Council Agenda - City of Burbank

Tuesday, March 8, 2005

Agenda Item - 7


 

 

DATE: March 8, 2005
TO: Mary J. Alvord, City Manager
FROM:

Susan M. Georgino, Community Development Director

via Greg Herrmann, Interim Assistant. CD Director/City Planner

via Roger Baker, Deputy City Planner 

by Barbara Lazar, Senior Planner

SUBJECT:

DISCUSSION ITEM: LAND USE ELEMENT FOLLOW-UP -- LOW DENSITY RESIDENTIAL (R-2 AND COMPACT SINGLE FAMILY DEVELOPMENT)


PURPOSE

 

The purpose of this report is to bring back to the City Council additional information about the proposed new Compact Single Family type of residential development as requested by the City Council at their December 14, 2005 meeting.

 

BACKGROUND

 

On December 14, 2005, staff presented to the City Council for discussion several important land use concepts and changes proposed for the 2005 General Plan Land Use Element Update.  One of these proposals was for a new single family development alternative called Compact Single Family (also called small lot single family). Compact Single Family (CSF) is not proposed as a separate land use category in the Land Use Element, but rather as a new zone that would be part of the implementation of a proposed new Low Density Residential land use category.

 

Following the initial presentation and discussion of this concept, the City Council requested that staff return with an explanation of what compact single family housing is, why are we suggesting this new development alternative, and how it would be implemented.  The City Council members also requested that detailed maps be provided showing exactly where the new CSF zones would be located, and descriptions of the existing development in and around the sites proposed for this use.

 

ANALYSIS

 

As part of the General Plan Land Use Element update process, staff is reviewing the complete spectrum of multiple family residential densities and development standards and is proposing changes to the Land Use Element and zoning code to address community concerns regarding the increasing rate of residential development.  

 

At the other end of the density spectrum � low density residential development � there are also challenges and opportunities facing the City which need to be addressed; the Land Use Element update is again the ideal place to address these issues as well as other housing issues.

 

The challenges and opportunities that relate to low density residential land use and the proposed new Compact Single Family zoning include:

  • Protecting existing single family neighborhoods by buffering them from higher density multiple family residential uses;

  • Providing more single family residential housing opportunities in a built out community with little if any unbuilt single family land;

  • Providing more variety in the single family housing stock;

  • Providing a more affordable single family housing product;

  • Providing an incentive and an economically viable alternative for recycling existing underdeveloped or blighted  low density residential property.

In order to address these issues, however, it is important to first understand their origin and the background in which the Land Use Element is being developed.

 

The Vision for Burbank�s Future

The General Plan Land Use Element update is based to a great extent on the input received from residents through a multifaceted community outreach program that began the update process.  This input helped define a Vision for Burbank over the next 20 years � a vision of what the residents wanted for their City, which unique qualities they wanted to retain and what they wanted to change.  This Vision is the foundation of the updated Land Use Element that will guide future planning and development in Burbank.  

 

Several dominant themes emerged from the community input process that have provided valuable direction as staff moves forward with the Land Use Element update.  First and foremost, Burbank residents like their community and its �small town� atmosphere of single family neighborhoods.  Most of the community input commented in one way or another about the small town feeling of Burbank and the sense of community that it embodies.  At the same time, most of the residents also commented on the �big city� opportunities - services, facilities, and activities - that they enjoy in Burbank.  The protection and preservation of existing single family residential neighborhoods was repeatedly noted as being very important to residents.  Neighborhoods are viewed as the basic building blocks of Burbank�s small town experience and the preservation of quality residential neighborhoods was mentioned time and again. Residents also showed that they recognize the necessity for more housing variety in the community and the need for more affordable housing opportunities. 

 

While residents� Vision of Burbank as a small town and a big city may seem to be contradictory, these ideas are not necessarily incompatible. They call for BALANCE in the community; a careful, planned balance that will allow for an increase in urban conveniences and opportunities without overpowering the small town community they serve.  Staff believes that balance is central to any vision of Burbank and it has been the guiding principal in formulating the update of the Land Use Element.  The Vision for Burbank�s future is based on a set of core values endorsed by the City Council in April 2003.  These core values, as a basis for future planning, will help ensure that Burbank continues to be a place where over 100,000 residents want to live and raise their families.

