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Agenda Packet - CC - 2016.09.07
INGAME HALL City of Burlingame 8501 PRIMROSE ROAD 501 PRIMROSE ROAD BURLINGAME BURLINGAME, CA 94010 Meeting Agenda - Final City Council Wednesday, September 7, 2016 7:00 PM Council Chambers City Council Study Session - General Plan Update ("Envision Burlingame") Note: Public comment is permitted on all action items as noted on the agenda below and in the non -agenda public comment provided for in item 7. Speakers are asked to fill out a "request to speak" card located on the table by the door and hand it to staff, although the provision of a name, address or other identifying information is optional. Speakers are limited to three minutes each; the Mayor may adjust the time limit in light of the number of anticipated speakers. All votes are unanimous unless separately noted for the record. 1. CALL TO ORDER - 7:00 p.m. - Council Chambers 2. PLEDGE OF ALLEGIANCE TO THE FLAG 3. ROLL CALL 4. PUBLIC COMMENTS, NON -AGENDA Members of the public may speak about any item not on the agenda. Members of the public wishing to suggest an item for a future Council agenda may do so during this public comment period. The Ralph M. Brown Act (the State local agency open meeting law) prohibits the City Council from acting on any matter that is not on the agenda. 5. PRESENTATION, DISCUSSION AND DIRECTION (General Plan Update) Burlingame General Plan Update ("Envision Burlingame') - Review of General Plan Update Progress, -Use Scenarios, Community Growth Potential, Sea -Level Rise, including Discussions of Emerging Land and Other Related Issues Envision Burlingame General Plan Project Update and Discussion Attachments: Staff Report Consultant Report Meeting Presentation Slides Emerging Land Use Concept - reviewed by CAC and Planning Commission July 13. 2016 PC Study Session Minutes City of Burlingame Page 1 Printed on 91112016 AGENDA ITEM NO: BURLI STAFF REPORT MEETING DATE: September 7, 2016 To: Honorable Mayor and City Council Date: September 7, 2016 From: William Meeker, Community Development Director — (650) 558-7255 Subject: "Envision Burlingame" — General Plan Project Update and Discussion RECOMMENDATION Staff recommends that Council provide direction on the ongoing update of the City's General Plan, including direction on preferred land use strategies. BACKGROUND In March 2015, the City of Burlingame initiated a three-year process focused on a community - led effort to update the City's General Plan and Zoning Ordinance, called "Envision Burlingame." The General Plan and Zoning Ordinance are the City's two documents that regulate all land use, environmental and transportation decisions made by City leaders. The City has engaged a consultant team led by MIG to conduct the public outreach process and create the new General Plan and Zoning Ordinance. The outreach has involved a broad range of individuals providing information on current issues, encouraging ideas regarding a vision for Burlingame's future, and receiving specific input on alternatives and policy concepts. DISCUSSION Envision Burlingame has reached a key point in the process. Through the first phases, the project team has been soliciting input from the community, analyzing existing conditions, and developing a range of land use and circulation alternatives. The alternatives have now been synthesized into a single "Emerging Land Use Concept" that is intended to provide guidance in the preparation of the General Plan and environmental analysis (attached). The Emerging Land Use Concept has been reviewed by the Envision Burlingame Community Advisory Committee (CAC), as well as the Planning Commission. The feedback from both will be presented to the City Council as part of the consultant presentation, and the Council will be asked to provide further direction. The consultant presentation will also include a discussion of population and job growth, housing, Sea Level Rise and adaptation, and school district coordination. Each of these issues is important to consideration of the land use strategy. 1 Envision Burlingame - Update and Discussion September 7, 2016 The consultant team has prepared a memorandum that summarizes the community outreach to date and the topics that will be presented in this study session (attached). The slides for the presentation that will be made to the City Council are also attached for reference. FISCAL IMPACT None. Exhibits: • Envision Burlingame Project Update and Discussion Items Memorandum • Meeting Presentation Slides • Emerging Land Use Concept, as reviewed by the CAC and Planning Commission • July 13, 2016 PC Study Session Minutes 2 general plan and envision zoning ordinance update eununenme CITY COUNCIL STUDY SESSION ENVISION BURLINGAME PROJECT UPDATE AND DISCUSSION ITEMS September 7, 2016 1 7:00pm - 9:00pm City Hall Council Chambers, 501 Primrose Road PROJECT OVERVIEW AND UPDATE In March 2015, the City of Burlingame initiated a three-year, community -led program to update the City's General Plan and Zoning Ordinance, called Envision Burlingame. The General Plan and Zoning Ordinance are the City's two documents that regulate all land use, environmental, and transportation decisions made by City leaders. Envision Burlingame will result in goals and strategies for desired change in the City by presenting the question: "How do we want Burlingame to look, function and feel 25 years from now?" To answer this question, residents, business owners, and other community members have been engaged in a comprehensive discussion regarding mobility, urban design, recreation and parks, health, natural resources, and economic development opportunities. Envision Burlingame has three broad objectives: 1. Develop a vision for Burlingame, with particular attention paid to the topics of stability and opportunities for desired change. 2. Update policies and regulations to ensure they address current regional, state, and federal requirements. 