Council Agenda - City of Burbank

Tuesday, August 9, 2005

Agenda Item - 2


 

 

 
 

 

DATE: August 2, 2005
TO: Mary J. Alvord, City Manager
FROM:

Susan M. Georgino, Community Development Director

via Greg Herrmann, Assistant Community Development Director/City Planner

by Jeremy S. Ochsenbein, Senior Planner

SUBJECT:

PROJECT NO. 2004-97: PLANNED DEVELOPMENT with DEVELOPMENT REVIEW

2128 North Glenoaks Boulevard (Former Unocal 76 Site)


PURPOSE:

 

To consider a request by Farhad Simab to construct a mixed use project consisting of thirty-four (34) residential units and 2,632 square feet of retail/office space on the site of a former Unocal 76 station at 2128 North Glenoaks Boulevard. A draft Development Agreement and Negative Declaration have also been prepared for the project.

 

BACKGROUND:

 

Property Location: The subject property is located at 2128 North Glenoaks Boulevard (Parcel 2; P.M. 10-95). The subject property is located at the intersection of Glenoaks Boulevard (Exhibit A-1)

 

Zoning:  The project site is located within three (3) different zones. The majority of the site is located within the C-2 Commercial Limited Business zone. The northern portion of the property is zoned R-1 Single Family Residential. The eastern portion of the site is located within the R-4 Residential Multiple Medium Density zone. Surrounding properties are zoned C-2, R-1, R-4, and R-2 Two Family Residential.

 

General Plan Designation:  The entire property is designated for Limited Commercial uses by the General Plan. Likewise the surrounding properties have been designated for Limited Commercial land uses. Mixed use residential and residential only projects are acceptable land uses within this designation. The R-1 and R-4 zoning designations are not consistent with the Limited Commercial land use designation.

 

Property Dimensions:  The project site is approximately 38,800 square feet in area. The property is irregularly shaped with a nearly 140 foot frontage along Glenoaks Boulevard and an eighty-two (82) foot frontage along Keeler Street. The property also includes a twelve (12) foot wide alley which extends to Scott Road. Excluding the driveway, the parcel is around 180 feet deep and 150 feet wide.

 

Street Classifications:  Glenoaks Boulevard is designated as a Major Arterial with a right-of-way of one hundred (100) feet (68 feet paved with 16 foot parkways). Keeler Street is a Local Street with thirty (30) foot right-of-way (30 feet paved with no public parkways). The property has frontage on Scott Road which is designated as a Collector Street with a sixty (60) foot right-of-way (36 feet paved with 12 foot parkways). However the proposed project does not include access to Scott Road.

 

Current and Past Development of the Site: The site was developed as an automobile service station which was built in 1955. The gas station use remained on the site until 2003 when the use ceased and the underground storage tanks on the site were removed. Other structures related to the gas station use remain on the site. There are currently three (3) driveways onto the site, two (2) from Glenoaks Boulevard and one (1) from Keeler Street. Additionally, the property currently serves cut-through traffic between Keeler Street and Scott Road via a shared driveway from Scott Road. A Phase I Environmental Site Assessment for the property determined that there was nothing to suggest the existence of an environmental condition that should be a cause for concern for the property.

 

Project Description:  The applicant is requesting approval of Planned Development and Development Review applications to construct a mixed use project including 2,632 square feet of retail/office space and thirty-four (34) residential units on the project site. The commercial component of the project will be located at street level and oriented towards the intersection of Keeler Street and Glenoaks Boulevard. The project is proposed to step down from three (3) stories along the Glenoaks frontage and the abutting commercial properties along Glenoaks to two (2) stories along the dry cleaners frontage and adjacent to the abutting R-2 zoned property. The residential units on the upper floor are set back an additional nineteen (19) feet from the property line.

 

Municipal Code Conformance:  The project site is currently located within three (3) zones (C-2, R-4, and R-1). Each of these zones permits a different type and intensity of use. As such, comparing this project to the standards of each of the zones is impractical. The zoning designation which most closely conforms to the General Plan designation on the site is C-2. The C-2 zone, like the majority of commercial zones in the City, permits the development of residential uses above commercial uses through the conditional use permit process. While the Code does not specifically state which density and development standards are applicable to the residential portions of a mixed use project, the General Plan considers the residential development potential to be equivalent to R-4 densities. This is also consistent with the manner in which residential densities have been established in the Burbank Center Plan.

