PURPOSE

This is the third in a series of reports to City Council presenting important concepts and changes proposed for the 2005 General Plan Land Use Element Update. This report presents to City Council for discussion the proposed new commercial/industrial land use hierarchy, residential/commercial mixed use, and a new compact single family land use category; this is an opportunity for the City Council to provide direction to staff as staff moves forward to complete the 2005 Land Use Element Update and release a draft to the public for review and comment.

The report also provides additional information requested by the City Council regarding the

proposed multiple family residential densities which were discussed at the November 9^th meeting.  New names for the multiple family residential land use categories are presented as well as a reduction in the amount of area designated for the highest residential density.

Finally, in response to City Council�s request that staff prepare the Municipal Code amendments necessary to implement new densities and development/design standards prior to completing the Land Use Element update, this report includes a schedule for completion of these projects.

ORGANIZATION OF THE REPORT

This report covers a wide array of issues in an effort summarize the changes that the City Council can expect to see in the proposed Land Use Element Update.  This is an opportunity for City Council to provide input to staff regarding these proposed changes.  This report includes additional items that City Council has asked be brought back to them for further discussion.  The report is organized as follows:

Background:

           The Proposed Changes to the Land Use Element

Analysis:

           A. The Proposed Changes to the Land Use Element

                        1. New Commercial Hierarchy and Industrial Uses

                        2. Mixed Use Development

                        3. Compact Single Family Use

            B. New Names for the residential land use categories

            C. Revisit the proposed Very High Density (R5) Multiple Family areas

            D.  Densities of Recently Proposed Multiple Family Residential Projects

            E. Proposed Schedule for the completion of the density and design zone text amendments and completion of Land Use and Mobility Elements Economic Impact Conclusion and Recommendation 

BACKGROUND

Over a 13 month period staff worked closely with a Land Use Element Advisory Committee comprised of two City Council representatives (Mayor Marsha Ramos and Council Member Todd Campbell) and two Planning Board representatives (Greg Jackson and Emily Gabel-Luddy).  This Committee provided valuable input as staff had to decide between different approaches to various land use issues and balance the often conflicting priorities and competing needs of various sectors of the community.

Inasmuch as Burbank is a built up city, staff is not proposing major changes to distribution or types of land uses in the City.   The proposed Land Use Element does, however, include three significant changes that are intended to respond to the changing community needs and desires and implement the vision for Burbank.  These changes, implemented by zoning, can influence the development of the community over the 20 year scope of this plan.

 The proposed changes that will be discussed in this report are:
 

1. New Commercial and Industrial Land Use Hierarchy
2. Mixed Use Commercial Areas
3. Compact Single Family land use

ANALYSIS

A. Proposed changes in Land Use Element Update

1.  New Commercial and Industrial Land Use Hierarchy

As part of the Land Use Element update process, staff looked at the amount and location of commercial uses in the City.  Is there enough?  Is there too much?  Does the type and location of commercial uses help to create the kind of City that residents say they want?  As mentioned earlier, Burbank is a successful built up city and as such wholesale changes may not be called for. The plan proposes subtle changes that can affect the way the community continues to build out and develop. The commercial land use categories and distribution discussed below are intended to strengthen community ties, support quality residential neighborhoods and to provide for a full range of shopping and commercial opportunities that are economically successful and contribute to the economic vitality of the City.  The proposed changes to the commercial land use categories and distribution are intended to balance the interests of both the residential and the commercial sectors of the community, to protect the quality of the residential neighborhoods adjacent commercial areas which in turn adds to the success of neighborhood businesses.  

The commercial land uses in the proposed Land Use Element update are based on a hierarchy of commercial centers connected by commercial corridors.  The location of the centers and the variety of commercial uses accommodated in the City�s various commercial land use categories is similar to what exists on the ground today.  The changes that will be explained in this section are intended to build and strengthen community ties and enhance the vitality of the various commercial areas.

Changes to the commercial land use categories and distribution were developed with the input of the City�s economic consultant, Keyser Marston Associates, Inc. (KMA).  Staff contracted with KMA to look at the amount and type of retail commercial development in the City today in terms of its economic vitality, as well as to assess whether it would be economically feasible and advantageous to encourage the development of residential uses on some of the commercial corridors, between the commercial centers.  KMA�s recommendations and analysis are reflected in the commercial land use categories proposed for the Land Use Element update. The results of these studies are discussed in detail later in this report.

