DATE: February 13, 2018 AGENDA ITEM NO. 8B

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1 DATE: February 13, 2018 AGENDA ITEM NO. 8B TO: FROM: REVIEWED BY: SUBJECT: Planning Commission Aaron Hollister, Senior Planner Heather Hines, Planning Manager FREE RANGE MINIATURE GOLF Site Plan and Architectural Review & Conditional Use Permit 5101 Montero Way (APN ) File# PLMA RECOMMENDATION It is recommended that the Planning Commission: 1. Adopt a resolution (Attachment A) approving a Conditional Use Permit to operate Commercial recreation - Indoor and Commercial recreation Outdoor uses within the Commercial 2 (C-2) zoning district; and 2. Adopt a resolution (Attachment B) approving Site Plan and Architectural Review for exterior site improvements including landscaping and the installation of an exterior 18- hole miniature golf course. No exterior modifications or expansions to the existing commercial building are proposed. BACKGROUND Context The 1.28-acre project site is located at the northeast corner of US Highway 101 and Redwood Highway 1 (Figure 1 below). The relatively flat site includes a one-story plus mezzanine commercial building, a surface parking lot, and minimal landscaping. The project site most recently contained a car vehicle dealership (the former Showcase of Cars ), but has been vacant for a number of years. The project site and surrounding area is commercial in nature. Surrounding commercial businesses include hotels to the north (Quality Inn) and west (America s Best Value Inn and Suites) and the Parkwest Casino located immediately to the west of the project site. Automotive 1 For discussion purposes, the project site is presumed to be oriented north/south with Redwood Highway to the south and U.S. Hwy 101 to the west Page 1

2 uses such as a gas station and a vehicle maintenance business can be found to the north of the project site, as well as business parks and restaurants. CalTrans right-of-way, including the US Highway 101 on-ramp from Old Redwood Highway to US Highway 101 North, occupies the southern and eastern property frontages. Parkwest Casino Quality Inn Project Site Page 2 Figure 1: Project Location and Surrounding Vicinity Access to the project site is provided from Montero Way via the project site s approximate 375- foot drive aisle. Parking is currently provided via a surface parking lot, which covers most of the project site. There is an existing reciprocal parking agreement between the project site and the Quality Inn property located immediately to the north. The parking agreement allows for shared parking of 13 spaces on the Quality Inn site for benefit of tenants on the project site. General Plan The project site is located within the General Plan s North McDowell Boulevard Subarea. This subarea lies between Highway 101, the Plaza and Plaza North Shopping centers, North McDowell Boulevard, the railroad tracks, and Petaluma s Urban Growth Boundary at the northeast corner of the community. It provides two gateways into Petaluma through Old Redwood Highway and Highway 101. Commercial and industrial uses dominate the North McDowell Boulevard subarea. Highway-oriented commercial uses such as hotels, restaurants, retail stores and auto service stations are located adjacent to the Highway 101/Old Redwood Highway interchange. Business park complexes, featuring office and light industrial uses, are clustered along Old Redwood Highway and McDowell Boulevard. General Plan Goal 2-G-14 states, for the North McDowell subarea, Recognize the complex demands upon the Boulevard and enhance the function and aesthetic value it could provide to the community.

3 Figure 2: General Plan Land Use Map Designations Figure 3: Zoning Map Designations The project site has a General Plan land use designation of Community Commercial (CC) with the Floodplain Overlay, as shown in Figure 2 above. The CC designation accommodates shopping centers and commercial districts, including regionally-oriented centers. The Floodplain Page 3

