MIXED-USE DEVELOPMENT STANDARDS EXISTING CONDITIONS REPORT

Transcription

1 MIXED-USE DEVELOPMENT STANDARDS EXISTING CONDITIONS REPORT COMMUNITY DEVELOPMENT DEPARTMENT CITY OF BURBANK, CALIFORNIA SEPTEMBER 2017 PREPARED BY: SARGENT TOWN PLANNING in association with LISA WISE CONSULTING STUDIO ONE ELEVEN Great Western Building 706 S. Hill Street, Suite 1200 Los Angeles, CA, Exhibit D

2 Mixed-Use Development Standards Existing Conditions Report City of Burbank Contents Project Overview Planning Document Review and Analysis Mixed-Use Areas and Policies from the General Plan...7 Mixed-Use Policies from the Housing Element 13 Mixed-Use Areas per the Zoning Code.. 15 Mixed-Use Areas per Specific Plans.17 Observations Based on Review of Existing Planning Documents and Existing Conditions Mixed-Use Development in Specific Plan Areas APPENDICES A. Analysis of Zoning and Regulations B. Stakeholder Interviews C. Mixed-Use Market Analysis D. Examples of Existing Mixed-Use Development in Burbank 1 Exhibit D-2

3 Mixed-Use Development Standards Existing Conditions Report City of Burbank Project Overview With a funding grant provided by the Southern California Association of Governments (SCAG), the City of Burbank is initiating a planning process to establish Mixed-Use Development Standards for key commercial areas of the city where a mix of uses are feasible. The Existing Conditions Report provides a foundation of background information that will be considered as the development standards are prepared, as well as other considerations that could be addressed with a set of standards. This project overview provides the reasons for undertaking this planning effort, a brief history of mixed-use in Burbank, and the planning process itself for creating mixed-use standards. Why Mixed-Use Development Standards? Mixed-use development is a term that has a range of meanings, depending on location and context. Many buildings in downtown Burbank and in many city centers are vertical mixed-use with retail storefronts or restaurants at the ground floor and housing or offices on upper floors. Mixeduse development can also take the form of a corner grocery in a residential neighborhood, a mix of uses within multiple buildings on a single property, or a row of businesses along a major street corridor on the edge of residential neighborhoods as occurs on Burbank and Magnolia Boulevards in Burbank. This is often referred to as horizontal mixed-use. The existing vertical mixed-use building at the corner of San Fernando Boulevard and Angeleno Avenue combines ground-floor retail and dining with housing on the upper floors. (Source: Zillow.com) In all cases, mixed-use development is an approach to locate useful destinations such as shops, restaurants, and services near their customers or employees, while offering options to access on foot, bicycle, transit, or driving. Mixed-use development is not new in Burbank. From its birth as a small agricultural railhead town on the Southern Pacific Railroad in 1887, to its incorporation as a city and the arrival of the Pacific The existing horizontal mixed-use along Magnolia Boulevard Electric Railway in 1911, Burbank grew to a consists of one-story, local-serving commercial and retail uses with population of 500 residents. Mixed-use pedestrian-oriented street frontages. (Source: Google Streetview) buildings were primarily located along San Fernando Boulevard with residential neighborhoods immediately adjacent. Residents could walk from their homes to businesses and train stations. 2 Exhibit D-3

4 Mixed-Use Development Standards Existing Conditions Report City of Burbank With the arrival of the movie studios in the 1920s, particularly following World War II, Burbank grew outward very rapidly. In the 1950s following the lead of Los Angeles and other American cities the City adopted zoning laws to manage rapid growth. At that time, the zoning laws emphasized separation of land uses, limiting commercial uses to certain areas of the city and residential uses to other areas. This generated an increase in vehicle traffic as, in most cases, errands, business transactions, and basic services required a car trip. The Burbank 2035 General Plan in parallel with national planning trends, State policies, and transit reinvestment plans has recognized the potential advantages of mixed-use development, allowing for more efficient use of land, energy, and other non-renewable resources, while supporting a range of healthy, active lifestyles in the 21 st century. It identifies the potential for mixed-use development along major roadway corridors, in many commercial and industrial areas, near major transit hubs, and in and around Downtown. Yet, the Burbank Zoning Code does not contain standards for mixed-use development. Establishing development standards can ensure that as different uses are located adjacent to one another appropriate design measures are applied to ensure compatibility of uses and buildings, while preserving existing neighborhood environments. Mixed-use projects are currently reviewed on a case-by-case basis, which is time consuming for the City, the public, and applicants, and can produce inconsistent results. This planning effort is aimed at identifying appropriate parameters and standards for mixed-use development building massing, setbacks from the street, parking configurations, and other factors to encourage responsible development that integrates and supports good neighborhoods in various contexts in the City. Implementing the General Plan In the 1950s, Burbank s early mixed-use corridors, such as San Fernando Boulevard above, experienced rapid urban growth and separation of land uses due to the influence of the automobile and zoning laws. (Source: SanFernandoValleyBlog) The purpose of the Burbank Municipal Code of which zoning standards are included as Title 10 is to implement the goals and policies of the City s General Plan. The current zoning code is equipped to review projects in residential neighborhoods and commercial and industrial centers individually, but includes no specific tools to shape mixed-use projects. 3 Exhibit D-4

5 Mixed-Use Development Standards Existing Conditions Report City of Burbank Burbank 2035 General Plan By nature, the General Plan is very highlevel in its vision of mixed-use development in Burbank. It suggests that such development may be appropriate, or compatible, in many areas of the City, deferring to zoning districts and specific plans for detailed standards. The map to the right highlights (in pink) those areas of the City where the General Plan identifies mixed-uses may be appropriate. Locations where mixed-use development is potentially compatible based on the 2035 General Plan. Current Zoning Code Current zoning regulations allow potential mixed-use development along major corridors (Olive Avenue, Magnolia Boulevard, Burbank Boulevard), in commercial areas (Downtown, Media District, Golden State Specific Plan), and key intersections. The map to the right highlights different areas where mixeduse development may be feasible with discretionary review under current zoning regulations. Locations where mixed-use development may be feasible with discretionary review per zoning. Mixed-use corridors (R1 adjacent) Mixed-use corridors (non-r1 adjacent) Downtown Media District Mixed-use intersections 4 Exhibit D-5

6 Mixed-Use Development Standards Existing Conditions Report City of Burbank Preparing the Standards Mixed-use development is not a one-size-fits-all proposition. Development standards must recognize and regulate mixed-use at a range of potential sizes, scales, and types. For example, a mixed-use building at the scale of Downtown Burbank would be out of place on Burbank Boulevard next to a single-family home. However, a larger mixed-use building with more contemporary design may be appropriate near the Downtown Metrolink Station, next to the movie studios in the Media District, or along Hollywood Way by Bob Hope Airport in the proposed Golden State Specific Plan area. To prepare the Mixed-Use Development Standards, the planning process will include community workshops with discussions focused on a range of mixed-use developments and places, and how they may be designed for Burbank. The purpose will be to identify types, scales of development, design elements, and amenities that might be a good fit or a bad fit in and around the Downtown, in the Media District, and the Golden State Specific Plan. Community workshops will be held to identify locations and types of mixed-use that are envisioned in Burbank. (Source: Sargent Town Planning) Through this process, the project team will be looking for characteristics and criteria that may generally apply to the three Specific Plan areas, and others that may apply to particular areas. It is expected that in some contexts the development standards may be flexible, while in others they may be more restrictive to protect existing neighborhoods. Based on public input received, the project team will prepare draft standards which will be made available for public review and refined through public meetings with the Planning Board and City Council. While the form and content of the standards will be determined in response to the input we receive, the topics addressed may include: Building scale and massing, parcel size and configuration, and relationship to adjacent buildings; Street frontage design, focusing on how the ground floor of the building addresses the street to invite and support pedestrian activity; and, Parking arrangements on-site to enable pedestrian-friendly street frontages. Existing Conditions Analysis This Existing Conditions Report provides analysis of Burbank s General Plan, Zoning Code, and Specific Plans to identify vision, policy direction, and development standards relevant to forming Mixed-Use Development Standards for Burbank. In addition, stakeholder interviews were conducted to identify community attitudes and concerns that may help to inform and shape the Mixed-Use Development Standards, which will continue through the planning process. This report analyzes the following: Burbank 2035 General Plan and Housing Element: These documents were reviewed and a summary of vision statements and policies related to mixed-use development are highlighted. 5 Exhibit D-6

7 Mixed-Use Development Standards Existing Conditions Report City of Burbank Zoning Standards: In areas not regulated by Specific Plans, regulations for development are provided by Title 10 of the Burbank Municipal Code. Standards applicable to mixed-use development are summarized in Appendix A. Specific Plans: The City s existing Specific Plans were reviewed, and vision statements and policies related to mixed-use development are summarized. Stakeholder Interviews: Two days of interviews with interested parties were held at Burbank Community Services Building on December 3, 2015 and February, 9, Interviewees included City staff, local residents, historic preservationists, property owners, and developers with an interest in mixed-use development. Insights, concerns and suggestions from those interviews are summarized by topic in Appendix B. Additional interviews may be conducted in the future. Market Analysis: Lisa Wise Consulting has prepared an assessment of real estate market conditions within the City of Burbank, to provide the project team and community with a sense of the types and scales of mixed-use development that the economic market may support in the foreseeable future. The report addresses various topics including demographic trends, and residential, retail, and office market conditions in Appendix C. Opportunities and Challenges: Following analysis of the above sources, this report identifies a number of opportunities and challenges related to the development of mixed-use projects and places within the City of Burbank. The term mixed-use is used and defined in a number of ways in the documents reviewed in this report. Some City documents explicitly use the term mixed-use, while others refer to a broader description of residential above commercial use, or list a mix of complimentary uses that could be pursued within a specific location, corridor, or district. For the purposes of this analysis, all of these various terms, definitions, and lists are referred to hereafter as mixed-use, whether mixed within a single development project or within a local geographic area. 6 Exhibit D-7

8 Mixed-Use Development Standards Existing Conditions Report City of Burbank Planning Document Review and Analysis Mixed-Use Areas and Policies from the General Plan The Burbank 2035 General Plan establishes a vision for all future development within the City, rooted in a principle of Balanced Development, such that Burbank has a desirable balance of land uses to best serve residents and protect the small town character of the community while maintaining economic vitality. 1 Further described in the Land Use Element Chapter, balanced developments is, the idea that smalltown character, economic prosperity, and sustainability do not have to come at the expense of one another, but rather can coexist and complement each other. 2 The General Plan indicates mixed-use development intensities may be feasible ranging from a 1.0 Floor Area Ratio (FAR) or 27 Density Unit per Acre (DUA), up to 2.5 FAR or 87 DUA in the Downtown. In addition, the General Plan provides for intensity increases of up to 25 percent for developments along major transit corridors or for exceptional projects. Currently, upon receiving an application for a mixed-use project, the City applies a combination of R-4 (High Density Residential) district development standards with C-3 (Commercial General Business) district development standards as the baseline for evaluating the proposed project, which are not intended to be combined. The General Plan describes many of the topics that the Mixed-Use Development Standards should address by: Directing that a balance be struck between the City s increasingly urban setting and suburban roots. Noting the need for gradual transitions in scale and intensity between mixed-use infill development and existing neighborhoods, especially along neighborhood edges. 3 The Housing Element encourages a range of types and scales of mixed-use, including live-work, small-lot developments, and adaptive reuse of non-residential buildings into residential projects. 4 Selected General Plan Policies The Burbank General Plan provides a series of policies and vision statements that indicate mixed-use development may be appropriate in a variety of locations and contexts within the City, so long as it contributes to the community s vision of balanced development and is appropriately regulated and designed for its particular context. The Mixed-Use Development Standards are intended to translate these general intentions into guiding standards that can be applied to development applications. The General Plan policies listed below represent relevant excerpts on the subject of mixed-use development in Burbank. Individually and collectively, these policies offer guidance for the location, configuration, scale, intensity, design and intended character of infill development including mixed-use development. 1 City of Burbank General Plan, pp Ibid. pp Ibid. Policies 3.3 and 3.4, pp Ibid. Housing Element, policy 2.1, pp Exhibit D-8

