21 Staff Report - Hillside Development Standards
DATE: TO: FROM: COUNCIL AGENDA REPORT December 10, 2004 MAYOR AND TOWN COUNCIL DEBRA J. FIGONE, TOWN MANAGER MEETING DATE: 12/20/04 ITEMNO. ;2/SUBJECT: CONSIDER PLANNING COMMISSION RECOMMENDATION
ON AMENDMENTS TO THE HILLSIDE DEVELOPMENT STANDARDS & GUIDELINES ARCHITECTURAL REVIEW CRITERIA. RECOMMENDATION: Consider the Planning Commission's request to prepare amendments to the
Hillside Development Standards & Guidelines and provide direction to staff as appropriate. BACKGROUND: On July 28, 2004 the Planning Commission discussed architectural styles relative
to hillside development. The Commission identified this policy issue after reviewing a number ofapplications for newhillsidehomesjust prior to and immediatelyfollowing adoption ofthe
Hillside Development Standards & Guidelines (HDS&G). Several proposals involved large homes of styles that the Commission felt did not blend well with the hillside environment. The Commission
discussed several options to address bulk and mass and style ofhomes and developed a recommendation for the Council's consideration. DISCUSSION: In order to address the topic of architectural
style, the Commission identified several areas of concern. These include fitting the house to the site (topography and blending with the environment), reducing bulk and mass, and provision
of access around a home. Staff prepared a memorandum to the Commission (Attachment 1) to help focus the Commission discussion onthe issues ofconcern. ThePlanning Commission considered
the following alternatives to address their concerns related to architectural style, design elements, bulk and mass, and formality of design: PREPARED BY: Bua'N.
ofCommunity Developmeut N:\DEV\SUZANNEICounciI\ReportslFwd. to TClAdvancedPlanninglHillsideArch-12-04.wpd Reviewed by: Town Manager Attorney __Clerk Finance
__Community Development Revised: 12/10/04 9:07 am Reformatted: 5/30/02
PAGE 2 MAYOR AND TOWN COUNCIL SUBJECT: CONSIDER AMENDMENTS TO HILLSIDE DEVELOPMENT STANDARDS & GUIDELINES December 10, 2004 1. Adopt a policy or additional design criteria for architectural
styles that are inherently bulky or maSSIve. 2. Restrict the height ofhomes of designated styles to one-story. 3. Reduce the Floor Area Ratio (FAR) for homes of specified styles. 4.
Restrict certain exterior finishes such as stucco siding or clay tile roofing. 5. Restrict or prohibit Mediterranean and Spanish/Mission style architecture and/or any other styles that
may not be appropriate for the hillside environment. 6. Adopt a daylight plane policy or ordinance for hillside homes. 7. Address walkable area around homes. The Commission decided that
it would not be appropriate to restrict certain architectural styles as stated in item #5 above. Howeverthe Commission agreed that, a cautionary note or statement could be added to the
Hillside Development Standards and Guidelines advising applicants that Mediterranean style architecture may be more difficult to get approved. If the Council agrees with this approach
the suggested language could be added in Chapter V (Architecture), Section F. (Minimize Bulk and Mass) as follows: 1.b. Avoid architectural styles that are inherently viewed as massive
and bulky. Use of Mediterranean style architecture may make it more difficult to gain approval of a new home. The Commissionrecommends that additional standards be added to theHDS&Gto
address bulk and mass. The Commission agreed that the following guidelines should be added to Chapter V, Architectural Design, section F. (Minimize Bulk and Mass): m. Two-story wall
planes are strongly discouraged. n. Second stories should be set back a minimum of three feet from the first story. o. Natural forms such as roof vaults and bowed elements are encouraged.
p. Open-style balcony rail design are encouraged (concrete balustrades or other formal railings and solid walls are not desirable). q. Recessed windows are encouraged on visible elevations.