 

While the application requested is to create a new zone with its own development standards, it is helpful to compare the project to what would traditionally be required in the C-2 and R-4 zones.  The following table describes a particular development standard and compares the project to the code requirements if this were not a Planned Development zone.

 

Development standard

Code requirement

Proposed project

Land Use

(mixed use)

C-2 Standard � Conditional Use Permit required

Planned Development includes all other required entitlements

Residential Density

1 unit per 750 square feet (51 units)

1 unit per 1141 square feet (34 units)

Height

C-2 Standard � Based upon distance from R-1/R-2 property line as follows:

 

    0-25 feet � 1 ft. per 1 ft. distance (including roof and architectural features)

    25-50 feet � 25 feet (roof and architectural features may exceed up to 35 feet)

    50-150 feet � 35 feet (roof and architectural features may exceed up to 50 feet)

 

R-4 Standard - 23 feet from average grade to the top plate or a maximum of two floors of human habitation totaling 23 feet plus a maximum of two addition feet of ceiling height for each story not to exceed a maximum height of 27 feet (roof and architectural features may exceed maximum height up to 35 feet)

Overall � 29 feet to the ceiling of the highest room permitted for human occupancy (roof and architectural features extend to 33�-3��).

 

Northern Elevation (facing cleaners) - 19 feet to the ceiling of the highest room permitted for human occupancy (roof and architectural features extend to 23 feet � tower element on southeast corner extends to 30��)

Setbacks

C-2 Standard � 5 feet or 20 percent of building height (8 feet), whichever is greater, for front and exposed street side setbacks.

No setbacks proposed along Glenoaks Boulevard and Keeler Street. 5 foot setback from all other property lines.

Parking spaces

C-2 Standard � If used for Retail: 3.3 spaces per 1,000 square feet of adjusted gross floor area. Adjusted gross floor area estimated at 2500 square feet (8 spaces)

 

If used for Office: 3 spaces per 1,000 square feet of adjusted gross floor area (8 spaces)

 

R-4 Standard �2 per unit plus .2 per unit for guests (75 total)

Project will provide a minimum of 83 parking spaces

Parking dimensions

Residential � 8�-6� x 18�

Retail � 9� x 18�

Office � 8�-6� x 18�

All residential spaces meet 8�-6� minimum.

 

Commercial spaces meet 9�-0� minimum.

Open space exposure

8� window looking onto 20� of open space or public street from primary living area

As proposed 19 units do not meet this requirement

Common open space

150 s.f. per unit (5,100 s.f. total), minimum dimension of 27�x30� (80% open to sky)

15% landscaped, one tree per 600 s.f. (9 trees required)

175.9 s.f. per unit provided within central courtyard (5,981 s.f. total),

15% landscaping to be provided, 23 trees proposed in common open space area

Private open space

50 s.f. per unit, minimum depth of 5� � 42� opaque wall on ground floor

Each unit is provided with a 70 s.f. deck (5� x 14�)

Landscaping

C-2 Standard � A minimum of fifty (50) percent of front and exposed side yards shall be landscaped (outdoor amenities and decorative hardscape may be included)

Building proposed to have zero setback with the exception of planters. Trees will be planted in the planter areas. Landscaping is proposed within architectural recesses along street frontages. Decorative hardscape will be utilized along street frontages.

Trees

C-2 Standard � In required front and exposed side yards, a minimum of one (1) tree shall be planted for every forty (40) linear feet of street frontage. (4 along Glenaoks, 2 on Keeler)

 

Fifty (50) percent of trees shall be a minimum 36-inch box size.

 

R-4 Standard � At least one of required trees shall be 48-inch box size.

 

One tree for every forty (40) feet of rear and interior side yard.

The project is proposed to have zero setback. The project will include trees in landscaped recesses along the front and street side fa�ade.

 

Trees will likely be smaller than required due to planter sizes.

 

Project will be required to meet residential requirements for side and rear yards.

