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Staff Report - Study Session General Plan Update Environmental Review Scope~pW M q,- 111 ~~s snt°s COUNCIL AGENDA REPORT DATE: OCTOBER 15, 2009 MEETh1G DATE: 10/19/2009 STUDY SESSION TO: MAYOR'AND TOWN COUNCIL FROM: GREG LARSON, TOWN MANAGER SUBJECT: UPDATE AND DISCUSSION ON THE GENERAL PLAN UPDATE ENVIRONMENTAL REVIEW SCOPE, INCLUDING THE NORTH 40 SPECIFIC PLAN RECOMMENDATION Discuss and provide comments on the proposed General Plan Enviromnental Review as it pertains to the North 40. BACKGROUND Council has previously directed a limited focus update to the Town's General Plan as well as completion of the North 40 Specific Plan. In addition, the Town is completing its State-mandated update to the Housing Element, Each of these efforts requires varying degrees of environmental review prior to final Council action. Council previously approved a contract and subsequent contract amendments with Design Community & Environment (DC&E) to prepare a consolidated Environmental Impact Report (EIR) addressing the General Plan and Housing Element. Consolidation was recommended for efficiency and to avoid project piecemealing or segmentation, which are prohibited under the California Enviromnental Quality Act (CEQA). By law, the General Plan FIR must assess potential development in all parts of the Town; including the North 40. Since a Specific Plan will be prepared for the. North 40, it is important that the General Plan EIR consider the maximum development on the North 40 that may ultimately be allowed under the Specific Plan. PREPARED BY: GREG LARSON Town Manager GL:pg Vii: 4IGR`AdminWorkFiles 2009 Council Reparts 10-19-09 Notih 40 Study Session.doc Reviewed by: Assistant Town Manager Town Attorney Clerk Administrator Finance Community Development PAGE 2 MAYOR AND TOWN COUNCIL SUBJECT: UPDATE AND DISCUSSION ON THE GENERAL PLAN UPDATE ENVIRONMENTAL REVIEW SCOPE, INCLUDING THE NORTH 40 SPECIFIC PLAN OCTOBER 15, 2009 DISCUSSION Staff and consultants will modify the draft North 40 Specific Plan to allow housing as previously directed by Council in the 2000 General Plan and to provide direction on infrastructure, design and use parameters for eventual development of the North 40. However, the prior Council direction was not specific as to the type and amount of housing to be included in the North 40 or whether North 40 development constraints were inclusive or exclusive of existing homes and buildings. Further, the principal property owner of the undeveloped portions of the North 40 (approximately 32 acres), has engaged Grosvenor Associates as a prospective developer with internationally renowned Peter 'Calthorpe as the architect. The Town's consultant has reviewed the land analysis from Grosvenor. The video recording of the past General Plan Committee and the Study Session presentation to Council highlight various important aspects of that analysis. Attached are materials provided to the General Plan Cornrnittee and notes froth their meeting on*the North 40 Specific Plan. Also attached are draft principles for consideration in development of the North 40 Specific Plan. These draft principles will be further reviewed and refined in 2010 as staff and consultants continue the North 40 Specific Plan update. Any specific development in the North 40 will likely require its own more focused project level environmental review. The General Plan EIR must include consideration and analysis of both potential basic development parameters and several alternatives. Unless directed otherwise, staff and DC&E will include the following alternatives in the environmental review process: North 40 Basic Development Parameters for the General Plan EIR Project Description: 750 residential units and 580,000 square feet of commercial development, with primarily 2 and 3 story buildings and limited exceptions for 4 or 5 story buildings. North 40 General Plan EIR Alternatives: No Project As required by CEQA, this alternative will maintain prior development assumptions from the 2000 General Plan. The 2000 General Plan designates the site as "Mixed Use Commercial," which designation does not include clear development parameters but could allow for as much as 1.4 million square feet of commercial uses and 1,100 housing units. This maximum would be limited by existing General Plan policies which state that the Town shall encourage uses that serve residents and that development should be limited to that which can be served by existing transportation infrastructure. 2. Reduced- Development - Approximately 500 residential units and 500,000 square feet of commercial development, with primarily 2 and 3 story buildings and limited exceptions for 4 story buildings. PAGE 3 MAYOR AND TOWN COUNCIL SUBJECT: UPDATE AND DISCUSSION ON THE GENERAL PLAN UPDATE ENVIRONMENTAL REVIEW SCOPE, NCLUDNG THE NORTH 40 SPECIFIC PLAN OCTOBER 15,2009 Alternative Development Mixes - Maintain estimated traffic levels of the Basic Development Parameters and/or the Reduced Development Alternative, but reduce the number of residential units and increase the commercial square footage to include broader community and/or regional retail opportunities. Attachments Memo to General Plan Committee on North 40 Conceptual Plan Review Summary Minutes of September 23 General Plan Committee Meeting North 40 Specific Plan Guiding Principles IN MEMORANDUM uw. `°s Gas°S COMMUNITY DEVELOPMENT DEPARTMENT To: General Plan