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Item 5 - Staff Report.16100 Greenridge Terrace PREPARED BY: JOCELYN SHOOPMAN and SEAN MULLIN, AICP Associate Planner Associate Planner Reviewed by: Planning Manager and Community Development Director 110 E. Main Street Los Gatos, CA 95030 ● 408-354-6874 www.losgatosca.gov TOWN OF LOS GATOS PLANNING COMMISSION REPORT MEETING DATE: 03/13/2019 ITEM NO: 5 DATE: MARCH 8, 2019 TO: PLANNING COMMISSION FROM: JOEL PAULSON, COMMUNITY DEVELOPMENT DIRECTOR SUBJECT: PLANNED DEVELOPMENT APPLICATION PD-16-002 AND ENVIRONMENTAL IMPACT REPORT EIR-17-001. PROJECT LOCATION: 16100 GREENRIDGE TERRACE. PROPERTY OWNER: EMERALD LAKE INVESTMENTS LLC. APPLICANT: KOHLSAAT AND ASSOCIATES, INC. REQUESTING APPROVAL TO REZONE A PROPERTY ZONED HR-2½ TO HR-2½:PD, TO SUBDIVIDE ONE LOT INTO EIGHT LOTS, AND REMOVAL OF LARGE PROTECTED TREES ON PROPERTY ZONED HR-2½. APN 527-12-002. RECOMMENDATION: Forward a recommendation to Town Council to certify the Final Environmental Impact Report and for approval of the Planned Development application, subject to the recommended performance standards. PROJECT DATA: General Plan Designation: Hillside Residential Zoning Designation: Hillside Residential, HR-2½ Applicable Plans & Standards: General Plan; Hillside Development Standards and Guidelines; Hillside Specific Plan Parcel Size: 36 acres Surrounding Area: Existing Land Use General Plan Zoning North Single-Family Residential Hillside Residential HR-1 East Single-Family Residential Agriculture RC South Single-Family Residential Hillside Residential HR-2½:PD West Single-Family Residential Hillside Residential HR-2½:PD PAGE 2 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM CEQA: An Environmental Impact Report and Mitigation Monitoring and Reporting Program have been prepared for the project. FINDINGS:  As required by CEQA for certifying the Environmental Impact Report.  That the Planned Development to rezone the property is consistent with the General Plan.  That the project is consistent with the Hillside Development Standards and Guidelines.  That the project is in compliance with the Hillside Specific Plan.  That the project is consistent with the Town’s Housing Element and addresses the Town’s housing needs as identified in the Housing Element. ACTION:  Forward a recommendation regarding Environmental Impact Report EIR-17-001 to the Town Council.  Forward a recommendation regarding Planned Development application PD-16-002 to the Town Council. BACKGROUND: The subject 36-acre property is currently vacant with an existing graded road and a San Jose Water Company storage tank located on the southern portion of the property. The subject site takes access from Santella Drive and Greenridge Terrace (Exhibit 3). The CDAC reviewed preliminary proposals from a previous applicant on December 9, 2015 and from the current applicant on August 10, 2016. Summary minutes of the CDAC meetings are attached (Exhibit 6 and Exhibit 7). A Draft Environmental Impact Report (EIR) was prepared and circulated for a 45-day public review period from September 14, 2018 through October 29, 2018 (Exhibit 1). The Final EIR (Exhibit 2), which includes the Response to Comments, was previously provided on February 13, 2019. Future required approvals would include a Subdivision application (including removal of large protected trees, site improvements for a private road, and recordation of easements) and Architecture and Site applications for each new single-family home. PAGE 3 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM PROJECT DESCRIPTION: A. Project Summary As noted in the letter of justification (Exhibit 8), the applicant is proposing a Planned Development (PD) to rezone the subject site from HR-2½ to HR-2½:PD, to allow the future subdivision into eight lots, removal of large protected trees, site improvements for a private road, and construction of eight new single-family homes. The proposed PD would allow the site to be subdivided into eight lots for single-family residential uses. The project also includes installation of a trail and dedication of a trail easement, as required by the Hillside Specific Plan. The proposed trail would connect to an existing trail located within the Highlands of Los Gatos on Santella Drive, with the proposed extension terminating at Francis Oaks Way and the eastern property line of Lot 1 (Exhibit 14, Exhibit B, Sheet 4). The subject site is approximately 36 acres and the size of the proposed single-family lots would range in size from 3.36 acres and 7.77 acres, with a total of 4.5 acres preserved through an open space easement. To minimize new disturbances to