 

The introduction of a new Low Density residential land use category and the proposed Compact Single Family development, addresses the community needs and values embodied in the Vision for Burbank�s future by:

  • Protecting existing single family residential neighborhoods by replacing less appropriate uses adjacent to R-1,

  • Creating more single family residential opportunities to respond to the demand for more single family homes in Burbank,

  • Providing for more housing variety by introducing a new type of single family product,

  • Increasing the opportunities for more affordable single family ownership by providing a product on a smaller lot which would be less expensive than a comparable home on a larger lot, and

  • Helping to balance the housing stock between single family and multiple family housing types.

The Need for More Single Family Housing

Over the past 25 years the balance between single family and multiple family housing in Burbank has changed.  Whereas about 80% of the residential land in Burbank is allocated to single family use, almost all of this single family land is built out. Virtually no privately owned undeveloped land remains and no new single family lots are anticipated in the City. There still remains, however, development opportunity in areas of underutilized multiple family residential areas and the continued development of apartments and condominiums in these areas increases the proportion of multiple family housing in the City. 

 

Over the past 30 years over 90% of all new construction has been of multiple family dwellings.  According to the 1980 U.S. Census, 54.5% of Burbank�s housing was single family homes; as of the 2000 Census, only 46% of Burbank�s housing was single family homes.  As the City continues to add housing in the future, the disproportion between the number of single family and multiple family dwellings will increase as new development will entail the recycling of existing underutilized multiple family residential land. A Compact Single Family zone would provide new opportunities and incentive for the development of additional single family housing in the community

 

In addition to some of the core values of  Burbank�s Vision,  there are other sources that  point to the need for more single family residential opportunities in the City, and the type of development that would be provided by a new Compact Single Family type of development. For example, in 2002 the City Council appointed a Blue Ribbon Task Force on Affordable Housing to recommend ways of achieving more affordable housing in the Community.  In 2003, the City Council unanimously approved the findings of this Task Force which, among other things, called for the expansion of home ownership opportunities by adopting a small lot infill ordinance to facilitate infill housing on scattered sites within residential neighborhoods.  This goal could be accomplished by creating a Compact Single Family zone.

 

The Need to Recycle

There are currently numerous R-2 and R-3 zoned properties that are developed with older single family homes or duplexes, many of which are over 50 years old and show signs of deterioration.  In order to maintain the quality of the residential neighborhoods in which these residences are located, these properties need to be upgraded or replaced.  Generally, these types of older rental units are replaced with new higher density development.  However, with the proposed lowering of multiple family residential densities, there may be insufficient economic incentive for these properties to recycle with new development. Even with current R-3 densities, it is often not economically feasible to replace older housing with new development and it is common for these properties to add one or two units onto or behind the existing older dwelling; this often results in unsightly development which detracts from the quality and character of the neighborhood. The Compact Single Family option can provide an economically viable option for recycling older single family or low density multiple family properties without increasing densities.

 

Proposed Low Density Residential Land Use Category

Both R-2 and Compact Single Family would be zones which could implement the new Low Density Residential land use category proposed for the 2005 Land Use Element update. The existing R-2 zone permits a traditional multiple family product, whereas the proposed Compact Single Family zone permits single family development at an R-2 density on smaller individual owned lots. 

 

The following table shows the hierarchy of residential densities, including the new Low Density land use category.  As can be seen in the table, traditional Single Family (R-1 zoning), would be in the proposed Very Low Density residential land use category rather than in the existing Single Family Low Density category.  Whereas the Single Family Low Density category currently allows for R-2 zoning, the proposed Very Low Density category would allow only Traditional Single Family (R-1) zoning.   This category would allow only one unit per 6,000 square foot lot.  The new Low Density residential category, as proposed, would be implemented by the existing R-2 zone and the proposed new Compact Single Family zone, and would allow one unit per 2,500 square feet of lot area.

