To consider a City of Burbank project involving construction of the following City buildings: Development and Community Services Building (3 stories; 66,000 square feet), New Central Library (2 stories; 80,000 square feet), New Parking Structure (5 levels, including 2 underground, approximately 500 spaces), and Administrative Services Building (2 stories; 39,000 square feet, with one level subterranean parking). The project also includes a public plaza (approximately 20,500 sf) at the northeast corner of Olive Avenue and Third Street. A draft Development Agreement and Mitigated Negative Declaration related thereto have also been prepared for the project.

Property Location: The project site includes the block bounded by Glenoaks Blvd., Olive Ave., Third St., and Orange Grove Ave. (Opportunity Site No. 3); and the property on the southwest corner of Orange Grove and Third St. (former Municipal Services Building site) [Lots 5-20, Block 46 and Lots 2,4,6,8, Block 52, Town of Burbank Tract (M.R. 17-19-22); Lots 1-12, Tract No. 2531 (M.B. 24-42)]. (Exhibit A-1)

Zoning: The subject property is currently zoned BCC-2 Burbank Center Commercial Limited Business zone and BCC-3 Burbank Center Commercial General Business zone. The request is to change this to a Planned Development zone (PD 2002-2).

General Plan Designation: The property is designated as City Center Commercial and is within the Burbank Village and Civic Center areas of the City Center Subarea of the Burbank Center Plan (BCP). The property is also located within the City Centre Redevelopment Project Area.

Property Dimensions: The total project site is approximately 188,000 square feet (sf) or approximately 4.32 acres. The portion of the site located east of Third St. (Opportunity Site 3) is approximately 157,000 sf or approximately 3.60 acres. The portion of the site located west of Third St. (former MSB site) is approximately 31,000 sf or approximately 0.72 acres.

Current Development of the Site: Opportunity Site 3 is developed with the following city office buildings:

The former MSB site is currently developed with a public parking lot consisting of 61 spaces. The previously demolished MSB contained approximately 29,000 square feet.

Surrounding Neighborhood: The City Police and Fire Headquarters facility is located to the north, across Orange Grove Avenue. To the east, across Glenoaks Blvd., the project faces the current City Central Library facility. To the south, across Olive Ave. are the County Courthouse and several commercial buildings. To the west the project faces a City parking structure and Burbank City Hall. (Exhibit A-2)

Project Description: The project consists of demolition of City office buildings (the MSB at the southwest corner of Orange Grove and Third St., and the Fire Headquarters on Olive Ave. were previously demolished) and surface parking lots. The project involves construction of the following buildings on Opportunity Site No. 3: a 66,000 sf City office building (Development and Community Services Building - DCSB), an 80,000 sf new Central Library (Library),and a parking structure consisting of approximately 500 spaces, along with a public plaza (approximately 20,500 sf) at the northeast corner of Olive Avenue and Third Street. The project also includes construction of a 39,000 sf City office building (Administrative Services Building - ASB) on the former MSB site.

The first phase of the project only includes construction of the DCSB and an oval entry court. The remaining buildings will be constructed at a future date yet to be determined. An alternate first phase includes the construction of the new Central Library and the parking structure instead of the DCSB. A Planned Development process is required to accommodate reduced setbacks and landscaping for the proposed project and reduced off-street parking in the first phase of the project. The DCSB has proposed setbacks of 11 feet on Third St. and 5 feet on Orange Grove Ave., in lieu of the required 12 feet 2 inches (20% of the 61-foot building height). The BMC also requires that 50% of required setback areas be landscaped. The DCSB proposed landscaping for the building setbacks is 17% along Third St. and no landscaping along Orange Grove Ave. The setbacks and landscaping for all other buildings are proposed to be code compliant. Additionally, if the DCSB is constructed in the first phase, the surface parking provided will be 249 spaces (in lieu of the code-required 287 spaces) with 8.6% of the parking lot area landscaped (in lieu of the code-required 10%). The heights for all buildings are proposed to be well under the 90-foot limit allowed by right in the Civic Center area of the City Center Subarea of the BCP area. Development Review is also required for construction of the first phase of the project (DCSB). Development Review will be processed in the future for the remaining buildings. The project also includes narrowing of the Third Street roadway adjacent to the project site (between Orange Grove and Olive) from 46 feet to a minimum of 35 feet. This would eliminate one lane of motor vehicle traffic and widen the sidewalk approximately 5 feet 6 inches on either side of the street. Third St. currently has two southbound lanes, and one northbound lane. The new configuration includes one lane traveling in each direction, and one center lane for turning and emergency access. The City Traffic Engineer must approve the final roadway width, and in no case will it be less than 35 feet. Existing property boundaries within the project site will be adjusted in the future. This will be done administratively, and may involve a Tract Map or Lot Line Adjustment process, although government agencies are exempt from the provisions of the Subdivision Map Act. (Exhibits B-1 and B-2)

