DATE: May 12, 2016
TO: Planning Commission
FROM: Planning Manager
SUBJECT
Title
Proposed Subdivision and Construction of Twenty-Three (23) Single-family Homes and Related Site Improvements Located at the Northeastern Corner of Olympic and Huntwood Avenues Requiring Zone Change from Single-Family Residential District to Planned Development (PD) District and Approval of Vesting Tentative Map (Tract 8302) for Olympic Station Subdivision (Application No. 201504833); Applicant: Fortbay Woods, LLC
Recommendation
RECOMMENDATION
That the Planning Commission recommends the City Council approve the proposed Zone Change and Vesting Tentative Map to construct twenty-three (23) small-lot single-family homes, and adopt the Initial Study and Mitigated Negative Declaration prepared for the project, subject to the Findings in this report and the attached Conditions of Approval (Attachment V).
Body
SUMMARY
The proposed development would rezone the subject site from RS B4 Single Family Residential Special Lot Combining district, minimum lot size of 4,000 square feet, to a Planned Development district in order to construct a twenty-three (23) unit, small lot single-family detached residential neighborhood on approximately 2.5 gross acres. The proposed development, located at the northeast corner of Olympic and Huntwood Avenues, would replace the existing industrial use, a trucking yard, and finish out the existing residential neighborhood consistent with the General Plan Land Use Designation of Limited Medium Density Residential (see Area and Zoning Map, Attachment I).
The proposed homes are well designed, integrating a mix of materials, colors, and architectural features, including front porches on many of the homes. A private open space/park area has been integrated into the development for the use of the residents as well as other amenities in the homes to support the required PD District findings, including a solar photovoltaic system for each unit, as described in this report.
BACKGROUND
The proposed project consists of four parcels totaling approximately 2.5 gross acres. The site is bordered by Holyoke, Olympic, and Huntwood Avenues on the east, south, and west, respectively; and is bordered by multi-family residential to the north (Attachment II). The residential neighborhood to the east and south is standard lot size single-family residential, and to the west across Huntwood Avenue is a mobile home park (New England Village)
The proposed subdivision is generally requesting to vary from the lot standards of the B4 Special Lot Combining district which requires a minimum lot area of 4,000 square feet and many of the other lot and yard requirements of the RS Single-Family Residential district. The overall shape of the site presents challenges in laying out a typical single-family subdivision similar to the surrounding single-family residential neighborhood. As proposed, the project maintains a density at approximately eleven (11) dwelling units per net acre, consistent with the General Plan density of 8.7 to 12 dwelling units per net acre.
DISCUSSION AND STAFF ANALYSIS
Project Description
The existing single-family structure on site is used as the office for the trucking operation. There are no other improvements on the property and there are a limited number of trees populating the site. This project will bring together four parcels under different ownership into a single comprehensive development proposal leaving no remaining undeveloped land.
The proposed subdivision includes 23 single-family detached homes on lots ranging from 2,747 square feet to 4,860 square feet. The proposed lots would front on both the public streets and a proposed new private street. The proposed homes are two-story ranging in size from 2,216 to 2,341 square feet, all with enclosed two-car garages. A private open space area has been integrated into the project for the use by the residents (Attachment III).
Site Plan and Circulation
As discussed above, the subject site is located at the edge of an existing single-family neighborhood, bordered by public streets including Holyoke, Olympic and Huntwood Avenues. Olympic Avenue is one of two streets that carry residents of the existing neighborhood out to Huntwood Avenue, Folsom Avenue being the other street to the north of the project site. This fact is what directed the site plan to be designed to have the proposed private street narrowed to discourage the use of it for cut-through traffic. The private street has also been designed through the inclusion of a “bulb out” to allow a right-turn only out onto Huntwood Avenue. To ensure that this movement happens, the median island in Huntwood Avenue will be extended to prevent any unprotected left turn from the private street as well as any left turns into the project from Huntwood Avenue.