 

Proposed Land Use Categories and Applicable Zones

Compared to Existing Land Use and Zoning

 

 

 

EXISTING RESIDENTIAL LUE CATEGORIES

(Implementing Zone Designations)

 

PROPOSED RESIDENTIAL LUE CATEGORIES

(Implementing Zone Designations)

 

 

PROPOSED MAXIMUM

DENSITIES

 

Single Family

Low Density

(R-1, R-2)

 

R-1

Up to 7 unit per acre

 

 

R-2

Up to 14 units per acre

 

 

 

VERY LOW DENSITY

Traditional Single Family

(R-1)

 

 

Up to 7 units per acre

 

LOW DENSITY

Compact Single Family

and Duplex

(CSF, R-2)

 

 

R-2 � Up to 14 units per acre

 

CSF - Up to 17

units per acre

 

 

 

Multi-Family

Low Density

(R-3)

 

Up to 29 units per acre

 

 

MEDIUM DENSITY

Multiple family two story

(R-3)

 

 

Up to 23 units per acre

 

Scaled to lot size

 

Multi-Family

Medium Density

(R-4)

Up to 58 units per acre

 

 

HIGH DENSITY

Multiple family 3 story

(R-4)

 

Up to 45 units per acre

 

Scaled to lot size

 

Multi-Family

High Density

(R-5,PD)

Up to 87 units per acre

 

 

VERY HIGH DENSITY

Multiple family 3+ story

(PD)

 

 

Up to 72 units per acre

 

Scaled to lot size

 

The existing R-2 zone and the proposed Compact Single Family zone have a similar density but, as can be seen below, there are significant differences.

 

Differences Between R-2 and Proposed Compact Single Family Zones

 

 

 

R2

 

CSF

 

 

Minimum lot size

 

 

6,000 square feet

 

 

2,500 square feet

 

Units per lot

 

 

2

 

1

 

 

Maximum Density

 

1 unit per 3,000 square feet of lot area 

(15 units per acre)

 

 

1 unit per 2,500 square feet of lot area

 (17 units per acre)

           

Tenure           

 

Owner/Rental

Rental

 

 

Owner

 

 

Product

 

Duplex or Single Family with

2nd unit detached/attached

 

Multi-Family Product

 

 

Single Family home (attached or detached)

 

Single Family ownership product

 

 

Types of Compact Single Family Development

There are several types of Compact Single Family development which enable this housing product to fit into a variety of different neighborhoods; some of these product types are described below.  All Compact Single Family development would have certain things in common: Fee simple ownership of the lot on which the home stands (as compared to condominium development), and its own front yard, rear yard and parking on that lot.  Depending on location and lot configuration, a Compact Single Family home can have access to parking from the street or from an alley, and could have either an attached or detached garage.

 

Detached Compact Single Family Homes

Detached Compact Single Family homes are generally one to two-story homes on 3,000 square foot lots.  This type of development would have a density of about 14 units per acre or 1 units per 3,000 square feet of lot area � this is double the R-1 density.  This type of development is most compatible with the traditional single family neighborhood in that the detached homes closely resemble the traditional single family product, as can be seen in the photographs below.  Detached Compact Single Family homes would be most appropriate in areas interfacing with existing single family neighborhoods.  Below are some examples of Detached Compact Single Family housing.

 

                                                            Detached Compact Single Family

 

 

 Brea      

   Detached Compact Single Family  

                            9 units per acre

 

 

 

          Brea     Detached CSF

                     Alley access to Garages

   

 

 

 

 

                                                                        

 

 

 

 

 

 

 

 

 

 

 

 

       

 

 

 

 

  Detached Compact Single Familymetrosquare2houses.jpg

 

 

 

 

 

 

 

 

 

 

 

Sacramento, California   Metro Square

Detached Compact Single Family

21 units per acre

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Attached Compact Single Family Homes

Attached Compact Single Family homes are very similar in appearance to the detached compact single family homes; however, in this type of development two homes abut on a shared  property line, eliminating the side yard set back for each property.  Another common name for this type of Compact Single Family development is Zero Lot Line homes. This allows for more open space on a small lot.  The density for this type of development would be 14-17 units per acre or 1 unit per 2,500 square feet, depending on unit size and lot configuration. This type of development is also compatible with traditional single family residential homes and would be appropriate in areas interfacing with, or adjacent, existing single family neighborhoods.