3. Create an updated and fully digital General Plan and Zoning Ordinance that are easily accessed, understood, and applied by residents, property and business owners, and decision makers. general plan and Envision zoning ordinance update euaunseme Below is a summary of the overall project schedule based on major project phases, each of which includes a variety of community outreach and public engagement activities and events. Phase Status 1. Existing Conditions and Opportunities.....................................Completed Fall 2015 2. Vision and Transformative Strategies Framework.............Completed Spring 2016 3. Concept Alternatives........................................................ Completed Summer 2016 4. Draft General Plan........................................................................................In Progress 5. Environmental Review............................................................................... Winter 2016 6. General Plan Hearings and Adoption ....................................... Winter- Spring 2017 7. Zoning Ordinance Update .......................................................Spring - Summer 2017 8. Specific Plan Technical Updates ................................................. Summer- Fall 2017 Consideration is being given to completing the Zoning Ordinance update in parallel with the General Plan, which would not affect the overall schedule to begin public hearings in early 2017. What is the General Plan? The General Plan is a policy document that is often described as the constitution or blueprint for development decisions. It establishes the "ground rules" for conserving resources, designing new projects, expanding public services, and improving community amenities. The General Plan covers issues ranging from urban design and mobility to public health and safety. Most importantly, it articulates the community's vision and will guide growth, change, and development in Burlingame for the next 25 years. The City has not comprehensively updated its General Plan in over 40 years, and the Envision Burlingame process is an opportunity to define what Burlingame will look like, how it will function, and how people experience the City in the future. The General Plan can address almost any issue the community defines as important. At a minimum, however, the Plan must establish policy direction relating to the following: • The use and development of properties citywide • Accommodation of all modes of transportation • The provision of parks and other open spaces to meet community needs • The types of housing available in the community • Use and protection of natural resources • The provision of public safety services and protection against natural and human -caused hazards (including noise) in the City 2 general plan and 410, zoning ordinance update Envision euaunsame The current City of Burlingame General Plan is available online at: www.burlingame.org/generalplan 3 general plan and envision zoning ordinance update nununsnme What is a Zoning Ordinance? A Zoning Ordinance is the primary regulatory document for the use of property within a community; it defines specific standards and requirements that set forth the use(s) for which a property may be developed and restrictions on the placement of structures upon the property. It is different from the General Plan in the sense that the General Plan establishes the policy framework that guides decisions, whereas a Zoning Ordinance identifies the regulations that implement those policies. The current City of Burlingame Zoning Ordinance is included as Chapter 25 of the Municipal Code and is available online at: www.burlinaame.ora/zonina What are Specific Plans? A Specific Plan is another tool used to implement the General Plan. Specific Plans provide detailed guidance for defined neighborhoods or districts, and typically include specific policies, regulations, design guidelines, implementation actions and funding sources. Currently the City has three adopted specific plans: Burlingame Downtown Specific Plan (adopted in 2010) Bayfront Specific Plan (adopted in 2004 with amendments in 2006 and 2012) North Burlingame/Rollins Road Specific Plan (adopted in 2004 with amendments in 2007) Each of these plans may require minor updates as a result of changes to both the General Plan and Zoning Ordinance. These updates would occur at the end of the Envision Burlingame process. Each of the current specific plans are available online at: www.burlinaame.ora/specificplans COMMUNITY ENGAGEMENT AND INPUT PROCESS Envision Burlingame includes a robust community outreach and engagement process. The following is a summary of meetings, interviews, workshops, surveys, and other events that have taken place during the first year and a half of the project (March 2015 — August 2016). Stakeholder Interviews and Meetings At the outset of the Envision Burlingame planning process, the consultant team conducted stakeholder interviews with members of the City Council, Planning Commissioners, business owners, residents, and others interested in Burlingame's plans for the future. This important step in the General Plan process provided an opportunity 4 general plan and Envision zoning ordinance update BURLANE to understand the Burlingame community, identify desired project outcomes, and gain insight into current issues, assets, and opportunities. Neighborhood Intercept Surveys The City held a series of neighborhood intercept surveys in June 2015 at Burlingame's most popular commercial areas to gather information for the Envision Burlingame project. Members of the project team invited people to participate in an interactive exercise that asked them questions about Burlingame using printed poster boards and ,'voting" stickers. This approach engaged all age groups—especially families with young children—and allowed for informal and educational discussions. A summary of this input is available on the project website at: http://www. envision burlingame.orq/neiahborhoodinterceptsurveys Community Workshop and Survey #1 On October 24, 2015, the City hosted the first community workshop on Envision Burlingame. The workshop was held at the