Commercial Centers

Staff proposes a hierarchy of commercial centers, intended to not only ensure that there is a wide range of commercial opportunities in the community but also that the retail commercial environment remains rooted in the neighborhoods.  The proposed Land Use Element update includes three types of commercial centers based on a hierarchy of the intended customers, ranging from local to citywide to regional.  These categories are by no means exclusive, but rather, the permitted uses ensure that the centers fulfill their intended function and meet the needs of the intended customer base.

The three types of commercial centers are shown on the map below: Neighborhood Commercial Centers (dark gray), Downtown Commercial Center (medium gray) and Regional Commercial Centers (light gray). 

COMMERCIAL CENTERS

Burbank has traditionally been a regional employment center, providing job opportunities for Burbank residents as well as people living outside of Burbank. Not withstanding the fact that the City benefits greatly from the numerous successful businesses, it remains important to ensure that the quality of life for Burbank residents is not compromised by the thriving business community.  A hierarchy of commercial centers is intended to provide the shopping and business opportunities of a big city while fostering and protecting the small town feel the residents of Burbank want to preserve.

Neighborhood Commercial Centers

Neighborhoods are viewed as the building blocks of the community. In the 1950s and 60s, the local schools used to be what brought neighbors and neighborhoods together; today only 28% of all Burbank households have children of school age.  Staff looks at Neighborhood Commercial Centers as the new place where neighbors interact and a sense of neighborhood awareness and cohesiveness is fostered.

The Neighborhood Commercial Centers are intended to strengthen the City�s neighborhoods and make them the major building blocks of the community.   Neighborhood Centers are meant to be places that provide a variety of neighborhood level shopping and service opportunities � the kind of businesses that encourage residents to get out of their cars, walk around, and come together and interact.  The Neighborhood Centers are envisioned as pedestrian environments that will encourage neighborhood socializing and enhance the sense of local community.

The intent is through thoughtful land use planning, to encourage neighborhood commercial centers within � to � mile of the majority of residential neighborhoods; a comfortable walking distance for most people.  Successful Neighborhood Commercial Centers provide a range of retail businesses and services to meet the day to day needs of the people living in the surrounding neighborhoods, businesses such as markets, drug stores, cleaners and laundries, hair and nail salons, gift shops, florists, restaurants and coffee shops.   The Neighborhood Commercial Centers  provide an interesting and comfortable pedestrian environment intended to bring neighbors together - get people out of cars and walking around � to create a sense of place.  

The proposed plan designates Neighborhood Commercial Centers in places where businesses already exist, in places where there is an existing node of business or where existing businesses could be encouraged to develop into a neighborhood center.

The key to making the Neighborhood Commercial Centers work is the creation of an inviting and interesting pedestrian environment.  This can be achieved by limiting the types of uses on the ground floor to those uses that directly interact with the pedestrian and that contribute to an interesting and inviting pedestrian ambiance; non-pedestrian oriented uses would be relegated to the upper floors. These changes in allowed use would be implemented by changes to zoning code.

Downtown Commercial Center
Next level up on the commercial center hierarchy is the Downtown Commercial Center, an area intended to serve all Burbank residents as the municipal, business and entertainment center of the City - the heart of Burbank.  The Downtown Commercial Center is envisioned as a vital mixed-use pedestrian oriented environment - a center for activities that bring residents from all parts of the City together.  Residential development in the Downtown area ensures a 24-hour presence which increases the safety and vitality of the area. 

Regional Commercial Center

The commercial center that serves the largest population is the Regional Commercial Center. Burbank�s Regional Commercial Centers are intended to serve not only Burbank residents but also surrounding communities.  Regional Commercial Centers are intended for general commercial uses, which draw mainly from outside the City.  Uses in regional level centers include big box retail, mid- to high-rise office, hotels, theaters, restaurants, and entertainment.  Residential uses are not allowed.  The Regional Commercial Center are large sites with adjacent freeway and major arterial access and are buffered from residential uses.