Staff initially presented a conceptual Master Plan to City Council on December 19, 2000 that included the new DCSB to replace the existing MSB and a new ASB. This recommendation was a result of an eighteen month office and space needs assessment program jointly conducted between City staff and the City�s consultant, The Nello Group. The current proposed Master Plan and DCSB design were further developed by a Council-appointed project steering committee that included the Mayor and one Council Member, and all the City department directors. These groups, along with key City staff, worked closely with the project architects (Widom Wein Cohen O�Leary Terasawa [WWCOT]; and Charles Walton Associates [CWA], architects for the New Central Library) in drafting and revising the Master Site Plan. The City Council approved the proposed conceptual site design on April 16, 2002. WWCOT subsequently proceeded with site plans and building design, working closely with the steering committee. The DCSB Project Schematic Design and Schematic Design Budget were presented to City Council on December 10, 2002. While WWCOT has completed a preliminary design for the DCSB (the DR associated with the subject PD), CWA is currently developing the design for the New Central Library. The architectural design of the new parking structure and the ASB will be developed in the future.

The Land Use Element of the General Plan states that Planned Developments are intended as tools to accommodate unique developments that will create a functionally and aesthetically desirable component of the community. The Planned Development process allows for exceptions to designated densities and adopted development standards where the proposed development can be shown to be consistent with adopted goals, policies and intent of the Land Use Plan. A Planned Development includes all other entitlements, such as conditional use permits or variances.

On February 10, 2003, the Planning Board held a public hearing to consider the subject application and recommended that the item be approved by City Council. The Board�s action is discussed further below under "Planning Board Deliberations and Recommendation."

Public Correspondence: The Planning Division has received no correspondence from the public regarding this application. Any comments received prior to the public hearing will be forwarded to the City Council.

The following section analyzes the standards proposed for the project that vary from what would be permitted without creating a new PD zone. In addition, this section provides an analysis of the proposed project against the design review standards required before approval of any PD.

The required setback along Third St. and Orange Grove Ave. for the proposed DCSB is 12 feet 2 inches (20% of 61-foot building height). The proposed setbacks are 11 feet along Third St. and 5 feet along Orange Grove Ave. Additionally, the requirement for 50% of the setbacks to be landscaped will not be met, as noted in the table above. To offset this deficiency, a large, oval shaped entry court (approximately 7,800 sf), with landscaping and decorative hardscape, will be constructed along with the DCSB at the southeast corner of the building. Additionally a large passive pedestrian plaza (approximately 20,500 sf) will be constructed with the final phase of the project at the northeast corner of Third St. and Olive Ave. The reduced setback along Third St. will be integrated with the widening of the Third St. sidewalk (and narrowing of roadway). The result will be a double row of trees, encompassing the sidewalk and building setback. This will create a pedestrian-friendly streetscape similar to the streetscape on San Fernando Blvd. in the downtown, between Olive Ave. and Magnolia Blvd.

The parking requirement for the portion of the project located on Opportunity Site 3 (DCSB and Library) is calculated using the conventional City-wide parking requirements. This includes a 3 spaces/ 1,000 sf ratio for the City offices, and a 4 spaces/ 1,000 sf ratio for the library. The library parking ratio, although not provided in the BMC, has been traditionally used by the City for its libraries (e.g. the recently constructed Buena Vista Library) and is supported by Institute of Transportation Engineers (ITE) data for a full-service central library.