9 Mixed-Use Development Standards Existing Conditions Report City of Burbank Land Use Goal 1: Quality of Life 5 Policy 1.1 Accommodate a mix of residential and non residential land uses in appropriate locations that support the diverse needs of Burbank residents, businesses, and visitors. Provide opportunities for living, commerce, employment, recreation, education, culture, entertainment, civic engagement, and socializing. Policy 1.3 Maintain and protect Burbank s residential neighborhoods by avoiding encroachment of incompatible land uses and public facilities. Policy 1.7 Ensure that building height and intensity near single family residential neighborhoods is compatible with that permitted in the neighborhood. Use graduated height limits to allow increased height as distance from single family properties increases. The 2035 General Plan recognizes neighborhoods and districts as the building blocks of the community. Future developments must protect the character of these neighborhoods. (Source: Burbanklocalguide.com) Land Use Goal 3: Community Design and Character 6 Policy 3.1 Recognize neighborhoods and districts as the building blocks of the community. Policy 3.3 Maintain a healthy balance between Burbank s urban setting and its suburban roots by avoiding urbanscale residential densities and intensities in inappropriate locations, and recognizing advantages of denser development at appropriate locations. Policy 3.11 Carefully consider the evolution of community character over time. Evaluate projects with regard to their A primary goal of the General Plan is to provide balanced development through the appropriate location of residential and non-residential uses. (Source: TheBrokerList.com) impact on historic character, their role in shaping the desired future community character, and how future generations will view today s Burbank. Land Use Goal 4: Public Spaces and Complete Streets 7 Policy 4.2 Identify opportunities for publicly accessible open spaces to be provided in conjunction with both public and private development projects. 5 City of Burbank General Plan, pp. 3-2, Ibid. pp Ibid. pp Exhibit D-9

10 Mixed-Use Development Standards Existing Conditions Report City of Burbank Policy 4.8 Locate parking lots and structures behind buildings or underground. Do not design parking lots and structures to face streets or sidewalks at ground level. Use alternatives to surface parking lots to reduce the amount of land devoted to parking. Land Use Goal 5: Housing 8 Plan Land Use Policy 5.3 Provide more diverse housing opportunities, increase home ownership opportunities, and support affordable housing by encouraging alternative and innovative forms of housing. Policy 5.4 Allow residential units in traditionally non residential areas, and support adaptive reuse of non residential buildings for residential and live work units in Downtown Burbank and other appropriate locations. Policy 5.5 Provide options for more people to live near work and public transit by allowing higher residential densities in employment centers such as Downtown Burbank and the Media District. Land Use Goal 6: Economic Vitality 9 Policy 6.2 Recognize and maintain Downtown Burbank as the city s central business district, providing a mix of commercial, civic, cultural, recreational, educational, entertainment, and residential uses. Policy 6.4 Recognize that locally owned mom and pop businesses are important to the local economy and community character, and help these businesses maintain a long term presence in the community. Locally-owned businesses along Burbank s corridors are a vital part of the local economy and the City s vision for balanced development. (Source: Google Streetview) Land Use Goal 9: Medium and High Density Land Uses 10 Policy 9.1 Provide opportunities to create neighborhoods with easy walking access to daily needs. Allow for small non residential uses that provide service and convenience for neighborhood residents. Policy 9.5 Ensure that buildings are of high architectural quality and respect existing neighborhood character, or strive toward a desired neighborhood character, as appropriate. Policy 9.6 Use tiered densities such that maximum densities are achievable only when multiple lots are assembled into a single project site. 8 City of Burbank General Plan, pp Ibid. 10 Ibid. pp Exhibit D-10

11 Mixed-Use Development Standards Existing Conditions Report City of Burbank Land Use Goal 10: Corridor Commercial Land Use 11 Policy 10.1 Ensure that buildings and businesses are of a size and scale appropriate for a pedestrianfriendly environment. Require that ground floor uses along street frontages are pedestrian oriented. Policy 10.5 Maintain existing residential units and integrate new residential units in Corridor Commercial areas as an important housing resource and customer base for local businesses. Adapt existing commercial buildings for residential reuse where appropriate. Mobility Goal 1: Balance 12 Policy 1.7 Ensure that the transportation system enables Burbank residents, employees, and visitors the opportunity to live, work, and play throughout the community. Mobility Goal 2: Sustainability 13 Policy 2.1 Improve Burbank s alternative transportation access to local and regional destinations through land use decisions that support multimodal transportation. Policy 2.4 Require new projects to contribute to the city s transit and/or non motorized transportation network in proportion to its expected traffic generation. Mobility Goal 7: Parking 14 Policy 7.2 Design commercial and residential parking standards to limit new vehicle trips, incentivize transit use, and promote non motorized transportation. Based on the General Plan policies and land use designations, the following map (Figure 2.1) highlights areas of the City where mixed-use is potentially feasible, coupled with the corresponding maximum permitted densities and intensities (see Table 2.1). The General Plan stipulates that mixed-use development is primarily targeted for major commercial centers and corridors. 15 According to Land Use Goal 9 Policy 9.1, medium and high-density neighborhoods are to [p]rovide opportunities to create neighborhoods with easy walking access to daily needs [and] allow for small, non residential uses that provide service and convenience for neighborhood residents City of Burbank, 2035 General Plan, pp Ibid. pp Ibid. 14 Ibid. pp City of Burbank General Plan, Housing Element, pp Ibid. pp Exhibit D-11

12 Mixed-Use Development Standards Existing Conditions Report City of Burbank Figure 2.1 Locations Mixed-Use is Potentially Permitted based on the 2035 General Plan 17 Regional Commercial Media District Commercial South San Fernando Commercial Medium Density Residential High Density Residential Corridor Commercial Downtown Commercial North Victory Commercial / Industrial Rancho Commercial Golden State Commercial / Industrial 17 Based on Burbank 2035 General Plan Land Use Diagram (Exhibit LU-1), pp Exhibit D-12

13 Mixed-Use Development Standards Existing Conditions Report City of Burbank Table 2.1 Maximum Development Densities and Intensities per the 2035 General Plan Land Use Designation Description related to Mixed-Use Max. DUA (Exceptional +25%) Max. FAR Modified OE-FAR (TMD District) Max. Height Medium Density Residential High Density Residential Provide opportunities to create neighborhoods with easy walking access to daily needs. Allow for small non residential uses that provide service and convenience for neighborhood residents (Land Use Policy 9.1) 27 DUA (33.75 DUA) 43 DUA (53.8 DUA) N/A N/A <500 from SFD =35 (2 stories) N/A N/A >500 from SFD =50 (3 stories) Corridor Commercial Regional Commercial Downtown Commercial South San Fernando Commercial North Victory Commercial & Industrial Rancho Commercial Media District Commercial Golden State Commercial & Industrial Neighborhood serving businesses allow residents to walk from nearby residential neighborhoods to meet some of their daily needs. Allows for adaptive reuse. Regional commercial and employment that also allow for residential uses (Policy 11.5) Allows higher intensity than other areas. The area is buffered from residential neighborhoods - potential effects of higher intensity are minimized. Much of the development is anticipated to include residential units with higher intensity because a relatively low amount of traffic is generated by residential units. Introduce more residential uses in area and promote community scale commercial uses. Allows for horses on SFD, and a variety of low intensity multifamily residential / commercial. Subject to Specific Plan allowing mixed-use that combines media-related office space with public plazas, neighborhood retail, restaurants and specialized land uses such as a hotel. City seeks commercial uses that serve the airport, protect industrial spaces, and introduce residential compatible with the industrial character. 27 DUA (33.75 DUA) 58 DUA (72.5 DUA) 87 DUA (108 DUA) 43 DUA (53.8 DUA) 27 DUA (33.75 DUA) 20 DUA (25 DUA) 58 DUA (72.5 DUA) 27 DUA (33.75 DUA) * * * * * modified office equivalency FAR (OE-FAR) by Transportation Management District (TMD District). Based on distance from R-1 / R-2: = = = 50 >300 = 70 Determined by Planned Development Same as Corridor Commercial Same as Corridor Commercial; additional height w/cup Same as Corridor Commercial; additional height w/cup 35 (50 w/45-degree roof) Same as Corridor Commercial and up to 15 stories (CUP) Same as Corridor Commercial 12 Exhibit D-13

14 Mixed-Use Development Standards Existing Conditions Report City of Burbank Mixed-Use Policies from the Housing Element Housing Element Policies While the Housing Element is a partner document to the 2035 General Plan, it is unique in that it is required to be updated every 5 to 8 years. Within the goals and policies of the Housing Element, it specifically outlines how mixed-use can be address housing supplies throughout the City. The following policies highlight some of the primary goals of the Housing Element as they relate to mixed-use development. Goal 2: Variety of Housing Sites 18 Policy 2.1 Facilitate mixed-use developments in targeted areas, including Downtown and the Media District. Promote adaptive reuse of nonresidential buildings for residential units. Policy 2.2 Consistent with the Land Use Element, promote opportunities for a variety of housing types, including small lot development, live-work units and mixed-use development, to accommodate the City s diverse housing needs. A live-work building on Magnolia Boulevard provides a residential unit above a ground-floor recording studio. (Source: Google Streetview) Goal 4: Constraints to Housing 19 Policy 4.3 Provide opportunities for new housing types, including small lot single-family development, live-work units and mixed-use residential development, to address Burbank s changing housing needs. Housing Element Goals and Mixed-Use In addition to the policies listed above, the Housing Element recommends mixed-use projects may be key developments to accomplish several city goals including: Fulfill Existing/Future RHNA Requirements Currently, the Regional Housing Needs Assessment (RHNA) projects a demand for 2,684 new affordable units in Burbank for the period, ranging from Extremely Low to Moderate income. 20 As discussed in the Housing Element, the City will continue to support a mix of single family, multi family and mixed-use housing, through a variety of funding programs to enhance affordability, to accommodate its RHNA targets, and contribute to the growing demand for housing in the Southern California region. 18 City of Burbank. Housing Element, pp Ibid. pp Ibid. pp Exhibit D-14

15 Mixed-Use Development Standards Existing Conditions Report City of Burbank Provide Senior Housing Approximately 13 percent of Burbank residents are over the age of 65, many of whom live within the City's approximate 1,500 affordable senior housing units. 21 As this population grows, mixed-use developments could play a role in accommodating future senior housing needs. Address Disability/Access through Housing At present, individuals living with disabilities comprise approximately 8% of Burbank's total population. 22 Given the potential locations, pedestrian-oriented amenities and access to transit, it is feasible that mixed-use developments could provide direct benefits to this population. Mixed-Use in Planned Development Zones In the absence of Mixed-Use Development Standards, the Housing Element states that developers can apply for a Planned Development in order to build mixed-use development. The Planned Development process is similar to the CUP process, but requires additional public hearings with the Planning Board and City Council. The Planned Development process also provides the opportunity to establish unique development standards for the location and intended use(s) proposed. The City has utilized the Planned Development process to entitle numerous mixed-use and residential projects in commercial zones City of Burbank. Housing Element, pp. 8-13, Ibid. pp City of Burbank. Housing Element, pp Exhibit D-15

