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HomeMy WebLinkAbout2007-07-24 e-packet - ~'t\\ S:1,f ii I~ . ~~ l~ ~\ v r::) C'. ~~ "'ilIFOp..~ SPECIAL JOINT MEETING CITY COUNCIL AND PLANNING COMMISSION OF THE CITY OF SOUTH SAN FRANCISCO P.O. Box 711 (City Hall, 400 Grand Avenue) South San Francisco, California 94083 Meeting to be held at: MUNICIPAL SERVICES BUILDING CITY COUNCIL COMMUNITY ROOM 33 ARROYO DRIVE Tuesday, July 24, 2007 NOTICE IS HEREBY GIVEN, pursuant to Section 54956 of the Government Code of the State of California, the City Council and the Planning Commission of the City of South San Francisco will hold a Special Joint Meeting on Tuesday the 24th day of July, 2007, at 6:00 p.m., in the Municipal Services Building, Community Room, 33 Arroyo Drive, South San Francisco, California. Purpose of the meeting: 1. Call to Order 2. Roll Call 3. Public Comments - comments are limited to items on the Special Meeting Agenda 4. Joint Study Session with Planning Commission - discussion of proposed Zoning Ordinance Update 5. Adjournment ~~ Deputy City Clerk - ~'t\t sM ~ ~ . ~:~ o ("l. >- ~ ~ n v 0 C'41.1FOp..~'\~ Staff Report DATE: July 24,2007 TO: Honorable Mayor and City Council Planning Commission FROM: Marty VanDuyn, Assistant City Manager SUBJECT: JOINT STUDY SESSION: ZONING ORDINANCE UPDATE RECOMMENDATION Staff recommends that the City Council and the Planning Commission conduct a Joint Study Session to review the Zoning Ordinance Update. BACKGROUND/DISCUSSION South San Francisco is beginning a comprehensive update of its Zoning Ordinance. The result of this effort is intended to be an up-to-date and understandable code that is an effective tool for achieving the goals and objectives of the City's General Plan. In October 1999 the City Council adopted the "award-winning" South San Francisco General Plan and certified the General Plan Environmental Impact Report (EIR). The Plan presents a long-term, comprehensive vision for South San Francisco and helps the community identify issues and find solutions for land use, housing, economic development, alternative transportation and resource conservation for the various neighborhoods that make up the city. To date, the City has amended substantial portions of the Municipal Code in order to comply with General Plan policies, especially in areas that have experienced substantial development activity. These updates include the Transit Village Plan, Residential Second Unit Regulations, Inclusionary Housing Requirements, Genentech R&D Overlay District Expansion, establishment of the Childcare Impact Fee, and Transportation Demand Management updates. The primary purpose of the comprehensive Zoning Ordinance Update is to implement the General Plan while minimizing uncertainty in the development process and providing tools to encourage better design. The Zoning Ordinance (Chapter 20 of the South San Francisco Municipal Code) will update the City's development standards to be consistent with the General Plan policies. The City's objectives for the Zoning Ordinance Update include: Staff Report Subject: Joint Study Session: Zoning Ordinance Update Date: July 24, 2007 Page 2 of2 1 Minimize uncertainty in the development process. 2 Provide a set of principles and tools that furthers the General Plan's policies encouraging high quality, pedestrian-friendly development with flexible regulations and standards. 3 Provide opportunities for early input from the community and for early feedback to project sponsors/applicants. 4 Have an updated set of development standards and land use zones that allow for implementation of the design guidelines while encouraging a mix of high quality development. 5 Give City staff tools to evaluate site design by eliminating conflicting standards and allowing for a degree of flexibility. 6 Facilitate public accessibility of development regulations by providing the ordinance in a format that is web ready. Purpose of the Joint Study Session The Planning Division has recently begun work on the Zoning Ordinance Update with the consulting firm ofDyett & Bhatia. The Joint Study Session will introduce the project and allow City officials to formally meet the consultant team. The team will discuss the project objectives, outline the Zoning Ordinance review process, summarize key issues, and review the project schedule. CONCLUSION City staff and the City's consultant team will start the Joint Study Session by introducing the proj ect and summarizing the work plan and community outreach effort. Following the presentations, Council members and Planning Commissioners will have an opportunity to ask questions and provide direction. By: ~~1/1\.A--- Marty Van Duyn Assistant City Manager By: Attachment 1. Zoning Ordinance Update, Scope of Work MVD:SK:ML:bla South San Francisco Zoning Ordinance Update Scope of Work PROJECT PHASES The critical initial step in crafting a concise and user-friendly set of regulations is close work with City staff and the Planning Commission to identify framework choices - the overall structure of the new development regulations. The challenge is to create a logical sequence, remove ambiguity, simplify and clarify language, and, to the extent possible, create common procedures and uniform regulations and standards. With this in mind, work on the comprehensive update of the South San Francisco Zoning Ordinance will be divided into the following major phases: · Phase I - Diagnosis and Technical Analysis: Background studies, including reconnaissance, 30+ stakeholder interviews, and