Amenities

2 of: spa, gazebo, BBQ, play/recreation equipment, tables, chairs or benches

1 of: pool, shuffleboard, badminton, volleyball, miniature golf or exercise room

 

A swimming pool has been proposed in the courtyard area. Second level may include gymnasium use of tenants.

Fa�ade requirements

C-2 Standard � All building fronting public streets or residentially zoned lots shall provide visual variation.

 

R-4 Standard � Elevations may not exceed 36� without at lest 3�x4� break (can use balconies), other requirements such as up to 10% of first floor area may have tower element

 

25% of upper floor elevations must have additional 5� setback. All upper floors abutting or adjacent to R-1 must have additional 5� setback.

Project complies with commercial standards.

 

Elevations facing the dry cleaners and the rear have sections of over 36� without required break.

 

Upper floors on the dry cleaner elevation do not meet 5� additional setback requirement.

 

 

 

 

 

Art in public places

1% of total project cost

Will be provided on-site, subject to committee approval

 

Public Correspondence: On October 6, 2004, the applicant held a community meeting on the proposed project. Twenty-one (21) residents attended the meeting. The residents generally expressed concerns about project traffic, the loss of the existing connection between Keeler Street and Scott Road, and the amount of parking provided. Several residents felt that the proposal did not include enough parking and that the use of tandem spaces would further result in a parking impact.

 

As a result of these comments as well as input from the Planning Division, the applicant increased the amount of parking to meet Code requirements for both the residential and commercial components. Additionally, the project was modified to eliminate the use of tandem and compact parking spaces.

 

Prior to the first public hearing before the Planning Board, the Planning Division received three (3) phone calls  and one (1) fax (Exhibit E-1) from nearby residents and business owners expressing concerns about the project�s impact on traffic and parking in the area. Between the Planning Board hearings, staff met with one (1) resident who also submitted a letter opposing the project (Exhibit E-2) and received an e-mail message in opposition. (Exhibit E-3) Staff also received an additional phone call expressing concerns about the project�s impact on traffic and the overall massing of the project and two (2) petitions (Exhibits E-4 and E-5), one in opposition to the project and one in support.

 

Planning Board Action: The Planning Board conducted two (2) public hearings regarding the proposed project. The first public hearing for this project was held on May 23, 2005. Twelve (12) members of the public spoke at the meeting expressing a variety of concerns about the project including concerns about the height and massing, residential density, traffic, and overall compatibility with the surrounding neighborhood. Members of the Board raised concerns about the height and massing of the project as well as its relationship to surrounding properties. Concerns were also raised about the proposed location of the elevator and the potential noise impacts on nearby residents. The Planning Board continued the item to June 27 to allow the applicant the opportunity to revisit the project design and provide more comprehensive plans for the Board�s review.

 

Modifications Made After First Planning Board Hearing

In response to comments made by the Planning Board and members of the public, as well subsequent conversations with Planning Division staff, the applicant proposed several modifications to the project that was presented to the Board on May 23, 2005.

  • Glenoaks Elevation � In an effort to reduce the massing of the building along Glenoaks, the upper floor units were setback an additional nineteen (19) feet from the property line along Glenoaks Boulevard. A roof structure was incorporated into this setback area to further reduce the massing along Glenoaks Boulevard.

  • Density � The project was reduced from forty-one (41) units to thirty-eight (38) units. The reduction of units resulted from changes made to the Glenoaks Boulevard elevation.

  • Building Height � The residential floors were reduced from ten (10) foot heights (floor to ceiling) to nine (9) foot heights. Additionally, the revised upper story was redesigned with a flat roof rather than a pitched roof. As a result the maximum building height (including roof and architectural features) has been reduced from fifty (50) feet to 41�-8�.

  • Setback Along Glenoaks � The landscape planters in front of the commercial spaces along Glenoaks Boulevard were increased in depth from two (2) to three (3) feet.

  • Amenities - A swimming pool was incorporated into the courtyard area as an amenity to the residential units. This modification did not reduce the number of trees or amount of landscaping proposed in the courtyard.