Committee From: Bud Lortz, Deputy Town Manager Subject: North 40 Conceptual Plan Review Date: September 17, 2009 BACKGROUND: On August 25, 2008, the Council held a Study Session to provide direction on how to proceed with finalizing the North 40 Specific Plan (N40SP) in light of prospective development proposals in the North 40 area. Specifically, the question was what process to follow: Complete the N40SP; and/or Consider specific development proposals in advance of completion of the N40SP. The Town Council voted 5-0 directing staff to finalize the N40SP. The Council indicated the Draft N40SP should be used as the foundation for an updated Plan. The Council also specified that the areas of focus for the update would be the following: • How to fund and maintain infrastructure. • Review the design standards in the Draft N40SP to address concerns that the design guidelines and images contained in the draft do not clearly reflect the character of Los Gatos. • Determine an appropriate land use mix that does not compete with the Downtown, including limited residential development and a possible recreation component. The evaluation of residential uses should include an analysis of potential impacts to schools. • Review the draft development standards, which currently include a 500,000 square foot cap on commercial mixed-use development, limit the size of any single use to a maximum of 70,000 square feet, state the average size of retail uses and structures should not exceed 30,000 square feet, and establish a maximum building height of 35 feet (exceptions can granted through the Planned Development process to permit buildings up to 45 feet). DISCUSSION: On June 15, 2009, the Town Council approved the agreement with Design, Community and Environment (DC&E) to include revisions to the N40SP and provide for consistency with the General Plan. The Council directed staff to work directly with the General Plan Committee and the Town Council on this important planning effort. ATTACHMENT 1 General Plan Committee September 17, 2009 Page 2 Over the past year, staff has been discussing the Town's renewed interest in completing the N40SP with the Yuki Family, a majority land owner of the N40 (the Yuki family owns 32 of the approximately 44 acres in the N40). During that time staff has also been discussing the N40 planning process with a major development company, Grosvenor. Grosvenor owns the Los Gatos Village Square Shopping Center and is an international property group. Staff has clearly articulated the Town's expectations about the N40. This initial planning effort is all about sustainability, good urban design, creating a sense of place with vitality, and an appropriate and respectful sensitivity to the charm and scale of Los Gatos. Grosvenor has been working closely with the property owner and staff and has assembled a world-class design team led by Architect and Urbanist, Peter Calthorpe, Calthorpe Associates, that will work collaboratively with the community, decision makers and staff in creating a very high quality vibrant neighborhood that exemplifies the best practices of sustainability and design excellence. Extensive background information about Peter Calthorpe and Grosvenor is available on their web sites. Attached is a working agenda for the meeting which will include a review of a North 40 - Conceptual Site and Massing Plan, Landscape Concepts and Design Principles. The Committee. is invited to ask questions and provide comments. The notes and minutes of this meeting will be provided to the Town Council for consideration as it provides direction to staff on how to proceed with the N40 planning process. This matter will be considered by the Town Council on October 5, 2009, and the public's input is encouraged. N:1DEV WD\N40GPCMemo.doc Ega] D A TOWN OF LOS GATOS 110 East Main Street, Los Gatos, CA 95030 (408) 354-6872 SUMMARY MINUTES OF A REGULAR MEETING OF THE GENERAL PLAN COMMITTEE OF THE TOWN OF LOS GATOS ON SEPTEMBER 23, 2009, HELD AT THE NEIGHBORHOOD CENTER, LARGE HALL, 110 EAST MAIN STREET, LOS GATOS, CALIFORNIA. The meeting was called to order at 5:20 pm by Jane Ogle. ATTENDANCE Members present: John Bourgeois, Barbara Cardillo, Tom O'Donnell, Jane Ogle, Joe Pirzynski, Chuck Sloan, Barbara Spector Members absent: Marcia Jensen Staff present: Greg Larson, Town Manager; Bud Lortz, Deputy Town Manager; Wendie Rooney, Director of Community Development; Suzanne Davis, Associate Planner; Joel Paulson, Associate Plannner; Jennifer Savage, Assistant Planner; Jessica von Borek, Economic Vitality Manager Consultants present. David Early, Design Community & Environment (DC&E); Peter Calthorpe, Architect Public attendees: Mike Amidi, Lynlee Bischoff, Pete Brutsche, Ray Davis, Kerry Laubach, Milt Mintz, Tom Spilsbuty VERBAL COMMUNICATIONS: Ray Davis commented on Monday's Town Council meeting. The Council voted to acquire two acres below the dam for soccer fields. He disagrees with Bud Lortz's recommendation to install two small fields and parking for 60 cars. He also commented that the money from the sale of Town property in Vasona is not being used for its intended purpose, and he feels it is a fraud. Lastly, he commented on the dust cloud being spread by the cement plant in Cupertino. He encouraged people to protest as the permit is up for renewal. ITEM 1 REVIEW OF NORTH 40 SPECIFIC PLAN Greg Lai-son opened the meeting noting that tonight's meeting is the result of Council direction from a