The private drive is proposed at 21 feet wide at the intersections with Holyoke and Huntwood Avenues, widening out to 29 feet with parking on one side in the middle of its length. A “speed bump” has been placed at the middle of the street to further discourage cut-through traffic. Each home has been designed with an enclosed two-car garage with a minimum 18 foot driveway apron to accommodate two additional parked cars. There is parking along the public streets of Holyoke and Olympic Avenues as well as approximately five parking spaces available on the private street. The proposed project is required to improve the frontage along Holyoke Avenue consistent with the existing improvements along Holyoke Avenue to the north and around the corner on Olympic Avenue.
The proposed lotting pattern for the subdivision is generally consistent with the pattern of the existing neighborhood with lots fronting on both public and private streets. Two of the lots have been oriented out towards Holyoke Avenue to strengthen the relationship to the existing homes to the east. The private street has been aligned with Telford Court to avoid introduction of an additional intersection along Holyoke Ave. The lotting pattern also couples the driveways to maximize parking availability along the public streets.
The proposed site plan includes the placement of the bio-retention basins required for stormwater treatment at the corners on either side of the private street at Huntwood and Holyoke Avenues, and at the corner of Holyoke and Olympic Avenues, creating attractive entry elements to the project. Additional bio-retention basins have been located within the private park area and between two sets of houses.
Open Space
For single-family detached homes, there is not a strict private open space requirement but rather open space created as a result of the setbacks and yard areas. For the proposed project, in order to maximize the rear yard areas, staff suggested reducing the front setback down to 10 feet and including a usable front porch for as many of the units as practical that could be set back five feet in front. This approach results in rear setback no less than 10 feet and averaging 13-15 feet, with many lots having yard areas up to 18 feet. Fifteen of the twenty-three units have front porches under this approach. To ensure that the reduced front yard/setback area do not detract from the larger development, the landscaping will be installed by the developer and be required to be maintained as part of the Homeowner’s Association responsibilities. The odd configuration of the larger site also creates the opportunity for five of the lots with larger rear yards than a typical single-family home in the RS district.
As an additional amenity for the future residents of the development, a 3,200 square foot private park area is provided central to the project site along the private street and adjacent to the multi-family common open space area to the north. The conceptual programing for the private park includes both passive and semi-active elements. The project site is located within walking distance of Silver Star Veterans Park, approximately 650 feet south along Holyoke Avenue to Mediterranean Avenue.
Architectural Design and Floor Plans
The proposed project includes two basic floor plans that offer five bedrooms with the option of one or more of the bedrooms to be a loft or office. Plan 1 includes 2,216 square feet with Plan 2 offering 2,304 square feet. Each plan includes the option for a bedroom on the ground floor and three bathrooms, one on the ground floor. As mentioned previously, each home includes a two-car garage which will be designed with an electrical vehicle panel connection for future residents. All homes will have solar photovoltaic systems installed and tankless water heaters.
Each of the two basic plans has three design variations, referred to as Farmhouse, Cottage, and Craftsman. Each of these design variations utilize various materials including horizontal, vertical, and shingle siding, as well as stone accents and differing window treatment and detail. Siding wraps the whole of the house around the sides and rear. Each plan design also presents variations in roof form and entries, as well as a garage door design integral to the overall house design. Additionally, many of the plans include a front porch, further strengthening the streetscape. The proposed plans and variations in architecture are more than sufficient to avoid placement of identical units adjacent to each other, yet provides enough similarities to create a cohesive streetscape and development.
Affordable Housing Requirement
The proposed project shall comply with the HMC Article 17, Affordable Housing Ordinance. To fulfill this obligation, the developer will pay an affordable housing impact fee. The current affordable Housing Impact Fee for detached ownership units is four dollars per square foot of habitable living space. Condition No 25 requires payment of the fee prior to issuance of building permits or Certificate of Occupancy in accordance with the Ordinance.
