REPORT TO COUNCIL
SUBJECT
Title
2014 4th Quarterly Consideration of GENERAL PLAN AMENDMENT INITIATION REQUEST
File #: 2014-7958
Location: 690 E. Arques Avenue (APN: 201-31-005)
Proposed Project: Request to study a General Plan Land Use Designation change from Industrial to Schools, Residential High Density, or other designation that would accommodate a middle and high school. This Study may include other properties in the vicinity and evaluate other General Plan designations.
Applicant / Owner: Summit Public Schools / 690 East Arques LLC.
Environmental Review: Environmental Review is not required to initiate a General Plan study. The individual studies and potential future projects will be subject to the provisions of the California Environmental Quality Act (CEQA).
Report
BACKGROUND
The Sunnyvale General Plan <http://ecityhall.sunnyvale.ca.gov/cd/GeneralPlan.pdf>is a fundamental policy document used for guiding the City through change and growth. It addresses the physical development of the City and, when used together with a larger body of City Council policies, provides direction for decision-making on City services and resources. It is both a long-range and a strategic planning document, containing long-term goals and policies for the next 10-20 years and strategic actions for the next 5-10 years. As community needs and values change, the City periodically reviews and updates the General Plan to remain a realistic document to achieve the community's vision.
The process for reviewing changes to the General Plan land use designations requested by property owners or project applicants is through a General Plan Amendment (GPA) study. The first step is to request that the City Council initiate a study through a General Plan Amendment Initiation (GPI). If the Council initiates the request, a formal application for a GPA may be filed.
In late 2013, the City Council adopted a revised process for considering GPIs which included a limit of four hearings on GPIs each year. Previously GPIs could be heard throughout the year as many times as there were requests and each GPI was generally considered separately and only by the City Council. With the revised process, each cycle includes noticed hearings and the GPI is considered before both the Planning Commission and City Council.
In this cycle the City has received only one request, which is from Summit Public Schools for property located at 690 E. Arques Ave. In 2005, the City Council supported a request by KB Homes South Bay to study the land use for this same site for either Industrial to Residential (ITR) or Residential High Density (RHD). Following the City Council's approval of a GPI to study residential use, a preliminary review application was submitted for review in 2006. However because of the economic downturn, KB Homes did not proceed with formal applications.
EXISTING POLICY
The GPI under consideration is a request to change from an Industrial land use designation to Schools, Residential High Density, or other designation that is compatible with nearby uses and would allow elementary and high schools. The General Plan contains a number of goals and policies that are applicable to this request.
Land Use & Transportation Element
GOAL LT-4 Quality Neighborhoods and Districts - Preserve and enhance the quality character of Sunnyvale's industrial, commercial, and residential neighborhoods by promoting land use patterns and related transportation opportunities that are supportive of the neighborhood concept.
· Policy LT-4.1 Protect the integrity of the City's neighborhoods; whether residential, industrial or commercial.
· Policy LT-4.2 Require new development to be compatible with the neighborhood, adjacent land uses, and the transportation system.
· Policy LT-4.3 Support a full spectrum of conveniently located commercial, public, and quasi-public uses that add to the positive image of the City.
· Policy LT-4.14 Support the provision of a full spectrum of public and quasi-public services (e.g., parks, day care, group living, recreation centers, religious institutions) that are appropriately located in residential, commercial and industrial neighborhoods and ensure that they have beneficial effects on the surrounding area.
GOAL LT-7 Balanced Economic Base - Endeavor to maintain a balanced economic base that can resist downturns of any one economic sector.
• Policy LT-7.3 Promote commercial uses that respond to the current and future retail service needs of the community.
Community Character Element
GOAL CC-3 Well Designed Sites and Buildings - Ensure that buildings and related site improvements for private development are well designed and compatible with surrounding properties and districts.
• Policy CC-3.2 Ensure site design is compatible with the natural and surrounding built environment.
Safety and Noise Element
GOAL SN-1 Acceptable Levels Of Risk For Natural And Human-Caused Hazards - Ensure that natural and human-caused hazards are recognized and considered in decisions affecting the community and that land uses reflect acceptable levels of risk based on identified hazards and occupancy.
