January 27, 2004

SUBJECT: 2003-0933 – Rockwell Homes: Request to Initiate a General Plan Amendment Study to Change the Land Use Designation for 612 and 616 East Ahwanee Avenue from Low Medium Density Residential to Medium Density Residential (APN: 205-02-007, 205-02-008)

REPORT IN BRIEF

The City received a letter from Rockwell Homes (See Attachment A), requesting consideration of a General Plan Amendment Study (GPA) to allow for a Land Use designation change from Low-Medium Density Residential (7-14 dwelling units per acre) to Medium Density Residential (15-27 dwelling units per acre) for two lots that combine for a total .83 acre at 612 and 616 Ahwanee Avenue.

The subject site is Zoned R-2/PD (Low-Medium Density Residential) and is currently occupied by two single-family homes. Rockwell Homes contemplates redeveloping the site with 18 townhouses for a total project density of 20 units per acre.  The proposed conversion of the property would require a Rezone from R-2/PD (Low-Medium Density Residential/Planned Development) to R-3/PD (Medium Density Residential/Planned Development).

Staff recommends that City Council initiate the General Plan Amendment Study from Low Medium Density Residential to Medium Density Residential. 

BACKGROUND

The applicant is requesting a GPA study for two parcels located at the southeast corner of East Awahnee Avenue and North Fair Oaks Avenue. The current General Plan designation is for Low-Medium Density Residential and the site is Zoned R-2/PD (See Attachments B & C including General Plan Land Use Map and Zoning Map).  This sub-category of residential uses in the General Plan allows for 7-14 dwelling units per acre.  Townhouses, duplexes, condominiums and garden apartments, and in some cases single-family homes, are found in this Zoning District.  Currently, single-family homes are located on the two sites. The proposed Medium Density Residential (R-3) land use allows up to 27 dwelling units per acre.  Condominium, townhouses, and apartments are typically found in the R-3 Zoning District, the only Zoning District compatible with the Medium Density General Plan designation.  R-3 Zoning permits up to 24 dwelling units per acre and 27 units/acre are permitted with the density bonus allowed with the provision of Below Market Rate units.

The site is surrounded by Residentially Zoned properties.  North and East of the site is a townhouse development located within the R-2/PD Zoning District.  South of the site are apartments located within the R-4/PD (High Density Residential Zoning District).  West of the site, across Fair Oaks Avenue, is zoned for Residential Mobile Homes.

In order to develop the site into medium density residential uses, a General Plan Amendment, Rezoning and Special Development Permit would be required. 

Environmental Status

This action is not a project under the California Environmental Quality Act (CEQA) since the initiation of a General Plan Amendment study has no possibility of creating significant environmental impacts (See CEQA Guidelines Article 5, Section 15061(b)(3)).  If a General Plan Amendment Study is initiated, environmental review will be conducted at that time. 

EXISTING POLICY

Sunnyvale Municipal Code Section 19.92.020 authorizes only the City Council to initiate proceedings for the adoption of an amendment to the General Plan.  City Code requires the City Council to first review a request to initiate a General Plan Amendment in order to determine if the request warrants further study.  The approval of this initiation would allow a formal application to be submitted to further assess the merits of the proposed General Plan Amendment Study; approval of the initiation does not commit the City Council to approve a General Plan Amendment, nor any specific project proposal. Submittal of a General Plan Amendment application requires payment of a fee of $4,000.00.

The Following Goals, Policies and Action Statements of the Land Use and Transportation Elements and the Housing and Community Revitalization Sub-Element of the General Plan address issue that relate to the proposes General Plan Amendment Study:

Land Use and Transportation Element:

Goal C.2 Ensure ownership and rental housing options in terms of style, size and density that are appropriate and contribute positively to the surrounding area.

Policy C.2.1 Provide land use categories for and maintenance of a variety of residential densities to offer existing and future residents of all income levels, age groups and special needs sufficient opportunities and choices for locating in the community.

Policy C.2.2 Encourage the development of ownership housing to maintain a majority of housing in the city for ownership choice.

Policy C.2.4 Determine appropriate density for housing based on site planning opportunities and proximity to services.

Action Statement C.2.4.1 Locate higher density housing with easy access to transportation corridors, rail transit stations, bus corridor stops, commercial services, and jobs.

Action Statement C1.1.3 Require appropriate buffers, edges and           transition areas between dissimilar neighborhoods and land uses.

Action Statement N.1.1.1 Limit the intrusion of incompatible uses and inappropriate development into city neighborhoods.

Policy N.1.2 Require new development to be compatible with the neighborhood, adjacent land uses, and the transportation system.

Action Statement N.1.3.1 Review development proposals for compatibility within neighborhoods.

Action Statement N.1.4.2 Site higher density residential development din area to provide transitions between dissimilar neighborhoods and where impacts on adjacent land uses and the transportation system are minimal.

Community Design Sub-Element:

Policy A.2 Ensure that new development is compatible with the character of special districts and residential neighborhoods.

Housing and Community Revitalization Sub-Element:

Goal A Foster the expansion of housing supply to provide greater opportunities for current and future residents within limits imposed by environmental, social fiscal and land use constraints.