4 represents lands subject to periodic inundation in a 100-year storm event, as defined by the FEMA Flood Insurance Rate Maps. The Floodplain delineation is intended as an overlay for informational purposes and to distinguish properties subject to regulations outlined in the Development Code. Zoning Map The project site has a zoning designation of Commercial 2 (C2) with a Floodplain Overlay (FP), as shown on the Zoning Map in Figure 3 above. The C2 zone is applied to existing community and regional shopping center sites. The FP overlay requires all new principal, conditional, or accessory uses to obtain a development permit prior to commencement of the use, in part, to assure proper floodproofing. PROJECT DESCRIPTION The following provides staff summary of the proposed project s physical and operational aspects. The applicant s project narrative is included at Attachment C. Site Plan The project proposes to establish Indoor and Outdoor Commercial Recreation Uses including an 18-hole outdoor mini golf course and the conversion of the existing 4,800 square-foot, on-site building to an indoor nine-hole mini golf course, arcade, office and snack bar. Parking would be provided on-site with 35 spaces, while landscaping improvements are proposed throughout the project site. No physical expansion or exterior alterations to the existing building are proposed. The outdoor mini-golf course will be located on the south and west sides of the existing building, bicycle parking and biorientation areas will be located on the east side of the building, and the repaved, re-stripped vehicular parking and circulation areas on the north side of the site. New landscaping would be provided throughout the site (Figure 4 below). Reference Sheets 1-5 and of the project plans (Attachment D) for site plan details. Interior Tenant Improvements Interior tenant improvements will occur throughout the 4,800 square-foot commercial building. A nine-hole miniature golf course, arcade, an administrative office, a party room, and a snack/ice cream bar with limited seating are proposed within the first floor of the building. The mezzanine level will be utilized for storage and back-of-house functions. Reference Sheets 6, 7, 10, and 11 in Attachment D for more details. Operational Characteristics The project is proposed in two stages. The first stage would establish use of the interior of the building, while the second phase would establish the outdoor 18-hole miniature golf course. The business would operate daily from 10 a.m. to 10 p.m. No commercial cooking facilities or food preparation are proposed for the snack/ice cream bar component, and the business owners are not Page 4

5 proposing to obtain an alcohol license at this time. No special events beyond typical events such as birthday parties are proposed as part of the uses. A maximum of five employees are anticipated on any one shift. Figure 4: Proposed Site Plan As part of the outdoor miniature golf course, an outdoor speaker system is proposed. The exact specifications of the outdoor speaker system are not yet known as the second phase of the project is not anticipated to be immediately pursued. At the end of this report, staff s recommended conditions of approval for the Conditional Use Permit are provided, including compliance with noise standards of the Implementing Zoning Ordinance (IZO) Chapter 21. If approved, the operational parameters stipulated therein, would govern activities associated with the recreation uses. Access & Circulation The project site is accessed via a 375-foot-long access driveway that connects to Montero Way Page 5

6 to the north. The project site may also be accessed via shared parking drive lanes with the Quality Inn to the north. The Fire Department will require the two-way access driveway to be a fire lane with painted red curbs and no parking. The existing parking lot will be reconfigured so that it is located on the northerly half of the site. Existing paving will be rehabilitated, sealed, and restriped to provide 35 off-street automobile parking spaces. Bicycle parking lockers with a total of four bicycle parking spaces will be provided near the northeast corner of the commercial structure. Reference Sheet 15 in Attachment D for proposed and existing circulation facilities. Landscaping and Fencing There is minimal landscaping on the site, including shared parking lot landscaping islands with the Quality Inn and seven trees. New landscaping is proposed throughout, including at the site perimeter, parking areas, and along areas of internal pedestrian circulation. The proposed landscape plan retains all existing trees in parking lot landscaping islands, in the proposed perimeter landscaping area, and in the outdoor mini-golf area (see Figure 4 above). A variety of low to moderate water usage species of flowering trees, ground cover, shrubs, and vines would be utilized in the landscaping areas throughout the project site. New tree species would include crape myrtles and western redbud. Ground cover would include carmel creeper and bearberry, while the shrubs would include orchid rockrose, dish daisy, and Indian hawthorn. All landscaping would be irrigated with a low water use drip irrigation system, and the project s landscaping will be designed to meet the requirements of the City s Water Conservation Regulations Ordinance and the State s Updated Model Water Efficient Landscape Ordinance. The playing surface areas of the outdoor mini golf course would be a synthetic turf, while the ground areas surrounding the playing surfaces would be decomposed granite. Three of the existing trees found on site would be retained in the outdoor mini golf course area. A water fountain utilizing recycled water is proposed in the outdoor mini golf area, as well as other art work that will be Petaluma-centric in design. An existing six-foot-tall chain link fence is located on three of the project site s property lines including the two property frontages adjacent to the CalTrans right-of-way and the shared property line with the Parkwest Casino to the north. The chain link fence would be retained, but would be improved with flowering vines including red bougainvillea, yellow bougainvillea, and lilac vine on the entirety of its perimeter. See plan pages 3, 4, 5, 12, 13, and 14 in Attachment D for landscaping and fencing details. Lighting The existing parking lot light poles will be retained for the project and will be re-located on the project site. No other lighting, including building-mounted lighting, is proposed. The lighting provided in the project will need to comply with IZO D pertaining to maximum illumination levels. Recommended condition of approval #9 (at Attachment B) would ensure compliance with this section. Page 6

