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HomeMy WebLinkAboutDRB 2015-09-09 #2O SANk .� CITY OF Meeting Date: September 9, 2015 Case Numbers: CDR15-005 �9CfFORlytP .. Community Development Department -Planning Division Project Planner: Steve Stafford — (415) 458-5048 Agenda Item: REPORT TO DESIGN REVIEW BOARD SUBJECT: 1005 and 1010 Northgate Dr. ("Gateway Gas" and "Four Points Sheraton") — Conceptual Design Review for redevelopment and subdivision of two contiguous parcels, currently developed with an existing commercial building and gas station use and an existing multi - room hotel building. The project proposes to maintain the existing hotel and construct three (3) new 46' -tall buildings with 81 residential units, 85 units and 51 units, respectively. The project includes height and density bonuses; APNS: 178-240-17 & -21; High -Density (HR1) District (1010 Northgate Dr.) and Office (0) District (1005 Northgate Dr.) Zones; David Trachtenberg of Trachtenberg Architects, Applicant; San Rafael Hillcrest, LLC and San Rafael Commercial, LLC, Owners; Northgate Activity Center Neighborhood. PROPERTY FACTS Location General Plan Designation Zoning Designation Existing Land -Use Project Site: O; HDR O; HR1 Gas Station; Hotel North: MDR MR3 Gallinas Creek; Apartments South: GC; O 0 Offices; Northgate One Center East: NA NA U.S. Highway 101 West: MDR MR3 Gallinas Creek; Apartments Lot Size Lot Coverage (Max.) Required: 6,000 sf Allowed: 40% (1005 Northgate); 60% (1010, 1020 & Proposed: 133,339 sf (1010 Northgate); 68,764 sf 1025 Northgate) (1020 Northgate); 71,152 sf (1025 Proposed: 40% (1005 Northgate); Unknown (1010 Northgate Northgate); 56% (1020 Northgate); 41% (1025 Northgate) Height F 100.5 Northgate Residential Density Allowed: 36' Allowed: 316 units (1 unit per 1,000 sf of combined lot Proposed: 46' (w/10' Height Bonus) area) 6' 10' Proposed: 183 units (combined w/o Density Bonus) Parking n/a Landscaping (Min.) Required: Unknown w/o Parking Study Required: 25% (1005 Northgate); 50% Req. Front and Proposed: 730 Surface and Garage Spaces Street Side Yards (1010, 1020 & 1025 Northgate) Proposed: Unknown w/o Landscape Plan 1020 Northgate 100.5 Northgate 1010 Northgate Required Required Proposed Front: 20' 20' Side(s): 6' 10' Street side n/a n/a Ped. side: n/a n/a Rear: 10' 66' 1020 Northgate Setbacks 1010 Northgate Required Proposed 15' Unknown 5' Unknown 10' Unknown 12' Unknown 5' Unknown 1020 Northgate Required Proposed 15' 25' 5' 5'/ 83' 10' n/a 12' 5' 5' 13' 7" 1025 Northgate Required Proposed 15' 26' 5' 35' 10' 34' 12' n/a 5' n/a Outdoor Area (Min.) Grading Tree Removal Required: 16,600 sf (100 sf / unit) Total: Unknown w/o Grading Plan Total: Unknown w/o Landscape Plan Proposed: 21,700 sf * Hillside building height is measured from natural grade to top of roof/structure at all points of the structure. Standard building height is measured from an established exterior finished grade elevation to mid -point of a sloped roof. SUMMARY The project is being referred to the Design Review Board (Board) for concept review for the redevelopment and subdivision of two contiguous parcels, currently developed with an existing commercial building and gas station use and an existing multi -room hotel building. The project proposes to maintain the existing hotel and construct three (3) new 46' -tall buildings with 81 residential units, 85 units and 51 units, respectively._ The project includes height and density bonuses. The project will require the following approvals: • A `major' Environmental and Design Review Permit, for new mixed-use and residential structures; • A Use Permit Amendment to allow the relocation of both the ancillary hospitality uses (restaurant and banquet/balIrooms) and required parking for the hotel to a newly created lot adjacent to, and separate from, the existing hotel and a Parking Modification to allow the use of mechanical parking lifts or "parklifts" to partially meet the parking requirement for the project; • A Tentative Parcel Map for the subdivision of the hotel site into three (3) new lots; and • A Lot Line Adjustment for the relocation of the common property boundary between the two contiguous parcels. The applicant has submitted conceptual design review to allow the Board to provide preliminary design comments on the proposed project. Planning staff requests that the Board provide recommendations on the project's compliance with all pertinent design criteria. These comments will guide the formal project application submittal. Overall, staff is concerned that the project fails to meet the City's affordable housing requirement and will need to provide a financial pro forma in their