The proposed ASB site is located within the Downtown Parking District as identified in BMC Sec. 31-1407.1. This area is described as an eight block area from Angeleno to Magnolia, from First to Third. The requirements for this area state that new development can occur, but must provide a parking ratio of 3.5 spaces per every 1,000 square feet of adjusted gross floor area, no matter what the use. In addition, the code states that a credit may be applied to all floor area that is demolished, as long as any parking demolished is also considered. The amount of parking required for the project is as follows:

First Phase:

DCSB (66,000 sf): 198 spaces

Existing offices to remain in this phase (29,800 sf): 89 spaces

Total Required: 287 spaces

Total Provided: approximately 249 spaces

Alternate First Phase

New Central Library (76,000 sf): 304 spaces

New Parking Structure (consisting of approximately 500 spaces)

Existing offices to be relocated to ASB site in this phase (49,080 sf)

Minus 28,900 sf (previously demolished on the site): 71 spaces

Existing parking at ASB site to be removed (replaced in new structure): 61 spaces

Total Required: 436 spaces

Total Provided: approximately 500 spaces (within New Parking Structure)

Total Provided During construction: approximately 75 surface spaces provided on the New Central Library/Parking Structure block (see following page for discussion of supplementary off-site parking)

Final Phase

DCSB: 198 spaces

New Central Library (76,000 sf): 304 spaces

Total Required: 502 spaces

Total Provided: approximately 500 spaces in new parking structure

ASB (37,000 sf) minus 28,900 sf (previously demolished on the site): 28 spaces

Previously demolished spaces on site to be replaced: 61 spaces

Total Required on ASB site: 89 spaces

Total Provided: A minimum of 89 spaces will be provided on ASB site

The reduction in required parking in the first phase and during construction can be allowed through the Planned Development process associated with this project. It should be noted that additional parking will be available for this project on adjacent City properties:

• Upon demolition of the MSB, the Burbank Downtown Parking District became over-parked by approximately 101 spaces. This figure represents the square footage of the demolished MSB (28,900 sf), which was located within the District, parked at the district�s 3.5 spaces/1,000 sf ratio.
• The closest District parking facility, aside from the MSB site, is a City parking structure located on the 200 block of Orange Grove Ave., adjacent to the project site. This structure consists of 3 levels, with approximately 273 spaces. A survey by Planning Division staff showed that only 39% of these spaces are currently occupied during a typical weekday. There are several other parking facilities in the Downtown Parking District (such as the City structure at the northwest corner of Third St. and Palm Ave., and the structure adjacent to the courthouse at Third St. and Angeleno Ave.) which can be used to supplement the City offices� parking demand. The businesses in Downtown Burbank that utilize the parking facilities in the Downtown Parking District have peak demand on evenings and weekends. The City office uses have peak parking demand during the day on weekdays.
• The are 52 spaces at the existing Central Library facility, located directly across Glenoaks Blvd. from the project site. Additionally, if the proposed new Central Library is constructed in the first phase of the project, the existing Central Library facility may be demolished. That site would be able to accommodate a total of approximately 233 spaces (based on a site size of approximately 70,050 sf and an estimated 300 sf per parking space, including access aisles), including the currently existing spaces.
• The City may also pursue the option of leasing parking spaces on nearby private properties or office space in nearby private office developments.

After completion of the final phase, the project will provide the necessary parking to meet the demand of the project. This does not even consider the full effect of shared parking that is likely between the City office and library uses. During phasing, although there may be a shortage of required parking on-site, there will be many parking spaces available within walking distance of the project site. An impact on off-street parking is not anticipated with the proposed project during phasing and at final build-out. In addition, the City is an employer that monetarily supports employee rideshare programs, which have the effect of reducing trips to the site and the need for parking.