Rezoning From Single-Family Residential (RS/B4) to Planned Development (PD) District
The purpose of the Planned Development (PD) District is to encourage exceptional quality development through efficient and attractive space utilization that might not otherwise be achieved through strict application of the zoning ordinance development standards.
As discussed previously, the subject site combines four parcels that when combined create a larger site that has an irregular shape, thus making it challenging to lay out the traditional single-family home lots while keeping within the prescribed density of the General Plan of 8.7-12 dwelling units per net acre. Rather than introduce a development type inconsistent with the surrounding existing single-family detached neighborhood, the proposed project includes a site layout with individual lots with homes fronting onto the public and a proposed private street, Each home includes a two-car garage with a driveway apron sufficient to park two cars on it. With the exception of the lot standards, the proposed project is in harmony with the surrounding single-family neighborhood and confirms to the General Plan and applicable City policies.
Generally, the proposed project includes exceptions to the lot standards of the RSB4 zoning district, including minimum lot size (23 lots), lot coverage (16 lots), and setbacks (23 lots), as well as minimum average lot width (19 lots) and depth (22 lots). These exceptions go hand in hand with a small lot, single-family detached residential development. Strict adherence to all development standards would result in a development below the density required by the General Plan as well as a lotting pattern, given the irregular shape of the site, which would have home sites larger than the average in the neighborhood and the potential of lots that would turn their back to the public streets.
Small lot single family homes are widely accepted in the Bay Area housing market where space is limited and compact, efficient development is required to satisfy housing demand. Further, the smaller lots and compact development offer homes that are “affordable by design” and would result in more affordable housing than would be provided on larger, traditional lots.
The applicant is proposing the following amenities to off-set the proposed exceptions:
• Front porches on a majority of the homes to enhance and strengthen the streetscape.
• Homeowner Association maintained front yards to ensure well maintained and cohesive neighborhood presence.
• Solar photovoltaic systems installed on all the homes.
• A small private park area for residents to gather and interact. This common open space amenity is not required of single-family detached homes, but is being provided to offset the reduced setback and yard areas.
• The proposed house designs also include the bedroom/den option on the ground floor to support multi-generational living.
Vesting Tentative Tract Map 8302
The proposed project includes request for approval of Vesting Tentative Tract Map 8302. The project site falls within the boundaries for the City of Hayward water and sanitary sewer service. All water and sanitary utilities will be public and such facilities within the proposed private street will be within a public utility easement and constructed per City of Hayward Standards and dedicated to the City. The proposed on-site storm drain system will be private and will be privately maintained by the Homeowner’s Association.
A Homeowner’s Association is required for the proposed project and will be responsible for maintaining the private street, private street lights, private utilities, and other privately owned common areas and facilities on the site, including, but not limited to, stormwater treatment facilities, front yard landscaping, preservation and replacement of trees, as well as decorative paving.
Findings for the Zone Change/Preliminary Development Plan - In order for a Planned Development (PD) District to be approved, the City Council must make findings, as recommended by staff and the Planning Commission. Staff’s response to the findings for Commission consideration is provided below.
1. The development is in substantial harmony with the surrounding area and conforms to the General Plan and applicable City policies.
The proposed development is an infill site at the edge of an existing single-family neighborhood. The small lot single-family development respects the lotting pattern of the surrounding neighborhood by fronting lots out to the public and proposed private street. The 23 units proposed result in a net density of 11 dwelling units per acre consistent with the density range of 8.7 to 12 dwelling units per acre supported by the General Plan land use designation of Limited Medium Density Residential.
In addition, the proposed development is consistent with General Plan goals and policies related to residential design, and sustainability, infill and inclusionary housing as follows:
LU-3.6 Residential Design Strategies: The City shall encourage residential developments to incorporate design features that encourage walking within neighborhoods by:
• Creating a highly connected block and street network.
• Designing new streets with wide sidewalks, planting strips, street trees, and pedestrian-scaled lighting.
• Orienting homes, townhomes, and apartment and condominium buildings toward streets or public spaces.