Action Statement A.1.d Study increasing the density of residential areas near transit stops and along major transportation corridors in conjunction with regional transportation plans.

Policy A.2 All new residential developments should build at least 75 percent of permitted zoning density.

DISCUSSION

Rockwell Homes is requesting that the City initiate a General Plan Amendment Study to consider changing the existing Land Use designation from Residential Low-Medium Density (12 dwelling units per acre) to Residential Medium Density (24 dwelling units per acre). Details of future construction would be examined through the standard development review process.

The preliminary concept presented by the applicant of this General Plan Initiation study calls for the development of 18 townhouses.  A General Plan Amendment study should not be dependent on a particular development proposal; however, a proposal may provide some indication of how a site could develop.  A conceptual site plan for this proposal is included in Attachment B.  The applicant cites the following reasons for why the proposal would benefit the community:

• The project is located in close proximity to existing public transportation. 
• The project would provide the required 12.5% of the units for below market rate housing.  
• The increased density of the site would serve as a transition between a higher density property to the south and lower density to the north.
• The project would be located add character and visual interest to one of the primary gateways into the City. 

The Residential Medium Density Land Use designation would accommodate the R-3 Zoning District.  The R-3 Zoning District allows up to a 24 units per acre density per standard Zoning and up to 27 units with a density bonus.  The R-3 Zoning District allows a minimum project lot size of 8,000 square feet and a minimum lot area of one unit per 1,800 square feet. 

Due to the scope of the project and characteristics of the site, noise and traffic impacts will need to be evaluated.  A formal application will consider all possible environmental impacts that may be affected by the new development.  Although only a conceptual plan has been provided to staff, the Traffic Division has reviewed the plan and notes some needed revisions to the parking and driveway access.

If the City Council decides to initiate the requested General Plan Amendment Study, consistency with the General Plan Elements such as the Housing and Community Revitalization and Land Use and Transportation will be evaluated. The Noise Sub-Element would also be examined.  At a minimum, the study will examine the following:

• Consider the appropriateness of additional residential uses in an area exposed to a freeway and major arterial.
• Examine the appropriateness of higher density residential uses adjacent to lower density uses. 
• Consider the advantages of increased residential opportunities.
• Evaluate noise and traffic impacts to the proposed development.  

Community Development Strategy

The project site is located in the residential area known as the San Juan neighborhood. This area is considered one of three Multi-Family Neighborhood Action Areas described in the Community Development Strategy presented to the City Council last year.   The San Juan Action Area encompasses properties that were developed in the late 1950s with a mix of styles and types, ranging from 4-plexes to 12-plexes.  There are also many duplex units and two large complexes of single-story studio style apartments. A total of 61 percent of the housing stock was considered to be in need of substantial housing rehabilitation. A strategy for this area is focused on multi-family rehabilitation and reconstruction.   

The Community Development Strategy for the San Juan area includes the following objectives:

• Acquisition and Rehabilitation Projects, including assembly of four-plexes into single ownership so as to facilitate on-site management.
• Multi-Family Housing Rehabilitation, providing incentives and assistance for current owners of apartment projects.
• Neighborhood Improvements, particularly street trees
• Rental Housing Inspection.
• Review of Zoning and Subdivision Ordinances, to ensure that duplexes can be subdivided and sold separately.
• Homebuyer Assistance, to help renters purchase duplex units as they become available. 

The Community Development Strategy notes that Sunnyvale has a serious shortage of housing units relative to jobs in the City, part of the widespread shortage of housing throughout the Bay Area.  Along with reinvestment and reconstruction to the City’s current housing supply, the creation of more affordable multi-family units, where appropriate, could be pursued. It can also be noted that new higher density housing is best located near adequate infrastructure and services. This may be accommodated by the site’s proximity to transit and to shops, and other services.

The site is situated between properties of lower density to the north and higher density to the south.  The proposed shift to medium density could provide a transition between the two separate concentrations of housing.

FISCAL IMPACT

There is no fiscal impact to the City to initiate a General Plan Amendment study.  If the Council initiates the study, a formal application with appropriate fees would need to be submitted. These fees off-set the costs of generating the study.

PUBLIC CONTACT

Notification of the City Council meeting for this item is part of the standard agenda publication. A copy of the report has been provided to the applicant.

ALTERNATIVES

1. Authorize the initiation of the General Plan Amendment study for the subject site from Low-Medium Density Residential to Medium Density Residential.

2. Initiate a General Plan Amendment study for a range of densities.

3. Do not authorize the initiation of further study on the subject site.

RECOMMENDATION

Alternative 1.

Prepared by

Ryan M. Kuchenig                                 
Assistant Planner

Reviewed by:

Fred Bell
Principal Planner

Reviewed by:

Trudi Ryan
Planning Officer

Reviewed by:

Robert Paternoster
Director, Community Development

Approved by:

Amy Chan
Acting City Manager

Attachments

A. Letter of Request from the applicant (pdf format)
B. Conceptual Plan for subject site (pdf format)
C. General Plan Land Use Map (pdf format)
D. Zoning Map (pdf format)