At final project build-out, there will be no surface parking lots on the site. As such, no parking lot landscaping will be required. However, during phasing temporary parking lots will be constructed on the project site. The first phase of the project, which includes construction of DCSB and retention of 2 existing City office buildings (City Hall Annex and 141 N. Glenoaks), will provide 249 on-site parking spaces with 8.6% of the parking lot area covered with landscaping. The BMC requires 10% landscape coverage and that 40% of the parking lot area be shaded by trees within 15 years. If the alternate first phase of the project is constructed (which includes the Library, new parking structure, and relocation of existing temporary City office buildings) there will be some surface parking, and the amount of landscape coverage will not be code compliant. The specific amount of landscaping provided with that scenario will be determined at a later time with further design efforts by City staff and consultants. BMC Sec. 31-1418(c)(3) states that for large parking lots, the parking lot landscaping requirements may be deviated from via the Planned Development process if the Community Development Director and the Parks, Recreation, and Community Services Director determine it is not feasible to provide the landscaping. For this project the key goals in designing the temporary parking layout were providing the maximum number of parking standard size spaces possible (no compact spaces are proposed) while also providing landscaping in all possible areas. Another goal is to provide green space in the parking lots without large expense for trees that may mature at a rapid rate and cause a greater cost increase when removed, as all surface parking will be temporary during project phasing. The project as proposed accomplishes those goals, as will the alternate first phase, if pursued.

A Mitigated Negative Declaration (MND) was prepared for this project. (Exhibit C-1) This MND was tiered off the Burbank Center Plan (BCP) Environmental Impact Report (EIR). This EIR looked at the development permitted in the BCP including all opportunity sites such as the large portion of this project site, Opportunity Site 3. The California Environmental Quality Act (CEQA) allows agencies to "tier" an MND off a broader specific plan EIR where the EIR considered development allowed but did not focus on details of a specific project. Therefore, the MND prepared considers specific details of this project that the BCP EIR considered only generally.

When a project is tiered off a broader program EIR, the mitigation measures appropriate to each specific project must also be implemented. For example, the BCP EIR has mitigation measures to control dust during construction (to maintain air quality), this project is required to follow such dust control measures. (Exhibit C-2) These measures are included in the MND for the project as well as the conditions of approval.

In addition, mitigation measures specific to this project are required in areas where there could be potentially significant impacts if not mitigated. For example, the City will provide warning signs and flagmen during the construction phase to allow for the safe ingress and egress of trucks and equipment.

The area was anticipated for much more intense development in the Burbank Center Plan EIR. The trips generated by options proposed under that specific plan and program EIR are much higher (more than twice as much) than that anticipated by this development (using ITE Trip Generation Manual 6^th Edition). Specifically, the development anticipated 380,000 square feet of general office and a new 50,000 square foot central library. The BCP, under those scenarios, did not recommend any capital improvements in order to maintain a level of service of C or higher in any of the immediately surrounding intersections. It was determined that impacts would be less with the proposed project then that anticipated in the EIR including less trip generation than that anticipated. Mitigation measures, such as the use of flagmen and various dust control measures, are proposed to reduce the impacts to a less than significant level.

The project also includes the narrowing of the Third St. roadway adjacent to the project site from 46 feet to 35 feet. This would eliminate one lane of motor vehicle traffic and widen the sidewalk 5 feet 6 inches on either side of the street. Traffic mitigation measures adopted with the BCP EIR do not pertain to Third St., which is classified as a secondary arterial. First St. (classified as a collector street, with a likely future upgrade to secondary arterial) and Glenoaks Blvd. (classified as a major arterial) are the main routes for north-south vehicle traffic in the area surrounding the project site. Therefore, narrowing of the Third St. roadway will not significantly impact existing traffic patterns surrounding the project site. The widening of the sidewalk and the proposed mid-block crossing, the narrowing of the Third St. roadway will improve pedestrian circulation around and through the project site. This will also create a pedestrian-friendly environment at the project site, and enhance the walkable nature of Burbank�s downtown (please see further discussion on p. 10, item [e]).