Burlingame Recreation Center as an open house so members of the community were free to drop in anytime between 10 A.m. and 2 P.M. The workshop provided an opportunity to learn about the community -driven planning process that will update the City's General Plan and Zoning Ordinance. Over 70 members of the community shared their ideas and vision for Burlingame's future. For community members who were unable to attend the workshop, an online survey was available for the first three weeks of November 2015. Over 200 people participated virtually, providing feedback to many of the same questions presented at the workshop. A summary of this input is available on the project website at: http://www.envisionburlingame.orglcommunifysurveyl UC Berkeley Graduate Students In February 2016, a group of UC Berkeley graduate students learning about community and stakeholder engagement held an outreach event at the Burlingame Caltrain station. The focus of this event was to engage commuters and young professionals about their thoughts and perspectives related to the future vision for the city. A video summary of their work is available at: http://www.envisionburlingame.org/ucberkelevstudentvideo Burlingame High School Student's Bayfront Project 5 general plan and zoning ordinance update Buhuninm i aunune During the Spring semester of 2016, over 50 Burlingame High School students in three of Anna Liu's architecture classes participated in a project to reimagine Burlingame's Bayfront. MIG and City staff conducted a Bayfront walking tour with the high schoolers, after which the students chose priority sites to plan and design. Their proposals were showcased at Community Workshop #2 in May 2016. One student joined the CAC as a result of the high school project. Community Workshop and Survey #2 On Saturday, May 21, 2016, the City hosted the second community workshop for Envision Burlingame. The workshop was an open house event in which community members could drop in at any time between 10 A.M. and 1 P.M. to review and comment on potential land use and circulation alternatives for six study areas within the city. Participants were given a workbook with specific questions to provide feedback. For community members who were unable to attend the workshop, an online survey was available from May 21 through June 24, with questions that corresponded directly to the workshop materials and workbook. In total, over 240 people participated in the workshop and survey. A summary of this input is available on the project website: htfQ://www.envisionburlinQame.ora/communitvsurvev2 MILESTONE PRODUCTS Several key milestone products have been developed since the beginning of the project, each of which will lead to the development of the updated General Plan. The following provides a summary of these key products. Existing Conditions Report In November 2015, the City published a comprehensive Existing Conditions Report that takes a "snapshot" of Burlingame's current characteristics, trends, and conditions. The report provides a detailed description of a wide range of topics within the city. It provides decision -makers, local agencies, and the community with context for making land use and policy decisions, and is intended to be objective and policy -neutral. The report, which is a key early milestone report, will also be used as the existing settings portion of the eventual Environmental Impact Report prepared for the updated General Plan. The report is available on the project website at: www.envisionburlingame.ora/existinaconditionsreport and includes the following topical chapters: • Chapter 1: Introduction • Chapter 2: Land Use and Urban Form • Chapter 3: Economics and Market Demand • Chapter 4: Transportation and Mobility general plan and �y+ Envision zoning ordinance update eunLinenmE Chapter 5: Infrastructure Chapter 6: Natural Resources and Hazards Chapter 7: Open Space, Parks and Recreation Vision and Guiding Principles During Winter/Spring 2016, City Staff, the consultant team, and the Community Advisory Committee crafted the Vision and Guiding Principles for the General Plan. The Vision is a broad, aspirational statement that succinctly summarizes the desired future for Burlingame. It is supported by a series of Guiding Principles that touch on the most important topics, opportunities or issues that will be addressed in the updated General Plan. These items were reviewed by the City Council and Planning Commission at the joint retreat in March 2016. They were also reviewed by the community during Workshop and Survey #2 in May/June 2016. The Vision and Guiding Principles establish the overall policy framework for the updated General Plan—and in turn, all goals, policies, standards and programs included in the Plan will relate back to the Vision and Guiding Principles. Concept Alternatives In Spring 2016, City staff and the consultant team developed an initial set of Concept Alternatives based on community input and technical analysis. The purpose of the Concept Alternatives was to show land use, mobility, and policy options for the future. The alternatives were organized around six key study areas that are expected to be the primary locations of land use changes resulting from the General Plan update: North Burlingame/Rollins Road, the Bayfront, Broadway, Howard Street in Downtown, EI Camino Real, and California Drive. The consultant team presented an initial draft of the Concept Alternatives to the City Council and Planning Commission at the joint retreat in March 2016 for their review and comment. This feedback was used to refine the alternatives, which were then presented to the community during Workshop and Survey #2 in May/June 2016. As mentioned in the Community Engagement section above, over 240 community members commented on the alternatives, which helped guide development of the Emerging Land Use Concept being presented at the September 7 City Council Study Session. COMMITTEE, COMMISSION, AND COUNCIL REVIEW PROCESS Three key groups are guiding development of the General Plan, and have been involved throughout the process in different ways. The following describes the involvement of the Community Advisory Committee, the Planning Commission, and the City Council since the beginning of the Envision Burlingame process. 