7 STAFF ANALYSIS IZO Table 4.4 requires a Conditional Use Permit (CUP) for both Commercial recreation Indoor and Commercial recreation Outdoor uses within the C2 zone. The proposed project consists of a request to operate an outdoor 18-hole miniature golf course and an indoor nine-hole miniature golf course and arcade, and therefore, requires a CUP to operate. The project s exterior changes to the site requires Site Plan and Architectural Review (SPAR) approval. Standards of Review Taken together, the project is subject to the following standards of review: City of Petaluma General Plan 2025 Implementing Zoning Ordinance o IZO (Conditional Use Permits) o IZO (Site Plan and Architectural Review) The proceeding discussion addresses each standard in sequence with staff analysis provided in italic text. General Plan The following General Plan policies, both specific to the subarea and citywide, apply to the proposed project. Staff s consistency analysis is provided in italics after each policy. Chapter 1: Policy 1-P-10 Land Use, Growth Management, and the Built Environment Develop and maintain North McDowell Boulevard at Old Redwood Highway as a neighborhood center. The proposed project will activate a currently underutilized site that has been vacant for a number of years. Not only will the project serve residents and workers in the neighborhood, the project is expected to serve as a recreational opportunity for citizens of Petaluma and the greater Petaluma area and further enhance the vitality of the neighborhood center found at North McDowell Boulevard and Old Redwood Highway. Policy 1-P-14 Require provision of street trees, landscaping, parking, and access features to help integrate land uses and achieve an effective transition between uses of disparate intensities. The project features new landscaping, including flowering tree plantings, shrubs, and fence-climbing vines along the property frontages adjacent to the CalTrans frontages that contain a freeway on-ramp. Parking lot landscaping and site perimeter landscaping features will provide a visual buffer between the immediately adjacent commercial uses, a casino and a hotel. These features Page 7

8 along with proposed parking and circulation improvements will promote a safe and effective transition between land uses. Chapter 2: Policy 2-P-5 Community Design, Character, and Green Building Strengthen the visual and aesthetic character of major arterial corridors. Although the project site is minimally visible from U.S. Highway 101 travel lanes, the currently underutilized and underdeveloped site is readily visible from the heavily-trafficked Old Redwood Highway frontage. The proposed upgraded and enhanced landscaping and overall site improvements will strengthen the visual and aesthetic character of the project site as it visible from Old Redwood Highway and will provide for a better lasting visual impression of Petaluma as vehicles enter the northbound freeway. Chapter 9: Policy 9-P-1 Economic Health & Sustainability Retain and attract basic economic activities that bring dollars into the local economy by exporting products and services. Petaluma does not currently have a similar recreational experience as has been proposed with this project. Citizens and workers of Petaluma would not have to leave the city in order enjoy similar recreational activities in other nearby towns and cities that proposed uses would afford. Furthermore, the use is expected to provide employment opportunities for potentially underemployed citizens or citizens potentially looking for a first employment opportunity. Policy 9-P-8 Pursue economic development that is consistent with and supportive of Petaluma s quality of life. The proposed recreational uses, which do not currently exist in Petaluma, will allow for active recreational opportunities that would be supportive of Petaluma s quality of life. The proposed recreation uses are appropriate for and would be able to be accessed by citizens of all ages. Implementing Zoning Ordinance The project includes the change of use of the existing commercial building on the site, as well as associated site improvements. The proposed uses would be sited within the parcel zoned C2, therefore Table 1 below compares the project to C2 Zone development standards. The existing commercial structure will not be expanded in area or horizontal or vertical dimensions. No primary structure setbacks are required for the project site as there are not abutting residential zoning district. The project site and the surrounding areas are in the Flood Plain Overlay (Chapter 6 in the IZO), which is intended, in part, to minimize property damage from flood waters and safeguard public health, safety, and general welfare, as well as minimize business interruptions. Substantial improvements to commercial structures in the overlay requires elevation of the lowest floor by Page 8