The Regional Commercial Center provides Burbank residents and businesses, as well as shoppers from the surrounding areas, with big box and mall shopping opportunities.
 

Burbank has two Regional Shopping Centers.  The Burbank Town Center is directly adjacent the Downtown Commercial Center and is a pedestrian environment which includes the mall, IKEA, theaters, stores and restaurants; the Empire Center includes several big box retail stores and numerous restaurants and is accessed primarily by automobile.  Both areas have ample parking and easy freeway visibility and access.

Commercial Corridors

The proposed Commercial Centers are linked by the major commercial corridors in the City, such as Burbank and Magnolia Boulevards and Olive Avenue. Boulevard Commercial is the primary land use designation for these corridors.  Boulevard Commercial allows for commercial development, mixed use development and medium density residential only development. With the changing economic environment on the strip commercial corridors in Burbank, staff envisions residential development taking the place of some of the underperforming commercial development; the inclusion of multiple family residential as a by right use on the corridors is intended to facilitate this transition.  The Boulevard Commercial land use category will be discussed in more detail in the following section of this report which addresses Mixed Use development and commercial development on the corridors.  

COMMERCIAL CORRIDORS CONNECTING CENTERS

Other Commercial Land Use Categories

In addition to the hierarchy of commercial centers, there are several specialized commercial land use categories which are intended to serve a specific type of commercial use; these specialized land uses are described below and shown on the following map:

Auto Dealership � This is an existing land use category and is implemented by an existing  zone classification. This designation is retained in the proposed Land Use Element update  in order to preserve a large freeway-adjacent site for a new auto dealership and related  incidental uses.  The Auto Dealership designation was added to the General Plan in 1999 and identifies the best location in the City to establish new auto dealerships, which has been a long-time goal of the City Council.

Commercial Recreation - The Commercial Recreation land use designation is also an  existing land use category; and is included as such in the proposed Land Use Element update in order to preserve a large site for commercial recreation facilities. The area designated is the site of the Pickwick Recreation facility, in the Rancho horse-keeping neighborhood. Pickwick has a long history in Burbank and provides the City�s only bowling alley and ice skating rink, both popular venues.  Commercial recreation functions as an essential supplement to public recreation facilities, providing sites for activities such as bowling, theaters, rock climbing, ice and roller skating and riding stables.   Related commercial uses, which are compatible with the primary recreational uses, such as restaurants, lounges and retail stores selling activity related equipment, are considered appropriate in areas designated for Commercial Recreation�.

The location of the Commercial Recreation land use district, in the midst of the Rancho horse keeping area, requires that any development be careful not to compromise the continued suitability of this area for equestrian uses. All new development in the area designated for Commercial Recreation must be  carried out as a Planned Development to address the special needs of the Rancho area.

Business Commercial � Business Commercial is a new land use category proposed for the Land Use Element update; this category is intended to provide locations for more intense general office environment.  A variety of supportive and complementary retail and service uses would be encouraged on the ground floor to serve the business district and contribute to  a pedestrian friendly environment.  Business Commercial districts are located along or in  proximity to major transportation corridors.  In order to encourage public transit access to the Business Commercial areas, and pedestrian circulation within the areas, it is important that there be a safe and interesting pedestrian environment as well as convenient access to the systems of busses and shuttles that service the Business Commercial area.  Business  Commercial is the primary land use category in the Media District. The Media District is  intended for intense office commercial and media related uses and some supporting retail  and commercial uses to serve the business population, uses such as restaurants, coffee  shops, convenience stores, and services.

SPECIALIZED COMMERCIAL LAND USE AREAS

Auto Dealership (light gray),

Business Commercial (medium gray),

Commercial Recreation (dark gray)

Industrial

Over the past 20 years, the nature of industry in Burbank has changed.  Much of the heavy industry and businesses associated with the aerospace industry have left Burbank and have been replaced by media related and cleaner industries. In response to this change in industrial character, the proposed Land Use Element update has added more land for light industrial and quasi-industrial type of activities in a new Mixed Commercial/Industrial land use category; this new designation will accommodate certain uses that are not considered appropriate for commercial corridors adjacent residential neighborhoods � uses such as auto repair, maintenance or sales, and some post-production media offices.  In addition, a new Media Production land use designation has been added for the large areas occupied by motion picture and television studios. This new land use designation will preserve land specifically for media related production facilities; the existing land use designation for the studios is light industry which allows for a variety of non-media related light industrial uses. In recognition of the important role the studios and spin-off media related uses play in Burbank�s economic base, the proposed Media Production designation is intended to protect these areas for future media related use; in the event that there is turn over in the industry this designation will preclude unrelated industrial uses from locating in these key locations without a change in the land use plan.