• Policy SN -1.1 Evaluate and consider existing and potential hazards in developing land use policies. Make land use decisions based on an awareness of the hazards and potential hazards for the specific parcel of land.
ENVIRONMENTAL REVIEW
Environmental Review is not required to initiate a General Plan study. The individual studies and potential future projects will be subject to the provisions of the CEQA depending on the scope of those projects.
DISCUSSION
GPI Request:
Summit Public Schools, a charter school program has requested a GPI to study a General Plan designation change from Industrial to Schools or other designation that would accommodate their combined middle-high school (grades 6 through 12). Elementary and high schools are not allowed in Industrial zoning districts areas because of potential health and safety issues associated with industrial and manufacturing activities. The location of the site is contained in Attachment 1. A copy of the applicant's request is contained in Attachment 2.
Project Site and Surrounding Uses
The project site consists of a 3.18 acre parcel located on the south side of E. Arques Avenue between N. Fair Oaks Avenue and N. Wolfe Road. The site is fully developed and is occupied with a vacant two-story office building. A site plan is contained in Attachment 3.
The site is in a transitional area. The existing land uses, General Plan Land Use Designations and Zoning Districts for the subject and surrounding properties are described in the table below and shown on Attachment 4.
|
Existing Land Use |
Existing GP Land Use Designation |
Existing Zoning |
Project Site |
Office (Vacant) |
Industrial - Places of Assembly |
MS-POA |
West |
Attached Residential |
Residential High Density |
R-4 |
North |
Townhouses |
Industrial to Residential |
MS-ITR (Medium Density) |
East (adjacent) |
Water Channel/ PG&E Transmission lines |
Industrial - Places of Assembly |
MS-POA |
East |
Places of Assembly |
Industrial - Places of Assembly |
MS-POA |
South (across Central Expressway) |
Single Family Detached Residential |
Low Density Residential |
R-0 |
Zoning Designation Legend: R-0 Low Density Residential R-4 High Density Residential MS/ITR/R-3 Industrial and Service -Industrial To (Medium Density) Residential MS-POA Industrial and Service - Places of Assembly |
Proposed School Use
The proposal to allow the establishment of a combined middle and high school in the existing 65,520 square foot two-story office building located at 690 E. Arques Ave. The applicant states that they expect to initially provide educational services to about 325 students in the 2015-2016 school year. They project their enrollment to increase to a maximum of 725 students by the 2019-2020 school year, with a commensurate increase in staff from 20 to 45.
There are two basic questions associated with this request. The first question is, if this site were appropriate for a middle-high school, what is the appropriate General Plan Land Use Designation. The second question is whether the study should focus on this site only or an expanded area.
In order to allow a middle-high school on the project site, the City Council would first need to change the General Plan to a designation that would allow an appropriate zoning district allowing this type of education use. To allow middle and high schools, the City could examine a number of Land Use Designations.
Schools: Schools would allow a Zoning Designation of PF (Public Facility). The Public Facilities zoning district is reserved for governmental, public utility and educational buildings and facilities, and other uses compatible with the public character of the district. The PF Zoning District allows community serving places of assembly such as churches, educational uses and child care centers with approval of a Use Permit.
Residential: Any Residential General Plan land use designation and related zoning district would allow educational facilities with the approval of a Use Permit. The site is an unlikely candidate for low density or low-medium density residential uses due to its siting adjacent to Central Expressway. Studying Residential Medium Density (RMED 14-27 dwelling units per acre) and Residential High Density (RHI 27-45 dwelling units per acre) General Plan designations could be considered.
The geographic scope of the GPA is also a part of this GPI request. The second question is whether the GPA should focus on just the project site or incorporate a larger area.
In locations where a general plan amendment could set a precedent, could create incompatible land uses adjacent to each other, or could change the character of an area, a larger general plan amendment study area is more appropriate. In locations where a general plan amendment is not likely to result in (or encourage) a large scale change in land uses, a more focused study is suitable.
