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HomeMy WebLinkAbout1441 & 1445 Bellevue Avenue - Staff Report (4)Item # l Study Item City of Burlingame Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit for Height, and a Front Landscape Variance Address: 1441 & 1445 Bellevue Avenue Meeting Date: 4/25/05 Request: Application for mitigated negative declaration, condominium permit, tentative map, conditional use permit for height, and a front landscape variance for a new four-story, 16-unit residential condominium building at 1441 & 1445 Bellevue Avenue, zoned R-4. Applicant/Architect: Dale Meyer, AIA, Dale Meyer Associates APN: 029-121-040 & 029-121-05C Property Owner: Bellevue Associates, LLC c/o Litke Properties Lot Area: 24, 637 SF (0.56 acres) General Plan: High density residential use Zoning: R-4 Adjacent Development: Multi -family residential Current Use: Multi -family residential dwelling units, two separate lots with a total of 18-units in five structures Proposed Use: 16-unit residential condominium building Allowable Use: Residential dwelling units February 24, 2003 Environmental Scoping Meeting: On February 24, 2003, the Planning Commission reviewed this project and identified potential environmental issues. The Planning Commission also revised the areas of potential significant effect suggested by staff (February 24, 2003, Planning Commission minutes). Planning staff would note that the plans have been revised since the environmental scoping meeting. The environmental scoping was for a for new 15-unit condominium project with two buildings, one three-story and one four-story building. With this original project twelve of the fifteen units were proposed in one, four story structure facing Bellevue Avenue. The three remaining units were to be located on the site on the other side of Ralston Creek in a second three-story building at the rear of the lot. Since the environmental scoping meeting, the applicant revised the project to one 16-unit, four-story, residential condominium building facing Bellevue Avenue. No dwelling units are proposed on the other side of Ralston Creek. The environmental document addresses this revised 16 unit project. The following issues were identified for evaluation and addressed in the mitigated negative declaration. Various studies and information provided by the applicant are included. The applicant submitted a letter dated April 15, 2004 in response to the Planning Commission's comments on the environmental scoping at the study meeting in which each of the bulleted items is addressed below. Staff has summarized in italics a brief response to each of the items below. A reference to the Negative Declaration for a more detailed explanation is also provided: • Increasing the intensity of the use of the site, more bedrooms and bathrooms, what is the impact on the existing sewer and water systems, are the public facilities adequate? ► There are a total of 20 existing bedrooms on the two lots and with this proposal it will increase to 41 bedrooms. The sanitary sewer main serving this site was upgraded in January 2005 to a 10-inch line, which the Public Works Engineering Department has determined will be adequate to accommodate this development. However, the domestic water line that serves this site is a 6-inch cast iron pipe that runs down Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit, and Variance 1441 & 1445 Bellevue Avenue Bellevue Avenue from El Camino Real, serving several other multi -tenant buildings on the block. The Public Works Department required that the applicant prepare a water demand study for the proposed building prior to obtaining a building permit. This study is necessary to determine the adequacy of the capacity of the existing domestic water line to supply the proposed condominium building as well as the required fire sprinkler system for the building. If it is determined that the domestic water line needs to be increased the applicant will be required to also replace the sewer line in the street to City standards as required by the City Engineer. This has been included as a condition of approval in the attached Mitigated Negative Declaration. Please refer to Section 12, Utilities and Service Systems Summary, page 33-35 in the attached Mitigated Negative Declaration. • Affordability of the units, compare market price of new units to current rental rates of units on site. ► The applicant has responded to this comment in his letter dated April 15, 2004. He states that the current rental rates on -site range from $800 to $1,550. The new units will go on the market in the range of $800, 000 to $1,500, 000. Please see full response in applicant's April 15, 2004 letter attached. • Using the number of bedrooms proposed along with other trip generation data, determine the impact of the proposed development on transportation, traffic and circulation in the area. ► The trip generation study prepared by Hexagon Transportation Consultants states that rates shown in the ITE (Institute of Transportation Engineers) manual