Second Planning Board Hearing

The second hearing before the Planning Board was held on June 27, 2005. Thirteen (13) members of the public spoke at this meeting expressing continued concerns about the size of the project, traffic and parking in the area, and neighborhood compatibility. At the conclusion of the public hearing, the Board began deliberations on the project which focused primarily on concerns about the compatibility of the building with the surrounding area and traffic circulation. A specific concern was raised about the impact the project would have on the existing cut-through traffic between Keeler Street and Scott Road. While the members of the Board were supportive of the project in concept, it was felt by some members that the design was incompatible with the surrounding area.

 

The Board voted 2-1 to recommend denial of the project (Resolution attached as Exhibits F-1; minutes for Planning Board meetings of May 23, 2005 and June 27, 2005 attached as Exhibits F-2 and F-3).

 

Modifications Made Since Planning Board Decision

In response to the second Planning Board hearing and subsequent discussions with staff, the applicant has further revised the project.

  • Density � The project has been reduced to thirty-four (34) units. This reduction came from the elimination of the third residential level above the commercial portion.

  • Building Height � The maximum height of the building was reduced from thirty-nine (39) feet to twenty-nine (29) feet. This reduction came as a result of the removal of a third level of residential above the commercial uses and the elimination of a two (2) level semi-subterranean garage in favor of a single level subterranean garage.

  • Parking Supply � The removal of the second level of parking and changes in project density reduced the proposed parking supply from 102 spaces to 83 spaces. However, the project will continue to meet all Code requirements.

ANALYSIS:

 

Planned Developments involve the establishment of new zones with established uses and development standards that are tailored to the particular development. The Planned Development process is intended to result in projects that would be harmonious with the surrounding community under the controlled conditions of a development plan.

 

Surrounding Neighborhood: The surrounding properties are developed with a mixture of uses and densities. The properties along the east side of Glenoaks Boulevard are improved with a variety of single story commercial uses. The properties on the west side of Glenoaks Boulevard are predominantly improved with single family homes. The Burbank Masonic lodge is located directly across Keeler Street from the site. Properties along Keeler Street are generally commercial with residential uses increasing towards Scott Road. Scott Road is improved with multifamily residential buildings to the rear of the project site with single family homes across the street.

 

Project Characteristics: The proposed project involves the development of a mixed use project including a retail/office component and thirty-four (34) residential units. As part of the Planned Development process, the applicant has requested modifications from some of the standards typically applied to these projects in the interest of increased flexibility in design and resulting site constraints.

 

Affordable Housing

While the project does not include a request to establish the residential units as condominiums, the applicant has stated that he will most likely convert the project to condominiums prior to the completion of construction. In the event that the residential units are sold as condominiums, staff has proposed a requirement that ten (10) percent of the units, three (3) total, would be reserved for moderate income buyers. Pursuant to Section 65915(a) of the California Government Code, a local government shall provide an applicant with incentives or concessions for the production of affordable housing units. Reductions in site development standards, zoning code requirements, and architectural design criteria that exceed the minimum building code requirements are identified as possible concessions that a local government could provide.

 

Urban Design

As mentioned previously, the east side of Glenoaks Boulevard is predominantly developed with single story commercial uses. The sidewalks in the area are wide and the scale of the buildings create the potential for a good pedestrian environment. The proposed project attempts to work within the existing environment by establishing commercial along the Glenoaks frontage with residential on the upper floors. The project attempts to continue the pedestrian character through the use of landscaping and architectural treatments, such as awnings. Additionally, the project utilizes different materials to create a break between the commercial and residential components and to enhance the pedestrian scale of the project.

 

In this area, Glenoaks Boulevard runs diagonally across the street grid. As such, its intersections with streets in the area are not generally at right angles. This creates a situation where certain corners are more visible based upon the direction of approach. The project lies on a corner that is more visible from southbound Glenoaks. At the corner, the project utilizes a curved design which enhances the appearance from the corner by avoiding sharp edges. Furthermore, this design is consistent with the corner radius between Glenoaks and Keeler, enabling the design to flow between the two street frontages.

 

As part of the project review, staff forwarded the plans to the City�s architectural consultant for comments. The City�s architectural consultant made several suggestions regarding the project to improve its design in relation to the street as well as to reduce massing, establish architectural breaks, and improve the overall quality of design. Those comments have been incorporated into the project plans as well as the conditions of approval. 