• Locating garages for homes and townhomes along rear alleys (if available) or behind or to the side of the front facade of the home.
• Locating parking facilities below or behind apartment and condominium buildings.
• Enhancing the front facade of homes, townhomes, and apartment and condominium buildings with porches, stoops, balconies, and/or front patios.
• Ensuring that windows are provided on facades that front streets or public spaces.
The proposed development continues the street pattern of the existing residential neighborhood and integrates and new street that will interconnect and support the existing street and pedestrian circulation network. The homes have been oriented out to the street with front porches on many of the homes, thereby strengthening the connection to the neighborhood. All homes have been designed to include sufficient window area to allow occupants to look out to the street. Given the odd configuration of the larger site, the design of the subdivision with garages orienting out to the street was a more efficient use of the land as well as promoting a design consistent with the surrounding single-family homes. The garages have been set back from the front façade eight (8) feet to minimize the garage presence along the street.
LU-3.7 Infill Development in Neighborhoods: The City shall protect the pattern and character of existing neighborhoods by requiring new infill developments to have complimentary building forms and site features.
The proposed development respects the existing surrounding neighborhood by promoting a similar lotting pattern of single-family lots with homes fronting onto the public and private streets. The only lots with homes that side-on to a public street are adjacent to Huntwood Avenue where it is appropriate given the arterial nature of Huntwood Avenue. The proposed development includes two-story homes with front-facing two-car garages and parking aprons, similar to the existing single-family neighborhood.
H-2.3 Inclusionary Housing: The City shall enforce the Inclusionary Housing Ordinance to ensure that a certain percentage of new residential units will be made affordable to lower- and moderate-income households.
The proposed development is subject to the Inclusionary Housing Ordinance and is conditioned to enter into an agreement prior to approval of the Final Map.
H-3.3 Sustainable Housing Development: The City shall improve affordability by promoting sustainable housing practices that incorporate a ‘whole system’ approach to siting, designing, and constructing housing that is integrated into the building site, consumes less water and improves water quality, reduces the use of energy use, and other resources, and minimizes its impact on the surrounding environment.
The proposed project is consistent with this policy through the inclusion of photovoltaics on each home, the installation of tankless water heaters, and the inclusion of electric vehicle connection panel in each unit. The reduction in the front setbacks supports the opportunity for more efficient landscape designs that will be maintained through the Homeowners’ Association, thus ensuring consistent maintenance and oversight for a large area of the development.
H-3.6 Flexible Standards and Regulations: The City shall allow flexibility within the City’s standards and regulations to encourage a variety of housing types.
The proposed development offers a small-lot single-family housing product that is affordable by design and makes efficient use of space while still promoting the density set forth in the General Plan. The flexibility in the zoning standards through this PD allows for the design of a subdivision similar in to the surrounding single-family residential neighborhood.
H-3.10 No Net Loss Zoning: Consistent with Government Code Section 65863, the City shall consider the impacts of rezoning and general plan amendments of residential sites on the City’s ability to meet its share of the regional housing need.
The proposed rezoning would not result in the loss of single-family zoned property. The PD district and its exception to the development standards of the RS zoning district allow for the development of a single-family zoned site of an irregular shape consistent with the General Plan density.
2. Streets and utilities, existing or proposed, are adequate to serve the development.
The project site an infill site surrounded by existing streets and has access to utilities with adequate capacity to serve the proposed 23 unit subdivision. A traffic study prepared for the project indicates that no there will be no significant impacts on traffic level of service or vehicle queuing at intersections in the vicinity of the project site.
3. The development will be in conformity with applicable performance standards, will be appropriate in size, location, and overall planning for the purpose intended, will create an environment of sustained desirability and stability through the design and development standards, and will have no substantial adverse effect upon surrounding development.