Inasmuch as the media related industries are the backbone of Burbank�s economy, and an important part of Burbank�s character, staff feels it is important to have a specific land use designation to accommodate and protect these uses. 

The table below shows the changes proposed for the industrial land use categories in the  Land Use Element update.

                                                               1988                  Proposed                         Change

General Industry (heavy)                      500 acres         376 acres                          - 124 acres

Light Industry   replaced by                 432 acres                                                    + 48 acres

    NEW Mixed Commercial/Industrial                          259 acres

    NEW Media Production                                            221 acres

The following map shows the distribution of the Industrial land use categories: Media Production (light grey), General Industry (medium grey) and Mixed Commercial/Industrial (dark grey).

INDUSTRIAL LAND USE

Mixed Use

Mixed Use traditionally refers to combining commercial and residential uses in a single project, either in a vertical manner with one use on top of the other � or horizontally with residential and commercial uses side by side.  Mixed use development has become an increasingly popular urban trend over the past decade.  There are numerous benefits to mixed use infill development such as providing housing opportunities in areas that are close to businesses, entertainment and public transportation, and providing new market support for the commercial centers.

The proposed Land Use Element update includes 3 commercial land use categories that allow for and facilitate the development of mixed use: Neighborhood Commercial Centers, Downtown Commercial Center and Boulevard Commercial.

Neighborhood Commercial Centers are the most restrictive in the type of mixed use allowed in that they require pedestrian oriented ground floor commercial uses and only allow for residential or office development above the ground floor.

Downtown Commercial Centers allow for a variety of mixed use types - horizontal or vertical mixed use, as well as all commercial or all residential developments in the same area though not necessarily the same development.

Downtown currently has a mix of residential and commercial uses � some are all residential projects set in the Downtown Commercial Center, such as Wesley Towers and Verdugo Towers and the Promenade Apartments, and others are true mixed use developments combining ground floor commercial and upper level residential � projects such as the Golden Palms on San Fernando Road and Palm Ave, Silver Winds and the new Downtown City Walk project. This mix of residential and commercial uses was adopted as part of the Burbank Center Plan and is an important component of the commercial land use categories in the proposed LUE update.

The Boulevard Commercial land use category, allows for mixed use on the City�s major commercial corridors such as Burbank, Glenoaks and Magnolia Boulevards.  It allows for horizontal or vertical mixed use in a single project, as well as all commercial or all residential development.

Currently, several areas of the major commercial corridors are less than successful and show signs of economic blight and uses that reflect a lowered land value.  This is the result of a change in shopping patterns, the development of new shopping options in the City and a finite demand for commercial businesses.

People shop differently than they did 40 years ago when the strip commercial areas were the primary shopping areas for the City.  Prior to 1990, most of Burbank�s retail businesses were along strip commercial corridors and in small neighborhood shopping centers at the major intersections.   Since the early 1990�s Burbank has had a Downtown Commercial Center shopping area, with the development of Burbank Town Center and mall in 1991. Burbank�s Downtown Commercial Center also includes entertainment venues that attract visitors from neighboring communities as well. Burbank residents got a Regional Commercial Center in  2001 with the opening of the new Empire Center. Since there is a finite demand for retail commercial businesses, and this demand is now being shared with the larger Downtown and Regional shopping areas, the businesses along the commercial corridors have begun to showing signs of economic deterioration. This is evidenced by  a turn over to used book stores, second hand shops, post-production media uses that are often  not compatible with the adjacent residential uses. It is likely that there is not enough demand to support so many acres of strip commercial development in light of the other new shopping opportunities in the community.  Along some of the City�s commercial corridors a large share of the businesses were found to be underperforming and generating sales below the national median.  A market analysis of the retail corridors, done by Keyser Marsten Associates (KMA) in 2003, showed that Burbank has more retailers per capita than other jurisdictions