 

 

Attached Compact Single Family

 

 

Petaluma California    Compact Single Family Attached    12 units per acre

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Townhouse Style Compact 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 Compact Single Family development, separate homes stand on separate lots and abut one another without separation by side yards.  Unlike the popular townhouse style condominium, however, each home could be on a separate fee simple lot without common open space and parking.  This is the most compact of the Compact Single Family housing types and would have a density of up to 17 units per acres or 1 unit per 2,500 square feet of lots area.  This type of housing would be most appropriate on major corridors and in and adjacent multiple family residential areas.

 

                                                                                                           

      Brea, California                              Townhouse style CSF            24 units per acre

 

Economic Feasibility of Compact Single Family Development

The City retained the economic consulting firm of Keyser Marston Associates, Inc. (KMA), to evaluate the feasibility of developing small lot, single family (Compact Single Family) projects in Burbank.  KMA evaluated three different types of compact single family projects covering the range of densities proposed for this new type of residential use.  One project was a six-unit detached product on 3,000 square foot lots (14.5 units per acre) and the other two projects were both seven-unit projects on 2,600 square foot lots (16.9 units per acre); both are attached (zero-lot line) types of projects, but one has slightly larger units.

 

Based on conservative market value for the new homes, KMA has determined that Compact Single Family residential projects can support land values between $50 and $70 per square foot of land; KMA has confirmed that there are properties available in Burbank where existing land values and �tear down� project values are between $40 to $50 per square foot of land.  Based on their analysis, both the six-unit detached and seven-unit attached for-sale Compact Single Family projects are viable in the current marketplace.

 

KMA did note however that the larger issue for these projects is the acquisition and consolidation of adjacent lots.  Compact Single Family development is viable only if at least three adjacent lots can be acquired and consolidated.  That may be difficult and not always possible in residential neighborhoods where factors other than economic value come into play.

 

Implementation

The Low Density Residential land use category is proposed for

  • Single Family areas currently zoned R-2;

  • Single Family areas that are already built out at the Low Density Residential densities (i.e.: Chandler);

  • R-3 zones that are adjacent to R-1 zoned property, and are not yet developed at an R-3 density;  

  • R-3 zones that are not adjacent to R-1 zoned property, and are not entirely built out and in which older structures are showing signs of deferred maintenance.   These areas would benefit from recycling yet with the new reduced R-3 densities it may  not be economically feasible to build new R-3 development from scratch.  Without an economically viable alternative, these R-3 properties are likely to add two to three units to the rear of an existing older dwelling, rather than improve the entire property.  A small lot single family product would provide a competitive product in today�s market and would do more to enhance the neighborhood.

The Low Density residential land use category would be implemented by either R-2 or Compact Single Family zoning as follows:

  • Sites with existing R-2 zoning would retain the R-2 zoning; 

  • Single Family (R-1) areas with single family homes built on 25-30 foot wide lots (i.e. areas of Chandler Blvd. and Hollywood Way) would be zoned Compact Single Family;

  • R-3 multiple family residential zones that are developed with all single family homes and are adjacent R-1 would be zoned R-2 but would be considered appropriate candidates for a zone change to Compact Single Family when 3 or more lots are consolidated;

  • R-3 zones that would benefit from recycling and are developed with a mix of older single family, duplex and 3-4plex development would be zoned R-2 but would be considered appropriate candidates for a zone change to Compact Single Family when 3 or more lots are consolidated.