request for a height bonus. Staff is further concerned that the four-story scale of the new mixed-use building on the smaller parcel within the project site (corner of Northgate Dr. and Manuel T. Freitas Pkwy; 1005 Northgate Dr.) significantly impacts public views, particularly along the intersections of eastbound Freitas Pkwy and Northgate Dr. and Del Presidio Blvd. Staff is also concerned with the operation of the proposed "parklifts" on the project site. Staff requests that the Board provide recommendation on compliance with all pertinent design criteria. Specifically, staff asks the Board to consider the following: Building Design • Whether the proposed building design (architecture, scale and exterior colors and material) is appropriate for the project site. • Whether the proposed four-story building scale for the smaller parcel within the project site (corner of Northgate Dr. and Manuel T. Freitas Pkwy; 1005 Northgate Dr.), in particular, is appropriate given its potential impacts on public views of open space hillsides. Creek Setback • Whether a minimum 25' creek setback should be applied to the smaller parcel (1005 Northgate Dr.) to help provide uniform public access and improvements along the entire creek and through both parcels within the project site. Parking • Whether the proposed use of mechanical parking lifts or "parklifts" are appropriate in meeting the parking requirement for the project. Usable Outdoor Area • Whether the proposed allocation and type of required usable outdoor area is appropriate and the types of amenities the Board would like provided in the common outdoor areas. BACKGROUND Site Description & Setting: The project site is comprised of two (2) contiguous developed parcels located in the Northgate Activity Center neighborhood of Terra Linda. The smaller parcel is 24,459 sq. ft. in size with a gradual (approximate 10% average cross -slope), southwest -to -northeast trending, upslope from Manuel T. Freitas Parkway. The larger parcel is 292,952 sq. ft. (6.75 -acres) in size, located on a knoll with a greater (approximate 17% average cross -slope) southwest -to -northeast trending upslope from Manuel T. Freitas Parkway. The north fork of the Gallinas Creek is located along the entire west property boundary of both parcels. U.S. Highway 101 is located along the entire east property boundary of the larger parcel. Both parcels are encumbered with multiple, mostly utility, easements, including a 35' -wide "Greenbelt" easement along the west property boundary and a roadway access easement on the larger parcel. Two parking easement areas on the adjacent parcel, 1050 Northgate Dr. (APN: 178-240-20), provides 57 off-site parking spaces for exclusive use by the larger hotel parcel. The project site is a highly visible "gateway" site. It is also not a housing opportunity site in the San Rafael General Plan 2020. The property is surrounded by commercial (services and retail) and low-density residential uses. History: Identify past zoning actions on the site related to the project, prior related actions, hearings and any pertinent facts influencing the subject application. • On May 25, 1968, the Planning Commission conditionally approved a Use Permit (UP68-054) to allow construction of the first phase of the master plan for the site, including a 118 -room hotel building, swimming pool and ancillary hospitality building with restaurant, coffee shop, bar and meeting rooms. • On August 27, 1968, the Planning Commission conditionally approved an Architectural Approval (AA68-075) Sign Program (SR76-028) to allow construction of the first phase of the master plan for the site, including a 118 -room hotel building, swimming pool and ancillary hospitality building with restaurant, coffee shop, bar and meeting rooms. • On November 5, 1969, the Planning Commission conditionally approved an amendment to the original Architectural Approval (AA68-075(b)) to allow the construction of the second phase of the master plan on the site, specifically a 117 -unit hotel building addition. • On January 18, 2013, Public Works staff completed a Preliminary Traffic Analysis (PTA12-002) on a proposed land use change, converting the 235 -unit hotel facility to a 294 -unit apartment complex. • On September 17, 2004, Planning staff completed a Pre -application review (PA14-008) of a proposal to add three (3) new buildings to the hotel parcel, containing 162 residential units and 574 garage parking spaces. PROJECT DESCRIPTION Use: The project proposes redevelopment of two contiguous parcels currently developed with an existing single -story commercial_ building and gas station on one parcel and an existing multi -story multi -room hotel on the other parcel. The project proposes to subdivide the larger parcel into three new lots with the following development: 1) maintain the existing hotel building on one lot; 2) demolish an existing ancillary hotel building to construct a new 46' -tall mixed-use building with 81 residential units on a second lot and relocate hotel parking and hospitality amenities, and 3) construct a new 46 -tall residential building with 85 units on the third lot. In addition, the project proposes to demolish the 3 existing single -story commercial building and gas station on the smaller parcel and construct a new 46' - tall mixed-use building with 51 residential units above 2,000 sq. ft. of commercial space. The project includes height and density bonuses. The project does not propose to expand the existing hotel use and the hotel's hospitality amenities (restaurant and ballroom space) are proposed to be rebuilt in the same size and in the same location though as part of a new mixed-use building located on a new lot (1020 Northgate Dr.) created immediately west of the hotel. Site Plan: The smaller parcel would continue to be served for vehicular access from Northgate Dr. as would the pedestrian access to the upper -story residences. Pedestrian access to the ground -floor commercial space would from the garage and along Manuel T. Freitas Parkway. Northgate Drive starts at the intersection with Manuel T. Freitas Parkway as a public street, converts to a private roadway as it crosses the north portion of the smaller parcel and remains a private roadway throughout the adjacent larger parcel. The project includes a proposed Lot Line Adjustment with the adjacent larger parcel application which would nearly double the size of the smaller parcel, from 24,459 sq. ft. to 44, 777 sq. ft. The project includes a proposed Tentative Parcel Map to subdivide the larger parcel into three (3) new lots. The project proposes to continue the existing 35' -wide 'Greenbelt" or creek setback through all three new lots along the west property boundaries. The project also proposes a 35' street side setback along the U.S. Highway 101 elevation on the new lot addressed 1025 Northgate Dr. Architecture: The project proposes a contemporary design and a consistent and expansive `earthtone/woodtone' material and color palette would provide a unifying visual form among the three new buildings. Parapets, `cant' bay window projections (4' projections), `Juliet' or `French' balconies, and dark anodized window surrounds, characterized the building facades. The two new mixed-use buildings propose tall (12-16' ceiling plate) ground floors above more standard (10' ceiling plates) upper -story residential floors. Two of the three new structures (1005 and 1025 Northgate Dr.) propose expansive roof decks, though no specific details on the amenities for the roof deck are in the concept review. The ground floors are proposed to be `rough-hewed' stamped natural concrete walls, while the upper -floors are proposed to be `finished' plaster cement or stucco in multiple shades of beige -bronze -taupe. The project proposes to accent these stucco walls with expansive areas of horizontal lap fiber -cement siding in a light -gray or off-white color. Each building would also incorporate limited, strategic use of weathering or `Conten' steel panels which will create a rust -like appearance over time. (A Material and Color Board has been prepared by the applicant and will be presented during the Board meeting.) On both the smaller and larger parcel, the scale of the new mixed-use and residential structures would `step-up' along with the changes in site grades. Density: While not meeting the City's affordable housing requirement, the project proposes to provide affordable housing, all at the very -low income level, that will allow the project to be eligible for State density bonus units. On the smaller parcel, the project will provide five (5) 'below market residential' or BMR units and would be eligible for 16 State density units though proposes seven (7) State density units. On the proposed new lot located west of the lot containing the hotel, the project will provide seven (7) BMR units and would be eligible for 25 State density units though the project proposes 12 State density units. On the proposed new lot located north of the lot containing the hotel, the project will provide eight (8) BMR units and would be eligible for 25 State density units though the project proposes 14 State density units. Building Height: The project proposes a ten -foot (10') building height bonus for all three (3) new mixed-use or residential buildings, as a concession under the State