By allowing for both residential and commercial uses in the Boulevard Commercial land use category, uses can respond to market conditions and demand.  At present, residential uses appear to be a better use of the corridors between commercial centers.  Based on the KMA study, should the proposed changes to the land use designations result in the reduction of commercial uses along the corridors, it is unlikely to lead to a significant reduction in retail sales in the City.  In all likelihood, the sales being generated by commercial establishments that are replaced by residential development along the corridors are likely to be captured by other nearby retailers in the various commercial centers.  Consequently, any rezoning of  commercial property in selected areas of the corridors may actually increase the productivity and viability of other retail establishments along other corridors and in centers.        

The intent of the Boulevard Commercial land use designation on the commercial corridors is to allow for and encourage the replacement of some of the existing underperforming commercial development with residential development in areas between the proposed Neighborhood Commercial Centers.  This has several benefits:

1. Buffers the residential neighborhoods from Commercial activity

2. Supports the businesses in the Commercial Centers by increasing the residential consumer base within walking distance, and by  eliminating some of the commercial areas and concentrating remaining  business in the Centers.

3. Current economic analysis shows residential to be a better economic use of the land on the commercial corridor

4. Provides more housing opportunities

As mentioned earlier, the City contracted with Keyser Marsten Associates (KMA) to undertake an economic analysis of the commercial corridors that showed signs of underperforming.  KMA was also asked to analyze the economic viability of putting residential development on these commercial corridors.  KMA�s 2004 study, found that the most viable option for declining strip commercial corridors is concentration of the businesses in commercial centers and encouraging residential development on the corridors between the centers.  Currently, for-sale units are the most economically viable on the corridors, but as property values adjust over time, rental property will become a viable option as well.

Parking for Commercial Corridors and Neighborhood Centers

Concentrating commercial development in centers at intersections along major corridors and allowing for residential development between these centers, would create a healthy environment for both the businesses and the community.  The single most vexing problem for implementing this scenario is the problem of parking for the Commercial Centers.   Insufficient off-street parking for the businesses along the strip commercial corridors has long been a serious problem which affects the viability of the businesses and creates impacts on adjacent residential neighborhoods.  Most of the lots forming the strip commercial corridors are shallow � generally about 100 feet deep � and back up to an alley with single family residential homes behind.  The shallow lots do not allow for sufficient parking behind the businesses and the adjacency to single family residential does not allow for the height and intensity of development that would economically justify subterranean parking for the businesses.  The availability of off-street parking can mean the difference between a business (especially a small business) succeeding or failing at a given location.   Convenience has been identified as a key factor in enticing customers to frequent commercial areas. For these reasons, incorporating provisions for residential development along the corridors between Commercial Centers provides for an economically viable option that mitigates the problems of commercial parking intruding into residential neighborhoods.

The parking for Commercial Centers is a serious issue that must be addressed in order to ensure the economic success of the businesses in the Commercial Centers.  A solution that has been used over the years is the acquisition and use of the adjacent residential lot or lots for parking.  There are numerous commercial parking lots in R1 zones that provide valuable parking and have reduced the parking impacts on the adjacent residential streets.  Many of these lots, however, are unsightly and not well buffered form the adjacent property.  In the few instances where attention has been paid to adequate shielding, landscaping, traffic flow and aesthetics, the parking lots have only a minimal if any impact of the adjacent residences. Parking lots in residential areas have become an unpopular and controversial solution in the community because of the poor design; while they solve the problem of parking impacts they are an unwelcome intrusion into the fabric of the residential neighborhood.

Inasmuch as this has been a controversial issue for more than the past decade, staff has explored and discussed other options to solve the parking problem, such as angled street parking and structured parking.  Angled parking would seriously affect the flow of traffic on the major corridors, something the City Council has not wanted to do; a parking structure at each of the neighborhood shopping centers along commercial corridors would be prohibitive in light of the limited size of establishments that can be developed adjacent single family zones. 

However, if the City wants to attract and retain quality businesses it is important to deal with the parking issue.  Quality establishments tend not to locate in places without sufficient convenient parking for customers.