indicates that there is a higher trip generation rate for rental units than for owner occupied condominium units during the PMpeak- hour. The trip generation estimated for theproposedproject indicates that there would be approximately 2 fewer"peak--hour trips and 3 few PM peak -hour trips generated by the proposed project. The traffic volumes at the new site driveways will be less than the existing volumes at the driveways on each site, with one inbound and six outbound vehicles in the AMpeak-hour and six inbound and two outbound vehicles in the PMpeak-hour. For a more detailed analysis of the traffic and circulation issues please refer to Section 6, Transportation/Circulation Summary, page 24-27 in the attached Mitigated Negative Declaration. • Would like a view analysis from the adj oining properties (sides facing into proj ect site) and compare existing shadow patterns to new, identify what the impact will be, what greenery will be visible from each side. • Prepare a shadow study, impact on adjacent properties, determine loss of light (hours per day), and the relative difference in light access caused by an overall 35 foot project and 42 foot project. • Evaluate landscape plan, what will be the visual impact of the plantings proposed in pots up to the open creek, and on the other side. ► The applicant conducted a shadow analysis of the proposed structure, as well as a comparison with the shadows which would be cast by a three story building of the same configuration. The applicant created shadow simulations using two different methods: one using a three-dimensional model of the proposed structure made, and are using the Pacific Gas & Electric Company (PG&E) Heliodon, Shadow simulations were generated. In addition, the applicant has provided computer -generated shadow simulations using AutoCAD 3D modeling Version 2000. Thomas Reid Associates (TRA) reviewed the shadow studies prepared by Dale Meyer Associates to determine if the shadow lengths and angles depicted were accurate. TRA's analysis determined that the Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit, and Variance 1441 & 1445 Bellevue Avenue methodology of each report meets industry standards and appears to be appropriate to show the shadow impacts of the project. When determining the impact of shadows, the time of day that is most critical is the period between 10: 00 a.m. and 3: 00 p. m., when the impacts are the most noticeable because sunlight is greatest and its loss from shadows cast would be the most adverse. The simulations for both the four-storyproject and the three-story alternative show the shadows at 10: 00 a. m., 12: 00 noon and 3: 00 p. m. atfour times ofyear, spring equinox (March 21st), summer solstice (June 21st), fall equinox (September 21st) and winter solstice (December 21st). All times noted are Pacific Standard Time unless otherwise noted with Daylight Savings Time (DST). Please refer to Section 13, Aesthetics Summary, page 35-38, and figures 13.1-13.6, in the attached Mitigated Negative Declaration, see graphics showing the actual shadow impacts. • Compare the amount of open space provided compared to that of other condominiums in the neighborhood, use those there is information on in the files. ► The applicant responded to this comment in his letter dated April 15, 2004. He notes that only one file for 6 similar condominium buildings in the area notes the amount of common open space. This was for 1457 Bellevue Avenue which has 4, 000 SF of common open space, including a pool, spa and lawn, that is an average of 222 SF of common open space per unit. The proposed project has 5,222 SF of common open space which averages 326 SF of common open space per unit. • Evaluate the neighborhood consistency of the style of the building as proposed, is it consistent with other buildings existing on the block. ► The applicant responded to this comment in his letter dated April 15, 2004. He explains that the proposed building uses details from French architecture with a mansard roof, stone base, arched window with thick window trim and keystone, quoins, wrought iron railings, dentils, building trim and decorative balusters. There are a multitude ofdifferent architectural styles on the block, including geometric/rectilinear styles, classical European, and Spanish style. The proposed building will fit into the neighborhood because of the design, detailing and strong architectural style. • Impact on on -street parking, effect of two large curb cuts. The Hexagon Transportation Consultants study prepared for this project notes that there is adequate site distance at the two driveways, except for the visual obstruction caused by cars parked by the driveways at the curb on the street. The Burlingame City Engineer reviewed the proposal and has recommended that the 30 foot driveway be reduced in size to 24 feet and shifted east. This would create one additional on -street parking space, for a total of two spaces in between the two driveways. With this change there will be a net loss of one on -street parking space