16 Mixed-Use Development Standards Existing Conditions Report City of Burbank Mixed-Use Areas per the Zoning Code Based on the existing Zoning Code, mixed-use development is permitted with a Conditional Use Permit (CUP) in the zones listed in Table 2.3 and mapped in Figure 2.3. As evident from this map, the zoning code has not been updated to reflect the Burbank 2035 General Plan land use goals and policies. For the complete Zoning Analysis, see Appendix A. Figure 2.3 Locations Mixed-Use is Conditionally Permitted based on the Zoning Code 24 BCC-1 C-2 C-3 C-4 MDC-2 MDC-3 MDC-4 BCC-2 BCC-3 MPC-1 MPC-2 MPC-3 NSFC 24 Burbank Municipal Code, Zoning Regulations, Exhibit D-16

17 Mixed-Use Development Standards Existing Conditions Report City of Burbank Table 2.3 Zones Authorized for Mixed-Use with CUP 25 Zone Zone Description Max. DUA Max. FAR Commercial C-2 Commercial Limited Business Zone Lot: 1.0 C-3 Commercial General Business <12,000 SF (21 DUA) (see Zone 12-24,000 SF (31 DUA) Table C-4 Commercial Unlimited >24,000 SF (43 DUA) ) Business Zone Media District Specific Plan Media District Commercial MDC-2 Zone 1 DU / 297 Office SF Media District General MDC-3 Business Zone 1.10 (Number of units Media District dependent on office SF) MDC-4 Commercial/Media Production Burbank Center Specific Plan BCC-1 Burbank Center Commercial Retail-Professional Zone Lot: 2.5 Burbank Center Commercial <12,000 SF (21 DUA) BCC-2 (2.0 Limited Business Zone 12-24,000 SF (31 DUA) >24,000 SF (43 DUA) 15 in Burbank Center Commercial BCC-3 TMD) General Business Zone Magnolia Park Overlay Zone MPC-1 Magnolia Park Commercial Retail-Professional Zone MPC-2 Magnolia Park Limited Business Zone 27 DUA 1.0 MPC-3 Magnolia Park General Business Zone North San Fernando Commercial Overlay Zone (adopted 2012) 1.0 NSFC North San Fernando (see 27 DUA Commercial Zone Table 1.1) Max. Height Up to 70 (dependent on distance from R-1/R-2) Up to 25-stories (CUP) 27 Use C-Zone standard Up to 50 (CUP) Zoning Code Up to 70 (dependent on distance from R-1/R-2) Burbank Municipal Code, Zoning Regulations, Maximum DUA based on R-4 District Standard. Burbank Municipal Code Burbank Media District Specific Plan (1991). pp. xii. 28 Burbank Municipal Code Exhibit D-17

18 Mixed-Use Development Standards Existing Conditions Report City of Burbank Mixed-Use Areas per Specific Plans Specific Plans and Master Plans identify areas within which mixed-use development may be feasible, often through the Planned Development (PD) process. The following map and table provide a quick reference to compare the locations, sizes and scales of potential development across the City (See Figure 2.4 and Table 2.4). Figure 2.4 Specific and Master Plan Areas Where Mixed-Use Is Potentially Feasible Burbank Center Plan (Overlay Zone) North San Fernando Boulevard Master Plan Media District Specific Plan (Overlay Zone) Magnolia Park (Overlay Zone) Rancho Master Plan (Zone) Golden State Specific Plan (proposed) 17 Exhibit D-18

19 Mixed-Use Development Standards Existing Conditions Report City of Burbank Table 2.4 Mixed-Use Maximum Development Density and Intensity per Specific/Master Plans Specific/Master Description related to Plans Max. DUA Max. FAR Max. Height Mixed-Use (Overlay Zone) Burbank Center SP (1997) N. San Fernando Boulevard Master Plan (2012) Media District SP (1991) Magnolia Park Overlay Zone Rancho Master Plan Golden State SP The Burbank Center Plan is divided into 3 sub-areas: 1) City Center, 2) City Center West, 3) S. San Fernando. Some of the primary goals call for Mixed Commercial integrated with Office and Residential, and the recycling of industrial and singleuse designations to accommodate mixed-use. The Plan calls for improvements that will create a corridor that, will contain a mix of commercial, hotel, and mixeduse developments that provide convenient services to local residents and visitors. The corridor will include amenities that encourage walking, bicycling, and transit ridership. 29 The Media Center to be a focal point of the District, featuring a coordinated mixed-use master plan that combines media related office space with public plazas, neighborhood supporting retail, restaurants and specialized land uses such as a hotel. 30 Create a pedestrian-oriented suburban thoroughfare with pockets of retail and office/professional services allowing patrons, employees and local residents to easily drive and walk through the corridor Neighborhood Business areas are to accommodate a mix of retail and office to primarily serve the surrounding residential and business neighborhood. 43 DUA (Based on R-4; may be exceeded by 25% for exceptional project or transit center ) 43 DUA (Based on R-4) 43 DUA (Based on R-4) DUA (Based on MPC Zone) 20 DUA (25 DUA if exceptional) (Based on Table 1.0) This plan has not been adopted. Based on location in Table 1.1 Based on location in Table (Commercial and Industrial) 1.0 (Based on MPC Zone) 0.6 (0.45 if TMD) (Based on Table 1.0) 12 stories (164 feet ); (May be increased to 15 stories or 205 if considered exceptional project or transit center ) 50 with CUP (70 if over 300 from R-1/R-2 lot line) Up to 15-stories (CUP) 32 (See MDC, Table 1.X) Up to 50 (CUP) (Based on MPC Zone) 35 (50 w/45-deg. Roof) (Based on Table 1.0) 29 N. San Fernando Boulevard Master Plan. (2012). pp Burbank Media District. (1991). pp. V. 31 Ibid. pp Ibid. pp Exhibit D-19

20 Mixed-Use Development Standards Existing Conditions Report City of Burbank Observations based on review of existing planning documents and existing conditions Despite the absence of Mixed-Use Development Standards, the City has approved mixed-use developments through the Conditional Use Permit (CUP) and Planned Development (PD) process (see Appendices D and E for examples). Based on a comprehensive review of existing planning documents, the following represent several challenges facing mixed-use developments within Burbank s General Plan, Zoning Code, and Specific/Master Plan areas. 1. Predictability: While the General Plan has established the maximum development intensity for mixed-use in various areas where such development is potentially allowed, the physical design parameters of building height, setback, massing, access, and parking have significant effects on adjacent and nearby properties, which are not clearly provided by the Zoning Code for mixed-use projects. While the CUP and PD process allows the City to evaluate each project proposal individually, a set of Mixed-Use Development Standards could provide a clear starting point for design of development in a range of contexts. This can enable the applicant to understand the City s Two of Burbank s recently approved mixed-use projects include Royal Oaks (top) and Talaria (bottom). Both accommodate housing with ground-floor commercial space. (Source: City of Burbank) expectations for design at the beginning, and could provide the basis for early rejection of project applications that are not appropriate or do not fit with the City s vision for mixed-use. This should reduce the time and cost associated with reviewing projects, and make it simpler to review, modify, or reject project proposals that are incompatible. Further, because CUPs and PDs are specific to only one project development, they may result in a series of individually well-designed projects that may collectively fail to generate coherent and cohesive mixed-use places that fit well within the context of surrounding neighborhoods. 2. Exceptional Project Bonuses: The 2035 General Plan states that developments may be deemed exceptional projects and thereby eligible for up to a 25% density bonus if they advance the goals and policies of the General Plan. 33 Mixed-Use Development Standards can help to define specific characteristics of development scale and massing that would constitute appropriate projects in a range of Burbank s neighborhoods, districts, and corridors, based on the guidance of the General Plan and by design analysis, community input, and Planning Board/Council direction that will shape these standards. 33 City of Burbank General Plan, Policy 1.4 pp Exhibit D-20

21 Mixed-Use Development Standards Existing Conditions Report City of Burbank 3. Transit Management Districts: To help control the intensity of infill development, the General Plan introduces the system of Transportation Management Districts (TMD) to limit the allowable FAR of a building in order to reduce the number of vehicular trips generated and optimize the overall transportation system. 34 It may be possible to evolve this system overtime to account for potential trip reduction and trip capture that can be achieved as certain mixed-use areas mature and shift modal splits through the integration of future transit, bicycle and pedestrian-oriented connections and facilities. 4. Parking Requirements: Under the Burbank Municipal Code, a mixed-use project that has more than one retail use and occupies less than 1.0 acre of land is considered a mini-mall. As such, the parking requirement is 10 spaces per 1,000 SF. 35 This standard was created to discourage the conversion of commercial sites to mini-malls prevalent in Los Angeles in past decades. However, appropriately designed mixed-use centers and corridors can have the potential to provide commercial amenities, often associated with mini-malls, in a different and attractive form. This form is characterized by comfortable sidewalks, walking connections to adjoining neighborhoods, and parking tucked out of the way. Once the city has comprehensively studied parking behaviors along major corridors and commercial areas citywide (at a future date), reanalyzing parking requirements based on mixed-use place types may be appropriate. 5. R-4 Development Standards: Without specific Mixed-Use Development Standards, all mixed-use proposals are reviewed on a case-by-case basis based on how they meet the R-4 (High-Density Residential) development standards combined with C-2 or C-4 commercial district development standards. While this has been an interim approach, mixed-use development in different contexts cannot be well managed with a one-size-fits-all combination of standards not intended to be combined for a mix of uses. 6. Potential Mixed-Use Place Types and Locations: When conceiving of a mixed-use project s parcel size, scale, use mix and design character and how it may contribute to the existing or envisioned neighborhood character context, a helpful tool to discuss mixed use is within a framework of three Mixed-Use Place Types District, Centers and Corridors (see Figure 2.5). Three general Place Types appear appropriate from analysis of existing and potential mixed-use areas in Burbank, as defined by the Burbank 2035 General Plan, Specific and Master Plans, and Zoning. a. Districts As the largest of mixed-use areas typically 100 to 200 acres in size and up to a half-mile districts generally provide concentrations of commercial activity, often mixed with housing and/or compatible industrial uses, and generally provide high levels of pedestrian amenities and transit services. Districts offer opportunities for mixed-use development that is typically not close to existing single-family residential neighborhoods, and hence may support higher concentrations of commercial and residential activity. b. Centers Smaller in both size and scale than districts, centers provide concentrations of commercial amenities, often mixed with housing in close proximity to residential neighborhoods, bringing many daily necessities within walking or biking distance of residents. c. Corridors Corridors, of which Burbank has numerous existing examples, offer the possibility of locating small commercial amenities and less intense multi-family housing immediately adjacent to and easily walkable from adjacent residential neighborhoods. The scale, 34 Ibid. Mobility Element, pp. 4-6 and Burbank Municipal Code, Zoning Regulations (Division 2: Parking Standards), Exhibit D-21