Density Bonus law; the maximum height allowed by zoning 4 is 36' and the project proposes 46 -tall new structures. Because the project is not proposing to provide a specific amenity (hotel) listed in Exhibit 10 of the San Rafael General Plan 2020 (Land Use Policy LU 13), the height bonus concession would require the applicant provide financial pro forma, demonstrating that the concession results in "...identifiable, financially sufficient, and actual cost reductions to the project... ". Parking: The project proposes to use the State parking standards as a concession with their request for a density bonus. The State parking standards allow, essentially, one on-site parking space for each one - bedroom unit and two parking spaces for each two-bedroom unit. On the smaller parcel, the project proposes to exceed the number of required on-site parking spaces (74 parking spaces required; 85 parking spaces proposed) and to provide a significant portion (58 of 85 parking spaces proposed or 68 %) of required parking as mechanical parking lifts or "parklifts". On the larger parcel, the project proposes to exceed the number of required on-site parking spaces (224 parking spaces required; 229 parking spaces proposed) on the new lot addressed 1020 Northgate Dr. while meeting the parking requirement on the new lot addressed 1025 Northgate Dr. Additionally, the project proposes to replace and relocate a significant portion (116 of 229 parking spaces existing or 51 %) of surface parking spaces off-site from the existing hotel site (1010 Northgate Dr.) to the new lot addressed 1020 Northgate Dr. The project proposes to continue use of the two separate parking easements areas, located on the adjacent parcel at 1050 Northgate Dr., which provides 57 off-site remote parking spaces for exclusive use by the existing hotel at 1010 Northgate Dr. Landscaping: The concept design plans do not include landscaping details When the project is submitted for formal review, Planning staff will require Landscape Plans with tree removal/preservation and new landscape planting details. Lighting: The concept design plans do not include lighting details. When the project is submitted for formal review, Planning staff will require Lighting Plans with photometric study calculations and details on all proposed lighting fixtures. Grading/Drainage: The concept design plans do not include grading or drainage details. When the project is submitted for formal review, Planning staff will require both Grading and Drainage Plans with grading and hydrology (pre -and post -project) calculations and details on the location of all proposed grading and storm water drainage systems. ANALYSIS General Plan 2020 Consistency: The General Plan land use designations for the project site are Office (0) for the smaller parcel (1005 Northgate Dr.) and High Density Residential (HDR) for the larger parcel (1020 and 1025 Northgate Dr.) The O designation allows primarily all offices though also residential uses, such as the proposed project. The HDR designation, like the O designation, allows residential densities typical of apartment development, such as the proposed project. As such, the project's proposed use is consistent with Land Use Policy LU -23 (Land Use flap and Categories). As discussed earlier in staff's report, the proposed project would not be in accordance with Land Use Policy LU -12 (Building Height) and the maximum 36' building height, based on the City's current measurement for building height (Building height is measured from finished grade pursuant to the Uniform Building Code 1997 method), without the approval of a height bonus or Exception for each of the three new building. The project also would not be in accordance with Housing Policy H-18 (Inclusionary Housing Requirements) which requires 20% of the base density to be `affordable' units. The project proposes a combined base density of 183 units and 20 'affordable' units where 37 'affordable' units are required. Staff requests the Board's guidance in evaluating the project for consistency with the following design -related General Plan Policies: Land Use Policy LU -20 ((Hotels, Motels and Inns) encourages redevelopment and upgrading of existing motels and hotels. Visitor accommodations are a desired land use because they are a low traffic -generator and a high ta-generator, and because they have identifiable benefits to the neighborhood such as job training programs. With a Use Permit, allow motels, hotels and inns in most commercial, multifamily and industrial zoning districts. Hotels are not subject to floor area ratio (FAR) requirements. The City Council may approve a height bonus in accordance Land Use