9 12 inches or more above the base flood elevation or depth number specified on the Flood Insurance Rate Map. TABLE 1 COMPLIANCE WITH C2 ZONE DEVELOPMENT STANDARDS Site Coverage STANDARD ALLOWED/REQUIRED PROPOSED Floor Area Ratio 1.2 (max) no change Primary Structure Height Limit 40 feet (max) 24 feet no change Parking Automobile 1 12 spaces 35 spaces Bicycle 2 1 space 4 spaces Site Coverage N/A N/A 1. At a rate of 1 parking space per 400 square feet of indoor use area 2. At a rate of 10% of the automobile spaces required. Alternatively, the following measures can be implemented instead of elevating the building as previously outlined. The building can be floodproofed so that the structure is watertight with walls substantially impermeable to the passage of water below the base flood level and have structural components capable of resisting hydrostatic and hydrodynamic loads and effects of buoyancy. These measures must be certified by a registered professional engineer or architect. Recommended condition of approval #4 (at Attachment A) stipulates compliance with Chapter 6 of the IZO, including the aforementioned items. IZO (Conditional Use Permit) The project is subject to the provisions of IZO including the standards in Section G. As reflected in the draft approval resolution at Attachment A, all required findings can be made to approve the requested Conditional Use Permit, subject to the following conditions: 1. This Conditional Use Permit authorizes Commercial recreation Indoor and Commercial recreation Outdoor uses including the following operational characteristics: a. Standard hours of operation are daily between the hours of 10:00 AM to 10:00 PM; b. Any outdoor amplified speaker system must be consistent with the performance standards for noise of IZO Chapter 21; and, c. Any proposed outdoor lighting must be consistent with the performance standards for glare of IZO Chapter 21. Page 9

10 2. This approval authorizes the following construction and use commencement phasing. Phase I shall include the establishment of the Commercial recreation Indoor use including all interior improvements to the existing commercial building and site improvements including all site landscaping and site improvements. Phase II shall include the establishment of the Commercial recreation Outdoor use which includes the installation of the outdoor miniature golf course. 3. If the phasing referenced at Condition 2 is retained, a temporary landscaping plan shall be submitted, approved and executed in the field to the satisfaction of the Planning Manager, prior to commencement of Phase 1. Said landscape plan shall address the area occupied by the outdoor 18-hole mini golf course. The temporary landscaping installation may include any combination of grass, seating, potted plants, and art pieces. No parking, loading, or outdoor storage may be allowed in this area and new permanent tree plantings may not be allowed in this area. 4. Prior to issuance of any grading or building permit for the project, compliance with IZO Chapter 6 (Floodway and Flood Plain Districts) must be demonstrated to the satisfaction of the Floodplain Administrator. IZO (Site Plan and Architectural Review) The project is also subject to the provisions of IZO (Site Plan and Architectural Review), including the standards in Section G, which govern the scope of Planning Commission review. Staff analysis is included in italics below. 1. The appropriate use of quality materials and harmony and proportion of the overall design. There are no exterior alterations or additions to the existing commercial structure that will be utilized for the proposed uses. Therefore, this finding is not applicable. 2. The architectural style should be appropriate for the project in question, and compatible with the overall character of the neighborhood. There are no exterior alterations or additions to the existing commercial structure that will be utilized for the proposed uses. The existing commercial structure that will be re-purposed for the proposed uses is compatible with the overall character of the neighborhood, which is commercial in nature. This finding is not applicable. 3. The siting of the structure on the property as compared to the siting of other structures in the immediate neighborhood. There are no exterior alterations or additions to the existing commercial structure that will be utilized for the proposed uses. Therefore, this finding is not applicable. As currently situated, the existing commercial building is sited in a fashion that is consistent with the other structures in the neighborhood that are all commercial in nature. 4. The size, location, design, color, number, lighting, and materials of all signs and outdoor advertising structures. Page 10