the site, the existing graded road is proposed to be used to provide circulation for the project, in addition the existing retaining walls adjacent to the road are proposed to remain and/or be replaced in-kind where replacement is necessary. The existing road extension from Santella Drive is proposed to be used to provide access to lots 2 through 6. Lots 7 and 8 are proposed to be accessed by a shared driveway that would follow the existing graded road, while lot 1 is proposed to be accessed from Greenridge Terrace. The proposed home and driveway locations provided in the development plans are conceptual, and individual building and site plans would be submitted and evaluated as part of future Architecture and Site applications for each lot. The conceptual proposed development plans for the PD application are included in Exhibit B of Exhibit 14. B. Planned Development Application The PD application is requesting to rezone the property from HR-2½ to HR-2½:PD. The Hillside Development Standards and Guidelines (HDS&G), page 56, state that: The purpose of the PD overlay zone, as it relates to hillside areas, is to encourage the appropriate location of residential units in the least restrictive development areas of the site. The intent is to significantly reduce the amount of grading, roads, and other alterations to the existing environment, to minimize the visual impact of the development, and to retain the maximum amount of continuous open space in its natural state. PAGE 4 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM PROJECT DESCRIPTION (continued): Town Code states that the purpose of a PD is to provide for alternative uses and developments that are more consistent with site characteristics, to create an optimum quantity and use of open space, and to encourage good design. The Planning Commission shall make a recommendation regarding the merits of the PD application to the Town Council, who will be the final deciding body. If adopted by the Town Council, the proposed PD Ordinance (Exhibit 14) would allow the Development Review Committee to approve future Subdivision and Architecture and Site applications for new residences less than 5,000 square feet in size. C. Location and Surrounding Neighborhood The subject property is approximately 36 acres of vacant land which takes access from Santella Drive and Greenridge Terrace (Exhibit 3). The site is surrounded by hillside residential or agriculture properties on all sides. The property generally sits south of Blossom Hill Road and north of Shannon Road. Lots 2 through 6 are proposed to be accessed by a private road extension from Santella Drive. Lots 7 and 8 are proposed to be accessed by a shared driveway that would follow the existing graded road, while lot 1 is proposed to be accessed from Greenridge Terrace. D. Zoning Compliance The proposed base zoning designation of HR-2½ permits single-family homes and is consistent with the zoning of the adjacent hillside properties. DISCUSSION: A. Conceptual Development Advisory Committee The CDAC reviewed a preliminary proposal from a previous applicant on December 9, 2015 and from the current applicant on August 10, 2016. Both proposals consisted of a similar subdivision for eight single-family homes. The CDAC provided comments on each of the proposals (Exhibit 6 and Exhibit 7). The applicant states in their project description and letter of justification (Exhibit 8) that the comments from the August 10, 2016 CDAC meeting have been incorporated into the proposed project. B. Planned Development The PD application is proposing to rezone the property from HR-2½ to HR-2½:PD. The HR-2½ zoning would be consistent with adjacent properties, which are zoned HR-1, HR-2 ½:PD, and RC. PAGE 5 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM DISCUSSION (continued): Approval of the PD application would establish the regulations through an ordinance (which would include the development plans) under which the following actions would be allowed: • Subdivision of one lot into eight lots through a future Subdivision application; • Removal of large protected trees and construction of associated site improvements; and • Construction of eight new single-family homes through future Architecture and Site applications. The proposed PD application complies with all provisions of the HR-2½ zone and HDS&G, except for the item listed below, which is proposed to be allowed through the PD ordinance: • A shared driveway length of approximately 720 feet for lots 7 and 8, where 300 feet is allowed by the HDS&G. It should be noted, that the proposed shared driveway would follow an existing graded road. Pursuant to the