 

Density

Mixed use development in commercial zones is generally evaluated based upon the density limitations of the R-4 zone. The R-4 zone currently allows a maximum density of one (1) unit per 750 square feet of lot area. This would establish a maximum density of fifty-one (51) units for the project site. However, on July 12, 2005, the City Council adopted new density limits in multifamily zones. These standards become effective on August 16, 2005. Under the new standards, the maximum density in the R-4 zone is one (1) unit per 1,000 square feet of lot area. The proposed thirty-four (34) unit project has a density of one (1) unit per 1141 square feet of lot area, below the new standards.

 

During the Planning Board hearings, questions were raised about how much density would be permitted based upon the existing zoning. Approximately 10,300 square feet of the lot is presently zoned R-1, an area that has a permitted density of one (1) unit. The remaining 28,500 square feet of the lot is zoned R-4 and C-2 and has a maximum development potential of thirty-eight (38) units under the existing density limitations. Under the new limitations, the permitted density for the R-4 and C-2 portion would be twenty-eight (28) units.

 

However, it is important to note that the existing R-1 and R-4 zoning is not consistent with the current general plan designation. The General Plan is used to determine overall housing capacity in the City. One of the required findings for the Planned Development is that the project is consistent with the General Plan. As such, for density purposes, it is appropriate to view the entire site in the context of a Limited Commercial land use, which would allow residential densities equivalent to the R-4 standards.

 

Setbacks

Unless a property has less than seventy-five (75) feet of street frontage, commercial buildings are required to be constructed with a minimum setback of five (5) feet or twenty (20) percent of the building height, whichever is greater. Since the project site has greater than seventy-five (75) feet of frontage on both Keeler Street and Glenoaks Boulevard, the project would be required to have a six (6) foot setback from both Keeler Street and Glenoaks Boulevard.

 

The proposed building would have no setback along either Glenoaks or Keeler. However, a significant portion of the retail/office units would have a three (3) foot setback which would be used for planter boxes. While the proposed commercial setback is less than standard, it is consistent with the remaining commercial frontage along Glenoaks Boulevard. Furthermore, the use of planters, awnings, and other variations of plane create a pedestrian scale for the project which minimizes the impact of the massing on the street sides.

 

The residential units are proposed to have a two (2) foot setback from Glenoaks Boulevard with balconies projecting to the property line. The units will maintain a minimum of a five (5) foot setback from all other property lines.

 

Height

The Burbank Municipal Code establishes maximum building heights based upon two (2) criteria, property zoning and distance from residentially zoned property, particularly distance from R-1 and R-2 zoned properties. Multifamily residential building heights are restricted to a maximum ceiling height of twenty-seven (27) feet within 500 feet of single family zones. Commercial structures have greater restrictions when in close proximity (within 50 feet) of R-1 or R-2 zoned properties but are permitted to go up to thirty-five (35) feet in height as distance from R-1 or R-2 property increases. In both situations, allowances are made for roof and architectural features to exceed these height limits (up to 35 and 50 feet respectively). (Exhibits A-3 and A-4)

 

The project utilizes a stairstep design with the highest portions along the Glenoaks and Keeler frontages and lower portions towards the residential properties along Scott Road. The project varies from two (2) to three (3) stories with the taller portions along the Glenoaks Boulevard frontage.

 

On the portions of the property that are closest to residential uses, the building would be two (2) stories of residential. Within these areas, the ceiling height would be nineteen (19) feet above grade. Roof and architectural features exceed this height to twenty-three (23) feet with the exception of a tower element that extends to thirty and a half (30�) feet at the southeast corner of the site. This portion of the building is below City height limitations for multifamily residential properties within 500 feet of a single family zone.

 

During the Planning Board hearings, a number of concerns were raised about the height of the building. As a result, the maximum height, including roof and architectural features, was reduced to 33�-3��. The project reaches this maximum height in areas of the property that are further than fifty (50) feet from R-1 and R-2 zoned property. A commercial building constructed in these areas of the property would be permitted to be constructed to a maximum height of thirty-five (35) feet, as measured to the highest ceiling of human occupancy. This height is typically a couple of feet below the height of the actual roof and even further below the top of any parapet walls. When considering these elements, the proposed building height is less than the maximum height that could be achieved by a commercial building on the same property.