7 ,err: general plan and zoning ordinance update Envision euaunSame Community Advisory Committee The Community Advisory Committee (CAC) was established by the City Council early in the Envision Burlingame process to advise the project team throughout the development of the updated General Plan. Members include representatives from a variety of organizations and perspectives, including neighborhood groups, business groups, transportation and housing advocacy groups, and environmental organizations, as well as residents representing a range of perspectives, including youth, renters, and seniors. The role of this committee is to connect with the various communities and stakeholders of Burlingame for the purpose of advising and making recommendations to the Planning Commission and City Council. The CAC has been very active, holding 11 meetings between July 22, 2015 and July 27, 2016. The committee has been closely involved with the development of the General Plan framework, participating in self - guided walking tours to generate ideas for the concept alternatives during Winter/Spring 2016, and providing in-depth feedback to identify the Emerging Land Use concept during Spring/Summer 2016. CAC members have also engaged in discussions about mobility and circulation, as well as historic preservation and sustainability. They will continue to be involved with the development of General Plan elements and policies throughout the process. Information on CAC meetings, including summaries and meeting materials, is available, on the project website at: www.envisionburlingame.ora/communityadvisorycommiftee. City Council/Planning Commission Retreats Envision Burlingame has been a focal point of the past two annual City Council/Planning Commission Retreats. On March 7, 2015, Envision Burlingame was entering its first phase, and the retreat focused on a discussion of General Plan requirements, content, and coordination with other City policies and plans. The meeting also discussed the proposed work plan for the General Plan and Zoning Ordinance update, including outreach and community engagement strategies. This past year, on March 19, 2016, the annual retreat provided an update on the Envision Burlingame process, including CAC and other community input gathered during the first year of the project. The main discussion of the study session focused on the Draft Vision and Guiding Principles and Draft Concept Alternatives for the six study areas within the City. As mentioned above, feedback from the retreat was used to refine the alternatives for Community Workshop #2 on May 21, 2016. Planning Commission Study Session general plan and Envision zoning ordinance update euximGame On July 13, 2016, the Planning Commission met to discuss the Emerging Land Use Concept developed by City staff and the consultant team during early Summer 2016. The consultant team presented information on housing and population growth projections, providing the context for a robust conversation about the Emerging Land Use Concept. Feedback from the Commission at the July session will be incorporated with guidance from Council at the September 7 session to determine a final Preferred Land Use Concept in Fall 2016. Minutes from the Planning Commission Study Session are attached in this packet COUNCIL DISCUSSION TOPICS The consultant team will present the following items to the City Council and Planning Commission for their review, discussion, and feedback during the September 7, 2016 City Council Study Session. Burlingame Growth and Housing Discussion To identify a final Preferred Land Use Concept and policies for the General Plan update, it is important to understand the context of population and housing growth within Burlingame and across the region as a whole. The purpose of this discussion is to think about how much Burlingame would want to grow over the next 20-25 years, and how the General Plan can identify policies to accommodate an appropriate level of growth for the community. Sea Level Rise and Adaptation Discussion Another important topic that will guide development of the General Plan is sea level rise. Given Burlingame's Bayfront location, and the increasing importance of sustainability and climate change, this discussion is intended to provide context and guidance about how future change in Burlingame can be cognizant of issues of climate change and how the City can prepare for climate -related hazards. Emerging Land Use Concept City staff and the consultant team have developed an Emerging Land Use Concept based on the Concept Alternatives process conducted during the Spring and Summer of 2016 (described above). The purpose of this discussion is to gather feedback from the City Council on the Emerging Concept in order to refine it and identify the Preferred Land Use Concept for the General Plan. This will establish the framework around which the General Plan and Environmental Impact Report (EIR) will be prepared. The community and decision makers will be able to comment and discuss the land use plan general plan and Envision zoning ordinance update eueILmnnmE again once the draft General Plan and Draft EIR are available for public review early next year. School District Coordination City staff and the consultant team are in the process of working with Burlingame School District to ensure coordination throughout the remainder of the process. During this discussion item, the consultant team will provide an update on communication with the District and answer questions about the District's input into the General Plan. NEXT STEPS City staff and the consultant team will refine the Emerging Land Use Concept based on City Council feedback to identify the Preferred Land Use Concept. The consultant team will also prepare a Draft Safety Element of the General Plan, which will be presented to the CAC at its September meeting as the first of the draft elements. 