REPORT TO PLANNING COMMISSION
SUBJECT
Title
Proposed Project: Related applications on a 1.0-acre site:
SPECIAL DEVELOPMENT PERMIT: to allow construction of six new two-story single-family homes; and,
VESTING TENTATIVE MAP: to create six single-family lots and one common lot.
Location: 640 Lakehaven Drive (APN: 110-16-040)
File #: PLNG-2023-0138
Zoning: R-0/PD (Low Density Residential/Planned Development)
Applicant / Owner: SDG Architects, INC. (applicant) / GSJ & 2LLC (owner)
Environmental Review: A Class 32 Categorical Exemption relieves this project from California Environmental Quality Act (CEQA) provisions.
Project Planner: Mary Jeyaprakash, (408) 730-7449, mjeyaprakash@sunnyvale.ca.gov
Report
REPORT IN BRIEF
General Plan: Low Density Residential
Existing Site Conditions: One manager unit, one utility building, and one fire damaged house
Surrounding Land Uses
North: One-story single-family residences across Lakehaven Drive
South: One-story single-family residences across U.S. Highway 101
East: One-story single-family residences
West: Two-story townhomes across bicycle/pedestrian bridge
Issues: Neighborhood Compatibility
Staff Recommendation: Approve the Special Development Permit and Vesting Tentative Map with the Recommended Findings in Attachment 3 and Recommended Conditions of Approval in Attachment 4.
BACKGROUND
Description of Proposed Project
The proposed project includes the redevelopment of a 1-acre site into six detached two-story single-family homes with a private driveway. The project also includes off-site improvements, including a new sidewalk, curb and gutter.
A Special Development Permit (SDP) is required for projects within the PD Combining District for site and architectural review. A Vesting Tentative Map (VTM) is required prior to a Final Map for the creation of six single-family lots and one common lot. The findings required in order to grant an SDP and VTM are discussed in Attachment 3.
See Attachment 1 for a map of the vicinity and mailing area for notices and Attachment 2 for the Data Table of the project.
Previous Actions on the Site
The project site originally had 11 rental units and one manager’s unit. The project site was rezoned from R-0 to R-0/PD in 2006 and approved to develop seven single-family-homes and a common lot. However, the development project was never built. There have been no Planning permits approved for the site since then. In 2019, a fire consumed the site, leaving only the manager’s unit, a utility building, and a fire damaged house. The site is currently unoccupied; however, a caretaker visits the site daily.
There are no active neighborhood preservation complaints for the project site.
EXISTING POLICY
General Plan Goals and Policies: Key goals and policies from the Land Use and Transportation, Housing, and Community Character Chapters of the General Plan, Council Policy Manual and Single-Family Home Design Techniques that pertain to the proposed project are provided in Attachment 3.
ENVIRONMENTAL REVIEW
CEQA:
The California Environmental Quality Act (CEQA) analyzes a project’s impact on the environment. A Class 32 Categorical Exemption relieves this project from CEQA provisions (see Attachment 5). Class 32 Categorical Exemptions include in-fill developments that are:
• Consistent with the General Plan and Zoning Ordinance;
• Within city limits on sites that are no more than five acres;
• Not on sites that include habitats for endangered, rare or threatened species;
• Not having a significant effect on traffic, noise, air quality or water quality; and
• On sites that are adequately served by utilities and public services.
General Plan:
Although not required by CEQA, staff has also evaluated the existing environment’s impact on the project (i.e. future residents of the development). Due to the project site’s proximity to Highway 101 to the south, air quality and noise impacts were evaluated per the City’s General Plan policies.
General Plan Policy EM-11.4 requires developments located within 1,000 feet of a major pollution source to incorporate best management practices to reduce air quality impacts or prepare a health risk assessment. An air quality analysis and health risk assessment were provided (see Attachment 7), which found that the health risk impacts on future residents of the development are below the Bay Area Air Quality Management District (BAAQMD) screening levels. Exposure of future residents to pollutants is further reduced with appropriate best management practices that have been incorporated in the Recommended Conditions of Approval (see Attachment 4), such as installation of air filters.