meeting held August 2009. At that meeting the Council directed staff to complete the North 40 Specific Plan. The plan was originally developed through a community process and was tabled pending the General Plan update in 2000. There will be an on-going series of discussions over the next six months. The North 40 is the largest ATTACHMENT 2 General Plan Committee September 23, 2004 Page 2 of S undeveloped area in the Town. Council directed staff to review design standards, to determine an appropriate land use mix that may include residential and will not compete with the Downtown, and to look at the development standards. The primary property owner, the Yuki family, has a representative who will present their thoughts on the development of the North 40. There will be a Town Council study session on October 19, 2009. John Bourgeois clarified that the Committee should be providing a recommendation to the Town Council on the consultant's presentation. David Early, DC&E, noted that the requested action-is to include the North 40 program as a component of the General Plan EIR. The goals for the project are to indentify an appropriate mix of uses and the parameters for design and development. There is an existing draft plan that currently supports destination retail and mixed use commercial. The plan no longer matches the Town's vision included in the current General Plan. The goal is to find a project that is smart growth, sustainable, and that reflect today's market. Guiding principles include residential uses to the south, retail mixed use to the north and a variety of types of residential. The Yuki family is working with a developer, Grosvenor, and an architect, Peter Calthorpe, who will be preparing a development proposal in parallel with the General Plan Update. Many of the ideas overlap. Grosvenor controls about 30 acres of the 42 acre site. Barbara Cardillo clarified that the portion of the North 40 that is not being discussed is the parcels that are already developed. David Early noted that for the Specific Plan, the entire area is being included. The development proposal from Grosvenor does not include already developed parcels, a few residences and land not owned by the Yuki family. Peter" Calthor pe, Architect, presented four principles that make a good place that is sustainable and smart growth as follows: • Diversity and balance: inclusive of a civic realm, residential, commercial and neighborhood. • Human and pedestrian scale: building shape, size, not centered around the automobile. There are different types of human scale, but they all have the same components including walkability and vitality. • Conservation and sustainability: no place is an island, sustainability and conservation is more than placing solar panels on the roof and driving a Prius. Single family is sprawl. Green sprawl is when people conserve energy and drive an energy efficient vehicle. Compact housing includes more efficient building envelopes as opposed to large lot single-family development. Compact green is higher density residential (compact) with sustainable design. There is a need for a range of housing types. Housing that fits into the compact green category is a 4:1 savings on carbon emissions. There is currently a regional housing shortage. General Plan Committee September 23, 2009 Page 3 of S • Connection and interdependence: proximity to jobs and housing. One of the good things about the location of the North 40 site is its proximity to regional transit. Once the light rail is extended to Los Gatos, a shuttle link between there, the Downtown and the North 40 will interconnect the areas and allow people to travel around town without using their cars. Desirable plan elements: • The scale of the site needs to be attended to • A pedestrian oriented edge along Los Gatos Blvd. is needed • Minimal parking along the street and in front of buildings • More of a pedestrian edge along buildings + Create a more unified landscape for sense of unity and consistent theme • Need to connect through and use as many access points as possible so the site becomes interconnected and traffic is dispersed • Streets have to designed for pedestrians • Traffic calming • Break the scale of the blocks down • Two characteristics: civic anchors including a park surrounded by residential and a center plaza surrounded by mixed use Create boulevard treatment along the edge (Los Gatos Blvd.) to provide continuity and connectiveil ess A true compact interconnected community can be achieved without impacting views of the hills and overwhelming its surroundings. The predominant residential type would be three-story townhouses. David Early discussed the overall development goal that will be expressed in the General Plan, which is to develop the North 40 with a mix of uses that complements and does not compete with the Downtown and the rest of the community, and to plan for a smart community that is sustainable. Guiding Principles to be included in the General Plan: Mixed use: • High quality architecture • Residential uses to south • Retail mixed use to north • Variety of types of residential Connected street network: • Connections to existing intersections along Lark & LGV • Pedestrian orientation General Plan Committee September 23, 2009 Page 4 of 5 Open Space: • Park at center of residential • Plaza at center of mixed use area • Continuation of treatment along LGB + Vegetative screening/buffer along Highway 17 and Route 85 • Pedestrian scale buildings along LGB with minimal parking • Split level buildings • Tuck under parking • Building heights that protect Town character and views: a. 2-story maximum along LGB b. 4-story maximum further back on the site c. possible 5-story hotel Development potential of up to 585,000 square feet of retail and office space and up to 750 residential units to be evaluated in EIR. Tom O'Donnell asked about the numbers and what acreage would be assigned to those uses.. He is having difficulty envisioning the density. David Early noted that Grosvenor controls about 31 acres. The entire site is about 42 acres and the average for residential is about 18 units per acre. Bard Lortz noted that the proposed development potential is about 30% less dense than the Sobrato development. Torn O'Donnell expressed concern that the height limitations will provide enough control. Peter Calthorpe noted that the objective is to shape something that provides a good envelope for development. David Early stated that the development parameters are intended for the entire site and that the density could not be made more compact and proposed for only a portion of the site. Barbara Spector commented that she is concerned about the proposed building heights and potential visibility, how the development may or may not be phased, infrastructure, road intersection congestion, Barbara Cardillo eoumriented on the goal of complementing and not competing with the Downtown. While it sounds good, it presents the possibility of a Santana Row-like project. David Early noted that the anticipated businesses would be those that would not fit in the Downtown and would provide good that are not available there. Peter Calthorpe noted that it will be important to specify the type of retail that is needed and desired. What types of products are people leaving town to obtain. John Bourgeois commented that he is concerned about view preservation and visual impact. He asked for clarification on the split between mixed use commercial and residential and how it was determined. Peter Calthofpe explained that the mixed use area will need its own access and should not be hidden behind the. existing commercial area just north of Lark Avenue. General Plan Committee September 23, 2009 Page S of S John Bourgeois clarified that the proposed numbers are for purposes of study and environmental evaluation. He commented that the parcel is one of the last areas of agricultural use, and if the concept of retaining a portion of the orchard has been considered. Peter Calthorpe noted that project specific details are not being shown at this point. Bud Lortz noted that the history of the Yuki family should be included with preservation of a component of the existing agricultural use of the site. Joe Pirzynski commented that he agrees with everything that has been said. An important consideration is traffic generation. The entrance and egress will be' very important because of the existing traffic impact that is there now. The impact on schools will need to be considered. He is not sure there is a nexus with the residential area to the south of Lark Avenue. This has gone a long way to competing the North 40 Plan, and he is very interested to see how the principles are received. He supports the proposal. This is an extremely important piece of the community. It is a chance to do things right. Jane Ogle commented that this is a very important project and she feels uncomfortable making a decision after an hour and a half discussion. Torn O'Donnell and Barbara Spector agreed. David Early said the principles can be revised based on continents that were made tonight. For example, the need for a cultural component and preservation of views of the hills. The matter will be returned to the Committee for further discussion. NEW BUSINESS None ADJOURNMENT Meeting was adjourned at 6:45 PM. The next meeting of the General Plan Committee is scheduled for October 14, 2009. Prepared by: Suzanne Davis, Associate Planner N:DEV GPC2UG9minules:GFC-092309.doc North 40 Specific Plan Guiding Principles Revised for discussion October 19, 2009 Complement and do not compete with Los Gatos' Downtown and the rest of the community. Sustainable and "smart" development. Mixed use: ♦ Residential uses to the south. ♦ Retail mixed use to the north. ♦ Variety of types of residential units. Plaza at center of mixed use area. Park at center of residential area. Connected street network. ♦ Pedestrian orientation. ♦ Connections to existing intersections along Los Gatos Boulevard and Lark Avenue. Architecture and design that reflects the rural and agricultural history of the site. Gateway or landmark features at Los Gatos Boulevard/Lark Avenue and Los Gatos Boulevard/ Highway 85 off ramp. High-quality architecture. Continuation of "Boulevard Treatment" along Los Gatos Boulevard, with interconnections from one parcel's drive aisle to the next. Pedestrian-oriented buildings along the Los Gatos Boulevard frontage, with minimal parking oriented to the street. Vegetative buffer and screening along Highways 17 and 85. Take advantage of the grade change across the site. ♦ Split-level buildings allowing two floors of retail. ♦ "Tuck under" parking. Building heights to preserve Town character and views: ♦ Preserve views of the hills from Highways 17 and 85. ♦ Two stories maximum along Los Gatos Boulevard. ♦ Four stories maximum on most of the site. ♦ Possible five story hotel. ATTACHMENT 3