in front of this site. For a more detailed analysis of the traffic and circulation issues please refer to Section 6, Transportation/Circulation Summary page 24-27 in the attached Mitigated Negative Declaration. • Look at existing housing stock, how does this project affect the affordability and density. ► An analysis of the effect of this project on the housing stock was prepared for the applicant by Cashin 3 Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit, and Variance 1441 & 1445 Bellevue Avenue Company. This analysis states that within a mile radius of the subject site that there are approximately 1, 261 apartment units. The vacancy rate for apartments in Burlingame in mid-2004 was about 10%. Rental values have declined approximately 20% in the last fewyears. Therefore it is assumed by this analysis that tenants in the building at 1441 and 1445 should not have a hard time finding replacement housing. The report also states that both 1441 and 1445 are economically obsolete buildings with the cost of upgrading the buildings to current code standards beingfinancially infeasible. Both buildings are in need of both structural upgrades and seismic corrections. Both have reached the limit of their lifespan. For a more detailed analysis please refer to Section 2, Population and Housing Summary, page 13 of the attached Mitigated Negative Declaration. • What are the characteristics of the residents being displaced. ► The analysis of the effect of this project on the housing stock was prepared for the applicant by Cashin Company contains information about the residents that currently reside at 1441 and 1445 Bellevue Avenue. They range in age from 25 to 39 years old, with one child residing at the location. The annual incomes of the residents range from $27, 600 to $102, 000. The professions of the residents include, office manager, financial consultant, loan agent, speech pathologist, airfield safety officer, senior research analyst, chiropractor and customer service representative. • Seismic analysis of the two decks of parking below grade, where is the water table, what construction impacts will be created by going so deep. • Will the below grade parking structure affect ground water flows. ► The proposed finished floor for the living areas has an elevation of 32.5 feet, with the 100 year flood elevation of approximately 29.5 feet, which follows the FEMA guidelines for construction of residential structures in flood plains (minimum 2 feet above the flood elevation). However, the proposed depressed parking area will be approximately 10 feet below the bottom of the creek, and is approximately 16 feet lower than the 100 year flood level along the creek. Clean subsurface ground water from the depressed parking area can be pumped to discharge directly into Ralston Creek, provided that the water meets water quality standards and the pumping is approved by the Department of Fish and Game and the Regional Water Quality Control Board. Surface run-offfrom wet cars that enter the two-story below grade garage and any from water that may flow into the garage will be required to drain to the local sanitary sewer system due to the lower elevation of the parking areas and the possibility of contamination of the drain water from vehicles. The proposed development will change the type and method of drainage, and will be impacted by flooding during major storms. The flow of the creek and its hydraulic gradient will not be significantly altered by the proposed development, because the retaining walls for the culvert beneath the existing apartment building at the southwest corner of the site will remain and the open channel area will be kept. Therefore, the construction will not increase the flood risk from the creek. Excavation for the depressed parking area will most likely be impacted if shallow groundwater is encountered, particularly if the excavation is accomplished during the winter months. During the rd Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit, and Variance 1441 & 1445 Bellevue Avenue geotechnical consultants site visits in March andAugust 2004, the creek had a few inches of water flow. It appears the summer water flow is coming from drainage from an office building garage located to the rear of the property. The borings drilled for the geotechnical investigation conducted by the consultants (BAGG) at the site in May, 2002 encountered groundwater at approximately 16 feet below the ground surface. Excavation that is lower than the creek bottom may require use ofsheetpiles or other impervious temporary soil retaining structures during excavation. There is a possibility that duringpeak runoffthat the creek may spillover. Mitigation is listed below that will address the impact of this water spillover to less than significant. For a full analysis of the garage impact and mitigations please refer to Section 4, Hydrology and Water Summary, page I8-22 in the attached Mitigated Negative Declaration. • Evaluate the historic value of the American Red Cross use of this site and any