summary of issues to be addressed. · Phase II - Choices for New Zoning: Analysis of issues and options and preparation of an outline reflecting the framework for zoning approved by City staff and the Planning Commission. · Phase III - Products: This phase includes drafting preliminary regulations to implement the 1999 General Plan and other adopted City policies, building on the outline and technical revisions identified by City staff. Planning Commission workshops on "modules" of preliminary regulations will be scheduled to provide feedback to the consultant team. Then a public review draft will be prepared for hearings and adoption. · Phase IV - Hearings and Adopted Ordinance. This includes preparation of materials for hearings, as well as the adopted Ordinance. The Scope of Work includes seven meetings with the Planning Commission/City Council to present the project, review issues and options including the proposed approach to reorganizing the zoning ordinance, and review specific sections or "modules" of preliminary regulations. SCOPE OF WORK The work program is designed to move from agreements on general approaches to the outline of specific regulations and then agreements on specific sections ("modules"), our work program involves City staff, the Planning Commission and other City officials and the community in the update process and generates a sense of ownership and commitment to the new regulations. Although the work program is intended to deal with problems throughout the entire body of zoning regulations, the primary emphasis will be addressing issues related to implementing the 1999 General Plan. We will focus on changes to the zoning regulations that staff and decision-makers believe most important to meeting the City's needs. TASK I: BACKGROUND RESEARCH; STAKEHOLDERS INTERVIEWS A. Prepare a summary matrix of General Plan policies and programs related to zoning and identify how they will be implemented based on the measures identified in the various General Plan elements by use regulations, development and design standards or guidelines, development review or development incentives. This matrix will be reviewed with staff and will also provide background for interviewing stakeholders and the Planning Commission workshop in Task 2. B. Conduct technical review of the City's existing zoning regulations. Review district requiremen ts, supplemen tary provisions, design guidelines, site develop men t standards, parking and loading requirements, sign regulations and administrative procedures for permits and administration (noticing, hearing, and appeal provisions; project review and permit requirements; enforcement and abatement; zoning text and map amendments, and General Plan amendments), and other relevant Municipal Code provisions. Identify conflicts with General Plan and applicable requirements of State and federal law. c. Review the existing Zoning Map, the General Plan Land Use Diagram, master plans (Genentech), and other adopted policies and guidelines (the South San Francisco Transit Village has already been incorporated into zoning); discuss with staff the purpose of different Plan designations and zoning districts, potential conflicts with landmark and historic preservation policies, and the City's approach to identifying properties that may require rezoning (either changing base district designations or adding overlay district designations). D. Review zoning issues in a field trip with City staff. A PowerPoint show will be prepared using photographs from the field trip to illustrate zoning issues in community workshops and meetings with the Planning Commission. E. Design a questionnaire that includes pertinent questions regarding zoning regulations, development standards, review requirements, potential inconsistencies between zoning and General Plan policies and regulations, enforcement issues, ease of implementation, monitoring, public access and user-friendliness and other pertinent issues relative to the zoning document for use in conducting stakeholder interviews. City staff will identify stakeholders who are actual users of the Zoning Ordinance, including business and property owners, neighborhood residents, developers, and architects. F. Prepare for and participate in one day of interviews with up to 30 stakeholders. Issues identified by stakeholders will be classified and sorted to identify common themes and shared concerns. Prepare a final "punch list" of issues and options based on the stakeholder interviewing, organized by topic, including options for districting; use regulations; development and design standards; signs, subdivisions, landmarks and historic districts, affordable housing, and administration. Revise based on staff comment. G. (City staff) Assemble a representative set of project plans for residential and commercial development, including infill projects as well as larger development projects and projects involving adaptive reuse of landmarks or historic structures for use in reviewing how specific standards and design guidelines are applied. H. (City staff) Prepare a list of technical zoning issues identified by City staff and a summary of the types of variances granted and standard conditions imposed on various types of projects for the past two to three years, based on a sample of applications reflecting conditions in different geographic areas of the City. If certain types of variances are routinely granted, it may be appropriate to re-write the applicable standard or zoning requirement to avoid reliance on this