REPORT TO COUNCIL
SUBJECT
Title
Proposed Project:
Consider actions related to the El Camino Real Specific Plan (ECRSP):
A. Adopt a Resolution (Attachment 6) to:
• Certify the Environmental Impact Report (EIR); Make the findings required by the California Environmental Quality Act (CEQA); Adopt the Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program; Adopt the Water Supply Assessment; Adopt the ECRSP
• Repeal the Precise Plan for El Camino Real;
• Amend the General Plan and update the General Plan Map; and
• Adopt the ECRSP Community Benefits/Incentives Program (CBP).
B. Adopt a Resolution (Attachment 7) to:
• Amend the Fiscal Year 2022/23 Master Fee Schedule to add the ECRSP Maintenance Fee and ECRSP Transportation Impact Fee (TIF).
C. Introduce an Ordinance (Attachment 8) to:
• Amend Sunnyvale Municipal Code (SMC) Chapters/Sections: 19.12 (Definitions), 19.16.020 (Zoning Districts-Creation); 19.34.040(c) (Front yard- Average and reduction); 19.34.060(b)(2) (Vision Triangles); 19.44 (Sign Code), 19.46.100 (Shared Parking); 19.54 (Wireless Telecommunication Facilities); 19.56 (Solar Energy Systems); and 19.90.010 (Special Development Permits - Purpose).
• Add SMC Chapters: 19.36 (El Camino Real Specific Plan District) to Title 19 (Zoning) and 3.54 (ECRSP Transportation Impact Fee) to Title 3 (Revenue and Finance);
• Repeal SMC Chapters/Sections: 19.08 (Grant of Landscape Easements Along El Camino Real and Mathilda Avenue) and 19.26.140-170 (Precise Plan for El Camino Real) of Chapter 19.26 (Combining Districts) in Title 19 (Zoning); and
• Amend the Zoning Plan Districts Map and re-zone parcels currently within the new ECRSP district.
D. Introduce an Ordinance (Attachment 9) to: Re-Zone Certain Properties Located at 510, 530, 550, And 570 Fall River Terrace From C2/PD (Highway Business/Planned Development) To R-3/PD (Medium Density Residential/Planned Development), and find that the Action is Exempt from CEQA.
E. Introduce an Ordinance (Attachment 10) to: Re-Zone Certain Properties Located at 1075, 1079, 1080, 1083, 1084, 1087, and 1088 Ed Roth Terrace From C2/ECR (Highway Business/El Camino Real) To R-3/PD (Medium Density Residential/Planned Development), and Find that the Action is Exempt from CEQA.
Location: Existing Plan: Precise Plan for El Camino Real
File number: 2014-7432 (El Camino Real Specific Plan)
General Plan Designation:
Existing: Corridor Mixed Use; Commercial; High Density Residential
Proposed: El Camino Real Specific Plan; Medium Density Residential; High Density Residential
Zoning:
Existing: C2/ECR and R-3/ECR and R4/ECR, O/ECR and PF/ECR
Proposed ECRSP Zoning Districts: El Camino Real - Commercial (ECR-C); El Camino Real - Mixed Use (ECR-MU); El Camino Real - Office (ECR-O); El Camino Real - Public Facilities (ECR-PF); El Camino Real - Medium Density Residential (ECR-R3); and, El Camino Real - High Density Residential (ECR-R4).
Applicant: City of Sunnyvale
Environmental Review (SCH # 2017102082): Adopt a resolution to make findings required by CEQA, certify the EIR, and adopt a Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program.
Project Planner: Jeffrey Cucinotta, 408-730-7424, jcucinotta@sunnyvale.ca.gov
Report
SUMMARY OF COMMISSION ACTION
The Planning Commission considered this item on June 20, 2022. Nine members of the public spoke on the item. The speakers included three owners/developers of property within the ECRSP and six community members.
Speakers made several comments on the draft Plan, which are also detailed in the draft meeting minutes (Attachment 24), on the following subjects:
• Increased minimum bicycle parking ratios.
• Addition of a mid-block crossing between Hollenbeck Avenue and Mary Avenue.
• Enhanced on-street parking policy (removal of on-street parking sooner).
• Removal of on-street parking on connector streets within 50 feet of the intersection with El Camino Real.
• Support and opposition for proposed densities.
• Minimum landscaping and open space requirements.
• Minimum commercial requirements.