guidelines of the HDS&G, the deciding body may approve a driveway in excess of 300 feet if it makes specific findings for thedeviation and places additional conditions such as turnouts and secondary accesses to reduce hazards. The applicant has proposed a turnaround area that meets Santa Clara County Fire Department requirements. In considering the Least Restrictive Development Area (LRDA) for each lot, the applicant has provided conceptual single-family home and driveway locations. Based on the conceptual designs, the following exceptions to the HDS&G would need to be requested for future applications: • Lot 1 – Depths of fill, up to four feet for a portion of the proposed driveway in order to be in compliance with the turnaround requirements of the Santa Clara County Fire Department, where three feet is allowed by the standards of the HDS&G. In addition, the driveway is proposed at approximately 600 feet in length, where 300 feet is allowed by the HDS&G. Pursuant to the guidelines of the HDS&G, the deciding body may approve a driveway in excess of 300 feet if it makes specific findings for the deviation and places additional conditions such as turnouts and secondary accesses to reduce hazards. The applicant has proposed a turnaround area that meets Santa Clara County Fire Department requirements. • Lot 2 – Depths of fill, up to four and one-half feet for a portion of the proposed driveway in order to be in compliance with the turnaround requirements of the Santa Clara County Fire Department, where three feet is allowed by the standards of the HDS&G. In addition, the driveway is proposed at approximately 340 feet in length, where 300 feet is allowed by the HDS&G. Pursuant to the guidelines of the HDS&G, the deciding body may approve a driveway in excess of 300 feet if it makes specific findings for the PAGE 6 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM DISCUSSION (continued): deviation and places additional conditions such as turnouts and secondary accesses to reduce hazards. The applicant has proposed a turnaround area that meets Santa Clara County Fire Department requirements. • Lot 5 – Depths of cut, up to six feet to allow for the terraced walls necessary to create an entry to the conceptual single-family home, where four feet is allowed by the standards of the HDS&G. • Lot 6 – Depths of fill, up to four feet for a portion of the proposed driveway due to the sloping terrain, where three feet is allowed by the standards of the HDS&G. In addition, the proposed location for the driveway would be located outside of the LRDA as there is no point at which the LRDA for a potential home location adjoins the private roadway. • Lot 7 – Depths of cut, up to six feet to allow for a portion of the proposed driveway to be in compliance with the turnaround requirements of the Santa Clara County Fire Department, where four feet is allowed by the standards of the HDS&G. • Lot 8 – The driveway is proposed at approximately 380 feet in length, where 300 feet is allowed by the HDS&G. Pursuant to the guidelines of the HDS&G, the deciding body may approve a driveway in excess of 300 feet if it makes specific findings for the deviation and places additional conditions such as turnouts and secondary accesses to reduce hazards. The applicant has proposed a turnaround area that meets Santa Clara County Fire Department requirements. The applicant discusses the requested exceptions listed above in their letter of justification (Exhibit 8). The PD application is proposing to rezone the property which would provide specific guidance for the future subdivision and single-family residential development. The PD Ordinance would define the maximum allowable development, including the maximum floor area and building height. Subdivision and Architecture and Site applications would be required to implement the proposed project if the PD is approved. C. Lot and Building Size The project is proposing a subdivision of the site into eight lots for single-family residential uses. Based on the average slope of the site of 32.11%, the maximum number of houses on the 36-acre site, would be nine. The lot sizes, preliminary average slopes, and likely maximum floor area for each parcel are shown in the following table: PAGE 7 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM DISCUSSION (continued): Acres Average Slope Max FAR Lot 1 7.77 43.28% 6,000 sq. ft. Lot 2 5.16 47.39% 6,000 sq. ft. Lot 3 3.55 41.83% 6,000 sq. ft. Lot 4 4.51 35.86% 6,000 sq. ft. Lot 5 3.36 44.68% 6,000 sq. ft. Lot 6 3.38 40.95% 6,000 sq. ft. Lot 7 3.77 38.92% 6,000 sq. ft. Lot 8 4.22 33.64% 6,000 sq. ft. Open Space Easement Area 4.5 N/A N/A