22 Mixed-Use Development Standards Existing Conditions Report City of Burbank character, and use of such potential mixed-use developments are critically important to avoid undesirable impacts on the quality of life within the neighborhood. The areas identified in Figure 2.5 provide a reference for identifying various Mixed-Use Districts, Centers and Corridors that represent Burbank s built pattern, or envisioned pattern per the General Plan. Note, these areas and place types are not formally defined, but are intended to provide a structure to begin a conversation on mixed-use places within the City of Burbank. Figure 2.5 Representative Mixed-Use Districts, Centers and Corridors in Burbank Mixed-Use District Potential District Mixed-Use Center Mixed-Use Corridor 21 Exhibit D-22

23 Mixed-Use Development Standards Existing Conditions Report City of Burbank The following table and descriptions are provided to zoom out from individual development projects and think about the overall place (or context) within which mixed-use infill development may appear in Burbank over time. These provide some descriptions of common characteristics of Corridors, Centers and Districts, based on the field observations, review of existing Planning documents, and examples in other cities. The content in this section is intended to aide in conversations about ways in which mixed-use development standards may help the project review process to yield better development and placemaking in Burbank in the future. Table 2.5 Mixed-Use Place Types (Described for Burbank) Shared Parking Potential Transit Potential & Connectivity Reach of Employment /Commercial Use Increment of Mixed-Use Application Intensity Transition to Neighborhood Parcel Depth CORRIDORS Low Immediate Low Low Local Low Shallow CENTERS Med. Tapered Med. High City Med. Mod DISTRICTS High Gradual High Med. Regional High Deep Terms, Definitions and Clarifications 1. Intensity: This is used as a general, composite measure of the size, scale, and level of activity within and around a development project. Intensity would reflect building size/height, number of people onsite, number of uses on-site, traffic generation, hours per day of peak activity, noise levels, etc. 2. Transition to Neighborhood: As the Burbank 2035 General Plan outlines, the design of new development should avoid undue impacts on existing neighborhoods. Some of the parcels on which mixed-use development may be considered, under existing City regulations, are relatively small and immediately adjacent to existing single-family homes. This generally suggests lower intensities of development and greater design/height transitions (e.g. Corridors). Some potential mixed-use parcels are very large and not located near single-family homes and thus, higher intensities may be appropriate (e.g. Districts). Centers may represent a range of intermediate conditions. 3. Shared Parking Potential: Larger projects on large sites with a variety of uses may have peak parking demands at different times of day, which may be able to achieve shared parking efficiencies within a single project. Smaller projects have less potential for this; but, if located in an area with other mixeduse activity, may have the potential for shared parking arrangements with nearby sites (as seen in Downtown Burbank). In either case, shared parking offers the potential to support higher levels of human and economic activity with lower levels of traffic and parking congestion. 4. Transit Potential & Connectivity: Sites and areas served by robust transit service offer a similar potential for higher levels of human and economic activity without worsening levels of traffic and parking congestion experienced in less transit-accessible locations. 5. Reach of Employment & Commercial Use: This recognizes the areas within which customers and employees live is generally a larger radius for large projects (which will tend to be located in Districts and may have regional employers) than for medium-sized projects, or small projects (which will often be located along Corridors with local employers). 6. Mixed-Use Project Increment: It is important that the project size and historic parcel patterns be taken into account in preparing the Mixed-Use Development Standards. Along most Corridors, for 22 Exhibit D-23

24 Mixed-Use Development Standards Existing Conditions Report City of Burbank instance, the parcel sizes are small and so, the project sizes will be smaller. In some cases a small mixed-use development may be achievable on an existing parcel, but in other cases these small historic parcels might be aggregated to allow more efficient use of properties. Such aggregation does not necessarily mean the scale of the buildings should grow, but remain compatible with the surrounding neighborhood fabric and character. At the other end of the spectrum, some parcels in existing industrial or commercial districts are very large. And the existing neighborhood character in some cases is not a neighborhood at all. So, to make the place suitable for mixed-use development a master plan for a large parcel may be needed to create a new context within which new mixed-use buildings fit in. The Mixed-Use Development Standards could address the issues of project size, scale, and fit, whether preserving an existing context or generating a new one. 7. Parcel Depth: The ability of parcels to absorb the parking required for new infill development and to provide room for appropriate transitions to existing buildings behind the project site is closely related to the depths of the parcels. For initial discussion, the parcel depths are characterized as shallow (roughly 100 to 150 ), moderate (roughly 150 to 200 ) and deep (200 or greater). 23 Exhibit D-24

25 Mixed-Use Development Standards Existing Conditions Report City of Burbank Mixed-Use Development in Specific Plan Areas This section outlines the intentions of the Specific Plans to be studied for the Mixed-Use Development Standards, with a focus on the role that mixed-use development may play in each one. A more complete technical analysis of the standards within all Specific and Master Plans within the City is provided in Appendix A. Burbank Center Plan (1997) 1. Location and Intent The Burbank Center Plan (BCP) area is bound by Burbank Boulevard to the northwest, Glenoaks Boulevard to the northeast, the Burbank/Glendale city boundaries on the southeast, and Victory Boulevard and Lake Street to the southwest. The BCP is divided into the following three sub-areas: 1) City Center; 2) City Center West; 3) South San Fernando. The vision of the BCP outlines the gradual integration of mixed-use that is compatible with existing light industrial uses. It encourages land-use designations that recycle commercial and industrial Existing mixed-use in the Burbank Center Plan area on E. Palm Ave. (Source: Google Streetview) uses into mixed-use that is bolstered by transit access, parking facilities, and features which contribute to an active, pedestrian-oriented environment. The BCP encompasses the Downtown core of Burbank, which contains many existing examples of mixed-use development built in the 1990s and 2000s. In the South San Fernando sub-area, the BCP explicitly recognizes the opportunity to replace singleuse land designations with a multi-functional center including retail, residential, research and development, educational, cultural and recreational uses What Mixed-Use Development Standards Can Offer While the BCP provides a vision for new and revised land-uses, all mixed-use proposals in the BCP must go through the CUP and Development Review, or PD process, with the residential portion of the project being evaluated under the R-4 development standards. 37 Within 0.25 miles of the Downtown Transit Center, the BCP permits building heights up to 12-stories with a CUP and up to 15-stories with a PD application. 38 The BCP identifies 10 Opportunity Sites for potential mixed-use development. Very few of these sites have been converted to mixed-use since the plan adoption in Burbank Center Plan (1997), pp. v. 37 Ibid. pp Ibid. pp. vii, Ibid. pp Exhibit D-25

26 Mixed-Use Development Standards Existing Conditions Report City of Burbank Mixed-Use Development Standards have the potential to provide clear standards for desired mixeduse projects, as they are submitted for review. 3. Special Considerations Based on the scale and intensity envisioned, the BCP includes three Mixed-Use Districts: City Center, City Center West, and South San Fernando. City Center west is identified as having the potential for conversion of under-utilized industrial properties to mixed-use and transit-oriented development, and San Fernando South as having the potential for recycling heavy industrial uses as mixed-use development. Table 4.1 Mixed-Use Place Types: Burbank Center Plan Reach of Employment & Commercial Increment of Mixed-Use Intensity Transition to Neighborhood Shared Parking Required Transit Potential Use Application Parcel Depth DISTRICT High Gradual High High Regional High Mod. Figure 4.1 Burbank Center Plan Allowable Locations for Mixed-Use Areas Mixed-Use is Potentially Permitted (per General Plan) Specific Plan Boundary 25 Exhibit D-26

27 Mixed-Use Development Standards Existing Conditions Report City of Burbank Media District Specific Plan (1991) 4. Location and Intent Located at the intersection of the 134 freeway and Alameda and Olive Avenues, the Media District Specific Plan area functions as a regional gateway into the southern edge of the City and a major national employment center. The Media District Specific Plan is described as a [g]rowthcontrol plan designed to dramatically reduce the amount of development which could occur under existing codes. 40 Surrounded by adjacent single-family neighborhoods, the Media District Specific Plan encourages uses that meet retail/service needs of the Media District business community, 41 Residential neighborhoods share close adjacency with large commercial buildings in the Media District Specific Plan area. (Source: Bing.com) while also protecting the adjacent neighborhoods from developments that do not support the intended character of the neighborhood. At the time of adoption, the Specific Plan noted the difficulty of expanding businesses under a 1.0 FAR, and it subsequently expanded development standards to allow up to 1.1 FAR and up to 15 stories in select locations. 42 The Specific Plan calls for the Media District to serve as the focal point for the adjacent studios with retail, entertainment, and compatible residential and commercial uses. Additionally, the Specific Plan seeks to unify the District across the 134 freeway by creating an active, pedestrian-oriented, mixeduse district with an emphasis on shared parking, ground-floor retail, and uses that serve the surrounding studios. 5. What Mixed-Use Development Standards Can Offer The Specific Plan emphasizes that mixed-use in this area should be primarily media-related and that new office developments should be owned by, or leased to the surrounding media and entertainment companies. 43 If the objective is to ensure that any housing and commercial uses within such mixeduse development is supportive of the continued success of the media and entertainment companies, it may be possible to define the preferred types of such development through the Mixed-Use Development Standards. The Specific Plan calls for significant buffers and cul-de-sacs between single-family homes and the commercial areas, intentionally separating commercial and residential uses. It may be possible to identify ways of providing pedestrian connections that promote shared access while not imposing unwanted congestion in the neighborhoods, such as vehicle traffic and overflow parking from retail and commercial activities. As such, the mixed-use development standards may enhance pedestrian- 40 Burbank Media District Specific Plan (1991). pp. i. 41 Ibid, pp Ibid, pp. xiii. 43 Ibid, pp Exhibit D-27

28 Mixed-Use Development Standards Existing Conditions Report City of Burbank oriented environments, public frontages and design elements that appropriately compliment and protect adjacent neighborhoods. The Media District is also envisioned to have a major improvement for multimodal transportation within the City. The Specific Plan calls for the creation of pedestrian-oriented environments that support greater reliance on alternative modes of transportation such as ridesharing, vanpools, walking, bicycling, public transportation and staggered work hours. 44 It also requires that Transportation Management Organizations (TMO) be formed for new commercial buildings over 25,000 sq. ft. and for large companies in order to promote transit use during peak hours. While the Media District is served by several bus lines (Burbank Pink/Green route, Metro 155/222, and Commuter Express), the majority of these routes occur south of the 134 freeway, with limited connections from the north side of the district to Downtown Burbank. Several stakeholders interviewed by the project team suggested consideration of future high-capacity, high-frequency transit service along Olive Avenue might better link this District to the existing Downtown Transit Center, which in-turn, could support mixed-use development by helping to reduce automobile traffic and enable active transportation modes. 6. Special Considerations The Media District Specific Plan is developed on a District scale and acts as a primary gateway and employment center for the City of Burbank. The intensity, size and scale of the existing development range from neighborhood-scale businesses to large regional commercial centers with buildings up to 15 stories. 45 Some of the parcels along the major corridors are less than 150 feet deep with singlefamily homes immediately adjacent. Thus new Mixed-Use Development Standards could provide strategies and standards for appropriate transitions between new development and the single-family neighborhoods. Table 4.2 Mixed-Use Place Types: Media District Shared Reach of Increment of Intensity Transition to Neighborhood Parking Required Transit Potential Employment & Commercial Use Mixed-Use Application Parcel Depth DISTRICT High Immediate High Med. Regional High Shallow Figure 4.2 Media District Specific Plan Allowable Locations for Mixed-Use Areas Mixed-Use is Potentially Permitted (per General Plan) Specific Plan Boundary 44 Burbank Media District Specific Plan (1991). pp Ibid. pp. xii. 27 Exhibit D-28