The Planning Commission voted 4-0 (two Commissioners were absent and one was recused due to proximity to the project) to recommend approval of Alternative 2: Recommend the actions in Alternative 1 (listed in the recommendation section of the report) with the following modifications:
1. Maintain the minimum open space requirement as presented in the draft plan.
2. Explore a mid-block crossing between Hollenbeck Avenue and Mary Avenue.
3. Remove on-street parking on connector streets within 50 feet of the El Camino Real intersection to improve visibility and pedestrian/bicycle safety.
4. Consider modification of minimum landscaping requirement.
5. Maximize tree planting to the fullest extent possible.
6. Correlate tree sizing to proposed building height and massing.
7. Revise SMC Section 19.36.120(f) to read as follows: "In accordance with Chapter 19.46. parking analysis must be provided with the planning application submittal and will be evaluated prior to issuance of a permit."
Staff Response to Planning Commission Suggested Modifications
1. Maintain the minimum open space requirement as presented in the draft plan.
Staff response: While the citywide minimum usable open space requirement for R-4 (High Density Residential) and R-5 (Very High Density Residential) zoning districts is 375 square feet per unit, this requirement has been reduced significantly in the Downtown Specific Plan (DSP) and Lawrence Station Area Plan (LSAP) to a minimum of 50 square feet per unit. Originally, the draft ECRSP (as released in March 2022) required 380 square feet per unit for all ECR-MU sites. However, staff received feedback from several members of the development community requesting this standard to be reduced, as this has been the trend in our higher density plan areas. In response to these comments and in recognition that these are mixed-use sites, staff has recommended a reduction of the citywide usable open space standard to 150-200 square feet per unit in the ECRSP. This change allows for increased density and commercial uses while still maintaining sufficient usable open space on a property. Some of the plaza areas associated with commercial activities can be counted toward the minimum open space standard. Therefore, staff is not recommending any further modification to this standard.
Note: the minimum park dedication standard within the ECRSP would still be the same as the citywide standard.
2. Explore mid-block crossing between Hollenbeck Avenue and Mary Avenue.
Staff response: This concept was suggested during the public comment period. Staff does not support a mid-block crossing at this location due to safety concerns. Additionally, the majority of El Camino Real between Hollenbeck Avenue and Mary Avenue has a proposed zoning district of ECR-C (commercial) and the only sites with proposed residential zoning (ECR-MU) are adjacent to the corner of El Camino Real and Hollenbeck/Pastoria Avenues, where signalized crossings currently exist. For these reasons, staff does not recommend any modification to the proposed mid-block crossings. This concept is discussed in more detail in Attachment 21, item T-5 on Page 6 of 8).
3. Remove on-street parking on connector streets within 50 feet of the El Camino Real intersection to improve visibility and pedestrian/bicycle safety.
Staff response: Similar to on-street parking on El Camino Real that is not along the auto row, on-street parking on connector streets would be removed as properties are redeveloped. In addition, operationally, the City traffic engineer is authorized to install "No Parking" zones extending twenty feet from curb returns at all intersections for visibility and safety per Sunnyvale Municipal Code Section 10.16.020 (d). As such, staff is not recommending any modifications to the ECRSP because this will occur over time.
4. Consider modification of minimum landscaped area requirement.
Staff response: Staff agrees that the minimum landscaped area requirement should have also been reduced when reductions were made to the usable open space standard. In the DSP and LSAP and in commercial zoning districts citywide, the minimum landscaped area requirement is 20% of the lot area, which is also appropriate for mixed-use sites within the ECRSP. Therefore, staff is recommending a modification to SMC Table 19.36.130 (ECRSP Landscape and Open Space Standards) to reduce the “other landscaped area” requirement for ECR-MU properties to 20% of the lot area, as shown below and as revised in Attachment 3, now a part of Alternative 1 (staff recommendation).
5. Tree planting should be maximized to the fullest extent possible.
Staff response: Staff agrees that tree planting within the ECRSP should be maximized. ECRSP Chapter 6 (Circulation and Streetscape, Attachment 3) contains requirements for tree planting when sites redevelop. These requirements are consistent with the citywide requirements and serve as an improvement over existing conditions. Therefore, staff is not recommending any changes to the proposed requirements, which include the following (from Pages 96 and 97 of the draft ECRSP):
• Street trees and landscaping shall be located in the Furniture Zone of all frontages and the Frontage Zone of residential frontages.