D. Grading The project proposes to use the existing graded road for circulation within the planned development. Existing retaining walls along the roadway will be maintained or replaced in kind where necessary. Details of the proposed grading (including site sections, illustrations of the locations of the proposed cut and fill, and conceptual future driveway details) are included on Sheets 11 through 15 of the development plans within Exhibit B of Exhibit 14. Additional information regarding cut and fill exceptions for future development of the proposed lots are included on pages 5 and 6 of this report. E. Trees The locations of the trees to be removed for the proposed site improvements to the existing road are included on Sheets 11 through 13 of the development plans. The locations of trees to be removed for the conceptual home and driveway locations are included on Sheets L1.1 through L8.1 of the development plans. The property includes thousands of existing trees. The project was reviewed by the Town’s Consulting Arborist (Exhibit 11) who focused the review on the trees impacted by the project, including site improvements and the conceptual home and driveway locations. An addendum report was prepared by the Town’s Consulting Arborist which focused more closely on the trees adjacent to the existing road and retaining walls (Exhibit 12). Of the trees surveyed adjacent to the existing road and retaining walls, 10 are recommended for removal for the site improvements. Of the trees surveyed for the conceptual home and driveway locations, 90 would be highly impacted and are recommended for removal. The tree removals identified for each home and driveway location are conceptual and specific tree removals for each lot would be PAGE 8 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM DISCUSSION (continued): evaluated when Architecture and Site applications are submitted for the new single-family homes. F. Visibility In order to show that the project includes building sites that are buildable without significant visibility impacts, the applicant has provided a visibility analysis based on a conceptual home design constructed within the LRDA of each lot. This analysis is included on Sheets A-1.1 through A-8.2 of the development plans within Exhibit B of Exhibit 14. The visibility analysis illustrates that the building sites for lots 3 and 4 would be visible from the Blossom Hill Road/Los Gatos Boulevard viewing area and lots 5 and 8 would be visible from the Los Gatos – Almaden Road/Selinda Way viewing area. The conceptual home designs proposed by the applicant for these lots are shown at 18 feet in height. As a result, a performance standard is included in the PD Ordinance which limits the maximum height for a future home on lots 3, 4, 5, and 8 to 18 feet. G. Environmental Review An EIR was prepared for the project. As part of the environmental review process a number of technical reports were prepared, including species lists and database reviews, tree evaluations and arborist reports, geotechnical investigations, noise analyses, and traffic analyses. Reports that were prepared by outside consultants were peer reviewed by Town Consultants. The Notice of Preparation (NOP) was distributed on April 7, 2017, for a 30-day comment period. Comments received on the NOP are included as Appendix A to the Draft EIR. The Notice of Completion and Availability for review of the Draft EIR was released on September 14, 2018, with the 45-day public review period ending on October 29, 2018. On October 24, 2018, the Planning Commission held a public hearing to accept comments on the Draft EIR. Verbal comments were received from six individuals, many of whom also submitted written comments. Written comments on the Draft EIR were received from one public agency and 10 individuals. The Final EIR, with Response to Comments, was completed in February 2019. A Mitigation Monitoring and Reporting Program (MMRP) has been prepared as required by CEQA (Exhibit 2). The MMRP includes a list of all mitigation measures and the department(s) responsible for ensuring that the mitigation measures are properly implemented. All mitigation measures are also included as performance standards within the draft PD Ordinance (Exhibit 14). PAGE 9 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM PUBLIC COMMENTS: Written notice was sent to property owners and tenants within 500 feet of the subject property. Neighborhood outreach completed by the applicant is included as Exhibit 9, in addition to letters of support for the project included as Exhibit 10. Public comments received by 11:00 A.M. on Friday, March 8, 2019, are included as