buildings existing. ► When this project was initially reviewed there was concern that 1445 Bellevue Avenue was the former location of the American Red Cross during World War II. However after further research it was discovered that the Red Cross was actually located at 1449 Bellevue Avenue, which is now known as 1457 Bellevue Avenue. The structure formerly occupied by the Red Cross was demolished in late 1982 or early 1983 to make way for the existing 18-unit condominium building that was approved for construction by the Planning Commission on November 8, 1982. For further analysis please refer to Section 14, Cultural Resources Summary, page 38-39, in the attached Mitigated Negative Declaration. • Provide an evaluation of the proposed height and square footage of the buildings proposed to the existing surrounding buildings. ► The applicant has responded to this comment in his April 15, 2004 letter. He notes the following: - 8-story building at the corner of Bellevue Avenue and El Camino real, south side 4-story building at the corner of Bellevue Avenue and El Camino Real, north side two 2-story buildings across the street from the subject property on Bellevue Avenue - 3-storybyuildng next door to the subject property 3-story building across the street from the subject property There was no square footage information for the surrounding buildings available. However the applicant did collect data on lot coverages in the surrounding area. The lot coverage for 1418 Bellevue Avenue is 49.8% (14,183.95 SF); 1435 Bellevue Avenue (to the left of the subject property) is 48.5% (16, 516 SF); 1457 Bellevue Avenue (to the right of the subjectproperty) is 50% (12,315 SF). The lot coverage of the proposed building is 42.7% (10,538 SF) where 50% (12,319 SF) is the maximum lot coverage allowed. • Evaluate the utility and value to the community to the future residents and neighbors of the open space provided in this project. ► The site as it is currently developed contains five structures, one of which is located at the rear of the property that is accessed via a wooden pedestrian bridge that straddles Ralston Creek. As part of this proposal the multiple family structure will be removed and the approximately 5, 000 SF of area on the other side of the creek will be developed as common usable open space for use of the residents on site. There will be a paved courtyard area with foundation in the center, along with pergola at each end of the courtyard. 5 Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit, and Variance 1441 & 1445 Bellevue Avenue This open space area will also contain an outdoor fireplace, a barbeque and outdoor furniture. The surrounding area will be fully landscaped. Therefore this proposal will result in anew recreational and open space opportunity on -site for residents of the condominium buildingproposed with this project. This information is summarized in Section 15, Recreation Summary, page 36 of the attached Mitigated Negative Declaration. • Creek is an integral part of this project, what comments do the Department of Fish and Game and the US Army Corps of Engineers have, how have they been addressed. ► The Mitigated Negative Declaration is currently being circulated to the Department of Fish and Game and the US Army Corps of Engineers for comment. The applicant will be required to obtain any necessary permits from these agencies, along with the Regional Water Quality Control Board, prior to issuance of a demolition, grading or building permit. • Error on the aerial showing the location of the creek should be corrected. The aerial has been corrected as requested and is attached for reference. Summary: The applicant, Dale Meyer, is proposing to construct a single, four-story, 16-unit condominium building with two levels of below -grade parking at 1441-1445 Bellevue Avenue, zoned R-4. The project requires the following Planning approvals: • Mitigated negative declaration, a determination that with mitigation measures there are no significant environmental effects as a result of this project: • Condominium permit for a new, four-story, 16-unit residential condominium project (C.S. 26.30.020); • Conditional use permit for height (45'8" height proposed where 35' is the maximum); • Front setback landscape variance (42.2% front landscaping proposed where 60% is required); and • Tentative map. Project Description: The applicant is requesting a mitigated negative declaration, condominium permit, tentative map, conditional use permit for height, and front setback landscape variance for the construction of a new, four- story, 16-unit residential condominium building with two levels of below -grade parking. The site now consists of two lots which contain a total of 18 apartment units, in five structures. All of the existing structures on -site will be demolished and the two parcels will be merged to create a single 24,637 SF lot (0.56 acres). The project will include four 4-bedroom units, six 3-bedroom units, five 2-bedroom units and one 1-bedroom unit. The project requires a