In light of the KMA analysis discussed above that says that Compact Single Family development is viable only if at least three adjacent lots can be assembled, it is important to allow some development potential to deteriorated or underdeveloped R-3 properties which want to recycle but may not be able to assemble the requisite 3 lot minimum to develop as Compact Single Family. For this reason, properties currently zoned R-3 would be rezoned R-2  (rather than Compact Single Family) with the option of applying for a zone change to the Compact Single Family zone for any parcel of 18,000 square feet or more  (at least 3 lots).

 

Areas Proposed for Low Density Residential (Compact Single Family or R-2)

The following is a summary of the 15 areas for which the Low Density residential land use category is proposed.  Exhibit A shows the general location of each of the 15 areas proposed for Low Density residential use in the 2005 Land Use Element update.

 

Each of the following exhibits B through P have two maps; map 1 shows the existing and proposed General Plan land use designation and the existing zoning for the area, and map 2 shows existing development on the site (number of units and year developed) with a background color that indicates the density of existing development in terms of existing zoning categories.

 

The summary of each area that follows indicates which type of zoning is suitable to implement the Low Density residential and what type of residential product is envisioned. It is important to remember that the 2005 Land Use Element is a long term blueprint for future development, with a horizon to the year 2025.  Existing development that is viable now may be ready to recycle in 5, 10 or 15 years from now and the Land Use Element indicates the desired land use at that time.

 

The final determination as to zoning of these properties will occur after the updated Land Use Element is adopted, during the implementation phase. In order to allow for the proposed new Compact Single Family residential option, it will be necessary to amend the zoning Code to include this as a new zone classification. City Council and the public will have opportunity to study these areas in depth and make a determination as to the most appropriate zoning.

 

Exhibit B

Area B is the west side of Hollywood Way between Pacific Ave. and the alley north of the commercial property on the corner of Hollywood Way and Victory Blvd.  This area is designated in the current General Plan as Medium Density Multiple Family and zoned half R-3 and half    R-1. (Exhibit B-1)  The entire area is developed with single family homes built in the 1940s. (Exhibit B-2)

 

The proposed General Plan designation is Low Density residential and staff envisions Compact Single Family development in this area inasmuch as this area directly abuts single family and fronts on a major thoroughfare.  A two-story townhouse type of compact single family development would be a suitable product for this area.

 

Exhibit C

Area C is the east side of Ontario St. between Vanowen St. and pacific Ave.  This area is designated in the current General Plan as Medium Density Multiple Family (comparable to R-3) and is zoned half R-4 and half R-3. (Exhibit C-1) The entire area is developed with low density tri-plexes built in 1951. (Exhibit C-2) 

 

The proposed General Plan designation is Low Density residential; staff envisions Compact Single Family development in this area due to the adjacency of R-1 to the east.  There is an alley separating Area C from the adjacent R-1 lots which facilitates alley access parking with garages in the rear of the lot and facilitates the development of  attached or detached Compact Single Family housing.

 

Exhibit D

Area D includes both sides of North Brighton St. between Kenmere Ave and the alley north of Empire Ave.  This area is designated in the current Land Use Element as Medium Density Multiple Family (equivalent to R-3) and is zoned R-3. (Exhibit D-1)  Existing development in the area is predominately single family and duplex (three lots have 3-4 units); existing development in this area was built in the 1930s and 1940s. (Exhibit D-2)

 

The proposed General Plan designation for this area is Low Density residential with either an R-2 or Compact Single Family zone designation. Both sides of Brighton St. have rear alley access which facilitates the development of Compact Single Family development.

 

Exhibit E

Area E includes several blocks around the Monterey High School between Monterey Ave. and Pacific Ave, North Lamer St. and North Parish Pl.  As can be seen in Exhibit E-1, the entire Area E is designated in the existing Land Use Element as Single Family Residential.  The existing zoning of this area is R-2, which is considered consistent with the current Single Family land use designation.  The proposed Land Use designation for this area is Low Density residential in as much as the proposed new residential hierarchy puts R-2 into the Low Density category and not into the Very Low Density category which is reserved only for traditional R-1 single family development.