29 Mixed-Use Development Standards Existing Conditions Report City of Burbank Appendix A: Analysis of Zoning and Regulations Analysis by Lisa Wise Consulting December 11, 2015 Section Page Introduction 1 Residential Zones 4 Commercial Zones 7 Media District Overlay Zones 10 Burbank Center Overlay Zones 14 Magnolia Park Overlay Zones Exhibit D-29

30 Memo From: Lisa Wise Consulting, Inc. To: David Sargent, Sargent Town Planning Date: December 11, 2015 Re: Burbank Mixed-use Development Standards Ordinance: Zoning Analysis Introduction This memorandum reviews the intent, uses, and development standards of the 13 zones established in City of Burbank Zoning Code 1 that allow for mixed-use development. 2 The purpose of the review is to assess the degree to which each zone helps foster desirable mixeduse projects or places. For purposes of the memorandum, the 13 zones are categorized as shown in Table 1: Table 1. Zones that Allow Mixed-Use Development Zone Abbr. Residential High Density Residential Zone R-4 Commercial Commercial Limited Business Zone C-2 Commercial General Business Zone C-3 Commercial Unlimited Business Zone C-4 Media District Specific Plan Media District Commercial Zone MDC-2 Media District General Business Zone MDC-3 Media District Commercial/Media Production Zone MDC-4 Burbank Center Specific Plan Burbank Center Commercial Retail-Professional Zone BCC-1 Burbank Center Commercial Limited Business Zone BCC-2 Burbank Center Commercial General Business Zone BCC-3 Magnolia Park Overlay Magnolia Park Commercial Retail-Professional Zone MPC-1 Magnolia Park Limited Business Zone MPC-2 Magnolia Park General Business Zone MPC-3 The zones that allow mixed-use (as shown in Table 1) correspond to the General Plan land use categories which allow mixed-use as listed in Table 2. 1 Burbank, California Municipal Code Title 10. Referred to here as the Zoning Code. 2 With the exception of the R-4 zone. The R-4 zone is included in the analysis because the City often uses R-4 standards as a reference point for mixed-use projects. Exhibit D-30

31 Table 2. General Plan Land Uses that Allow Mixed-Use, Density and Intensity Land Use Designation Maximum FAR Maximum Residential Density (du/ac) Rancho Commercial N. Victory Commercial/Industrial Corridor Commercial Media District Commercial Golden State Commercial/Industrial South San Fernando Commercial Regional Commercial Downtown Commercial Key Findings Below is a list of key findings from the review: Parking space requirements and standards are a main hindrance to facilitation of mixeduse development in all zones. Although they allow the greatest density of all residential zones, the R-4 zone standards are not a suitable model for development standards for mixed-use projects, particularly the height, density, and setback standards. All zones are subject to residential compatibility standards. The compatibility standards are determined by distance rather than adjacency and may place unnecessary burden on mixed-use projects along main commercial corridors where all lots abut a residential property (such as Magnolia Boulevard, Burbank Boulevard, and Olive Avenue). Maximum densities (0.60 to 1.25 FAR outside of the downtown) deter achievement of necessary intensity to support walkable, mixed-use places along main corridors or in community centers. The density and height allowances in the downtown support vibrant walkable medium intensity mixed-uses places and buildings. All zones allow for a variety of non-residential uses, however the C-3, C-4, MDC-3, and MDC-4 zones allow potentially incompatible uses such as automobile repair and sales, manufacturing, and light industrial uses. Commercial zone standards do not support mixed-use environments due to height and density restrictions as well as lack of focus on relationship between the public and private realm. Under the Burbank Center Specific Plan, the commercial zones in the Specific Plan area (BCC-1, BCC-2, and BCC-3) mirror the development standards, but not uses, of C-1, C-2, and C-3. Although the Specific Plan s commercial zones allow uses supportive of mixeduse development, their development standards present the same constraints to mixed use development as C-1, C-2, and C-3. Of the zoning districts reviewed in this memorandum, the Magnolia Park Overlay Zone and Media District Specific Plan zones include development standards most conducive Exhibit D-31 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

32 to pedestrian mixed-use environments. Notably, these zones prohibit parking between the building façade and sidewalk and include building orientation and design standards. Other Considerations The analysis in this memorandum considers how each of the 13 zone standards function to support or prohibit desirable mixed-use projects in the City of Burbank. Other factors not addressed in this memorandum should be considered during the development of the Mixed- Use Development Standard Ordinance. Such factors include, but are not limited to: Permit and administration procedures, focusing on cost, clarity, and timing of the entitlement process; Density bonuses, procedures and incentives; Landscaping and open space standards; Miscellaneous incentives for mixed-use and/or commercial development; Market conditions supportive of non-residential development in the City; Flexibility of standards to adapt to market shifts; and Performance standards addressing compatibility of uses. Exhibit D-32 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

33 Residential Zone: R-4 One of the City s four residential zones allows for mixed-use development: High Density Residential Zone (R-4). Intent and Uses The R-4 zone is intended for high density multi-family development, with limited allowances for some non-residential uses with a Conditional Use Permit (CUP). 3 These conditional uses include civic structures such as fire stations, libraries, educational institutions, churches, and parks as well as low-intensity convenience grocery stores and medical offices. Overall use restrictions and absence of retail as an allowed use limit the ability of the R-4 zone to contribute to development of a walkable or vibrant mixed-use place. The R-4 zone does not allow mixeduse projects, but is often used to review the residential component of mixed-use projects in other zones. Accordingly, R-4 is reviewed here on the ability to contribute to a mixed-use project. Development Standards Density, height, and setback requirements for the R-4 zone, described in Table 3, are tailored to lot size and proximity to adjacent lower density residential areas. Densities on lots greater than 12,000 square feet encourage multi-family development that is dense enough to support a vibrant mixed-use neighborhood, yet, as noted above, use restrictions prevent the R-4 zone from accommodating mixed-use or creating a mixed-use environment. Maximum density requirements on smaller lots are more restrictive, which, when combined with other lot requirements, may constrain smaller scale multi-family projects. Front setback and landscaping requirements are more typical of suburban development than walkable urban places. Encroachments into the front setback are allowed for features that may enhance pedestrian comfort and enjoyment of the sidewalk (e.g., awnings and canopies) or create a defined public realm (e.g., decks, patios, and porches). 4 All structures must be oriented towards the street byway of entries, windows, balconies, or other architectural features, yet absence of specific design requirements miss an opportunity to foster greater interaction between the building, public thoroughfares, and adjacent uses. Parking requirements for the R-4 zone, described in Table 3, may contribute to an excess of parking garages and surface parking lots that are less appropriate to a mixed-use, pedestrianoriented neighborhood. Further, such parking uses may detract from the appearance of the streetscape. 3 Burbank, California Zoning Code Ibid Exhibit D-33 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

34 Table 3. R-4 Zone Development Standards Density (Min.) Lot <12,000 sf. Type Lot 12,000 sf. - 23,999 sf. Lot 24,000 sf. Height (Max.) 500 ft. from SF-zoned property Standard 1 unit/2,000 sf. [21 units/acre] 1 unit/1,400 sf. [31 units/acre] 1 unit/1,000 sf. [43 units/acre] 35 ft. (including roof/architectural features) or 2 stories > 500 ft. from SF-zoned property 50 ft. (including roof/architectural features) or 3 stories Lot Coverage (Max.) 500 ft. from SF-zoned property 60% > 500 ft. from SF-zoned property 70% Lot Size (Min.) Area Width Depth Setback (Min.) Front Interior Side Street-facing Side Upper Story (if adj. to SF property) Buffer side/rear yard (if adj. to SF property) Rear Parking Requirements (Min. per unit) Off-Street Tenant Studio < 500 sf. 6,000 sf. 50 ft. 100 ft. 15 ft. 5 ft. 10 ft. 5 additional ft. 20 ft. 5 ft spaces 1 BR > 500 sf spaces 2+ BR 2 spaces Off-Street Guest (per 4 units) Open Space & Landscaping Requirements (Min.) Common Open Space Area (per unit) Private Open Space Area (per unit) Private Open Space Dimensions 1 space 150 sf. 50 sf. 5 ft. Landscaped Lot Area 15% Landscaped Common Open Space Area 15% Exhibit D-34 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

35 Summary Although the R-4 zone does not allow for mixed-use, the City of Burbank often uses the R-4 development standards for the residential component of mixed-use projects. Development standards, specifically low maximum height requirements and single family residential compatibility restrictions, limit the applicability of the R-4 zone to low intensity neighborhood scale projects. Although the zone s building orientation, required pedestrian access, and variable densities may support viable mixed-use and pedestrian-scaled projects, R-4 s high parking requirements and large front setbacks have the opposite effect. The R-4 zone may accommodate low density mixed-use neighborhoods, although the same parking and setback requirements limit walkability. The conditional allowance of civic amenities and low-intensity medical office uses could potentially anchor the neighborhood around a defined civic corridor with a strong sense of identity. However, the creation of a vibrant mixed-use neighborhood is constrained by prohibition of neighborhood serving retail and service uses. Exhibit D-35 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

36 Commercial Zones: C-2, C-3, and C-4 Three of the City s four commercial zones allow for mixed-use development: Commercial Limited Business Zone (C-2), Commercial General Business Zone (C-3), and Commercial Unlimited Business Zone (C-4). Intent and Uses Commercial Limited Business Zone (C-2) The C-2 zone is intended for the development of retail centers serving the shopping and personal service needs of the surrounding residential areas. 5 The C-2 zone allows for a mix of residential and commercial uses, including residential-abovecommercial (i.e., vertical mixed-use development). A variety of medium to low-intensity civic, recreational, retail, and office uses are also allowed, with an emphasis on neighborhood-serving services appropriate for a walkable corridor. Commercial General Business Zone (C-3) The C-3 zone is intended for general business establishments and other commercial uses which are related directly to the highway for patronage. 6 The C-3 zone allows for a variety of commercial uses as well as vertical mixed-use development. Many uses allowed in the C-2 zone with a CUP are allowed in the C-3 zone by right. An array of higher intensity auto-related uses, such as automobile repair, towing, rental, body shops, dealerships and car washes, are permitted in the C-3 zone, consistent zone s intent of providing uses related to the highway. However, such a traffic-intensive zone may not be conducive to creating a desirable mixed-use, pedestrian-friendly environment. Commercial Unlimited Business Zone (C-4) The C-4 zone is intended for general commercial uses, including wholesale and warehousing establishments and certain restricted manufacturing activities. 7 The C-4 zone allows for all uses in the C-2 and C-3 zones including vertical mixed-use development as well as some light industrial and manufacturing uses. The light industry in this 5 Ibid Ibid Ibid Exhibit D-36 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