The site of the proposed GPA is located between two established and economically viable land use areas. The first area is the high density residential area to the west and north. The second area is the places of assembly district to the east. Central Expressway creates a logical transition zone or barrier to other land use areas to the south. For this reason, land use compatibility and connectivity to the south is not an important factor is this case.
Because the surrounding land uses to the north, west and east were already evaluated during earlier general plan studies for Industrial to Residential and Places of Assembly, and this site could be compatible with either of these surrounding land use designations, a focused study would be appropriate in this circumstance. If the City Council agrees to initiate a General Plan Amendment study, the General Plan Amendment, Zone Change and Use Permit analysis would need to address, at a minimum, the following topics:
· Traffic impacts, including vehicular, pedestrian and bicycle safety;
· Potential impacts on the sewer system;
· On-site circulation, especially related to the drop-off/pick of students (as well as emergency vehicle access);
· Building and Fire Code compliance for an education use; and
· On-site amenities for school use related to student recreation, dining, etc.
BALANCED GROWTH PROFILE
There are no project-related impacts when initiating a GPA Study. Impacts of each amendment would be evaluated as part of the study. For information purposes, the Balanced Growth Profile (from October 2014) is provided as Attachment 5.
FISCAL IMPACT
No fiscal impacts are associated with initiating a General Plan study. The costs for technical and environmental studies and preparation of the CEQA document will be covered by the applicant.
PUBLIC CONTACT
Public contact was made through the posting of the agenda on the City's official-notice bulletin board outside of City Hall, at the Sunnyvale Senior Center, Community Center and Department of Public Safety. The agenda and report are also available in the Reference Section of the City Library, in the Office of the City Clerk and on the City's website. Notices were sent to all property owners and businesses within the suggested expanded study areas as well as to property owners within 500 feet of the recommended study area boundaries; 596 notices were mailed.
The Planning Commission considered this request at a public hearing on November 24, 2014. During the public hearing, a representative of Summit Public Schools spoke; no other members of the public addressed the Commission on the request. A commissioner asked if the flood control channel, adjacent to the east would be used for future public access; staff indicated future public use of the channel could be included in a General Plan Amendment study. Following the public hearing, the Planning Commission voted 6-1 to recommend that the City Council authorize the initiation of a focused General Plan Study for 690 E. Arques Ave., evaluating both Schools and Residential High Density General Plan designations (Alternative 1). The dissenting vote expressed concerns with a user-specific general plan study that is limited in size and concerns with the long term land use needs of the community. Draft minutes of the Planning Commission hearing are in Attachment 6.
ALTERNATIVES
1. Initiate a focused General Plan Study for 690 E. Arques Ave., evaluating both Schools and Residential High Density General Plan designations.
2. Initiate a General Plan Study for the site with modified direction to geographic scope or land use designations.
3. Do not initiate General Plan Study for the site.
PLANNING COMMISSION/STAFF RECOMMENDATION
Recommendation
Alternative 1: Initiate a focused General Plan Study for 690 E. Arques Ave., evaluating both Schools (SCH) and Residential High Density (RHI) General Plan designations for the site.
Staff recommends that the City Council authorize a focused General Plan Amendment Study to explore the Schools (SCH) and Residential High Density (RHI) designations. The Residential High Density designation is considered to be a more appropriate land use transition to the Place of Assembly area to east. If the City Council ultimately approves a Schools or Residential High Density designation it would be an opportunity to rezone the site to either the Public Facility (PF) or R-4 zoning district, as appropriate.
Staff
Prepared by: David Hogan, Contract Planner
Reviewed by: Trudi Ryan, Planning Officer
Reviewed by: Hanson Hom, Director, Community Development Department
Reviewed by: Robert A. Walker, Assistant City Manager
Approved by: Deanna J. Santana, City Manager
ATTACHMENTS
1. General Plan Vicinity Map
2. Applicant's Request Letter
3. Site Plan
4. General Plan Land Use Map
5. Balanced Growth Profile, October 2014
6. Draft Planning Commission Minutes of November 24, 2014