procedure. I. Prepare a summary list of zoning issues raised in interviews and other meetings and discussions with City staff. The consultant will organize issues by topic, including: districting; use regulations; development/design standards and design guidelines; and administration. The Consultant will also note relevant General Plan policies for major issue areas. Review the issues list with City staff and eliminate regulatory proposals that have little chance of acceptance or would be extremely difficult to administer. J. Design a Public Information Program for the Zoning Ordinance project, to include multi-format availability of all project schedules, regular updates, products, and public involvement opportunities. K. Prepare Newsletter #1 - Zoning Ordinance Update. This announcement would include a project description, schedule, opportunities for public involvement, and contact information (1-2 pages, Web ready). Products: Matrix of General Plan policies related to zoning PowerPoint show of zoning issues Matrix ofresponses receivedfrom staff Matrix ofresponses receivedfrom individual/group interviews Technical Memorandum on Issues Zoning Ordinance Update Newsletter #1 Meetings: Kickoff meeting and field trip Stakeholder interviews TASK 2: ISSUES AND OPTIONS; PRELIMINARY OUTLINE A. Based on technical review of the City's zoning regulations, City staff comments, and stakeholders interview, prepare an issues and options paper that distills the key choices and pres en ts the "big ideas" for consideration by the Planning Commission- a new framework for zoning for South San Francisco. An administrative draft will be prepared for City staff review and then revised based on staff comments. B. Prepare a PowerPoint presentation for the Planning Commission workshop, including photographs and graphics (e.g. diagrams of typical standards or excerpts of site plans) of specific zoning issues in South San Francisco and examples of how peer communities may have resolved similar issues. c. Based on Planning Commission comments on issues and options, prepare an annotated outline of the zoning regulations with a "plain English" commentary. The outline will lay out the basic structure of the revised Zoning Ordinance and will be in sufficient detail to indicate what changes will need to be made to current regulations, including: · The proposed number, types, and purposes of base zoning districts; · The proposed overlay and special districts, and provisions for planned development; · The general purpose sections of the new ordinance, including definitions, provisions for "use classifications," supplemental standards applying in some or all districts, administration, and enforcement; · The overall organization and numbering system, and procedures for amendments; and D. Graphic illustrations of selected standards and guidelines and review procedures (by title only). E. Review draft Outline with City staff and City Attorney; revise, based on comments received. Once agreement is reached on the outline, re-organize the existing ordinance to follow the chapter sequence for the new ordinance and include comments on revisions needed. Include "placeholders" for new regulations. F. Prepare Newsletter #2-Zoning Choices, distilling the big ideas and new initiatives. Products: Issues and Options Working Paper; Annotated Outline-Administrative Draft and Final Version; Newsletter #2-Zoning Choices Meetings: Planning Commission Workshop TASK 3: ZONING DISTRICT REGULATIONS A. Evaluate merits of a "use classifications" system to streamline zoning district use regulations. Prepare preliminary use classifications for City staff review, B. Evaluate current use regulations and identify changes needed in permitted uses and conditional uses to implement the General Plan; respond to Staff and stakeholder concerns, and the technical review; including such issues as: · Neighborhood-scale and land use compatibility; · Limitations on auto-oriented development; · Adaptive reuse of historic structures to ensure preservation; · Wireless telecommunications and other "protected" uses; · "Flex Space" for employment areas; · Second dwelling units; · Artist live/work spaces; and · Mixed-use development. C. Evaluate current regulations for specific uses, including City staff concerns about "problem" uses and provisions that are inconsistent with State and federal law. Prepare a summary matrix of proposed use regulations for all districts for staff review, including limitations and standards for special uses as well as incentives for uses at in fill locations. Limitations will deal with including supplemental standards and limitations related to maximum size and intensity of use, location, hours of operation, setbacks and screening, parking and loading locations, refuse collection, vehicular and solar access, screening of mechanical equipment and outdoor storage, any special standards for noise and odors not addressed by performance standards and accessory uses on residential properties including recreational vehicle parking and storage, garage conversions, and home occupations. As part of this task, the Consultant may draft revisions to correct inconsistencies with State or federal law. Some uses that may require particular consideration may include: · Alcohol outlets; · Auto dealerships and related "auto row" businesses; · An tennas; · Adult uses; · Big box retail space; · Car washes; · Childcare; · Convenience stores, particularly at mid-block locations; · Fast food outlets; · Houses of worship; · Recycling