condominium permit and a tentative parcel map to merge the two lots and create the condominium parcels. The applicant is requesting a conditional use permit for building height of 45'8" where a conditional use permit is required for height over 35'. The applicant is also requesting a variance for 42.7% (1169 SF) front setback landscaping where 60% (1660 SF) is the minimum required. A total of 35 parking spaces are required. The project proposes a total of 41 covered parking spaces to be allocated in a two-story, below grade garage. Thirty-four spaces will be reserved for tenants, with 5 guest parking spaces. Thirty-six spaces are standard sized spaces, three spaces are compact spaces and two are handicap accessible parking spaces. A semicircular driveway served by 2 curb cuts provides access/egress from the site on Bellevue Avenue and on Mitigated Negative Declaration, Condominium Permit, Tentative Map, Conditional Use Permit, and Variance 1441 & 1445 Bellevue Avenue provides an on -site parking area for deliveries. Atotal lot coverage of 42.7% (10,538 SF) is proposed where 50% (12,319 SF) is the maximum allowed. The project requires a front landscape variance because not more than 40% of the front setback shall be paved, or 60% (1,660 SF) shall be landscaped, where 42.2% (1,169 SF) of front setback is proposed to be landscaped. Because of the circular driveway design at the front, this requirement cannot be met. The project meets the average front setback of 17'6" and the rear setback requirement of 20'. Both side setback requirements are met. There is 5,222 SF of common open space proposed at the rear site, where 1,600 SF is required. The common usable open space is located at the rear of the property on the other side of the bridge and includes the creek, which can be admired from this space. The 75 SF per unit of private open space required is met, with each unit exceeding this requirement with private open space ranging from 78 SF to 753 SF. Inclusionary Zoning: This project was submitted prior to the adoption of the Inclusionary Zoning regulations which require that affordable units be included with any residential projects with 4 or more units. With inclusionsary zoning the 16-unit proposal would require two affordable units, one unit for every 10 dwelling units with fractions rounded up. Although not required to provide affordable housing the applicant is proposing that Unit 4, the one - bedroom unit, will be an affordable unit. If the applicant were to provide two affordable units, as required under the now current Inclusionary Zoning regulations, then the project would be eligible for incentives including a building height up to 46' without a conditional use permit. However, since there is only one affordable unit where two are required for the incentive to apply in this case, a conditional use permit for building height is still required. Mitigated Negative Declaration: Since the project including the lot merger includes new construction of more than four units, the project is subject to the requirements of the California Environmental Quality Act (CEQA). Therefore, an Initial Study was prepared. Based on the Initial Study, a Mitigated Negative Declaration has been proposed for review by the Planning Commission. This document has also been sent to the State Clearinghouse and circulated to other responsible agencies for comment. As presented the Mitigated Negative Declaration identified potential impacts in the areas of geology/soils, hydrology/water quality, noise, and aesthetics. However, based on the mitigation measures identified in the Initial Study, it has been determined that the proposed project can be addressed by a Mitigated Negative Declaration since the Initial Study did not identify any adverse impacts which could not be reduced to acceptable levels by mitigation. Refer to attached Mitigated Negative Declaration No. 537- P. PROPOSED ALLOWED/REQUIRED Front Setback: First: 20'3" 17'6" Second: 20'3" (block average) Third: 20'3" Fourth: 20'3" Side Setback (L): First: 15' min. 7' Second: 15' min. 8' Third: 15' min. 9' Fourth: 12' min. 10, 7 Scoping for Environmental Review 1441 & 1445 Bellevue Avenue Side Setback (R): First: 14' 7' Second: 10, 8' Third: 10, 9' Fourth: 10, 10, Rear Setback: First: 30' 15' Second: 30' 15' Third: 30' 20' Fourth: 30' 20' Number of Buildings: 1 1 Lot Coverage: 42.7% 50% (10,538 SF) (12,319 SF) Height: 45'-811' 35' Parking: 34 standard 34 spaces 2 van accessible 80% covered all covered Guest Parking: 5 guest spaces 3 guest spaces (3 standard + 2 compact) Total On -Site Parking: 41 spaces 35 spaces Front Setback Landscaping. P� g� 42.2% (1,169 SF)' 50% (1,383 SF) Private Open Space: Ranges from 78 SF to 75 SF per unit 753 SF per unit Common Open space: 55222 SF 1,600 SF (16 units x 100 SF) 1 Conditional use permit required for two buildings on one lot 2 Front setback landscaping variance required for 42.2% front setback landscaping where 50% is required. Staff Comments: See attached. Catherine Barber Planner c. Dale Meyer Associates, AIA