Exhibit 13. CONCLUSION: A. Summary The project would allow the subdivision of the 36-acre site into eight lots, the removal of large protected trees for site improvements for a private road, and construction of eight new single-family homes. This proposal includes a PD application to rezone the property from HR-2½ to HR-2½:PD. Through the PD application the applicant is asking to allow the following exception to the HDS&G: • A shared driveway length of approximately 720 feet for lots 7 and 8, where 300 feet is allowed by the HDS&G. It should be noted, that the proposed shared driveway would follow an existing graded road. Pursuant to the guidelines of the HDS&G, the deciding body may approve a driveway in excess of 300 feet if it makes specific findings for deviation and places additional conditions such as turnouts and secondary accesses to reduce hazards. The applicant has proposed a turnaround area that meets Santa Clara County Fire Department requirements. Based on the conceptual single-family home and driveway locations proposed for each lot, the following exceptions to the HDS&G would need to be requested for future applications: • Lot 1 – Depths of fill, up to four feet for a portion of the proposed driveway and a proposed driveway length of approximately 600 feet. • Lot 2 – Depths of fill, up to four and half feet for a portion of the proposed driveway and a proposed driveway length of approximately 340 feet. • Lot 5 – Depths of cut, up to five to six feet to allow for the terraced walls necessary to create an entry to the conceptual single-family home. • Lot 6 – Depths of fill, up to four feet for a portion of the proposed driveway and a proposed driveway located outside of the LRDA. • Lot 7 – Depths of cut, up to six feet for a portion of the proposed driveway. • Lot 8 – A proposed driveway length of approximately 380 feet. With the exception of the items listed above, the project complies with the General Plan, Town Code, and HDS&G. The applicant discusses the proposed exceptions and compliance with the General Plan, Town Code, HDS&G, and Hillside Specific Plan in Exhibit 8. A draft PD PAGE 10 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM CONCLUSION (continued): Ordinance has been prepared with performance standards to require the project to adhere to the aforementioned requirements (Exhibit 14). B. Recommendation Based on the summary above, staff recommends the Commission take the following actions to forward the Final EIR and PD applications to the Town Council with a recommendation for approval of the proposed project: 1. Make the required findings (Exhibit 4) including the CEQA Findings of Fact (Exhibit 5); 2. Recommend that the Town Council certify the Final EIR and adopt the Mitigation Monitoring and Reporting Program (Exhibit 2); and 3. Recommend that the Town Council adopt the Planned Development Ordinance (Exhibit 14) and approve the proposed project. C. Alternatives Alternatively, if the Commission has concerns with the proposed project, it can: 1. Forward a recommendation for approval of the applications with modified performance standards to the Town Council; or 2. Forward a recommendation of denial of the applications to the Town Council; or 3. Continue the matter to a date certain with specific direction. EXHIBITS: Previously received under separate cover: 1. August 2018 Draft Environmental Impact Report 2. February 2019 Final Environmental Impact Report and Mitigation Monitoring and Reporting Program Received with this Staff Report: 3. Location Map (one page) 4. Required Findings (two pages) 5. Required CEQA Findings of Fact (34 pages) 6. December 9, 2015, Conceptual Development Advisory Committee meeting minutes (three pages) 7. August 10, 2016, Conceptual Development Advisory Committee meeting minutes (three pages PAGE 11 OF 11 SUBJECT: 16100 GREENRIDGE TERRACE/PD-16-002 AND EIR-17-001 MARCH 8, 2019 N:\DEV\PC REPORTS\2019\Greenridge 16100.docx 3/8/2019 9:23 AM 8. Project Description and Letter of Justification, received February 21, 2019 (15 pages) 9. Neighborhood Outreach (10 pages) 10. Letters of Support (three pages) 11. Consulting Arborist’s Report, dated June 30, 2017 (54 pages) 12. Addendum to Consulting Arborist’s Report, dated June 20, 2018 (21 pages) 13. Public comments received by 11:00 a.m., Friday, March 8, 2019 14. Planned Development Ordinance (30 pages) with Exhibit A Rezone Area (one page) and Exhibit B Development Plans, received February 15, 2019 (47 sheets) Distribution: Emerald Lake Investments LLC, 2635 Bronzewood Drive, Tustin, CA 92782 Gary Kohlsaat, 51 University Ave, Suite L, Los Gatos, CA 95030 This Page Intentionally Left Blank