11 Specific sign design is not approved through the SPAR process, but rather, during Building (Sign) Permit. The size, location, design, color, number, lighting, and materials of such a sign will be reviewed through the Sign Permit and in conformance with IZO Chapter 20 (Signs and Sign Structures). 5. The bulk, height, and color of the proposed structures as compared to the bulk, height, and color of other structures in the immediate neighborhood. The bulk, height, and color of the existing structure that will be re-purposed for the proposed uses is already in harmony with existing commercial structures in the immediate neighborhood that is commercial in nature. No bulk, height, or color changes are proposed under the project. Accordingly, this finding is not applicable. 6. Landscaping to approved City standards shall be required on the site and shall be in keeping with the character or design of the site. Existing trees shall be preserved wherever possible, and shall not be removed unless approved by the Planning Commission. The proposed landscaping is in keeping with the character and design of the site and will significantly improve the overall aesthetics of the site. The project site currently contains minimal landscaping including shared parking lot landscaping islands with the Quality Inn and seven on-site trees. New landscaping is proposed throughout the site including the site perimeter, parking areas, and along areas of internal pedestrian circulation. The proposed landscape plan would retain the existing trees in parking lot landscaping islands, in the proposed perimeter landscaping area, and in the outdoor mini-golf area. A variety of low to moderate water usage species of flowering trees, ground cover, shrubs, and vines would be utilized in the landscaping areas throughout the project site. The playing surface areas of the outdoor mini golf course would be a synthetic turf, while the ground areas surrounding the playing surfaces would be decomposed granite. Three of the existing trees found on site would be retained in the outdoor mini golf course area. A water fountain utilizing recycled water is proposed in the outdoor mini golf area, as well as other art work that will be Petaluma-centric in design. An existing six-foot-tall chain link fence is located on three of the project site s property lines including the two property frontages adjacent to the CalTrans right-of-way and the shared property line with the Parkwest Casino to the north. The chain link fence would be retained, but would be improved with flowering vines including red bougainvillea, yellow bougainvillea, and lilac vine on the entirety of its perimeter. The applicant will be required to comply with the Model Water Efficient Landscape Ordinance at Building Permit through the submission and approval of a Landscape Document Package. 7. Ingress, egress, internal circulation for bicycles and automobiles, off-street automobiles and bicycle parking facilities and pedestrian ways shall be so designed as to promote safety and convenience, and shall conform to approved City standards. The project s ingress, egress, internal circulation for bicycles and automobiles, off-street automobile and bicycle parking facilities, and pedestrian ways promote safety and convenience and conform to City standards. Site access will continue to be provided via a Page 11

12 drive lane that connects the project site with Montero Way and via shared parking drive lanes with the Quality Inn. Furthermore, the drive lane connecting to Montero Way will not allow parking as it will be designated a fire lane with painted red curbs. The existing paved parking areas in the project site would be improved with repaved and resealed pavement, as well as re-stripped lines. PUBLIC COMMENT A notice of public hearing was published in the Argus Courier on January 30, 2018, and mailed to all property owners and occupants within 500 feet of the project site. As of the publication date of this staff report, no public comments have been received concerning the project. ENVIRONMENTAL REVIEW The proposed project is categorically exempt from the California Environmental Quality Act (CEQA) under CEQA Guidelines (Existing Facilities) which applies to, among others, the interior or exterior alterations involving such things as interior partitions, plumbing, and electrical conveyances. The project also does not trigger any of the exceptions to the exemption outlined in CEQA Guidelines since it: (a) does not concern an environmental resource of hazardous or critical concern that has been designated, precisely mapped, and officially adopted pursuant to law by federal, state, or local agencies; (b) has no identifiable cumulative effects; (c) there are no unusual circumstances leading to a significant effect; (d) there are no hazardous materials on-site; (e) it is not visible from a State scenic highway; and (f) does not include a historic resource. ATTACHMENTS Attachment A: Attachment B: Attachment C: Attachment D: Draft Resolution Approving a Conditional Use Permit Draft Resolution Approving Site Plan and Architectural Review Applicant Project Narrative Project Plan Set Page 12