• Street trees should meet the following criteria:
a. Tree spacing (on-center): 35 feet
b. Tree size at planting: Minimum 24-inch box size
c. Tree planting environment: Tree grate
6. Appropriate tree sizing in relation to proposed height of buildings.
Staff response: Staff is currently working with a consultant to create citywide landscape design guidelines/standards. Therefore, staff is not recommending any modification to the ECRSP in this regard but will ensure that this matter is considered when reviewing the draft landscape guidelines, which the Planning Commission and City Council will review in draft form this year.
7. Revise SMC Section 19.36.120(f) to read as follows: "In accordance with Chapter 19.46. parking analysis must be provided with the planning application submittal and will be evaluated prior to issuance of a permit."
Staff response: The Sunnyvale Municipal Code Section 19.36.120(f) has been revised in Attachment 3 and is now a part of the Alternative 1 (staff recommendation) to correct this minor wording error.
See Attachment 24 for an excerpt of the draft June 20, 2022 Planning Commission minutes.
Public Comment letters received after the Planning Commission hearing are provided in Attachment 25 to the report.
PUBLIC CONTACT
Public contact was made by posting the Council agenda on the City's official-notice bulletin board outside City Hall, at the Sunnyvale Public Library, Senior Center, Community Center and in the Department of Public Safety Lobby. In addition, the agenda and report are available at the Sunnyvale Public Library, Office of the City Clerk, and on the City's website. Notice of the hearing was also published in the Sun newspaper and notices mailed to property owners and tenants within 2,000 feet of the ECRSP boundary (see the Vicinity and Noticing Map in Attachment 23).
Following the Planning Commission hearing, staff received an e-mail from a member of the public, included in Attachment 25.
ALTERNATIVES
Actions on related items associated with the El Camino Real Specific Plan (ECRSP):
1. Approve related actions associated with adoption of the ECRSP: Adopt 2 resolutions and introduce 3 ordinances (Attachments 6, 7, 8, 9 and 10 to this report)
A. Adopt a Resolution (Attachment 6) to
i. Certify the EIR;
ii. Make the findings required by CEQA;
iii. Adopt the Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program;
iv. Adopt the Water Supply Assessment;
v. Adopt the ECRSP, including text changes detailed in Attachment 22;
vi. Amend the General Plan text and General Plan Map; and
vii. Adopt the ECRSP Community Benefits Program (CBP).
B. Adopt a Resolution (Attachment 7) to: Amend the Fiscal Year 2022/23 Master Fee Schedule) to add the ECRSP Plan Fee and ECRSP Transportation Impact Fee (TIF).
C. Introduce an Ordinance (Attachment 8) to:
i. Amend SMC Chapters/Sections:
a. 19.12 (Definitions)
b. 19.16.020 (Zoning Districts-Creation),
c. 19.34.040(c) (Front yard- Average and reduction),
d. 19.34.060(b)(2) (Vision Triangles),
e. 19.44 (Sign Code)
f. 19.46.100 (Shared Parking),
g. 19.54 (Wireless Telecommunication Facilities),
h. 19.56 (Solar Energy Systems), and
i. 19.90.010 (Special Development Permits - Purpose).
ii. Add SMC Chapters
a. 19.36 (El Camino Real Specific Plan District) to Title 19 (Zoning) and
b. 3.54 (ECRSP Transportation Impact Fee) to Title 3 (Revenue and Finance);
iii. Repeal SMC Chapters/Sections:
a. 19.08 (Grant of Landscape Easements Along El Camino Real and Mathilda Avenue) and
b. 19.26.140-170 (Precise Plan for El Camino Real) of Chapter 19.26 (Combining Districts) in Title 19 (Zoning); and
iv. Amend the Zoning Plan Districts Map and re-zone parcels currently within the new ECRSP district.
D. Introduce an Ordinance (Attachment 9) to Re-Zone Certain Properties Located at 510, 530, 550, And 570 Fall River Terrace From C2/PD (Highway Business/Planned Development) To R-3/PD (Medium Density Residential/Planned Development), and find that the Action is Exempt from CEQA.
E. Introduce an Ordinance (Attachment 10) to Re-Zone Certain Properties Located at 1075, 1079, 1080, 1083, 1084, 1087, and 1088 Ed Roth Terrace From C2/ECR (Highway Business/El Camino Real) To R-3/PD (Medium Density Residential/Planned Development), and Find that the Action is Exempt from CEQA.