37 zone, such as research labs, moving van and storage yards, and light manufacturing, may be compatible with medium to high intensity mixed-use development so long as it does not create nuisances that disrupt residential use. Development Standards Density standards in the commercial zones vary widely depending on the underlying General Plan land use designation (see Table 2). The Corridor Commercial designation, intended for neighborhood-serving commercial businesses in a pedestrian-oriented environment, has a lower-intensity standard of 1.0 floor-to-area ratio (FAR) and 27 dwelling units per acre (du/ac). 8 Alternatively, the Downtown Commercial designation in the center of the city, far from residential neighborhoods, has a higher intensity of 2.5 FAR and 87 du/ac and is supportive of a dense, pedestrian-friendly environment. Building front setbacks (minimum of five to 14 feet depending on the building s height and proximity to residential, whichever is greater) 9 allow for a pedestrian-scaled environment supportive of a range of commercial activity. The absence side setback requirements allow buildings to create a street wall, which is a desirable characteristic of a compact commercial corridor. Building height is determined by its distance from the closest R-1, R-1H, or R-2 zoned lot (see Table 4). Buildings that are within 25 to 50 feet of a residentially-zoned property have a maximum height of 25 feet; while buildings located more than 300 feet from a residential-zoned property have a maximum height of 70 feet, and all buildings greater than 35 feet require a CUP. Although intended to allow for commercial development scaled to surrounding zones and uses, the standardized application of the height restrictions and CUP may unnecessarily constrain desirable mixed-use, residential, or commercial projects. Parking requirements, similar to the R-4 zone, are not tailored to project type, proximity to transit, availability of on-street parking, or other context-sensitive factors. Commercial-zoned lots must devote a minimum of 50 percent of front and exposed side yards to landscaping, 10 which can include pedestrian amenities such as outdoor seating and benches or decorative hardscaped areas under tree canopy. A minimum of one tree is required for every 40 linear feet of street frontage. 11 Surface parking lots must have a minimum front and side yard landscaped setback of four feet, and must be screened from public view through the use of a wall, landscaping, lowered elevation, or some other means. 12 Additional standards for commercial development include minimum 25 percent transparency of ground floor facades Ibid Ibid. 10 Ibid. 11 Ibid. 12 Ibid Ibid B. Exhibit D-37 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

38 Table 4. C-2, C-3, and C-4 Zone Development Standards Height (Max.) Type Adjacent to R-1, R-1H, or R-2 zone 0-24 ft ft ft ft. 300 ft. Adjacent to R-3 or R-4 zone ft. 300 ft. Setback (Min.) Front Side Corner Rear Standard C-2 C-3 C-4 Cannot build taller than distance from residential (25 ft. max) 25 ft. (roof/architectural features up to 35 ft.) 35 ft. (roof/architectural features up to 45 ft.) 50 ft. (roof/architectural features up to 65 ft.) with a CUP 70 ft. (roof/architectural features up to 85 ft.) with a CUP n/a 50 ft. (roof/architectural features up to 65 ft.) with a CUP 70 ft. (roof/architectural features up to 85 ft.) with a CUP 5 ft. or 20% of building height (the greater) None None None Intensity (Max.) See Table 3 Density (Max.) See Table 3 Parking garages setbacks Adjacent to R-1, R1-H, or R-2 Adjacent to R-3 or R-4 Open Space Requirements Adjacent to R-1, R1-H, or R-2 Adjacent to R-3 or R-4 20 ft. from residential property line 10 ft. from residential property line 20 ft. from residential property line, 5 ft. landscaped strip, no parking allowed 10 ft. from residential property line, parking allowed Parking Requirements See Zoning Code Landscaping Requirements Ground Floor Uses Min. 50% of front and side setback Min of one (1) tree for every 40 linear feet of street frontage Commercial Two commercial zones are located within Transportation Management District (TMD) overlays, which cap the allowable amount of office equivalent FAR (OE-FAR). 14 One C-2 zoned parcel is located in the Media District TMD, which establishes a maximum OE-FAR of 1.10, a 0.10 increase from the Corridor Commercial land use FAR. One C-3 zoned parcel is located in the 14 City of Burbank, Burbank 2035: General Plan, Chapter 4. Mobility, (2013), 6-7. The City has established Transportation Management Districts (TMDs) to optimize performance of the transportation system. Non residential land uses must conform to the Floor Area Ratio (FAR) and not exceed the Office Equivalent Floor Area Ratios (OE FAR) for their TMD for mobility purposes. The City will use OE FAR as a cumulative threshold for future projects subject to traffic analysis pursuant to the California Environmental Quality Act (CEQA). The OE FAR values apply to office development and are used to determine trip generation associated with any individual property or proposed use. To determine the equivalent square footage for land uses other than office, a conversion factor must be used. OE FAR applies to both non residential and mixed use projects. For mixed use projects, the residential portion of the project will be converted to equivalent square footage, and the residential equivalent square feet will be added to the non residential square feet to determine the OE FAR of the project (ibid., 6). Exhibit D-38 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

39 Empire TMD, which establishes a maximum OE-FAR of 1.25, no change from the Regional Commercial land use FAR. Summary The development standards, except for parking requirements, in the C-2, C-3, and C-4 zones suggest all three commercial zones can accommodate a variety of mixed-use commercial projects or places, from lower intensity pedestrian scaled mixed-use corridor or neighborhoods contexts in the C-2 and C-3 zones to higher intensity employment and service oriented mixeduse buildings in the C-4 zone, although the latter being less pedestrian friendly than the former. Furthermore, setback and parking landscaping requirements help improve street aesthetic, with ground floor window requirements encouraging street-level activity. However, the zone s location in the city, high parking requirements, and compatibility restrictions combine to reduce the ability of the zone to meet critical density for vibrant mixeduse environments and to accommodate more than a two to three-story building. Commercial development that is part of a mixed-use project with more than one non-residential use and less than one acre in size is considered a mini-mall, which triggers the City s highest parking requirement of ten spaces per 1,000 square feet. This onerous standard increases the cost of development, which may make a desirable project financially infeasible. Single-family compatibility requirements constrain achievement of maximum densities or intensities in commercial areas, particularly since C-2, C-3, and C-4 zones are generally applied only one parcel (typically less than 100 feet) deep along major corridors and directly back onto R-1 zones. Such standards limit height along all major corridors (Burbank Boulevard, Magnolia Boulevard, and Olive Avenue) to 25 or 35 feet, unless regulated by a specific plan. Reliance on height as the single compatibility requirement discounts the ability of building orientation, frontage, and massing standards to ensure compatible commercial or mixed-use development adjacent to, or within, residential areas. The inclusion of light industrial and manufacturing uses in the C-4 zone does not necessarily preclude a vibrant mixed-use environment, particularly given other uses allowed within the zone. A mix of light industry and residential uses could potentially make for a diverse mixeduse neighborhood with a good balance of jobs and housing. In these instances, building or site design guidelines will help ensure connectivity and safety in vehicle dominated areas. Media District Overlay Zones: MDC-2, MDC-3, and MDC-4 The Media District Overlay was adopted in 1991 along with the Media District Specific Plan in order to control commercial and industrial growth and to protect the character of adjacent Exhibit D-39 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

40 single family areas. 15 Three of the City s four Media District Overlay zones allow for mixed-use development: Media District Limited Commercial Zone (MDC-2), Media District General Business Zone (MDC-3), and Media District Commercial/Media Production Zone (MDC-4). The Media District Overlay zones regulate land use, density, height, and setback requirements for commercial and industrial land in the Media District. They also provide standards for parking, landscaping, lighting, walls, fences, and signs. All three overlay zones allow for a range of media services such as motion picture studios, sound mixing, sound stages, and broadcasting/recording studios. Intent and Uses Media District Limited Commercial Zone (MDC-2) The MDC-2 is intended to serve the retail/service needs of the Media District business community and the adjacent residential neighborhood. 16 The MDC-2 zone allows for a range of low to medium-intensity retail, civic, and office uses which serve the surrounding neighborhood and region, as well as residential use above commercial for vertical mixed-use. Nearly all auto-related land uses are prohibited, which supports a walkable, pedestrian-friendly environment. Media District General Business Zone (MDC-3) The MDC-3 is intended for general business establishments and other commercial uses which meet the goals and intent of the Media District Overlay Zone. Like the MDC-2 zone, the MDC-3 zone allows for a range of low to medium-intensity retail, civic, and office uses that serve the surrounding neighborhood and region. Also like the MDC-2 zone, the MDC-3 zone allows residential use above commercial and prohibits most auto-related land uses. The most salient distinction between MDC-2 and MDC-3 is that MDC-3 allows by CUP several medium intensity land uses prohibited in the MDC-2 zone, including pawn shops, dry cleaning plants, research and testing laboratories, and newspaper printing. Motion picture studios are permitted in the MDC-3 zone. 15 City of Burbank, The Burbank Media District Specific Plan, (1991), Burbank, California Zoning Code Exhibit D-40 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

41 Media District Commercial/Media Production Zone (MDC-4) The MDC-4 is intended for general business establishments, other commercial uses and certain restricted media production activities. Its allowable land uses are nearly identical to those of the MDC-3 zone, with the MDC-3 allowing more uses by right.. Development Standards As stated in the density standards prescribed in the General Plan (see Table 3), development in the Media District Overlay Zone cannot exceed an FAR of 1.10, with the exception of the land uses listed in Table 5. The allowable density for these exceptions is based on office equivalent gross square feet (OE-GSF), a concept which allows more floor area for uses which generate less peak-hour trips per square foot than general office buildings, using the following formula: Lot Size x Office FAR (1.1) x Office Equivalency Factor (see Table 5) = Allowable Floor Area. 17 As shown below, the lower the OE-GSP, the lower the allowable square footage for the use. For example, a 10,000 square foot lot allows 11,000 square feet of office (1.0 = 1.0) or 5,940 of medical office (0.54 = 1.0). 18 Table 5. MDC-2, MDC-3, and MDC-4 Density Exceptions Land Use General Office and Commercial Medical Office Light Industrial Warehousing Hotel Motel Multi-Family Residential Hospital Media Office Media Workshop Warehouse Storage Stage Areas Office Equivalency Factor 1.00 sf = 1.0 OE sf 0.54 sf = 1.0 OE sf 1.90 sf = 1.0 OE sf 1.26 sf = 1.0 OE sf 2.97 (rooms/1,000 OE sf) 3.15 (rooms/1,000 OE sf) Limited by Burbank Municipal Code; 1 du = 297 OE sf Non-profit hospital space not limited by FAR; 1.24 sf = 1.0 OE sf office 1.33 sf = 1.0 OE sf 9.60 sf = 1.0 OE sf sf = 1.0 OE sf 6.34 sf = 1.0 OE sf As shown in Table 6, setback and height requirements in the Media District Overlay Zones are similar to those in the commercial zones (C-2, C-3, and C-4) with variable height limits depending on proximity to residential uses, no side setbacks, and front setbacks that increase proportional to building height. Outside dining and single story retail structures may encroach into the required setback, encouraging street level activity. Parking requirements are the same as other zones in the City not adjusted based on the corresponding context. The City may, however, approve a CUP for a parking reduction for a restaurant if the business owner can 17 Ibid Ibid. Exhibit D-41 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