A noise study was prepared (see Attachment 8), which examined interior and exterior noise. General Plan Policy SN-8.1 limits interior noise to 45 dB. The noise study found that the noise levels inside the new homes will comply with that standard with incorporation of the recommended Conditions of Approval, such as sound-rated exterior walls and windows, and sound testing prior to occupancy (see Attachment 4).
The General Plan also notes that the normally acceptable noise limit for private rear yards should be no more than 65 dB. General Plan Policy SN-8.9 allows projects along major transportation corridors to exceed 65 dB if all feasible noise attenuation is incorporated. A noise study was prepared (see Attachment 8) and found that the rear yards of the two homes closest to Lakehaven Drive (Lots 1 and 2) would meet the 65 dB noise level. However, the four homes closest to Highway 101 (Lots 3 through 6) would have rear yard noise levels that range from 67 to 68 dB. The study found that the project already incorporates site design measures such as placing the least number of homes along Highway 101, orienting the rear yards perpendicular to it, and maintaining the existing sound wall. In addition, the General Plan notes that a 3 dB increase in noise is barely perceptible. Therefore, the perceived noise difference between 65 dB and 68 dB will not be noticeable. Staff finds that the exterior noise levels are acceptable and consistent with the existing noise experienced by the previous tenants of the site and existing neighborhood.
DISCUSSION
Present Site Conditions
The project site is located at the terminus of Lakehaven Drive, between South Lakehaven Terrace and Lakewood Drive. The site is adjacent to Highway 101 to the south and a bicycle/pedestrian walkway to the west, connecting Lakehaven Drive and East Ahwanee Avenue across Highway 101. The surrounding neighborhood has predominantly residential uses, including single-family homes to the north and east and multi-family homes to the west. The site is bounded by a 12-foot-tall masonry wall to the south, chain-link fence to the west and wooden fence to the east. The site currently has a manager unit and a utility building (that are temporarily used during daytime by a caretaker) and a fire damaged house.
Site Layout and Architecture
The proposed layout includes a central 20-foot-wide private street that stretches from Lakehaven Drive to the existing rear masonry wall. The private street will provide vehicular access from Lakehaven Drive and a 50-foot-long turnaround to the east. The proposed project consists of six detached single-family homes on individual lots ranging from 4,350 square feet to 5,105 square feet. There are five homes designed to the west and one home to the east of the private street. Each lot will contain a detached single-family home with an attached two-car garage, two-car driveway, three bedrooms, and a private yard.
The proposed architectural style is modern and incorporates design elements that reflect the surrounding mid-century modern neighborhood, such as simple geometric forms, horizontal design emphasis, flat roofs, and large windows. The homes are two-stories with four different floor plans. The roofs have been designed with a combination of flat and shed roof forms, echoing the roof pattern found in the neighborhood. Exterior materials include sand finish stucco, stone veneer, sidings, modern pipe railing, and glazed garage doors. Staff is supportive of the design as it is complementary to the architectural style of the immediate neighborhood while incorporating contemporary design elements. See Attachment 6 for architectural and site plans.
Development Standards
The project complies with several applicable development standards in the Sunnyvale Municipal Code, such as lot coverage, height, parking, landscaping, usable open space, and solar access. The applicant is seeking deviations from the front and side setback requirements. The Project Data Table in Attachment 2 summarizes the project’s compliance with the development standards.
Floor Area Ratio
Floor Area Ratios (FARs) exceeding 45% may be approved by the Planning Commission with a Special Development Permit. The proposed FARs range from 45% to 52%, while the overall proposed FAR is 49% for the single-family lots and 33% for the project site. The proposed FAR is also consistent with Council Policy Manual Policy 1.1.12, which helps guide the design of small lot single-family subdivisions and encourages an overall FAR of not more than 50%. Staff finds that the proposed FAR is common for similar projects and provides reasonable living area for future residents.