Staff worked with the Land Use Element Update Advisory Committee to explore solutions for commercial corridor parking.  Whereas no good solutions were apparent, it was agreed that parking in the adjacent residential lot does not have to be unattractive and intrusive.  Such lots can be good neighbors and reduce impacts such as employee and customer parking in front of adjacent residences or impacts of deliveries in alley; they can be designed to provide a buffer from commercial frontage and can be attractive and landscaped to provide a green screen.

The existing Land Use Element allows for parking on the first contiguous residential lot with a CUP. Based on the unanimous recommendation from the Land Use Element Update Advisory Committee, staff proposes to retain the policy allowing parking on the first lot behind the alley, but limit its use to businesses in a designated commercial center.  In addition, policies will be included for the protection of adjacent properties and will address aesthetics and functional impacts.

3. Compact Single Family

The proposed Land Use Element update includes a new residential land use category: Compact Single Family.   This new category will be implemented by two zones: a new Compact Single Family zone and the existing R2 zone.

The Compact Single Family (CSF) land use category allows for single family residential homes on lots smaller than the existing 6,000 square foot minimum for a single family home. Whereas the proposed density is similar to the existing R2 zoning, it would permit only one unit per lot. The new CSF land use designation would replace some existing low density multiple family land use designation in areas that are not significantly built out at the multiple family density and are more appropriate for a lower density, or where it would serve as a transition between single family and multiple family areas.  The following map shows the areas designated for Compact Single Family use in the proposed Land Use Element update.   Two types of areas are distinguished in the map: the existing underdeveloped multiple family areas that are being proposed for Compact Single Family use in order encourage recycling without increasing densities, and existing R2 zones.

COMPACT SINGLE FAMILY (LOW DENSITY RESIDENTIAL)

Existing multiple family � Black      Existing R2 zones - Grey

The primary benefits of the CSF land use category are:

• Provides more single family  and homeownership opportunities,

• Provides more affordable home ownership opportunities, and

• Promotes the recycling of older low density multiple family areas without increasing densities.

This low density land use designation has also been applied to some areas currently zoned R-2.  In the existing 1988 LUE, R-2 zoning does not have a corresponding land use category; instead it is allowed in the traditional Single Family areas with the caveat in the Land Use Element that what already exists can remain but that there should be no more R-2 zoning created.  Inasmuch as the density of existing R-2 zoning (14 units per acre) falls within the range of the proposed CSF type of housing (14-17 units per acre), staff feels it is appropriate to include R-2 zoning in this land use category with the condition that it be allowed where it currently exists but that CSF is the preferred housing type in this land use category in order to achieve the benefits listed above.  The difference between R-2 and the new CSF zoning is that R-2 has a minimum lot size of 6,000 square feet and allows 2 units on the same lot whereas the CSF zone would permit a smaller lot size but allow only one unit per lot.  While the density of the CSF and R-2 zone classifications are similar, the housing product can be very different; CSF is envisioned primarily as an ownership product whereas R-2 is traditionally a home with rental property behind, or two rental units.

Staff envisions different types of Compact Single Family development depending on location; for example:

Free standing one to two-story homes on 3000 square foot lots.  This type of development would have a density of about 14 units per acres or 1 unit per 3000 square feet. This prototype is most compatible with traditional single family development and would be most appropriate in areas interfacing with traditional single family homes.

Zero lot line homes on 2500-3000 square foot lots look similar to the homes pictured above,   however, in this type of development two homes abut on the property line, eliminating one side yard set back for each property.  This allows for more open space on a small lot.  The density of this type of development would be 14-17 units per acre or 1 unit per 2500 square feet. This prototype is also compatible with traditional single family development and would be appropriate in areas interfacing with traditional single family homes.

Townhouse style single family homes are similar to the �painted ladies� in San Francisco or to the brownstones in New York. In this type of CSF development, separate homes standon separate lots and abut one another without separation by side yards.  Unlike thepopular townhouse style condominium, each home would be on a separate fee simple lotwithout common open space and parking.  This is the most compact of the CSFprototypes and would have a density of 17 units per acres or 1 unit per 2500 square feet.  This prototype would be most appropriate on major corridors and in multiple family areas.