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The diagram illustrated on pages 2-3 is based on extensive community feedback gathered over the past year, including the work of the Community Advisory Committee (CAC), input collected at Community Workshops #1 and #2, and over 240 responses to Online Community Survey #2. The CAC provided feedback on this proposal during their meeting on June 29. The Planning Commission Study Session on July 13 provides an opportunity for Commissioners and members of the public to weigh in on the proposed land use concept, which will ( "form the upcoming presentation to the City Council, as illustrated in the diagram below: cac input MO) planning commission recommendations city council \ recommendations JUNE JULY SEPTEMBER how to use the workbook: The middle pages of this workbook show the emerging land use concept with specific "change areas" highlighted. Images and descriptions accompany these change areas to illustrate the types of development that could occur based on updated policy. On the back side of the workbook is a complete list of the proposed land use designations with their descriptions and density/intensity ranges. Accompanying this workbook is a copy of the esentation that will be presented at the July 13 study session, which includes CAC feedback on the proposed land use concept. Please review all of this information prior to the session, and come prepared to discuss the working draft land use plan with the project team. §§ §§ � \ 2 2� / .§ oc uoE \ \\\\\\ \ oc uoE Proposed Land Use Designations Residential Density (du/ac) Maximum Floor Area Ratio (FAR) Open Space (OS) Applies to natural habitat areas and other properties supporting environmental resources and protected via easements or other means. N/A Development is not permitted except for facilities such as restrooms, interpretative N/A exhibits, and other improvements that support the open space uses. Parks and Recreation (PR) Applies to regional parks, community and neighborhood parks, and special use facilities such as community centers, golf N/A N/A courses, and trails. Bay and Baylands (BAY) Applies to waters in San Francisco Bay and other water areas subject to bay tidal influences. No development permitted except as N/A N/A authorized by State law. Public and Quasi Public (PQP) Applies to utilities infrastructure and easements; governmental, educational, cultural, and health care related facilities; and unique N/A 1.5; 3.0 for private institutional uses (such as Mercy Center Burlingame). hospitals Low Density Residential (LDR) Permitted uses include detached housing units on individual lots, accessory units, and related ancillary structures. Correlates to the 4.0-8.0 N/A R-1 zone. Medium Density Residential (MDR) Permitted uses include detached housing units on individual lots, accessory units, multi -family dwellings containing two or 8.1 -20.0 N/A more units, and ancillary structures. Correlates to the R-2 zone. High Density Residential (HDR) Permitted uses include a mix of multi -family housing types and ancillary structures, with preferred locations along or with immediate access to arterial streets and/or near major activity centers. Correlates 20.1 -50.0 N/A to the R-3 zone. Commercial/Residential Mixed Use (CR -MU) Permitted uses include retail, 0.6 for stand-alone service commercial, dining establishments, offices, and limited low -intensity auto- 20.1 - 50.0 commercial; 2.0 for related uses. Residential uses may be permitted as part of a cohesive master plan. developments that Maximum building heights will vary depending upon location. include residential Office/Residential Mixed Use (OR -MU) Allows for either office or multi -family housing as stand-alone or mixed-use development. 20.1 -80.0 1.0 Bayfront Commercial (BF -C) Allows local and tourist commercial uses, including entertainment, restaurants, hotels and motels, and retail. Also allows public open N/A 3.0 space and open space easements to achieve local and regional trails, recreation, and habitat preservation objectives. Bayfront Mixed Use (BF -MU) Allows for office, residential, and supportive commercial uses in mid- to higher -rise developments. 40.0-80.0 3.0 Broadway Mixed Use (BMU) Allows commercial, office, and residential uses, with residential not permitted on ground floor. Ground -floor use is restricted to retail/ 40.0 2.0 service along Broadway frontage. Ground -floor office is allowed on side streets. California Mixed Use (CMU) Allows an eclectic mix of retail/service commercial and second -story residential. Existing stand-alone residential accommodated via a 0-20.0 0.6 zoning overlay. Live/Work (LW) Allowed uses include light industrial, service commercial, retail commercial, studios for creative industries, and limited medium -density residential 20.0 1.0 as live -work units. Innovation/Industrial (1/1) Permitted uses include light industrial, creative industry businesses, design businesses, indoor sports and recreation, and wholesale uses. N/A 0.5 City of Burlingame Meeting Minutes - Draft Planning Commission BURLINGAME CITY HALL 501 PRIMROSE ROAD BURLINGAME, CA 94010 Wednesday, July 13, 2016 7:00 PM Council Chambers SPECIAL PLANNING COMMISSION STUDY SESSION 1. CALL TO ORDER 2. ROLL CALL Present 7 - DeMartini, Loftis, Gum, Terrones, Bandrapalli, Sargent, and Gaul 3. APPROVAL OF AGENDA There were no changes to the agenda. 