Lot Size and Lot Width
SMC 19.30.020 allows for consideration of reduced lot areas and widths through a Special Development Permit, provided the required density is met. The project site meets the permitted density of 6,000 square feet of lot area per dwelling unit, which allows for seven units on a 6,000-square foot lot. The lot area of the proposed single-family lots ranges from 4,350 square feet to 5,105 square feet and do not meet the minimum 6,000 square foot area. The proposed lot widths for interior lots (Lot 2, 3, 4, and 5) ranges from 56 feet two inches to 56 feet three inches, where 57 feet interior lot width are required. Reduced lot area and lot width can be considered as part of the Special Development Permit. Staff finds the proposed lot area and widths comparable to similar small-lot subdivisions.
Setback
Setbacks were evaluated on each lot, as taken from the new property lines. Each home complies with the required combined side and rear setbacks. The applicant seeks deviations from the following setback requirements:
• First floor average front setback (all lots) 17 foot 3 inches is proposed, where 20 feet minimum is required.
• Second floor front setback (Lots 1, 3, 5 and 6) ranges from 23 feet 3 inches to 24 feet 11 inches, where 25 feet minimum is required.
• Second floor side setback (Lot 1) 5 feet 1 inch, where 7 feet minimum is required.
Staff finds that the requested front setback deviations are reasonable, as all six lots have front setbacks that will face the private street and will not impact the existing neighborhood. Staff further finds the second-floor side setback deviation for Lot 1 to be reasonable as less than six square feet of the second floor extends into the required setback. Setbacks along the most impacted neighbors along the eastern property line are compliant.
Parking
The parking requirement is two covered plus two uncovered parking spaces per single-family lot. The project meets the parking requirements by providing a two-car garage (covered) and two-car driveway (uncovered) spaces for each home. The project also provides four unassigned on-site parking spaces, where two minimum are required.
Tree Preservation
A tree survey was provided for the project and staff visited the site with the City Arborist. Twenty-six trees are proposed for removal, of which three are considered “protected” per SMC Section 19.94. Staff is supportive of removal of the protected trees due to conflicts with the location of the proposed buildings and declining health of the trees. Protected-sized trees are required to be replaced per the City’s Tree Replacement Standards. The project proposes 26 new 24-inch box trees including two street trees, which exceeds the replacement standards. Conditions have been included for staff review of the Landscape Plan and replacement trees (see Attachment 4).
Fences and Walls
The existing 12-foot-tall masonry sound wall will be maintained along the south property line. A new six-foot-tall wooden fence will be installed along the west property line, bordering the existing single-family homes. New six-foot tall fences will also be provided along the east property line and between each home. The area between the back of the public sidewalk and the fence will be planted with street trees and shrubs.
Solid Waste and Recycling Access
The project includes single-family recycling and garbage service with individual carts. These carts will be stored within the enclosed side yards, away from the public view. They will be staged by the curb along the private street for trash collection. Refer to Attachment 6 for additional details.
Vesting Tentative Map
The Vesting Tentative Map includes subdivision of the existing lot into five private ownership lots and one common lot. A Homeowners Association (HOA) will be created to ensure on-going maintenance of the common areas such as surface parking, landscaping, private walkways, common useable areas, and private/public utilities.
Easements
The development includes several street and utility easements. Private street easements are provided to enable ingress/egress, emergency vehicle access, private storm drainage and private utility access. The project includes a five feet private utility easement along the right-of-way and a 31.1-foot street easement extending up to the street centerline of Lakehaven Drive and including the new sidewalk, curb, and gutter. A private easement and maintenance agreement will be created per Condition of Approval in Attachment 4, for common use and perpetual maintenance of certain improvements within these easements.