A study by Keyser Marsten Associates as to the economic viability of this proposed new residential land use category found that it was an economically viable residential land use. CSF development could provide a less expensive single family home ownership option

There are numerous examples of the new CSF density throughout Burbank, such as the single family homes on the 25 foot wide lots along Chandler Blvd and the Cottages on North Ontario Street.  The type of product envisioned for the new CSF developments is, however, quite different from what we currently have in Burbank.  Innovations in site layout and building design have resulted in a variety of CSF development prototypes.

B. Names for Residential Land Use Categories

At the November 9^th City Council discussion, it was suggested that staff revisit the names of the multiple family residential densities to be used in the Land Use Element update.  It was mentioned specifically that the R-4 density, which is currently called Medium Density Multiple Family, would be more accurately described by the name High Density Multiple Family.  In response to this suggestion, staff proposes the following names for the residential densities in the Land Use Element update. 

NAME                            USE                                                         IMPLEMENTING ZONE

Very Low Density         Single Family                                                         R1

Low Density                  Compact Single Family and Duplex                   R2 and CSF

Medium Density           2 story Multiple Family                                          R3

High Density                 3 story Multiple Family                                          R4

Very High Density        Very High Density Multiple Family                      PD only

The following table compares the proposed new names for the various residential density categories with the existing names.  For example, R4 used to be called Medium Density and will now be called High Density.  The reason for the proposed changes is to more accurately reflect the community�s sensibilities regarding residential density.

Proposed New Land Use Categories and Applicable Zones

Compared to Existing Categories and Zones

C. Very High Density Multiple Family Areas

The City Council asked that staff bring back for discussion the proposed Very High Density residential areas that were presented at the November 9^th City Council discussion on residential densities.

Designating areas in which very high density is appropriate better enables the City to preserve sufficient capacity in the Land Use Element to meet Burbank�s growth needs and state mandated requirements. The areas in the proposed 2005 Land Use Element update designated for very high density residential use are areas which are, for the most part, already designated for the highest residential densities in the existing General Plan and zoning and go back to the 1960s. Two additional locations for Very High Density development have been identified in proximity to the existing locations. Very High Density areas are located primarily in and adjacent Downtown and the Media District business area. (See maps below) There are two new areas that are being proposed for Very high Density use, both in the area of the Media District.  The first is the residential area at the heart of the Media District, between Riverside Drive, Pass Avenue and Olive Avenue.  The second area is the residential adjacent the Media District, between Pass Avenue, Oak Street, Hollywood Way and the Freeway; much of this second area is already built at Very High Density.  In and adjacent the Downtown, all areas designated for Very High Density use are either already designated as such or built out at this density.

The following maps shows the areas proposed for Very High Density.  It is important to remember that many of the areas shown below are, in fact, already built-out with existing High or Very High Density development.

            PROPOSED VERY HIGH DENSITY � DOWNTOWN AREA

Existing Very High Density designation = dark grey

            New Very High Density designation = light grey

PROPOSED VERY HIGH DENSITY � MEDIA DISTRICT AREA

Existing Very High Density designation = dark grey

New Very High Density designation = light grey

NOTE: Most of the properties along Oak Street between Hollywood Way and Pass Avenue are already developed with large high density residential developments; this is true also for the area adjacent and just north of the freeway.

Very High Density residential sites, were designated based on a set of criteria which looked at proximity to transportation corridors, public transportation and access to freeways; walking proximity to retail and service centers; proximity to concentrated areas of employment; and distance or buffering from low density residential areas.  Whereas the amount of land citywide that has been designated for Very High Density residential use has been increased by about one third in the proposed Land Use Element Update, much of this land is already built out at the highest densities and what is not already built out would be permitted significantly lower densities than are currently allowed.

The areas designated in the Land Use Element for Very High Density districts are not expected to build-out at the very high density; this would require all properties to be assembled into large lots qualifying for the highest densities, existing development demolished and the site rebuilt.  In a built-up City like Burbank, this is highly unlikely. Many properties in the areas designated for Very High Density use are already built-out to densities that are not likely to recycle.  Rather, the Very High Density designation is intended to indicate where this type of development would be appropriate should the requisite minimum site size and other development standards be met.