42 prove the restaurant is primarily served by foot traffic from nearby employment centers. 19 In the Media District Overlay Zones surface parking is prohibited along the street frontage if located on a designated as a primary or secondary pedestrian route. This parking location requirement re-locates parking to the side or the rear or the building, which can improve the streetscape aesthetic for pedestrians and reduce pedestrian-auto points of conflict. In addition to basic development standards, the Media District Overlay Zone provides transportation demand management provisions 20 and design standards 21 requiring active ground floor uses in certain areas, continuous retail frontage, pedestrian access, pedestrian scale building design, and other architectural and site plan standards including color, materials, and hardscape. Table 6. MDC-2, MDC-3, and MDC-4 Development Standards Type Standard Commercial Zone Industrial Zone Height (Max.) 0-25 ft. from R-1, R-1H, or R-2 zone Cannot build taller than distance from residential (25 ft. max.) ft. from R-1, R-1H, or R-2 zone 25 ft. (roof/architectural features up to 35 ft.) ft. from R-1, R-1H, or R-2 zone 35 ft. (roof/architectural features up to 45 ft.) ft. from R-1, R-1H, or R-2 zone 50 ft. (roof/architectural features up to 65 ft.) w/ CUP ft. from R-1, R-1H, or R-2 zone 70 ft. (roof/architectural features up to 85 ft.) w/ CUP >500 ft. from R-1, R-1H, or R-2 zone 15 stories (up to 205 ft.) w/ CUP Setbacks (Min.) Street Right-of Way 5 ft.; 20% of bldg. height if taller than 15 ft. Lot line of R-1, R-1-H, or R-2 20 ft. 20 ft. Lot line of R-3 or R-4 5 ft. 15 ft. Intensity (Max.) See Table 3 Density (Max.) See Table 3 Lot Size (min) 4,800 sf 1 acre Street Frontage (min) 20 ft. 100 ft. Lot Width (Average) 40 ft. 100 ft. Parking Lot Setbacks (Min.) Street Right-of-Way 5 ft. 5 ft. Lot Line of R-1 or R-1-H 5 ft. 15 ft. Parking Requirements See Zoning Code C. Landscaping Requirements Required for all setback and non-paved areas; 1 tree per 20 linear ft. of front and side yard All of the MDC zones are located within the Media District TMD, with an established maximum OE-FAR of 1.10 (no change from Media District Land Use FAR). 19 Ibid D Ibid et seq. 21 Ibid et seq. Exhibit D-42 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

43 Summary Overall, development and design standards in the Media District Overlay Zones foster development of low or medium intensity pedestrian-friendly, mixed-use places suitable for corridors or neighborhood center contexts. The use of OE-GSF limits development of certain traffic-inducing uses, which would not typically contribute to a walkable neighborhood (e.g. light industrial, warehousing). The zones setbacks for small-scale retail space or open-air restaurants, prohibition of surface parking along street frontages, requirements for pedestrian oriented lighting and landscaping work together to enhance the pedestrian experience. Uses allowed in the Media District Overlay Zones are generally conducive to mixed-use development due to their intensity and orientation toward neighborhood-serving retail, office, and recreational business as well as the exclusion of most auto-centric land uses. All three zones allow media services, such as film studios, sound mixing/editing and broadcast/recording studios, providing a stable employment base for area residents. As such, design standards to concentrate pedestrian active uses along key corridors within the Media District Overlay helps create walkable mixed-use places while accommodating larger light industrial, auto-dependent employment uses. Burbank Center Overlay Zones: BCC-1, BCC-2, and BCC-3 The Burbank Center Overlay Zones regulate land use, density, height, setbacks, parking, landscaping, and signs and provide design standards around the Burbank Center. Three of the four Burbank Center Overlay Zones allow for mixed-use development: Burbank Center Commercial Retail-Professional Zone (BCC-1), Burbank Center Commercial Limited Business Zone (BCC-2), and Burbank Center Commercial General Business Zone (BCC-3). These zones also consider transportation demand strategies, including the reduction of traffic impacts of future development by decreasing the dependency of future employees on private vehicles by providing viable public transit alternatives Ibid Exhibit D-43 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

44 Intent and Uses Burbank Center Commercial Retail-Professional Zone (BCC-1) The BCC-1 zone is intended for commercial retail and office uses geared towards a downtown village concept, including an allowance for residential uses above commercial uses on the same property. 23 A mix of retail, office, and service-oriented businesses appropriate for neighborhood and regional centers are allowed in the BCC-1 zone. Consistent with BCC-1 s intent to promote public transit alternatives, vehicle-related uses (except for surface and structure parking) are prohibited in this zone. Burbank Center Commercial Limited Business Zone (BCC-2) The BCC-2 zone is intended for the development of retail centers and commercial and professional office complexes serving the shopping and personal service needs of both the surrounding residential areas and the region. 24 As such, this zone is slightly more permissive of vehicle related uses (e.g., auto parts sales and repairs) and may allow higher-intensity uses such as hospitals, equipment sales and servicing, and wholesale businesses. This zone is also more permissive of media services such as film editing, sound editing, and studio recording. Burbank Center Commercial General Business Zone (BCC-3) The BCC-3 zone is intended specifically for businesses and commercial uses which are compatible with mixed-use development and residential projects. These business establishments should rely on the traffic in abutting arterials, and on residents living in mixeduse projects in this zone and adjacent residential areas, for patronage. 25 Uses in the BCC-3 zone include low and medium-intensity retail, office, and business uses that service the area and surrounding region, as well as media services industries. Some vehiclerelated services may be conditionally permitted, such as auto dealerships, paint and body shops, auto repair and rental, and truck rental. Development Standards Development standards within the Burbank Center Overlay Zones (BCC-1, BCC-2, and BCC-3) mirror the development standards of the base commercial zones (C-1, C-2, and C-3) as 23 Ibid Ibid Ibid Exhibit D-44 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

45 described in Tables 3 and 4 26 of this memorandum, with four exceptions. Under the Burbank Center Overlay Zones: 1. Residential uses are allowed with a CUP on all non-ground floors of any structure with density and standards as required in the R-4 zone, except for setbacks which shall conform to the BCC-2, BCC-3, or BCC-4 zone; 2. Residential uses are allowed as a ground floor use in a select portion of the BCC-3 zone, subject to standards of the R-4 zone; 3. A CUP is not required for heights in excess of 35 feet, if in compliance with other height restrictions based on zone adjacency; and 4. Parking may not be located between the building and the street if located along a primary or secondary pedestrian route. As such, the standards in the Burbank Center Overlay Zones can accommodate a variety of and mixed-use commercial environments, subject to the same constraints with respect to parking requirements and residential compatibility restrictions as the three commercial zones. Several of the BCC zones are located within TMD overlays, which establish maximum OE-FAR. The BCC-1 and BCC-2 zones are located in the City Center TMD which limits the maximum OE-FAR to 2.0 (a 0.50 reduction in FAR from Downtown Commercial land use FAR). The BCC- 3 zone is located in the City Center West TMD which limits the maximum OE-FAR to 1.0 (no change from North Victory land use FAR). Summary Development and design standards, including setbacks, landscaping, density, and height, as described for the commercial zones, suggest that the Burbank Center Overlay Zones support medium to high intensity mixed-use development. High parking standards, even if prohibited along the street frontage, can lead to excess parking, increased cost of development, loss of intensity, and act as a key impediment to creation of pedestrian friendly corridors or neighborhood centers. However, location of the BCC-1, BCC-2, and BCC-3 zones away from lower density residential areas reduces the height constraint the compatibility standards posed in the C-2, C-3, and C-4 zones. The setback requirements should be reduced to emphasize relationship between building, sidewalk, and overall walkability of the area. Although the BCC- 3 zone is expressly intended for mixed-use development, permissive zoning toward autorelated uses could create conflict with pedestrian oriented goals. However, transportation demand management strategies are intended to help reduce overall auto dependence in the area. 26 The standards of the C-1 zone are the same as the C-2, C-3, and C-4 zones. Exhibit D-45 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

46 Magnolia Park Overlay Zones: MPC-1, MPC-2, AND MPC- 3 The Magnolia Park Overlay Zones were adopted in 1998 in order to revitalize the neighborhood and promote a more pedestrian-oriented atmosphere. According to the General Plan, the vitality of the commercial corridors in this area will depend on the creation of a series of distinct clusters of pedestrian oriented retail areas supported by sufficient, conveniently located parking facilities, with the goal of establishing a multiple-destination shopping district. 27 All three of the Magnolia Park Overlay Zones allow mixed-use development: Magnolia Park Commercial Retail-Professional Zone (MPC-1), Magnolia Park Commercial Limited Business Zone (MPC-2), and Magnolia Park Commercial General Business Zone (MPC-3). The Magnolia Park Overlay Zones regulate land use, density, height, parking, and setback requirements for commercial development in the Magnolia Park neighborhood. They also address design standards for building orientation and building design. Intent and Uses Magnolia Park Commercial Retail-Professional Zone (MPC-1) The MPC-1 zone is intended for commercial, retail and office uses geared towards a pedestrian-oriented village concept 28 and allows for vertical mixed-use development. The uses in this zone are restricted to low-intensity, neighborhood-serving businesses and retail, and prohibits all industrial/manufacturing, transportation, and vehicle-related uses. Magnolia Park Limited Business Zone (MPC-2) The MPC-2 zone is intended for commercial uses that rely on both arterial traffic and the adjacent residential areas for patronage and for offices and mixed-use residential projects that support the larger community 29 and allows for vertical mixed-use development. Slightly more permissive in medium-intensity uses than the MPC-1 zone, the MPC-2 zone allows for businesses that support the greater area such as medical clinics and labs, and may allow a range of vehicle-related services such as dealerships, repair, service stations, and car washes. 27 City of Burbank, Burbank 2035: General Plan, Chapter 3. Land Use Element, (2013), Burbank, California Zoning Code Ibid. Exhibit D-46 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

47 Magnolia Park General Business Zone (MPC-3) The MPC-3 zone is intended for general commercial uses that provide goods and services to the surrounding residential areas and for office and mixed-use complexes that are compatible with adjacent land uses 30 and allows for vertical mixed-use development. Similar to the MPC-2 zone, both low and medium-intensity uses are permitted in the MPC-3 zone which serve both the neighborhood and the greater surrounding area. Development Standards Density and intensity standards within the Magnolia Park Overlay Zones mirror those of the commercial zones (C-2, C-3 and C-4) as described in Table 3 of this memorandum. The Magnolia Park Overlay Zones are regulated primarily by the General Plan s Corridor Commercial land use, which FAR of 1.0 and residential density of 27 units per acre. Although mix of uses and design standards, discussed below, are conducive to neighborhood center development, low FAR and density may prevent achievement of the local intensity needed to support ground floor commercial uses. Development standards, such as setbacks and height, in the Magnolia Park Overlay Zones are intended to encourage a pedestrian-oriented commercial environment. The standards emphasize the storefront-to-street relationship by requiring storefront frontages and pedestrian sidewalk access in order to create a well-defined public realm (see Table 7). Requirements for 80 percent of non-residential ground floor uses to be built to the front of property line ensures streetscape continuity to promote walkability. Standards for window placement and visibility enhance the visual interest of storefronts and foster commercial activity. All structures are required to be oriented toward the street and to have easy access from the sidewalk, which further serves to create a welcoming and pleasant atmosphere for pedestrians. The MPC-1 and MPC-2 zones set design standards for surface parking areas and parking structures, with particularly stringent requirements in the MPC-1 zone. Surface parking in the MPC-1 zone must be located behind commercial structures with access routes only from side streets or rear alleys. Parking structures in the MPC-1 zone must utilize the ground floor for retail or other permitted uses with direct access to the sidewalk. Shared parking is allowable within the MPC-1 zone. 31 MPC-2, however, allows for surface parking areas to be located adjacent to Hollywood Way (with the use of landscaping and walls to obscure them from public view), and parking structures may utilize the ground floor for parking Ibid Ibid Ibid. Exhibit D-47 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