operations; · Second dwelling units. D. Meet with City staff to review use classifications, district regulations matrix, proposed limitations on special uses and bonus/incentive program. Discuss need for and merits of "exceptions" provisions for use regulations for designated landmarks and historic structures. Following City staff approval or approach to use regulations, conduct a Planning Commission workshop on this "module." Products: Module #1: District Use Regulations (including Bonus/Incentive Program) Meeting: Planning Commission TASK 4: DEVELOPMENT/DESIGN STANDARDS A. Analyze current development standards and identify new or revised standards and performance requirements such as: · Base and maximum densities and FARs; · Affordable housing incentives; · Walls, screening, and fences; · Height and bulk of residential additions and accessory structures; . Height and stepback requirements for non-residential development; build-to lines and envelopes, where appropriate; Setback, streetscape and design standards; Outdoor open space for multi-family development; Buffers, walls, screening and fences, outdoor facilities and storage; Pedestrian circulation and transit access, particularly in new commercial centers; Transitional requirements adjacent to residential districts and public uses; Parking. . . . . . . B. Incorporate standards from other plans and establish review process. Review the existing East of 101 Area design guidelines to distinguish standards (that could be included in the ordinance) from guidelines and review criteria (which would not be part of the ordinance). The "standing" of the guidelines in the development review process will analyzed and options for improving the review process will be proposed. c. Tour City and compile additional photos of typical buildings and street frontages for use in analyzing need for new standards or changes to existing standards. Review site plans of representative projects. D. Prepare a summary matrix of proposed standards with illustrations of new concepts. Products: Module #2: Development/Design Standards Meeting: Planning Commission TASK 5: SUPPLEMENTAL STANDARDS, PARKING, AND LANDSCAPING A. Review with City staff success of East of 101 Area TDM measures and issues related to parking. Update parking requirements, including reduced requirements for mixed- use projects and in special areas (such as Downtown), tandem parking (which has been an issue in South San Francisco), and in proximity to transit. B. Prepare standards for parking lots, including parking lot landscaping, shopping cart storage and dimensional requirements, and supplemental regulations for accessory structures, landscaping and buffer-yards, temporary uses, wireless telecommunications provisions, other uses not previously addressed. C. Review housing-related policies and regulations including density bonuses, affordable housing programs, and second unit provisions. Draft new and revised provisions as needed to implement adopted housing policies and to ensure compliance with State law. D. Prepare summary tables of supplemental standards and zoning diagrams needed to illustrate them; revise based on staff comments, and conduct a Planning Commission workshop on this module. Product: Module #3: Parking and Supplemental Regulations Meetings: Planning Commission TASK 6: ADMINISTRATIVE PROCEDURES A. Evaluate existing administrative provisions for all zoning decisions and identify opportunities for streamlining. Processes evaluated will include: Use Permits, Variances and Modifications, Site Plan Review (if requested); Design Review; Planned Development (PD) a site plan modifications, interpretations, zoning text and map amendments; General Plan amendments; appeals, and revocations of discretionary permits. Procedures for citizen participation in the development review process also will be evaluated. B. Prepare definitions, including appropriate illustrations, and rules for measuring building height, floor area ratios, and sign area and determining setback averaging and encroachments, as needed. Group like terms under headings to facilitate understanding of differences among terms (e.g. lot types, lot lines, residential housing types, historic preservation terms, and street types). Prepare a summary list of terms and cross- references for readers, similar to an index. c. Review proposed amendments to administrative provisions, definitions and rules of measurement with City staff and revise, based on City staff comments. Conduct Planning Commission workshop on this module. Products: Module #4: Zoning Administration Meetings: Planning Commission TASK 7: DRAFT ORDINANCE A. Review comments on draft "modules" and prepare the Public Review Draft of the Zoning Ordinance. Prepare an Administrative Draft for City staff review and revise based on a consolidated set of comments. A one-day work-session with City staff on the administrative draft will be scheduled to review outstanding issues. B. (Optional Task) Assist City staff in preparing a Zoning Ordinance "Road Show" and User's Guide, illustrated by appropriate graphics and flowchart(s). Include comments written in "plain English" and italicized, as appropriate, to explain basis for new controls or to compare controls with existing provisions. c. Preparation of Newsletter #3 - New Ordinance Concepts, announcing completion of the Draft Zoning Ordinance and the public review process (1-2 pages, Web ready). Products: Draft Zoning Ordinance User's Guide (Optional) Newsletter #3 Meeting: City sta.fJto finalize Draft