 

Parking 

Based upon Burbank Municipal Code requirements, the proposed project would require eighty-three (83) parking spaces. The proposed project will provide, at minimum, eighty-three (83) spaces within a one level subterranean parking structure. Parking areas will take ingress from a driveway on Glenoaks Boulevard and egress to Keeler Street. All residential parking spaces are proposed to have a minimum width of eight and a half (8�) feet and all commercial parking spaces are proposed to have a minimum width of nine (9) feet. Staff has proposed conditions of approval to require that the spaces for the residential units to be clearly distinguished and, wherever feasible, separated from commercial and guest spaces.

 

Open Space Exposure

The Burbank Municipal Code requires each unit to have a minimum of one (1) wall from a primary living area which contains at least eight (8) feet of transparent material which front either a public street or twenty (20) feet of on-site open space. This requirement is intended to insure that each unit has adequate access to natural light and air.

 

As currently proposed, nineteen (19) of the units do not meet this standard. Six (6) units, located along the north property line have openings onto the parking lot for the dry cleaner. These units could be easily modified to include openings oriented towards the internal courtyard. Likewise, windows in five (5) other units could be redesigned to meet this standard.

 

Eight (8) of these units, located along the side property line bordering the commercial uses on Glenoaks Boulevard, would require significant redesign to meet this standard due to their location on the site. Staff has recommended a condition of approval which would require the balconies of these units to be increased in depth to ten (10) feet. This modification would bring the open space exposure of these units into conformance with the minimum open space exposure contemplated in the newly adopted multifamily development standards.

 

Landscaping

The project is proposed to be constructed, predominantly, with no setback at the ground floor. As such, on-grade landscaping is proposed only within planter boxes along the street frontages. Landscaping is provided within the courtyard area and along side and rear yards that do not front on public streets.

 

Traffic/Circulation

The project is proposed to be served by two (2) driveways: one each on Glenoaks Boulevard and Keeler Street. Ingress to the project is proposed from the Glenoaks driveway and egress is proposed to Keeler. Both of these driveway locations are currently utilized as driveways to the site.

 

When the applicant held a community meeting on the project in October 2004, a number of concerns were raised about traffic impacts. The City of Burbank requires a traffic study for any project that will generate more than fifty (50) peak hour trips. Generally, residential projects have a lower peak hour trip generation than comparably sized commercial projects. The project is anticipated to generate twenty-eight (28) trips per hour during the PM peak. As such no traffic study was prepared. Furthermore, the closest study intersections, Buena Vista and Glenoaks and Glenoaks and Magnolia, are operating at levels of service of A and B respectively during the PM peak.

 

In comparison, the former gas station on the site would be expected to generate approximately fifty-five (55) peak hour trips (including a fifty percent reduction for pass-by trips). High intensity retail uses, such as convenience stores, would have a higher trip generation with less floor area. There are a number of projects that could conceivably be built on the site by right which would have a substantial greater traffic impact (Table 1).

 

Table 1: Trip Generation for Other Uses

Land Use

Size (s.f.)

PM Peak Trips

Convenience Market

3,000

109

Bank

7,500

161

Specialty Retail Center

15,000

75

Office

25,000

38

Medical Office

15,000

56

Art and Crafts Store

10,000

60

Restaurant (high turnover sit-down)

5,000

55

 

As part of the review process, the Public Works Traffic Engineering Division reviewed the project and made no changes to driveway locations. However, a condition of approval has been proposed which would require approval by the Traffic Engineer of all vehicular ingress and egress.

 

As noted previously, the project will place a building on an existing drive aisle which is commonly used to cut between Keeler Street and Scott Road. While this shortcut has been used for a long time by drivers in the area, it is not a public accessway or easement and, as such, can be closed at the discretion of the property owner. Nevertheless, it remains possible for traffic to cut through utilizing the dry cleaners parking lot, assuming that property owner does not prohibit such movements, as any private property owner has the right to do.