The proposed development is designed to complete the existing residential neighborhood to the east of the site with a subdivision design similar in lotting pattern and house design. With the exception of the lot sizes and setbacks, the proposed units are two- story in design, consistent with the existing homes in the neighborhood. The proposed development will replace an undesirable use within a residential neighborhood with residential uses that will serve to complete the neighborhood and introduce new and attractive housing opportunities to existing and new residents of the City. The proposed project can only serve to enhance the existing surrounding neighborhood by introducing an attractive gateway through the thoughtful design and execution of the proposed plans.
4. In the case of a development in increments, each increment provides a sufficient proportion of total planned common open space, facilities, and services so that it may be self-contained in the event of default or failure to complete the total development according to schedule.
The proposed project will be developed in one phase ensuring that the infrastructure, services and facilities will be available to all neighborhood residents in a timely fashion.
5. Any latitude or exception(s) to development regulations or policies is adequately offset or compensated for by providing functional facilities or amenities not otherwise required or exceeding other required development standards.
The Planned Development requires smaller lots than is permitted under the existing residential zoning, including modification to setbacks, lot coverage, and lot width. The proposed development includes enhanced architectural design, including the integration of front porches on many of the units to strengthen the streetscape, as well as front yard landscape installation and future maintenance by the HOA. Each unit is proposed to include a tankless water heater, installation of photovoltaics on the roof, and electric vehicle charging infrastructure ready for future residents, all to create a more environmentally sensitive development and more sustainable housing units for future residents. The project includes a private park for residents of the development to utilize and interact as a community. The required HOA will maintain the private infrastructure including the private street, park, front yard landscapes, and the bio-retention areas.
Findings for the Vesting Tentative Tract Map - In order for a vesting tentative map to be approved, the City Council must make the findings below. Staff’s responses to the findings, for Commissioners’ consideration, are included below.
1. That the proposed map is consistent with applicable general and specific plans as specified in Section 64541 of the Subdivision Map Act. [Subdivision Map Act §66474(a)]
The proposed subdivision map is consistent with the allowable uses and the General Plan density designation of Limited Medium Density Residential. The proposed net density of 11 dwelling units per acre (du/ac) is within the allowable density of 8.7 to 12 du/ac.
2. That the design or improvement of the proposed subdivision is consistent with applicable general plan and specific plans. [Subdivision Map Act §66474(b)]
The proposed subdivision, as demonstrated by the findings associated with the Planned Development Rezone application, is consistent with the General Plan goals and policies related to infill development, residential design, encouraging a variety of housing types, sustainable development, and affordable housing (LU 3.6; LU 3.7; H 2.3; H 3.3; H 3.6).
3. That the site is physically suitable for the type of development. Subdivision Map Act §66474(c)]
The subject site, as designed, supports the proposed 23-unit residential subdivision with all the design elements and infrastructure of a typical subdivision.
4. That the site is physically suitable for the proposed density of development. [Subdivision Map Act §66474(d)]
The subject site supports the proposed density of 11 dwelling units per acre, which falls within the allowed density of 8.7-12 dwelling units per acre.
5. That the design of this infill project and the proposed improvements are not likely to cause substantial environmental damage or substantially and avoidably injure fish or wildlife or their habitat. [Subdivision Map Act §66474(e)]
The approval of the Vesting Tentative Tract Map 8302, as conditioned, will have no significant impact on the environment, cumulative or otherwise. An Initial Study, Mitigated Negative Declaration, and supporting environmental reports demonstrates that potential impacts in the area of biological resources, hazards and hazardous materials, geology and soils, and noise will be less than significant with the inclusion of the recommended mitigations.
6. That the design of the subdivision and type of improvements are not likely to cause serious public health problems. [Subdivision Map Act §66474(f)]
Adequate capacity exists with the existing utilities, including sanitary sewer, to provide services to the proposed project site thus eliminating the possibility that the development would cause serious public health problems. Any potential risk to public health has been analyzed in the Initial Study and appropriate mitigation measures have been identified in the areas of hazards and hazardous materials, geology and soils, and noise.