r. Stone or other accent materials should be used to break up massing. s. Step level floors with the terrain rather than using a flat pad approach To help blendhomes with the hillside,
the Commissionrecommended that the following guidelinebe added to Chapter V, section I (Materials and Colors): 7. Excessive use of stucco and clay tile is strongly discouraged. To provide
adequate space for maintenance and fire access and protection, the following guideline is recommended to be added to Chapter III (Site Planning), Section B. (Grading):
PAGE 3 MAYOR AND TOWN COUNCIL SUBJECT: CONSIDER AMENDMENTS TO HILLSIDE DEVELOPMENT STANDARDS & GUIDELINES December 10,2004 2. Pedestrian access is required on all sides around home (
minimum of three feet). StaffNote: This may require additional grading and/or retaining walls. CONCLUSION: The Council should detennine ifany ofthe new guidelines suggested by the Planning
Commission should be added to the HDS&G. The Council should direct staff as to any desired text changes. If Council detennines that changes to the HDS & G are appropriate, staff will
return to the Council with amendments to the HDS&G and a resolution for adoption. ENVIRONMENTAL ASSESSMENT: An Environmental Impact Report (EIR) was prepared for the 2000 General Plan
update pursuant to the State Environmental Guidelines as adopted by the Town. Amendment of the Hillside Development Standards is an implementation of the General Plan and no additional
analysis is needed as the document is simply establishing review criteria. Hillside projects are evaluated for CEQA compliance at the time individual applications are filed. FISCAL IMPACT:
None Attachments: 1. Memorandum to the Planning Commission dated July 28,2004 (three pages with two page attachment) Distribution: Planning Commission
To: From: Subject: Date: Background DIRECTOR'S ITEM COMMUNITY DEVELOPMENT DEPARTMENT Planning Commission Bud N. Lortz, Director of Community Development Hillside Architecture July 28,
2004 In reviewing recent applications for new hillside homes, the Commission has expressed concern about certain architectural styles including Mediterranean and Spanish or Mission style.
Typically, these styles are more difficult to blend into the hillside environment. When the first application for a hillside home was considered under the new Hillside Development Standards
& Guidelines (HDS&G), Commissioners were concerned about the proposed Tuscan-style architecture and formal design elements. Although that application was ultimately approved with conditions,
several Commissioners requested that the issue ofarchitectural style and formal design be placed on a future agenda for discussion. This memorandum is intended to facilitate the Commission's
discussion of hillside architecture. A side issue is siting the home in a manner that allows people to be able to walk around the perimeter of the building. When a house is situated
on the edge of a steep slope it does not allow access for maintenance or complete circulation around the home. Discussion Commissioners have indicated that they would like to see more
rural styles of architecture in the hillsides and houses that blend in as opposed to standing out. There are several ways of addressing these concerns including use ofdesign elements
to reduce bulk and mass, restrictions or prohibition of certain architectural styles, or restrictions on exterior building materials and/or design elements. The Consulting Architect
has commented that the two biggest factors in blending a house with the site are exterior color and wall height. Breaking up forms and using larger roof overhangs helps to reduce bulk,
and darker colors help blend the house with the environment. The Commission should define what areas of the HDS&G need to be better addressed or clarified (architectural style, design
elements, bulk and mass, formality, etc.). The Commission should also determine whether amendments may be needed to the HDS&G or if the existing standards and guidelines are adequate.
Since the Town already has a color policy in place, building massing, design elements and exterior materials are the apparent items that need to be addressed. Staff has developed the
following alternatives for the Commission's consideration: N:\DEV\SUZANNE\PC\HiIIside-arch-7-28-04.wpd ATTACHMENT 1
1. Adopt a policy or additional design criteria for architectural styles that are inherently bulky and massive. A minimum number of the listed design elements (suggestion: five) could
be required to be included when a Mediterranean or similar style home is proposed. Design techniques that could be used include the following: a. No two-story wall planes b. Minimum
setback for second floor from first floor c. Bowed first floor elements d. Open style balcony/rail design (no concrete ballustrades or other formal railings and no solid walls) e. Recessed
windows f. Stone or other accent to break up massing g. Trellises or other proj ecting elements h. Step floor levels with the terrain rather than using a flat pad approach 2. Restrict
the height of homes of designated styles to one story to reduce bulk and mass. If applicants desiring certain architectural styles such as Mediterranean, Spanish or Mission were restricted
to a one-story home, not to exceed a specific height (suggestion: 18 feet) the house would have a lower profile and be less massive and bullcy. By restricting it to onestory the house
might have to be smaller overall if the building area is restricted by site constraints. Use of the techniques 1 and/or 2 will result in greater articulation and less bulky designs.
Use of exterior materials that have darker earthtone colors and are nonreflective helps houses fit better with their surroundings, although there is a perception that materials such
as stucco and clay tile roofing do not blend well enough. 3. Reduce the FAR for homes of specified architectural styles. A 25% mandated reduction would result in an FAR of 6,000 square
feet being lowered to 4,500 square feet. Use of a smaller allowable floor area for certain architectural styles could provide an incentive to an applicant to propose a more appropriate
style in order to gain approval of a larger home. 4. Restrict certain exterior finishes such as stucco or clay tile roofing. While exterior colors can help blend a home into its surroundings,
use ofnatural materials such as wood and stone is typically more effective in helping a structure blend as opposed to standing out. A percentage of a stucco home could be required to
incorporate natural materials as a way of ensuring the home will blend with its surroundings. 5. Restrict or prohibit Mediterranean and Spanish/Mission style architecture and/or any
other styles that may not be appropriate for the hillside environment. The elements of these styles that are causing concern appear to be formal and bull<:y or large design elements.