 

Existing development in this area is a mix of older single family homes built in the 1930s and 1940s and duplexes from the same period (Exhibit E-2). Inasmuch as this area is in the middle of an existing single family residential neighborhood, the compact single family zoning with either single family detached or zero lot line homes would be appropriate. 

 

Exhibit F

Area F includes several blocks between the Golden State Freeway, San Fernando Rd. and Scott Rd.  As can be seen in Exhibit F-1, the entire Area F is designated in the existing Land Use Element as Low Density (R-3) Multiple Family. The existing zoning in this area is a mix of  R-1, R-2 and R-3., however existing development is predominately single family homes built in the 1940s (Exhibit F-2).

 

This area has the feel of a stable single family neighborhood and either detached or attached (zero lot line) compact single family development would be an appropriate product type for this area.   The area is land locked on one side due to the adjacent freeway which inhibits traffic flow into and out of the area on one side; this is an added reason to maintain a low density in this area.

 

Exhibit G

Area G is a one-half block area on the south side of Harvard Rd., east of Sixth St.  This area is has an existing general plan designation of Medium Density Multiple Family (R-4) and R-4 zoning (Exhibit G-1). This area interfaces with single family residential homes across the street on Harvard Rd. and on the rest of the block to the east up to Kenneth Rd.  As shown in Exhibit G-2, the 8 lots directly facing Harvard Road are built out with 3 single family homes built in the 1980s, three low density multiple family developments (3-5 units) built in the 1920�s and two medium density developments (R-4) built in the 1960s.  This area is problematic due to the interface with the surrounding R-1 neighborhoods.  In an effort to give the properties an economically viable recycle option, without allowing the area to build out to the currently allowed medium density multiple family (R-4), it is recommended that this area be designated as Low Density Residential and rezoned R-2.  Compact Single Family zoning would be most appropriate in this area, across the street from existing R-1, but existing development is likely to preclude the requisite 3 lot assemblage necessary for this type of development.  

 

Exhibit H

Area H includes all of Chandler Blvd from the western City boundary at Clybourn Ave. east to Mariposa St. and the Whitnall Hwy. from Chandler to Burbank Blvd.  As can be seen in Exhibit H-2 (1-7) most of Chandler Blvd. and Whitnall Hwy has a single family land use designation in the existing 1988 Land Use Element and mostly R-1 zoning.  The area is developed with single family homes, many on small, 25 foot wide lots.  About half the single family lots in this area are small lots, less than the 6,000 square foot minimum lot size in the City.  Due to the small lot sizes, about half the existing development along Chandler blvd. and on Whitnal Hwy. is already built at the R-2 density (Exhibit H-2 (1-7)).

 

In light of the existing unique small lot single family character of this residential strip, staff recommends a Compact Single Family zoning to implement the proposed new Low Density Residential land use designation for this area.  This will ensure that new development along Chandler will be compatible with and enhance the existing single family development.

 

Exhibit I

Area I includes both sides of Screenland Dr. and Kenwood St. between Chandler and Magnolia Blvds.  As shown in Exhibit I-1, this area is designated as Single Family residential in the existing general plan, with Screenland zoned R-1 (except for two lots that are R-2) and Kenwood zoned R-2.  This leaves one street of R-1 zoning between the commercial frontage on Hollywood Way and the R-2 zoning on Kenwood St.  Exhibit I-2 shows this area to be developed primarily with older single family homes built in the 1920s, 1930s and 1940s.  There are several properties developed with two units but these are also old developments.

 

The Land Use Element update proposes that this area be designated for Low Density residential and recommends R-2 zoning which can be rezoned to Compact Single Family when the necessary number of lots are assembled.  The detached or zero lot line type of compact single family development would be most suitable in this single family residential area.