48 Table 7. MPC-1, MPC-2, and MPC-3 Zone Development Standards Standard Type MPC-1 MPC-2 MPC-3 Height (Max.) 27 ft. from grade (roof/architectural features up to 35 ft. if at 45 degree angle) Height w/ CUP (Max.) 0-25 ft. from any residential zone 1 foot per 1 foot distance (max of 25 ft.) NA ft. from any residential zone 25 ft. (roof/architectural features up to 40 ft.) NA ft. from any residential zone 35 ft. (roof/architectural features up to 50 ft.) NA >150 ft. from any residential zone 50 ft. (roof/architectural features up to 65 ft.) NA Setbacks (Min.) Front Side Rear Corner Ground level of all structures built to front property lines for min. of 80% of linear frontage (open-air restaurants an exception) None None None Intensity (Max.) See Table 3 Density (Max.) See Table 3 Open Space Requirements Adjacent to R-1 or R-2 Adjacent to R-3 or R-4 Orientation Requirements Visibility Requirements Parking Design Standards Surface Parking Parking Structures 20 ft. from residential property line, no parking allowed 10 ft. from residential property line, parking allowed All structures have primary access way from front sidewalk (except where access is from paseo or internal passage) Min. of 50% of front-facing ground floor constructed of glass and visible from 3 ft. above level of sidewalk Located behind commercial, access from side street/rear alley Ground floor used for retail with direct access to sidewalks, vehicle access from side street or alley only May be located adjacent to Hollywood Way Ground floor may be used for parking, vehicle access allowed from Hollywood Way Visibility Standards Parked vehicles shall be screened NA Building Design Standards Storefronts Require use of canopies and/or awnings; Encourage decorative architectural ornamentation NA NA Style/Material/Color Access/Circulation Encourage compatibility with surrounding buildings Direct and convenient sidewalk entry with recessed area required; Incorporation of paseos, small courts, plazas and landscape features encouraged None of the MPC zones are located within a TMD overlay, FAR remains as described in Table 3. Exhibit D-48 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

49 Summary The standards and allowed uses in the Magnolia Park Overlay Zones are consistent with the area s intent to promote a pedestrian oriented atmosphere with mixed-use development. Further, the uses and standards are ideal for corridor or neighborhood center mixed-use contexts. Requirements for building design, orientation, and build-to lines coincide to create walkable streets with strong emphasis on creating a sense of place sensitive to existing neighborhood character. By considering the building-to-building and building-to-street relationships along corridors, Magnolia Park is one of the few areas in the City where development standards work together to create a mixed-use place rather than mixed-use projects. Requiring ground floor building frontages and pedestrian access, prohibiting parking in front of buildings or adjacent to main thoroughfares, allowing for shared parking, buffering parking lots from public view through the use of walls and landscaping all create an inviting built environment that encourages greater pedestrian activity. Exhibit D-49 lisawiseconsulting.com 983 Osos Street, San Luis Obispo, CA of 20

50 Appendix B Stakeholder Interviews Burbank Mixed-use Development Standards Interviews conducted on December 3, 2015 and February 9, 2016 Interviewees Tim Behunin Del Rey Properties Jim O Neil, Crown Realty Irwin Yau TCA Architects Tom Lim City of Burbank Sharon Springer Sustainable Burbank Coalition Michael Cusumano Cusumano Real Estate Group Rick Villalovos Building Inspection Manager, City of Burbank Vic Kazangian Principal, Royal Oaks Development Chris Thompson License & Code Manager, City of Burbank Jim Casey Resident, Preserve Burbank Jay Geisenheimer, Robert Mills, Noreen Reardon Rancho Review Board Gail Nicols Save Burbank Neighborhoods Ken Truitner Village Walk Resident Brian Foote Senior Planner, City of Burbank Mary Dickson, Patrick Dickson, Mike Hollis Walk Bike Burbank Interviewers Scott & Lisa Frank City of Burbank David Sargent & Gabriel Barreras Sargent Town Planning Lisa Wise Lisa Wise Consulting David Sabunas Studio One Eleven Exhibit D-50

51 Stakeholder Interviews The following information and opinions were shared with the interview team, and have been paraphrased and grouped by general topic for clarity and brevity. I. GENERAL ATTITUDES City Staff is generally supportive and helpful through the development process. At times, the plan review process requires unnecessarily high construction detailing early in the process. All interviewees generally supported Mixed-Use Development, providing that it is consistent with the intentions of the General Plan. II. NEIGHBORHOOD PROTECTION/PRESERVATION The majority of interviewees stated their desire to protect the small-town character of Burbank neighborhoods from out-of-scale housing and commercial development. Another key concern was that unmet parking demands from businesses tends to spill over into neighborhood streets. Several residents suggested the idea of using bicycle officers to enforce shared parking regulations, and improve safety in mixed-use areas. Many young families would like to live in Burbank because of the strong school system, but the lack of housing choices makes it difficult. III. EXISTING REGULATIONS Mixed-use development in a commercial zone requires at a minimum the issuance of a Conditional Use Permit (CUP) by the Planning Board, but many developers elect to concurrently pursue a Planned Development approval by the City Council due to the increased flexibility and ultimate certainty of that process. The Zoning Code and General Plan both identify maximum residential densities (D.U.A.) and nonresidential Floor Area Ratios (F.A.R.), and in many cases it is not clear whether those maximums are alternative or additive. The relatively high mini-mall parking standard (10 spaces / 1,000 SF) applied to the commercial portions of mixed-use projects is viewed by many developers as unnecessarily high, and a disincentive to new mixed-use development. Several people interviewed suggested that if clear Mixed-Use Development Standards are adopted, they might allow for the approval of small (10 to 20 dwelling units) mixed-use projects through the Administrative Use Permit (AUP) process without requiring a CUP. Exhibit D-51

52 IV. MIXED-USE RECOMMENDATIONS Any new standards should give property owners the flexibility to change ground-floor uses over time to respond to market conditions. Multiple interviewees recommended that shared parking studies/districts might identify locations where share parking strategies could be implemented to support for future mixed-use projects and areas. The City might introduce a walkability index as another measure to determine the value of proposed projects. Most interviewees indicated that 2-3 story building heights were generally appropriate along commercial corridors. 4-6 stories were seen as likely appropriate in industrial and large commercial areas, such as Flower Street and large commercial centers. Interviewees thought 7-15 stories may be appropriate in key locations, primarily major employment centers and near major transit centers. Mixed-use standards should emphasize the need for and value of outdoor patio/dining areas. Mixed-use projects provide valuable residential options for younger professionals/families and seniors. Many of the City's corridors have small/shallow lots; new Mixed-Use Standards should provide some typologies that are appropriate for these places. Some previous mixed-use projects have employed low-quality materials that do not age gracefully; future development should encourage high-quality durable projects. Recently added bike lanes to Verdugo Avenue are underutilized multiple interviewees recommended that future bike lanes be prioritized for routes likely to experience higher levels of bike traffic. V. ECONOMIC DEVELOPMENT Residents stated that future mixed-use developments should be attractive not just from the street, but also from neighboring properties, should be of a size and scale compatible with their surroundings, with architectural design that provides some variety but still compliments the existing homes and buildings. Such projects would be expected to have a positive impact on the economic value of the neighborhood. Interviewees stated that future mixed-use developments should provide housing at a number of socioeconomic levels. Most recent mixed-use projects only provide relatively high-priced housing. Retail spaces in future mixed-use projects should be targeted to Burbank s small, locally owned businesses, not just franchises and chains. Multiple interviewees indicated that small neighborhood markets at the edges of existing neighborhoods along corridors are a great amenity of which there used to be more but that new ones are discouraged by the relatively long, cumbersome approval process and high parking requirements. Exhibit D-52

53 VI. ENTITLEMENT PROCESS Under the current system, project review is very time consuming for the applicant and for the City whether they prove to be desirable/approved projects or undesirable/denied projects. It would be great if Mixed-Use Development Standards enabled the more timely approval of projects consistent with the standards, and more timely denial of projects that are not. Projects that are vetted by City Planning and review committees are sometimes denied at City Council without a clear explanation of the reasons for denial. Interviewees suggested a 2-tier review process to determine if the City is generally supportive of a proposed project before getting too far along in the design process. Mixed-Use Development Standards could play a valuable role in both stages of the process. Developers are reluctant to request bonus densities for which they might be eligible, exceptional project status, parking reductions, or other variances given a perception that proposals will be denied, even if the project complies with applicable General Plan policies. It was suggested that the City and developer co-sponsor open house sessions to inform neighbors of proposed development projects and provide a forum for hearing and responding to their concerns. It was felt that such a forum prior to and separate from formal project approval hearings could be useful in identifying and addressing issues earlier in the project design and review process. VII. PRECEDENTS & DESIGN Several interviewees referenced the Americana as an acceptable mixed-use form that might be an useful precedent for new commercial centers. Residents noted that Ranch, Spanish Revival and Streamline/Deco architectural styles are among those characteristic of Burbank. Exhibit D-53

54 Mixed-Use Development Standards Existing Conditions Report City of Burbank Appendix C: Examples of Existing Mixed-Use Development in Burbank Burbank Mixed-use Development Standards Exhibit D-54 40

55 EXISTING MIXED-USE BUILDINGS Wokcano 150 S San Fernando Blvd BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-55

56 EXISTING MIXED-USE BUILDINGS E Palm Ave BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-56

57 EXISTING MIXED-USE BUILDINGS 240 N San Fernando Blvd BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-57

58 EXISTING MIXED-USE BUILDINGS 801 S Glenoaks Live-Work BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-58

59 EXISTING MIXED-USE BUILDINGS 2100 Magnolia Blvd BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-59

60 EXISTING MIXED-USE BUILDINGS 3420 W Burbank Blvd BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-60

61 EXISTING MIXED-USE BUILDINGS 438 N Glenoaks Blvd BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-61

62 Mixed-Use Development Standards Existing Conditions Report City of Burbank Appendix D: Recent Mixed-Use Development Proposals in Burbank Burbank Mixed-use Development Standards Updated February 13, 2016 Exhibit D-62

63 RECENT MIXED-USE PROPOSALS 550 N 3 rd St 550 N 3 rd St DENIED (details next slide) First Street Village Palm Ave and Magnolia Ave at 1st St Seeking entitlement The Premier on First Verdugo Ave and Tujunga Ave at 1 st St Seeking entitlement Royal Oaks Development 1701 W Verdugo Ave Under construction Talaria 3104 W Olive Ave Under construction BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY Exhibit D-63

64 RECENT MIXED-USE PROPOSALS PROJECT First Street Village Talaria The Premier on First Royal Oaks Development 550 N 3 rd Street DEVELOPMENT PROFILE PARKING Zone BCC-2 (Burbank Center Commercial Ltd. Business) PD (Planned Development) BURBANK MIXED-USE DEVELOPMENT STANDARDS PERMITTED MIXED-USE LOCATION SUMMARY BCC-2 C-2 (Commercial Ltd. Business) Application Date July 2014 May 2013 July 2015 Oct Dec Status Seeking entitlement Under construction Seeking entitlement Under Construction DENIED (Jan. 2015) Location Mixed-use Type Palm Ave and Magnolia Ave at 1 st St Residential above Commercial 3401 W Olive Ave Residential above Retail and Grocery Verdugo Ave and Tujunga Ave at 1 st St Residential; Hotel or Office; Retail and/or Restaurant BCC W Verdugo Ave 550 N 3 rd St Residential above Retail Residential above Retail Height 5-story 5-story 14-story 2-story 6.5-story Acreage 2.99 AC 3.86 AC 1.78 AC ±0.32 AC ±0.69 AC Residential Density 94.6 DU/AC 63 DU/AC 86.5 DU/AC ±37.5 DU/AC (12 Units) ±140 DU/AC (97 Units) FAR Parking Type 2-level subterranean; ground 2.5-level subterranean; ground Parking Space ALT 1: Hotel (1.9 FAR) ATL 2: Office (2.2 FAR) Subterranean; podium surface parking 448 (Residential) (ALT1) or 439(ALT2) Exhibit D-64 Subterranean 23,689 SF (±60 Spaces) Subterranean 189