Bulk and mass can be addressed through use of design techniques described under item 1. Undesirable elements or materials could also be stated. For example, the following could be strongly
discouraged or prohibited: N:\DEV\SUZANNE\PC\Hillside-arch-7-28-04.wpd
• Orange or red tile roofing • Concrete columns or balustrades • Use ofa single material on an elevation (for example, it may be more desirable to have stucco siding broken up with a
stone base or accent) • Towers, turrets and other two-story high elements 6. Adopt a daylight plane policy or ordinance for hillside homes. A daylight plane is a regulation that establishes
height limitation and when combined with the maximum height limits, defines the building envelope. While this would address the bulk and mass issue, it is not recommended because it
would not necessarily preclude a certain style ofarchitecture or address the Commission's concerns. In addition, it would only have an impact when a building is proposed at or near the
minimum setback. 7. Walkable areas around homes. Require at least a 3' walkway around all buildings. The HDS&G could be amended to require a 3' walkway around all buildings to provide
for circulation and property/building maintenance. The standards and guidelines pertaining to retaining walls would apply to the design of the wallcways which may necessitate that the
footprint of the home be reduced depending on site constraints. Relevant design guidelines used by various Bay Area hillside commtmities are attached for the Commission's information.
Photos of different styles of hillside homes will be displayed at the meeting to assist the Commission with this discussion. Conclusion The Commission should discuss the different alternatives
offered in this report and decide whether the HDS&G are adequate as presented, or ifamendments are needed to further clarify the intent for rural architectural style and design. If the
Commission determines that amendments may be appropriate, a recommendation should be formulated and forwarded to the Town Council for consideration. N:\DEV\SUZANNE\PC\HiIIside-arch-7-28-04.wpd
Design Guidelines from Area Hillside Communities Los Altos • Keep second floor exterior wall heights as low as possible. • Avoid massive, tall chimneys. Use horizontal elements to soften
veliical ones in an elevation. Use color changes to help visually break up the elevation. Use ofmore than one material on an elevation is appropriate to break up the vertical mass of
the house. Los Altos Hills Increasing the setbacks will mitigate the bullc of larger homes. • Architectural features break up the massing. Eaves, bay windows, small windows, varying
elevations and alcoves reduce the appearance of bulk by creating shadows along a facade. • A mixture of materials can create interest and detail. Wood and stone call help soften the
appearance of stucco and blend it with the natural setting. Roof areas should be a dark color and have a variety of shades of that color. • Texture and well designed detail added to
wall surfaces distract from large wall areas and minimize their perceived impact. Orinda • Vertical building lines should generally be minimized to reduce visual height. Horizontal wood
lap siding is encouraged. • Buildings should be designed to minimize visual height and bulle Wall recesses and projections, roof overhangs, decks and other features which enhance the
play of light and shadows are encouraged to reduce bullc and add interest. • Natural, not simulated, building siding should be used to complement the natural environment. Portola Valley
• Avoid architectural features that increase visual prominence. Reduce effective visual mass with the use ofhorizontal elements. Do not use highly reflective colors and surfaces.
Saratoga • Use natural-color materials for fOlmdations and lower portions of the house. • Use materials that create horizontal proportions. • Avoid large expanses of single material.
Avoid vertical orientation of materials on large areas. Minimize areas ofmaximum height. • Set back higher portions of the structure. • Do not design to attract attention or stand out.
Punctuate large wall expanses withe bay windows, chimneys and other features. • Use a combination of vertical and horizontal articulations. Avoid large wall expanses without windows.
• Avoid vertical features that add to the perception of height. • Avoid extreme contrasts in color between the structure and the terrain. Woodside • Reduce mass by incorporating off-set
building walls and roofs, building bases, parches, decks, chimneys and overhangs. Choose finishes that blend with or complement the landscape. Increase setbacks for larger buildings.
. Use setbacks to minimize the effect of two-story building walls. Design upper floors with smaller floor area. • Emphasize or integrate the use of natural materials such as wood or
stone. N:IDEV\SUZANNE\PClHilisideDesign-7-04.wpd