 

Exhibit J

Area J is a single street of R-2 zoning in the midst of an R-1 single family area.  Area J is Sparks St. between the alley south of Clark St. and the commercial frontage on Verdugo and Olive Aves.  The existing general plan designation for this area is Single Family and most of the street is zoned R-2. (Exhibit J-1)

 

Existing development in Area J consists of older single family homes and some R-2 development built mostly in the 1920s. (Exhibit J-2)  Half of this area abuts Commercial and R-4 multiple family development and half abuts R-1 single family.  The Low Density residential designation proposed for this area in the Land Use Element update would be a buffer compatible with both uses.  Staff suggests an R-2 zoning with a zone change to allow for detached or attached (zero lot line) compact single family development when the requisite number of lots can be assembled.

 

Exhibit K

Area K is the area between Lake St. and the Golden State Freeway, from the City border with Glendale to Alameda Ave.  This area is designated in the existing general plan for Low Density Multiple Family use and zoned for R-3 (Exhibit K-1).  This is an area that has a significant amount of deferred maintenance and substandard housing and would benefit from recycling. 

 

Existing development in this area is a mixture of old single family homes and numerous properties where one, two or even three units have been added to the existing old home with little if any improvement to the property. (Exhibit K-2)  Whereas this area needs to recycle in order to upgrade the available housing and the neighborhood in general, the overall densities in the neighborhood west of Lake St. and the fact that Area K is land locked to the east by the Golden State Freeway which inhibits ingress and egress in this area, make density increases a less than ideal method of encouraging recycling in this area.  A compact single family product would provide an economically viable alternative to density as an incentive to recycling property in this area. 

 

The proposed Land Use Element update designates this area for Low Density Residential with the intent that it will redevelop with compact single family homes.  Detached and attached (zero lot line) compact single family homes are appropriate throughout this area with the townhouse type of compact single family also appropriate on Lake St. and Spazier Ave.  This is a large area with numerous large lots that provide opportunities for large scale redevelopment.  Staff recommends that this area be zoned R-2 to allow small lots to recycle, but that large scale redevelopment in the area should be encouraged to rezone and develop with a Compact Single Family product.

 

Exhibit L

Area L is the one block consisting of the west side of Valley St. to the City boundary at Clybourn, between the alley south of Chandler blvd. and the alley north of Magnolia Blvd.  This area is designated in the existing general plan for Single Family use and is zoned primarily R-2 (Exhibit L-1).  Most of the lots on this block have frontage on both Clybourn Ave. and Valley St. and are developed with two units (Exhibit L-2), one fronting on each street. 

 

The proposed Land Use Element update designates this area for Low Density residential and it is recommended that this area be zoned R-2 to reflect the predominant development type existing on this block.

 

Exhibit M

Area M is a large area consisting of both sides of Screenland Dr., Kenwood St. and Maple St. between Clark Ave and the alley south of Magnolia.  In the existing General Plan this area is designated as Single Family except for the east side of Screenland Dr. which is Low Density Multiple Family. The area is zoned R-2 throughout except for the Screenland Dr. which is zoned primarily R-3 on the east side of the street to reflect the Multiple Family residential land use designation there, and R-1 on most of the  west side of the street. (Exhibit M-1)

 

Existing development is primarily a mixture of older R-1and R-2 development developed in the 1920s, 1930s and 1940s. (Exhibit M-2)  This area is ripe for recycling to compact single family housing. The detached or attached (zero lot line) type of compact single family development would be most suitable in this predominately single family residential area.

 

Exhibit N

Area N includes the east side of California St. opposite Verdugo Park, between Clark St and Verdugo Ave. as well as Fairview and Niagara Streets between Clark St and Verdugo Ave. The existing general plan designates California St. as Single Family and it is zoned R-2.

(Exhibit N-1)  Fairview and Niagara Streets are designated for Low Density Multiple Family use in the existing Land Use Element.  City Council recently rezoned Fairview and Niagara Streets from R-3 to R-2 in response to compatibility issues related to proposed development on Fairview Street and the desire to retain the unique low density residential character of this area..

