feet, in an urbanized area zoned for such uses, where all necessary public services and facilities are available and the surrounding area is not environmentally sensitive, and the use will not entail the use of significant amounts of hazardous materials. Additionally, the project qualifies fora Class 32 exemption, per Section 15332, as it involves an infill development on a site of less than five acres, within City limits, substantially surrounded by urban uses, with no value as habitat for endangered, rare or threatened species, adequately served by necessary utilities and public services, and the project has no foreseeable significant adverse impacts. BOARD/COMMISSION/COMMITTEE REVIEW AND RECOMMENDATIONS The project went before the Design Review Board as a concept item on August 21, At this meeting, the DRB discussed berms and landscaping, parking lot and pedestrian safety, traffic impacts, color variety, trellises and grills, and the architectural Page 8 of 9

9 PAGE 9 OF 9 relationship between buildings. 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 Staff has no issues with the project as conditioned at this time. During review of the project, a traffic impact analysis was requested in order to ensure that no negative impacts to area traffic would result from approval of the project. Additionally, numerous meetings were held between the applicant team and City staff regarding public improvements to Cleveland Avenue and installation of a bicycle lane. ATTACHMENTS Attachments: Attachment 1 - Attachment 2 - Attachment 3 - Attachment 4 - Attachment 5 - Disclosure Form Location Map General Plan Map Zoning Map Development Plan Set (Includes Neighborhood Context Map, Site Plans, Landscape Plans, Elevations) dated received February 16, 2016 Attachment 6 - Design Review Board Minutes, August 21, 2014 Attachment 7 - Project Description, dated March 5, 2015 Attachment 8 - Design Concept Narrative, dated March 5, 2015 Attachment 9 - Traffic Impact Study, dated June 24, 2015 CONTACT Patrick Streeter, Senior Planner Planning and Economic Development 100 Santa Rosa Avenue, Room 3 (707) PStreeter@SRCity.org Page 9 of 9