The PD and DR applications and plans were routed to different departments and divisions in the City. The following summarizes comments that are relevant:

• The Public Works Department requires a 15� corner radius to be provided at each of the following intersections: northeast corner of Olive Ave. and Third St.; southwest corner of Glenoaks Blvd. and Orange Grove Ave.; the southeast corner of Orange Grove Ave. and Third St.; and the southwest corner of Orange Grove Ave. and Third St. The Traffic Engineering Division requests additional details regarding the proposed parking layout for the first phase of the project, and expressed some concerns regarding the proposed mid-block pedestrian crossing across Third St. However the City Traffic Engineer has reviewed the proposed plan and is not opposed to the installation of a mid-block crossing, provided it is designed in a way that ensures safety. As with all projects, the City Traffic Engineer must approve all vehicle and pedestrian access around and through the site. City staff and the project architect will address these and all other Public Works issues, based on code requirements, during the Plan Check process to the satisfaction of the Public Works Director. (Exhibit D-1)
• Redevelopment Agency staff stated that they will continue to work with other City staff and the project architects in the design process for the project. A condition has been added that states that the exterior architecture and design components must be reviewed and approved by the Executive Director to the Redevelopment Agency. (Exhibit D-2)

No other departments or divisions noted issues with the subject application nor had comments other than code requirements.

When analyzing a Planned Development, the City must verify that the project meets the design review criteria as established in BMC Sec. 31-19124. The following lists the criteria and states how the project is consistent with the criteria.

The project is consistent with the General Plan and a portion of the project site is specifically identified by the BCP as an Opportunity Site that is ripe for development. The development on the site considered by the BCP includes a new public library. The entire project site is located in the Civic Center sub-area of the BCP area, which is identified as suitable for development of City administrative facilities.

(b) The planned development shall provide for adequate permanent open areas, circulation, off-street parking, and pertinent pedestrian amenities. Building structures and facilities and accessory uses within the planned development shall be well integrated with each other and to the surrounding topographic and natural features of the area.

The project provides ample public open space. This includes the DCSB�s oval shaped entry court (approximately 7,800 sf) and a large passive pedestrian plaza (approximately 20,500 sf) at the northeast corner of Third St. and Olive Ave. The building designs will provide interest at a pedestrian scale and allow for appropriate circulation within and around the site.

The City office and library uses are compatible with the civic uses already existing adjacent to the project site. These include Burbank City Hall, the Police and Fire Headquarters, county Courthouse.

(d) Any private street system or circulation system shall be designed for the efficient and safe flow of vehicles, pedestrians, bicycles, and the handicapped, without creating a disruptive influence on the activity and functions of any area or facility.

There is no private street system provided for the project. Access points into the surface parking lots in the first phase are proposed off Orange Grove Ave., Glenoaks Blvd., and Olive Ave. Access to the parking structure in the final phase will be off Orange Grove Ave. and Glenoaks Blvd. Access to parking at the ASB site will be off Orange Grove Ave. The Traffic Engineer will determine and ensure that there are adequate turning radii for the safe use of all proposed parking.

There is no public street system proposed with this PD. Although Third St. will be narrowed from three lanes to two, that right-of-way will remain consistent with City policies and regulations, and not have a detrimental impact on surrounding traffic patterns. Currently, Olive Ave. and Glenoaks Blvd. are major arterials that carry several transit lines; this project will not affect the existing bus stops located adjacent to the project site. The project is located approximately � mile from the Regional Intermodal Transportation Center (RITC), and will not hinder the operations of that center. The parking lanes may be reduced in some areas adjacent to the project to allow the safe ingress and egress of vehicles by improving visibility; the Traffic Engineer shall determine how much of the streets shall prohibit parking. The project will narrow the Third St. roadway and widen the sidewalk adjacent to the project site, but maintain all other existing sidewalks along all streets and improve them where necessary. This will enhance and improve Burbank�s walkable downtown. Pedestrian-friendly, walkable streets are crucial in stimulating business activity and creating an urban environment in Burbank�s downtown. Many national planning organizations, including the Local Government Commission, promote a walkable downtown with narrower roadways and wider sidewalks as a key to promoting interaction between the mix of downtown uses, which enhances the economic viability of downtown businesses.

There are no residential uses proposed as part of this PD. However a major component of the project, the New Central Library, is itself a public facility that will benefit the City as a whole. The site is currently accessible via bus lines that stop adjacent to the site. The New Central Library design will include a turn-out for loading and unloading passengers from private vehicles and book drop-off.