4. PUBLIC COMMENTS, NON -AGENDA Sandra Lang spoke on this item: > Serves on a county commission on aging. > Has concerns with decisions being made regarding senior citizens, and effects planning could have. 5. STUDY ITEMS a. Envision Burlingame (General Plan Update) — Led by Representatives of the General Plan Consultant Team from MIG Attachments: Staff Repoff Emerging Land Use Workbook Study Session Slide Presentation Planning Manager Gardiner introduced the item. Laura Stetson and Dan Amsden of MIG consultants made a presentation, covering the following items: > Project Schedule and Update > Community Involvement, including workshops and online survey > Regional Growth Trends > Emerging Land Use Concept > Community Advisory Committee (CAC) Feedback Commission questions: > What engagement has there been with the school district on land use and population projections? (Stetson: There is a representative from the school district on the CAC. There needs to be follow-up, as we are aware of concerns with additional school children.) > Is the Emerging Land Use Concept a reflection of the survey primarily, or is it a reflection of the CAC City of Burlingame Page 1 Printed on M12016 Planning Commission Meeting Minutes - Draft July 13, 2016 recommendation? (Stetson: Combination of the workshops, CAC, intercept surveys, and stakeholder interviews. The consultant team synthesized the input, then presented it back to the CAC for specific comments.) > Why was the CAC not in favor of mixed use at the comer of Adeline Drive and El Camino Real, and instead favored stand-alone residential use? (Stetson: It was not a vote, but various CAC members had concerns that commercial uses could create a nuisance. EI Camino Real is primarily residential in Burlingame.) > Why did CAC members suggest lowering the residential density south of Broadway? (Stetson: It's a nuance. The high-density category has a range from 20 to 50 units per acre. It is a large range. The areas south of Broadway are presently zoned for multifamily development up to 50 units per acre, but are probably not built to 50 units per acre. Concern may be that if the high-density designation is retained in the area, it may encourage consolidation of lots to build something bigger that would be out of character with what exists today. If the cap was 30 units per acre the current land use pattern would continue and remain stable. Could be implemented through an overlay.) > Does the term "Emerging Land Use Concept" refer to future trends of what land use is heading towards? (Stetson: No, it refers to the land use plan not being settled yet. It could be considered a 'draft."The term "emerging" because input is still being sought.) > In the future when streets are discussed, will it have been vetted through traffic studies? (Stetson. - Yes. Preliminary studies were done before any concepts were discussed.) > How much land is within the anticipated "change" areas versus the areas that are considered stable and not anticipated to change? (Amsden: Has not done the calculation. The Downtown Specific Plan area is also not expected to change significantly, given the plan was adopted relatively recently.) > Have the projects in the residential pipeline been projected on a map to see where they fall? (Stetson: Staff has mapped the locations of the various applications and approved projects. Currently residential development is allowed in a lot of areas.)(Gardiner None of the current projects require General Plan amendments - they are all accommodated within existing zoning. The City has a lot of zoning capacity, in theory, however most of the land is already built on.) Questions from the public (submitted on question cards): > Given that schools are already at capacity, how would schools be factored into the discussion? (Stetson: It is a critical part of the discussion. Schools are required to accommodate the students that are generated by new development, but there needs to be balance to have a vibrant, healthy city. Some of the housing may not generate school children, such as senior housing. Schools need to be addressed in the planning.) > Do general plans ever have a development 'cap" in population or numbers of units, if the community decides on what would be the right number for future growth, even if there is more land zoned that could accommodate more growth? It could be based on capacity issues such as schools, infrastructure, etc. (Amsden: Yes, it can be a policy decision to limit growth based on capacity of facilities, or constraints. The environmental analysis would include the cap threshold. There could be a later policy decision to go beyond the cap, but then there would need to be further environmental analysis on the potential impacts.) > To what degree have FEMA flood zones and Sea Level Rise been a consideration or will be a consideration going forward? (Stetson: Sea Level Rise is a consideration in new projects submitted on the Bayfront and FEMA regulations apply to new projects in the flood zones.)(Amsden: There may be specific overlays to address requirements such as raising of buildings.) > What if any reduced parking requirements are being considered for mixed use projects? (Stetson: The plan can set a policy framework for parking regulations. The regulations themselves will be included in the zoning update, which will be done in conjunction or right after the General Plan.) > What is the City's current jobs housing balance? (Stetson: Approximately 33,000 jobs, and just over 12,000 housing units, for a ratio of approximately 2.75 jobs perhousing unit.) > Does the General Plan include parks and green spaces for future growth, particularly if there is an increase in population? Would there be provisions for more parkland? (Stetson: There could be a policy direction to have a parkland ratio per 1000 residents. There would be a need to find places for additional parks if that was the policy.) > What is the thinking behind reducing density near Broadway if there is also a desire is to make City of Burlingame Page 2 Printed on 91112016 Planning Commission Meeting Minutes - Draft July 13, 2016 Broadway successful? (Stetson: It is a policy question reflecting comments from CAC members. The question is whether to keep the neighborhood at the intensity it is today, or allow additional intensity to create more activity on Broadway.) > Have there been calculations to determine if there would be adequate infrastructure if all properties were developed to their maximum capacity under current zoning? How is the maximum potential determined if both residential and commercial are allowed? (Stetson: There will need to be a build -out analysis for all uses in the