 

Noise

Like any construction activity, the construction phase of this project will create an increase in the ambient noise level in the vicinity. As such, construction hours will be required to comply with the standards of the Noise Ordinance, which limits construction activities to between the hours of 7:00 a.m. and 7:00 p.m., Monday through Friday, and 8:00 a.m. to 5:00 p.m. on Saturday.

 

Glenoaks Boulevard is a major arterial. As such, the noise from automobile traffic is higher for this property than it would be in a typical residential neighborhood. Since the project site is located within a noise-impacted area, State law requires that an acoustical study be submitted prior to issuance of building permits. The study is intended to demonstrate how the project will be designed to insure that interior noise levels meet acceptable levels for residences.

 

Massing on Surrounding Properties

During the Planning Board hearings, members of the Board and public expressed concerns about the massing of the project. A number of comments expressed concerns about the appearance of the Glenoaks Boulevard elevation. As a result of these concerns, the applicant modified the design of the project to setback the upper level of residential units to nineteen (19) feet from the property line, moved all of the parking to a fully subterranean garage, and eliminated the third level of residential above the commercial uses. Additionally, roof structures have been added in front of the upper units to further reduce the mass of the building along Glenoaks Boulevard. The applicant has also increased the amount of landscape setback along Glenoaks Boulevard and has proposed the installation of additional trees on the sidewalk.

 

The second concern came from residents of the abutting apartment building, who were concerned about the effect the project would have their building. Of particular concern was the impact of the project on access to natural light. The portions of the building abutting the adjacent building have a height of twenty-nine (29) feet to the top plate with roof and architectural features having a maximum height of 33�-3��. This building height is lower than the abutting building, which includes three (3) levels of residential units above a semi-subterranean garage. Furthermore, the elevation of the abutting apartment building that faces the proposed project does not have a large number of windows. Most of the windows on this fa�ade are service windows for bathrooms. (Exhibit A-5)

 

School Impacts

During the Planning Board hearings, a resident expressed concerns about the impact that this project might have on school facilities. Prior to issuance of building permits, this project will be required to pay Burbank Unified School District development impact fees for both the residential and commercial components. These fees are intended to offset the incremental impact that each new construction project has on school facilities. According to SB 50 (Government Code �65995), development impact fees are full mitigation for any impacts on schools. Thus, a project can not be denied on the basis of school impacts if a development impact fee is assessed. Furthermore, recently the Burbank Unified School District has indicated that the District does not currently have concerns about overcrowding.

 

Department Comments: The subject application and plans were routed to City departments and divisions for review and comment. Code related comments from the departments and divisions (Exhibits C-1 through C-6) have been included in the partial list of code requirements. 

 

Environmental Review: Pursuant to the California Environmental Quality Act (CEQA), a Negative Declaration has been prepared for the project, which indicates that the project will not have a significant impact on the environment. (Exhibit D)

 

CONCLUSION:

 

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.

 

Planned Development Findings

Section 31-19127(h)(3) of the Burbank Municipal Code states that prior to approval of a Planned Development, the Planned Development must be found consistent with the General Plan and all applicable community plans and that the design criteria identified in Section 31-19124 of the Burbank Municipal Code have been satisfied.

 

General Plan and Community Plan Consistency

The Land Use Element of the General Plan identifies the Planned Development process as a means to facilitate and encourage unique development projects provided that development is consistent with the General Plan. The General Plan designation for the subject property is Limited Commercial. This designation is intended to provide land primarily for general commercial uses such as business and professional offices, retail sales, and commercial services. Limited Commercial areas can also be considered appropriate for mixed-use developments which combine compatible retail, office, and residential uses and, through the Planned Development process, multifamily residential projects.

 

The City has established several policies relating to development of commercial land uses. These policies include the graduation of building heights based on proximity to single family properties, encouraging and promoting the overall improvement and general maintenance of commercial areas, and the exclusion of those commercial uses which may be intrusive, offensive, or unsightly to adjacent residential and commercial uses.

 

The proposal is consistent with the uses and policies established for the Limited Commercial land use designation.

 

Design Criteria

Section 31-19124 of the Burbank Municipal Code establishes nine (9) design review criteria for Planned Development applications.