Zoning Ordinance TASK 8: ZONING MAP A. Prepare a map showing new districts (base and overlay), using GIS, and City's land use GIS database of existing land use, General Plan land use designations, and the current zoning designations as a basis. B. Review draft map and issue areas (relating to use or density/intensity conformity) with City staff in a working session, working interactively using GIS if necessary. c. Prepare final map for public review in ArcGIS (which will become City property). Products: Draft Zoning Map Meeting: City staff to review Draft Zoning Map TASK 9: CEQA REVIEW A. The Zoning Ordinance will implement the General Plan, for which a comprehensive environmental assessment was carried out at the time the General Plan was adopted. As long as there is no change in land uses/mixes, densities/intensities, and heights that are included for selected areas in the General Plan, the Consultant believes that the preparation of an Initial Study as a basis for approval of a Negative Declaration should suffice to meet CEQA requirements. If there is a desire to revisit any land uses or development intensities included in the adopted General Plan, the Consultant will work with City planning staff and the City Attorney to determine the appropriate level of environmental review. Products: Environmental Initial Study and Negative Declaration TASK 10: PUBLIC REVIEW AND ADOPTION A. Assist City staff in preparing for the public review process, including summary materials on the Draft Zoning Ordinance for use in City staff reports to the Planning Commission and City Council, public workshops and hearings, and briefings for key interest groups. A "comment form" could be used to focus comments on specific sections of the text and allow comments to be consolidated and responses prepared efficiently. B. Assist City staff in establishing an approach to responding to comments received on the Public Review Draft. Distinctions might be made between comments that address: 1) General Plan policies that already have been established; 2) regulatory policies that would be considered by the Planning Commission and City Council; 3) regulatory provisions required to respond to State or Federal law; and 4) concerns that are beyond the scope of the Zoning Ordinance. c. Meet with City staff to review the response to comments received on the Public Review Draft. At this half-day meeting, we will work with City staff to decide on an approach to preparing an addendum to the Draft for consideration by the City Council and to discuss the need for any changes to the Zoning Map. D. Attend one Planning Commission workshop to facilitate review and consider changes to the draft, and one City Council meeting. Additional meeting attendance would be an additional service. E. Based on City Council action and final text changes provided by City staff, prepare the final Ordinance. The document will be produced in a Web-ready format (Adobe Portable Document Format [PDF]) (A fully interactive Ordinance is an optional task: See following section); _ ,..__.__.._..~__._~~"._._"~__.__._.~..~__M"_~'_~'~_~__ Products: Final Zoning Ordinance in PDF format Meetings: City staff meeting to review comments on Public Review Draft Planning Commission workshop (one) City Council (one) OPTIONAL TASKS TASK A: GENERAL PLAN AMENDMENTS The Zoning Ordinance Update could result in selective changes to the General Plan for portions of the Downtown Planning Sub-Area, in application of TOD designations to greater areas around South San Francisco BART station, in new designations around San Bruno BART station and, potentially, in the Lindenville Sub-Area, especially north of the canal. Any of these will require some adjustment to General Plan maps and, possibly, text. It is unlikely, however, that any of these changes would require new environmental review. The potential scope of this task is limited by the proposed budget. TASK B: SUPPLEMENTAL REGULATIONS FOR SUB-AREAS The base Scope of Work includes preparation of design standards (height, bulk, etc.) for all of the base districts. It is likely that delving into a greater level of design/development issues for specific sub-areas will require some additional effort, including development of standards and regulations, potentially different landscape, parking, and signage regulations, and testing these on specific sites and against existing conditions. The areas likely to require this additional emphasis are likely to include Downtown, EI Camino Real, east of 101, and Lindenville. Other areas could include part of the Avalon Sub-Area (Huntington Avenue area) close to the San Bruno BART station. These provisions could be incorporated as part of the base district regulations or might be supplemental overlay regulations applicable to several base districts. If so desired, these supplemental provisions could be collated into "handbooks". The budget for this option includes two community/neighborhood workshops and one additional Planning Commission meeting. The potential scope of this task is limited by the proposed budget. TASK C: INTERACTIVE COMPUTERIZED ZONING ORDINANCE This task would produce a fully interactive, fully searchable, digital medium integrating the zoning text and map. With this option, the City would receive the right to unlimited reproduction as well as a "maintenance module" to facilitate updating the web-based Zoning Ordinance as code amendments are adopted. The enhanced version of the web- based ordinance would include custom search and tab capabilities.