city. Some assumptions will need to be made including how many existing parcels would turn over, and the proportion of residential and commercial uses. Over a 25 year period not all parcels are going to turn over. However there would not be an exercise to see what would happen if every single parcel turned over because it is not a credible scenario to consider.) Chair Loftis opened the public hearing. Public comments: Mark Haberecht, 1505 Balboa Avenue, spoke on this item: > The Housing Element prepared two years ago expressed skepticism towards ABAG projections as they applied to Burlingame. Burlingame's population has remained flat over the past 40 years. > Forecasts have been wrong in the past. > Do we blindly approve transit -oriented development defined loosely around High Speed Rail and electrified Caltrain that are unfunded? They may no longer exist with autonomous driving technologies. > Through regional pressures may have to decide how to absorb housing requirements and what to protect in existing quality of life. > Bayfront is underutilized, whereas infill development west of Highway 101 and along the EI Camino Real corridor is contentious. Bayfront housing in exchange for protecting areas that are already constrained. > Hillsborough is exempt from ABAG requirements, Burlingame has agreed to accept all externalities and costs of high-density development, while Hillsborough is allowed to count nanny units as housing growth. > Residential developers should contribute to shools, fire and police. > Mixed-use development at Adeline Drive and El Camino Real beyond what exists now will create more controversy than the condominium proposed at 1509 EI Camino Real. It should be zoned R-2 Residential. Michael Barber spoke on this item: > Was on the school board for 16 years. The schools have not been included in this process. > If the concept plan was built out, there would need to be a place for another school. > The schools are at maximum capacity. In 16 years grew from 2200 students to 3400 students now. VVIthout a new school, the existing schools would have to become denser with larger class sizes. > Countywide Sea Level Rise assessment will be completed in September. Should be careful about putting residents into a flood -prone area. Jennifer Pfaff spoke on this item: > If some areas are allowed to have residential development where they do not currently, need to consider trend of losing local control. Latest is the Governor's by -right housing proposal to fast-track housing that includes 10-20% attainable units. > Local review is strong, which is why Burlingame looks the way it does now. > Trend is towards regional rather than local. > If rezone areas to allow multifamily residential, may lose control over how the City looks. > Would advocate having a development cap. > While current plan is from 1969 there have been updates including the Downtown Speck Plan. Plans can be altered overtime. Chair Loftis closed the public hearing. City of Burlingame Page 3 Printed on 91112016 Planning Commission Meeting Minutes - Draft July 13, 2016 Laura Stetson and Dan Amsden facilitated the commission discussion, with the discussion organized by geographical area. Bayfront > Have the flood zones been considered? (Stetson: Yes, they are discussed in the background reports, and have been factored into the consideration process.) > The distinction is allowing the possibility of something to happen, as compared to proposing it. There are many layers of regulation including FEMA that would apply to a project. Codes and regulations would need to be followed. > The Bayfront and Rollins Road areas have underutilized properties. It's almost like these areas have been 'poisoned," whether by policy or economics. > Likes the proposals that have been put forward such as liveAwork, and that they are not the standard approach. Worthy of being studied further. > The area cannot be ignored just because it is within a flood zone, since there are already uses in place. The issue needs to be addressed regardless. > Would like to see something vigorous and vibrant, since that would not describe the area currently. Likes the direction of what is shown in the concept. > School issue is a "chicken and egg" situation, since a school won't be built until there is residential development, but there cant be residential development until it can be accommodated with schools. Would like to see residential development on the Bayfront but understands the challenges with the schools. > Liva/work would not necessarily generate a lot of school children. They are more likely to attract young professionals and single people. They would be smaller units that would be less likely to accommodate families, not single family homes. (Stetson: Cannot dictate who could live in the units, but could limit the size of liva/work units.) > The area is underutilized and there is a desire for the parking lots to be developed. > Concern over how to make the desired development happen, since zoning in itself won't necessarily bring the development. (Stetson: One tool is to create land use regulations that provide flexibility and attract the types of users desired. The other is going out and seeking the developers and letting them know where the opportunities are. One or two catalytic projects can start things.) > Likes the direction of the concept on the North Bayfront. However residential on the south end would be out of character with the rest of Burlingame. It's like Redwood City compared to Redwood Shores, they are so disconnected from each other. It would also be more car -centric than the rest of Burlingame. > There have been lots of developers wanting to build residential on the Bayfront but since it is not allowed it is not clear what would be the next highest use. Typically it defaults to discussing hotels. > Would not expect development to have the character of Foster City or Redwood Shores. Instead it would be pioneering development that would cohabitate with what already exists, such as liveAvork or condo hotels. Should think about the