Neighborhood Compatibility
The applicant proposes to develop six single-family homes on the site. This type of redevelopment has been anticipated in the City’s General Plan and Zoning since the site was zoned to allow for low density residences. The adjacent uses include one-story single-family homes to the north, east, and south (across Highway 101), and two-story townhomes to the west (across bicycle/pedestrian bridge). The proposal will retain existing trees to the west that provides screening from the bicycle/pedestrian bridge. The site design will minimize privacy impacts on the adjacent single-family homes to the east, by placement of the common lot including the large open space and private street along the east property line. The applicant proposes obscured glass on the second-floor windows facing the adjacent single-family homes and designs balcony on the west, away from the adjoining homes. In addition, screening trees are also proposed along the east to improve privacy. The proposed home closer to Lakehaven Drive will include an entrance porch facing Lakehaven Drive to provide street presence and continuity with the other single-family homes along the street. Overall, staff finds the project to be well-designed and compatible with the scale and character of the surrounding neighborhood. The project was evaluated against the Single-Family Home Design Techniques and found to be in compliance with the intent of the techniques (See Recommended Findings in Attachment 3). Additionally, as conditioned the project will have minimal privacy impacts on the neighboring properties.
Fiscal Impact
The project is subject to payment of traffic and park in-lieu fees to the City and school impact fees to the School District as noted in the Conditions of Approval (Attachment 4). The project is not expected to have a negative fiscal impact to the City.
Public Contact
Neighborhood Outreach Meeting
The applicant held a neighborhood outreach meeting on October 3, 2024. Property owners and residents within 300 feet of the site were notified. The meeting was held virtually, and four neighbors attended the meeting. There were questions related to the good neighbor fence, sound wall, utility pole, construction timeframe, and parking. They were supportive of the project design including placement of open spaces and proposal of good neighbor fence along the adjacent single-family homes.
Planning Commission Study Session(s)
A study session was held with the Planning Commission on October 28, 2024. At the study session, the Planning Commissioners provided comments related to the site layout, floor plan, landscaping, and architecture of the project. The Commissioners supported the proposed modern design with four different plan types, each having unique architectural elements. They recommended living spaces to have direct access into the back yard to improve usability of open spaces. The applicant modified the floor plans such that all family rooms and dining rooms will have access to the rear yard. In addition, all primary bedrooms on the second floor will have access to the balconies facing west, away from the adjoining neighbors. It was noted during the discussion that the proposed landscape uses natural vegetation, and it is consistent with the architectural style.
Notice of Planning Commission Public Hearing
Public contact was made by posting the Planning Commission meeting agenda on the City's official notice bulletin board at City Hall. In addition, the agenda and this report are available at the NOVA Workforce Services reception desk located on the first floor of City Hall at 456 W. Olive Avenue (during normal business hours), and on the City's website.
78 notices were sent to surrounding property owners and residents adjacent to the subject site in addition to standard noticing practices, including advertisement in the Sunnyvale Sun Newspaper and on-site posting. At the time of writing this report, staff received no correspondence from the neighbors.
ALTERNATIVES
1. Approve the Special Development Permit and Vesting Tentative Map with the recommended findings in Attachment 3 and conditions of approval in Attachment 4.
2. Approve the Special Development Permit and Vesting Tentative Map with the recommended findings in Attachment 3 and with modified conditions.
3. Do not make the required findings and direct staff where changes should be made.
4. Deny the project.
STAFF RECOMMENDATION
Recommendation
Alternative 1: Approve the Special Development Permit and Vesting Tentative Map with the recommended findings in Attachment 3 and conditions of approval in Attachment 4
The project provides homeownership opportunities on underutilized land within the City. The project is consistent with the R-0/PD zoning district by providing six residential units within two-story buildings, where seven units maximum are allowed. The project will preserve most of the protected trees on-site. The proposed project is consistent with the neighborhood character, and it is comparable to other small-lot subdivisions in the City. Staff finds that the overall project meets the objectives of the General Plan, Zoning District, and relevant objective design guidelines.
Staff
Prepared by: Mary Jeyaprakash, Senior Planner
Reviewed by: Noren Caliva-Lepe, Principal Planner
Approved by: Shaunn Mendrin, Planning Officer
ATTACHMENTS
1. Noticing and Vicinity Map
2. Project Data Table
3. Recommended Findings
4. Recommended Conditions of Approval
5. Class 32 CEQA Checklist
6. Site and Architectural Plans
7. Air Quality Study dated January 19, 2024
8. Noise Study dated September 26, 2024