7. That the design of the subdivision or type of improvements will not conflict with easements, acquired by the public at large, for access through or use of, property within the proposed subdivision. [Subdivision Map Act §66474(g)]
The proposed project does not conflict with any existing public easements. Upon completion of the development, new public easements will be required as necessary.
ENVIRONMENTAL REVIEW
An Initial Study evaluating the potential environmental impacts of this project was prepared in accordance with the California Environmental Quality Act (CEQA). The Initial Study found that the proposed project would result in potential impacts in the areas of Biological Resources, Hazards and Hazardous Materials, Geology and Soils, Noise, and Mandatory Findings of Significance; and contains mitigation measures reducing the identified impacts to a less-than-significant level. A Notice of Intent to Adopt a Mitigated Negative Declaration (NOI) was filed with the Alameda County Clerk on April 15, 2016. The NOI and the Initial Study were posted at City Hall and delivered to the Hayward libraries, and copies of the NOI were sent to interested parties and property owners and residents within 300 feet of the project site on April 15, 2016. The public comment period for the proposed Mitigated Negative Declaration on Initial Study expired on May 4, 2016.
A copy of the Initial Study, NOI, Mitigated Negative Declaration (MND) and Mitigation Monitoring and Reporting Plan (MMRP) are attached to this report for the Commission’s review and consideration (Attachment IV). The Commission must consider the documents prior to forming a recommendation on the proposed project.
PUBLIC OUTREACH
On October 22, 2015, a Notice of Preliminary Meeting for the subject Zone Change and Vesting Tentative Map applications was sent to property owners and residents within a 300-foot radius of the site. On November 12, 2015, a preliminary public meeting was held at City Hall to discuss the subject project. At the meeting, two members from the New England Mobile Home Community were present to ask questions and express their position. The primary concern was related to traffic at the intersection of Huntwood and Olympic Avenues and spillover parking and the potential for the new residents to park in their community. Staff also received two calls from the initial Notice from residents in the single-family neighborhood, both in support and opposition. The resident in support recognized the importance of eliminating the trucking use from the neighborhood and developing a new neighborhood that would enhance the existing neighborhood. The resident in opposition was concerned with the impacts from additional residents in the area and spillover parking into the existing residential streets.
In response to the concern expressed by the residents of New England Village mobile home community and other neighbor, the project includes a two-car garage for each new home with a two-car parking apron in front of each garage. The CC&R’s for the development restricts use of the garage for anything other than parking. There is also parking along both Holyoke and Olympic Avenues and additional spaces along the proposed new private street.
On April 15, 2016, notices of this public hearing and the Notice of Intent to Adopt a Mitigated Negative Declaration were sent to all property owners within a 300-foot radius of the project site and to interested parties who requested to be notified about the project. In addition, notice of this public hearing was published in The Daily Review on April 15, 2016.
NEXT STEPS
Following the Planning Commission hearing, the City council will consider the project, along with the Planning Commission’s recommendation, at a noticed public hearing. The tentative date for this hearing is June 14, 2016.
If approved by the City Council, the applicant will be required to incorporate project conditions of approval and submit a more detailed Precise Plan, Final Map and Improvement Plans for staff review prior to the City Council’s approval of the Final Map. Grading and Building Permit applications will then be processed and permits issued to allow for construction of the improvements and homes.
…Staff contact
Prepared by: Jeannie Hamilton, AICP, Associate Planner
Approved by:
__________________________________
Sara Buizer, AICP
Planning Manager
__________________________________
David Rizk, AICP
Development Services Director
Attachment I Area and Zoning Map
Attachment II Aerial
Attachment III Project Plans
Attachment IV Initial Study/Mitigated Negative Declaration/Mitigation Monitoring and Reporting Program <http://www.hayward-ca.gov/sites/default/files/documents/DSD_Combined%20Environmental%20Docs%20Olympic%20Station.pdf>
Attachment V Recommended Conditions of Approval