form and character of development to inform the vision, and is worth studying further. > The Shoreline area will have a different impact compared to the Inner Bayshore industrial area. Anything east of Bayshore Highway and Airport Boulevard will have a different look and feel than anything west. > Should consider the preferences of millennials, such as telecommunting and ordering goods online. Is that being considered? (Stetson: It is always a challenge to predict how the next generation wants to live. If land uses are adaptable and flexible, and buildings are adaptable and flexible, different ways of living and working can be accommodated. The proposed concept creates that flexibility.) > Need to better understand population growth projections. (Stetson: The 5% historic growth represents the availability of land and what could be accommodated with the zoning. Meanwhile the regional economy has been booming, creating more demand for housing and therefore there have been more requests for residential development in Burlingame based on the region changing. The ABAG projections take in the regional factors.) North Budingame/Rollins Road., > More dense housing at the southern end of Rollins Road will be a problem in terms of traffic, the City ol'Burlingame Page 4 Printed on 9/1/2016 Planning Commission Meeting Minutes - Draft July 13, 2016 train, the traffic generated by Burlingame Point. Should not be placing more dense development that will bring more cars. If more residential developent needs to be accommdated, the northern end of Rollins Road makes more sense since itis near the Millbrae station. > A design district with IiveiWork seems to fit. > Concept is good. Makes more sense to have higher density at the north end, but there ought to be some at the south end too. Also likes the innovation district. > The north end of Burlingame is not active at night and is underdeveloped. Focusing on the northern end of Rollins Road is a good idea. > The approach in the concept to the North Burlingame area on EI Camino Real is good. Broadway., > The photo illustrating the development at the "nodes" or ends of Broadway is too intense, but having three gas stations out of the four corners doesn't seem right. At least one of the property owners has interest in doing something other than a gas station. > Would not want to intensify the El Camino end but the California Drive end could be intensified. > It doesn't need to be intensified, just needs to be different. > The gas stations are successful so not sure how likely they are to redevelop. > Conceptually the gateway development makes sense. > Understands interest in having less density in the blocks south of Broadway since there is competition in packing between the residential uses and the commercial uses on Broadway. There are other areas of emphasis in the city that can be the focus for increased density. El Camino Real at Adeline Drive: > Having the market and small businesses there adds a lot to the neighborhood. Would be unfortunate to zone them out of existence. > Parking and traffic is a problem for the comer, given how busy it is. > If it changes to residential it will feel like all the other blocks on El Camino Real. The market is a great spot and should be developed as more of a commercial area. > Depends on intensity. Term "mixed use" evokes intensification with more traffic and impact, but if it is not intense can be a benfit for having local commercial uses and not always having to drive to a shopping center. > Accommodating parking on the corner lot will limit the potential for how intense the development can be. Not likely to be more than two stories. The survey had many responses from Easton Addition residents, and the response was wanting services for nearby residences. > Commercial use would be good provided it is not intensive. Downtown: > In agreement with the concept plan. California Drive corridor. > Seems there is potential as a connector between Broadway and Burlingame Avenue. (Stetson. This is an instance where having a change to the road configuration together with a land use policy change will allow some transformation. Currently it is not friendly to pedestrians. > The roadway is odd, in that it is four lanes to sprint between two lanes at each end. > Makes sense to have some residential on the upper floors. > It is a long corridor. Some of the uses such as automotive are not things people would walk to. Other considerations., > The chart showing growth trends for San Mateo County is not helpful. The chart should show Burlingame instead, since growth in Burlingame is flat. City of Burlingame Page 5 Printed on 911/2016 Planning Commission Meeting Minutes - Draft July 13, 2016 > There has been talk of having a ferry terminal on the Bayfront That would change the discussion of whether to put development on the north or south side of Rollins Road. > The Bayfront is disconnected from the rest of the City. Need to discuss the above -ground grade separation on Broadway, which will separate the area even more. > There have been discussions with the school, including representation on the school district's master plan committee. > Needs to look at parking standards for transit -oriented development and other uses that would not have as much impact. Perhaps a subcommittee with the Traffic, Safety and Parking Commission. > Dichotomy between millenials prefering to walk or bike to work rather than drive, versus concerns with development at south of Rollins Road creating traffic. Needs to take a position. The Millbrae Avenue end may be just as busy. 6. ADJOURNMENT The meeting was adjourned at 9:08 p.m. Any writings or documents provided to a majority of the Planning Commission regarding any item on this agenda will be made available for public inspection during normal business hours at the Community Development/Planning counter, City Hall, 501 Primrose Road, Burlingame, California. THE NEXT REGULAR MEETING OF THE BURLINGAME PLANNING COMMISSION WILL BE HELD ON MONDAY, JULY 25, 2016. City ofeurlingame Page 6 Printed on 91112016