 

Existing development on California St. is almost entirely single family homes (Exhibit N-2).  The proposed Low Density land use designation would be implemented with an R-2 zone which could be changed to allow for Compact Single Family when the minimum site is assembled.  Compact Single Family is the preferable development type in this single family neighborhood and would be most compatible with the surrounding and adjacent single family homes.

 

Existing development on Fairview and Niagara Streets in predominately older single story duplexes built in the 1940s.

 

In keeping with the City Council�s request to lower the density in this area to preserve its unique character, staff has proposed the Low Density residential land use category for this area.  The initial zoning in this area would be R-2 but staff envisions lot assemblage and possible rezoning to Compact Single Family for a detached or zero lot line Compact Single Family development.

 

Exhibit O

Area O consists of both sides of Florence St. between Verdugo Ave. and the alley north of Olive Ave.  This area is an island of older multiple family development in the middle of a stable single family residential neighborhood.  This area is designated in the existing general plan as Low Density Multiple Family north of Oak St. and as Single Family south of Oak St. The block north of Oak St. is zoned R-3 and the short block south of Oak St. is zoned R-2 (Exhibit O-1).

 

Existing development in this area reflects the zoning.  Florence St. north of Oak, which is zoned

R-3 is almost entirely built out with three and four-plexes built in the 1940s.  Florence St. south of Oak St. is about half built out to the R-2 density; existing development on this block was built in the 1920s, 1930s and 1940s (Exhibit O-2).

 

The proposed general plan designation of Low Density residential for the entire Area O is intended to reduce the density of development on this street when existing older buildings reach the end of their economic life and development on the street eventually recycles; the proposed land use designation is intended to encourage new development more in character with the surrounding single family residential neighborhood.  The high price of single family homes in Burbank, make the Compact Single Family development option an economically feasible way to recycle properties in this area at a lower density.

 

Exhibit P

Area P is the industrial area east of Mariposa St. to the City boundary, between the single family development on Dincara Rd. and the L.A. River Channel.  This area is part of the Rancho horse-keeping area and is designated in the existing Land Use Element for a Horse Compatible industrial use (Exhibit P-1).  This area has an industrial M-1 zoning and has a large light industrial use (Exhibit P-2).

 

The proposed Land Use Element update designates this area for Low Density residential use and envisions a subdivision of either detached or zero lot line Compact Single Family development.  Whereas the existing industrial use in this area is a good neighbor to the adjacent horse-keeping properties, staff feels that future recycling of industrial uses in this area could result in a less compatible use in this unique Rancho area.  The Land Use Element Update Advisory Committee recommended the change to a residential use in this area and felt that Compact Single Family would be an appropriate density to provide an economically attractive alternative to the existing industrial use.

 

FISCAL IMPACT

 

No fiscal impact would result to the City from the changes discussed in this report.  The economic feasibility of the proposed new Compact Single Family is discussed above on page 10.

 

CONCLUSION AND RECOMMENDATION

 

The proposed Low Density residential land use category provides for existing R-2 development and for the new proposed Compact Single Family (CSF) type of development. Though these two types of residential uses have similar densities they provide for very different types of residential product.  In areas where  either type of product would be appropriate, the single land use category facilitates the zone change from R-2 to CSF when the requisite lot consolidation is achieved.

 

The CSF type of development provides many benefits to the community.  It increases opportunities for single family ownership in a City where the traditional single family areas are already built-out, and it provides a more affordable form of single family home ownership. Moreover, the CSF zoning would provide an economically viable option, and incentive, to recycling older low density residential without increasing densities.

 

Staff seeks City Council direction regarding the 15 areas proposed for the new Low Density residential land use category.  Staff also seeks City Council direction regarding the proposed Compact Single Family as a new type of residential product type in the community and its proposed inclusion in the 2005 Land Use Element update as one of the two zones which will implement the Low Density residential land use category.  

 

 

EXHIBITS

 

EXHIBIT A  � Proposed Location of Low Density Residential Land Use

 

EXHIBITS B through P � Maps showing the existing and proposed General Plan land use designation, existing zoning and existing developmentfor each of 15 areas proposed for Low Density residential use.

 

 

go to the top