2. Alternative 1 with modifications:
1. Reduce the number of mixed-use sites (Option A in Attachment 19).
2. Reduce the highest density zoning from MU-54 to MU-48 (Option B in Attachment 19).
3. Other modifications identified by the City Council.
3. Take no action on the ECRSP and provide direction on desired changes.
STAFF RECOMMENDATION
Recommendation
Alternative 1: Approve related actions associated with adoption of the El Camino Real Specific Plan (ECRSP) which are to adopt 2 resolutions and introduce 3 ordinances (Attachments 6, 7, 8, 9 and 10 to this report).
The ECRSP responds to the need for more housing in Sunnyvale with increased residential development along the City’s primary commercial corridor and near bus service, fulfilling City priorities to increase transit use, reduce single-occupant vehicle trips, and lessen greenhouse gas emissions. With the increased residential development potential, there is still the ability to construct mixed-use development close to community-serving commercial/retail uses. Residential development would provide needed community benefits such as additional affordable housing units, increased ground floor commercial/retail area, and open space in exchange for higher densities. The promotion of the State Density Bonus in the Plan area’s density structure may also result in more affordable housing than is required by the City’s standard inclusionary affordable housing requirements.
Further, staff recommends that all of the Council actions be effective on the same date, 60 days after the second reading of the ordinances. While resolutions are typically effective immediately, development fees are not effective for 60 days. Ordinances are not effective until 30 days after the second reading of an ordinance (often a total of 44 days). Making all documents effective at the same time will reduce confusion about what is applicable should a preliminary or formal application be submitted before all of the policies and regulations take effect.
Staff
Prepared by: Jeffrey Cucinotta, Senior Planner
Reviewed by: Amber Blizinski, Principal Planner
Reviewed by: Shaunn Mendrin, Planning Officer
Reviewed by: Trudi Ryan, Director of Community Development
Reviewed by: Jennifer Ng, Assistant Director of Public Works
Reviewed by: Dennis Jaw, Assistant Director of Finance
Reviewed by: Teri Silva, Assistant City Manager
Approved by: Kent Steffens, City Manager
ATTACHMENTS
1. Report to Planning Commission [22-0370, June 20, 2022] (without attachments)
2. Relevant General Plan Goals and Policies
3. Link to Online Documents:
a) 2007 Precise Plan for El Camino Real
b) Specific Plan Project Website
i) Draft El Camino Real Specific Plan
ii) Draft EIR and Appendices
iii) Final EIR and Appendices
4. Summary of EIR Significant and Unavoidable Impacts
5. Summary of EIR Mitigation Measures
6. Draft Resolution to Certify EIR, Adopt Mitigation and Monitoring Reporting Program, Repeal PPECR, Adopt ECRSP, Amend General Plan, and Adopt Community Benefits/Incentives Program
7. Draft Resolution to Amend Master Fee Schedule
8. Draft Ordinance Amending Sunnyvale Municipal Code (Title 3 and Title 19) and Amending the Zoning Plan Districts Map and re-zone parcels within the new ECRSP district
9. Draft Ordinance Re-Zone Certain Properties on Fall River Terrace
10. Draft Ordinance Re-Zone Certain Properties on Ed Roth Terrace
11. ECRSP Area General Plan Land Use and Zoning Maps (Existing June 2022)
12. ECR Profile (January 2016)
13. Market Study
14. Affordable Housing and Anti-Displacement Strategy
15. Transportation Impact Analysis
16. ECRSP TIF Nexus Study
17. Native American Tribal Consultation Correspondence
18. Summary of Comments from City Commissions and City Council:
a) Various Commissions (Sustainability, Housing and Human Service, Bicycle and Pedestrian Advisory, Planning), April 2022
b) ECRPAC, May 2, 2022
c) City Council Study Session May 10, 2022
19. Land Use Alternatives
a) Option A Map (Reduction of Mixed-Use Sites)
b) Option B Map (Reduction of ECR-MU54 Sites)
20. Public Comment Letters on Draft: Plan, Ordinances and Community Benefit Program
21. Summary of Public Comments with Staff Response
22. Staff Recommended Changes to Draft ECRSP and Zoning Code
23. Noticing and Vicinity Map
Additional Attachments for Report to Council
24. Excerpt of Draft Minutes of the Planning Commission Meeting of June 20, 2022
25. Public Comment Letter Received after Planning Commission Hearing