 

q       The design of the overall planned development shall be comprehensive and shall embrace land, buildings, landscaping and their interrelationships and shall be substantially consistent with the General Plan and any applicable Element of the General Plan.

While the project is taller than some buildings in the area, the project establishes a pedestrian orientation, particularly along Glenoaks Boulevard, through the use of planter boxes and architectural treatments which reduce the impact of project massing. Staff has proposed additional conditions of approval, relating to setbacks and landscaping, that will further improve the interplay between the project and the neighborhood.

  

q       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 incorporates a large courtyard for the provision of common open space. While the total area is slightly below the total area required, the dimensions of the area are such that residents will have access to substantial opportunities for on-site passive recreation. While the project architecture creates a visual separation between the commercial and residential components, the style and elements utilized are consistent. The project meets minimum parking requirements.

 

q       The planned development shall be compatible with existing and planned land use on adjoining properties.

The property is surrounded by a variety of commercial and residential land uses. The development of a mixed use project is harmonious with both commercial and residential uses. The scale of the development is such that it will not create substantial traffic or noise that might unduly impact surrounding properties. The building heights scale back with proximity to single family uses to minimize the visual impacts on those properties.

 

q       Any private street system or circulation system shall be designed for 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

The project does not include a private street system. However, the project site has commonly been utilized by traffic cutting through between Keeler Street and Scott Road. This cut-through is not a public right-of-way or easement and as such and as such may be closed at the discretion of the property owner. The proposed building would block the most common cut-through path. However, cut-through traffic could still go between Keeler Street and Scott Road utilizing the parking lot of the dry cleaners, if allowed by that property�s owner. All internal circulation within the parking areas will be consistent with applicable City standards.

 

q       The public street system within or adjacent to a planned development shall be designed for the efficient and safe flow of vehicles (including transit vehicles), pedestrians, bicycles, and the handicapped. Public streets shall be designed using standard City lane widths, capacities, and travel speeds. The design shall also include adequate space and improvements for transit vehicles and facilities for bicycle and pedestrian circulation. City standard entrance control requirements shall be maintained. Design of major streets shall also provide sidewalks, adequate street lighting, and concrete median islands on arterial streets.

There is no public street system proposed as part of the project. The design of the Planned Development will not impact existing traffic flow. The proposed vehicular entrances and exits to the project utilize existing curbcuts along Glenoaks Boulevard and Keeler Street and are located so as to have minimal impact on circulation.

 

q       Common area and recreational facilities shall be located so as to be readily accessible to the occupants of residential uses.

The common open space is located in the center of the project and is accessible from all units.

 

q       Compatibility of architectural design and appearance including signing throughout the planned development shall be sought. In addition, architectural harmony with surrounding neighborhoods shall be achieved so far as practicable.

The project incorporates both residential and commercial components. As such, the project architecture is intended to differentiate the land uses in an attempt to improve the pedestrian scale and character of the commercial areas. However, the project utilizes consistent architectural styles and elements throughout in order to create a unified architectural theme. The design is consistent with new buildings that have been constructed in the area and generally consistent with the style utilized throughout Burbank.

 

q       Where applicable, an adequate variety of uses and facilities shall be provided in order to meet the needs of the planned development and adjacent neighborhoods.

The project incorporates a mixture of multifamily residential and commercial uses. The commercial space is intended to be utilized either as small office space or for small retailers, which would likely serve the adjacent area. The size of the commercial space is not likely to draw regional retailers or other users that might create an impact on the surrounding neighborhood.

 

q       The planned development and each building intended for occupancy shall be designed, placed, and oriented in manner conducive to the conservation of energy.

The developer will be required to comply with all applicable City requirements intended for energy reduction.

 

RECOMMENDATION:

 

Staff recommends that the City Council approve Project No. 2004-97, a Planned Development and Development Review, and the Development Agreement and Negative Declaration related thereto, subject to the attached Conditions of Approval.

 

Staff recommends that the City Council adopt a resolution approving the Negative Declaration prepared for the project.

 

Staff recommends that the City Council adopt an ordinance approving Planned Development No. 2004-97 and the Development Agreement related thereto.

 

 

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