The design of the project will complement the adjacent City Hall and adjacent Police and Fire Headquarters. The architecture will be mostly modern with unique elements that will give each building its own individual character, while emphasizing that the buildings are parts of one unified campus. Signage will be consistent with BCC-2 and BCC-3 code requirements and wayfinding signage will be included for pedestrian and vehicular access to the site, especially the proposed new parking structure. Burbank�s downtown offers a variety of architectural styles and the colors and materials selected for this project will be quite harmonious with that character.

The project consists partially of the new full-service Central Library, which will meet the needs of all the City�s residents. The library will have all the technology enhancements expected of a central library (e.g. computers, internet connections for research), as well as a community room similar to the one at the existing Central Library facility. The project also includes a large passive public plaza, which will serve as an amenity to all Civic Center visitors, employees, and nearby residents.

The project will comply with all applicable energy conservation methods. In addition, the DCSB is proposed as a LEED certified building for maximum energy conservation (Leadership in Energy and Environmental Design, U.S. Green Building Council).

The purpose of the Planned Development process is to provide an alternate process to accommodate unique developments for residential, commercial, professional, or other similar activities, including modified development standards which would create a desirable, functional and community environment under controlled conditions of a development plan. The proposed Civic Center project fits within this category, as it is certainly unique and serves the needs of the City as a whole.

The Planning Board considered the subject request at its regular meeting of February 10, 2003. Following Board questions of staff and deliberations regarding how the City�s Planned Development process applies to this project, for which all building locations, footprints, and heights, but not architecture, are known, the Board modified one staff-proposed condition of approval. The Board agreed that Condition of Approval No. 3 state that the Board shall approve the architecture, colors, materials, and signage for all buildings, as well as all landscaping, open space, and public plazas, authorized by the subject PD. Furthermore, the Board agreed that the Board�s consideration of these items shall take the form of a noticed public hearing. Staff recommends a modification to this proposed condition by the Board. Development Review for the New Central Library, Parking Structure and ASB is required in the future. The Development Review process involves a ministerial decision by the Community Development Director. Staff is concerned that by requiring that the Planning Board approve the future buildings� architecture, etc., the City is requiring an additional, unnecessary entitlement of itself for this project. The City is currently preparing an application for State funding of the New Central Library. This application requires that the project be fully entitled and have adequate CEQA documentation adopted. CEQA requires that the Mitigated Negative Declaration for this project consider the whole of the project. By requiring further discretionary review of the project, Staff is concerned that the validity of the Mitigated Negative Declaration would be compromised. Therefore, staff recommends that the Council impose Condition of Approval No. 3 as currently proposed by staff (Exhibit F), which states that the Board shall review the architecture, etc. for the future buildings. This will insure that the Board has an opportunity to comment on the design of the future buildings, while maintaining the ministerial Development Review process. The Community Development director would final approval based on compliance with the BMC and the Planned Development, Council direction, and the recommendations of the Planning Board.

Following approval of the above-mentioned modification, the Board voted 4-0 to recommend approval of the project to the City Council. Board Chair Berlin abstained from the vote, citing an inability to make a decision because of the lack of architectural design for all of the proposed buildings. (Resolution attached as Exhibit E-1; minutes attached as Exhibit E-2).

Staff recommends that the City Council adopt a resolution adopting the Mitigated Negative Declaration prepared for Planned Development No. 2002-2 with Development Review No. 2002-42.

Staff recommends that the City Council adopt an ordinance approving Planned Development No. 2002-2 and the Development Agreement Related Thereto subject to the conditions of approval proposed by staff.

Exhibit A-1 Zoning and Fair Political Practices Act Compliance Map

A-2 Aerial photograph

Exhibit B-1 Application forms

B-2 Site plans, elevations, renderings (attached document)

Exhibit C Proposed Mitigated Negative Declaration

Exhibit D-1 Public Works Department comments

D-2 Redevelopment Agency staff comments

D-3 Park, Recreation and Community Service Department comments

D-4 Building Division comments

D-5 Burbank Water and Power Water Division comments

D-6 Burbank Water and Power Electrical Division comments

D-7 Fire Department comments

D-8 Police Department comments

Exhibit E-1 Planning Board Resolution No. 2894

Exhibit E-2 Minutes of the Planning Board Meeting of February 10, 2003

Exhibit F Draft Development Agreement and Conditions of Approval

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