The Very High Density residential areas would be given a maximum density which is 15-35% lower than the current R5 density.  As presented at the November 9^th meeting, a sliding density scale is proposed, which links allowed density to lot size.  Therefore, only the largest assembled sites, which are anticipated to be very few in numbers, would actually be allowed to build out to the highest proposed density of 72 units per acre. 

All development in the Very High Density districts would require City Council discretionary action.  As is currently done, zoning would remain at R-4 until such time as an applicant came forward to apply for a zone change.

The very high density area currently extends from Glenoaks Boulevard to Sixth Street and then transitions to Medium and Low density.   In response to direction from the City Council, staff reduced the size of the area designated for Very High Density multiple family use above Glenoaks Boulevard by limiting the Very High Density area to the properties between Glenoaks Boulevard and Fifth Street and designating the land between Fifth and Sixth Streets as Medium Density.  This would reduce the amount of Very High Density land by about 25 acres. The biggest impact of the geographical reduction of the Very High Density area is that there would be fewer opportunities to achieve the necessary land assemblage for a Very High Density development.  Land assemblage becomes increasingly difficult as the City continues to build out; the larger the land area available the more likely it is that some consolidation will occur and there will be some Very High Density development adjacent the Downtown area.

D. Densities of Recently Proposed Multiple Family Residential Projects

During the City Council discussion of residential densities at the November 9^th meeting, the question arose as to what effect the proposed new densities would have on actual development.    As an indication, the City Council requested that staff include in this report a summary of the number of multiple family development review applications in which the project�s density exceeds the new reduced densities proposed for the Land Use Element update.  In response to that request, staff has reviewed the development review applications for 2003 and 2004 and found that there have been 80 multiple family DR applications; of these applications 46 (58%) proposed more units than would be allowed under the proposed densities.  The remaining 34 applications (42%) proposed densities that did not exceed the proposed densities.

E. Proposed Schedule for the completion of the Density and Design Zone Text

     Amendments and Completion of the Land Use and Mobility Elements

At their November 9^th meeting, the City Council directed staff to prioritize the completion and codification of the necessary zone text amendments for reducing residential densities and implementing new multiple family residential development and design standards.  City Council indicated that they are aware that this would necessitate delaying the completion of the Land Use and Mobility Element updates until after the density and design zone text amendments are completed.  Staff priorities have been shifted to accomplish this directive.  The following schedule

To avoid the confusion of having two closely related documents and environmental assessments before the public for review at the same time, staff proposes releasing the Draft Land Use and Mobility Elements, and the EIR on these documents, for public review immediately following the adoption of the density and design zone text amendments.  The schedule for completion of these two important general plan elements would be as follows:

FISCAL IMPACT

No fiscal impact would result from the changes proposed in this report.

CONCLUSION AND RECOMMENDATION

The commercial and industrial categories presented in this report are intended to a balance between the needs of the residents and the needs of the business community.   The facilitation of mixed use development in several areas of the City is intended to augment the housing capacity of the City in the face of significant reductions in the multiple family residential densities as well as to create a new residential environment that provides easy access to retail businesses and services and public transportation.  The proposed Compact Single Family (Low Density Residential) land use category responds to the need for additional single family ownership opportunities that are difficult to provide in a built out city; in addition, this new type of development can provide a more affordable single family option and can help solve some of the problems associated with preserving a low density character in multiple family areas.  Staff asks the City Council for input on these proposed land uses.

In response to City Council direction, staff has brought back for consideration, the matter of Very High Density residential land use � comparable to the current R5 density, as well as new names for the residential density categories that better reflect the community�s feelings about density.  Staff looks for City Council concurrence on these proposals.

Lastly, staff has put forth a revised schedule for the completion of the multiple family density and design zone text amendments and, following as closely as possible, a schedule for the subsequent completion of the Land Use and Mobility Elements of the General Plan and the applicable EIR on those elements.  The schedule reflects, as closely as possible, the desire expressed by the City Council to prioritize the completion of the zone text amendments before completing the Land Use and Mobility elements.  Staff seeks the City Council�s approval of the schedule presented in this report.

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