Policy LU -13 (Height Bonuses) if it finds the hotel will be a significant community benefit and that the design is acceptable and consistent with the City's design policies and guidelines. • Housing Policy H-2 (Design That Fits into the Neighborhood Context) seeks to design new housing, remodels and additions to be compatible to the surrounding neighborhood. New housing development should incorporate transitions in height and setbacks from adjacent properties to respect adjacent development character and privacy. New housing development should respect existing landforms and minimize effects on adjacent properties. • Community Design Policy CD -1 (City Image) seeks to reinforce the City's positive and distinctive image by recognizing the natural features of the City, protecting historic resources, and by strengthening the positive qualities of the City's focal points, gateways, corridors and neighborhoods. • CD -3 (Neighborhoods) seeks to recognize, preserve and enhance the positive qualities that give neighborhoods their unique identities, while also allowing flexibility for innovative design. New development should respect the context and scale of existing neighborhoods. • CD -5 (Views) seeks to respect and enhance to the greatest extent possible, views of the Bay and its islands, Bay wetlands, St. Raphael's church bell tower, Canalfront, marinas, Mt. Tamalpais, Marin Civic Center and hills and ridgelines from public streets, parks and publicly accessible pathways. • CD -11 (Multifamily Design Guidelines) recognizes preserves and enhances the design elements that ensure multifamily housing is visually and functionally compatible with other buildings in the neighborhood. Develop design guidelines to ensure that new development fits within and improves the character defining elements of neighborhoods. • CD -14 (Recreational Areas) requires multifamily development to provide private outdoor areas and on-site common spaces for low and medium densities. For high density and mixed-use development, private and/or common outdoor areas are encouraged. Common spaces may include recreation facilities, gathering spaces, and site amenities such as picnicking and play areas. • CD -18 (Landscaping) recognizes landscaping as a significant component of all site design. • CD -19 (Lighting) requires project lighting at adequate levels for safety purposes while controlling light spillover and off-site glare. L ® CD -21 (Parking Lot Landscaping) requires parking lot landscaping to control heat build-up from pavement, reduce air pollution, provide shade cover for vehicles and soften the appearance of the parking lot. In addition to Land Use Policy LU -12 (Building Height) and Housing Policy H-18 (Inclusionary Housing Requirements), Planning staff believes the project would not be in accordance with Community Design Policy CD -5 (Views), which seeks to respect and enhance to the greatest extent possible, views of the Bay and its islands, Bay wetlands, St. Raphael's church bell tower, Canalfront, marinas, Mt. Tamalpais, Marin Civic Center and hills and ridgelines from public streets, parks and publicly accessible pathways. The project proposes to replace an existing single -story, 1,800 sq. ft. commercial building and gas station ("Gateway Gas"), located at 1005 Northgate Dr., with a new four-story, 46 -tall, mixed-use building, which would block public views of the hillsides within the Terra Linda -Sleepy Hollow Divide Open Space Preserve, particularly from both the Northgate Dr. and Del Presidio Blvd. intersections with eastbound Manuel T. Freitas Pkwy. The level of details provided in the concept design submittal limits Planning staff's ability to determine whether the application meets other applicable design -related General Plan Policies, including Community Design Policies CD -18 (Landscaping), CD -19 (Lighting) and CD -21 (Parking Lot Lighting); formal project application submittal will provide both landscape and lighting plans, in addition to grading and drainage plans and visual simulations of the project site from several vantage point identified by staff. Zoning Ordinance Consistency: Chapter 4 — Residential Districts The larger of the two parcels within the project site is located in the High -Density Multifamily Residential (HR1) District. Since the project proposes to subdivide the existing parcel into three new lots, both the new mixed-use and residential buildings (1020 and 1025 Northgate Dr.; respectively), plus the existing hotel (1010 Northgate Dr.), are required to meet all applicable development standards for the HR1 District, including minimum lot area (6,000 sq. ft.), maximum density (1,000 sq. ft. of lot area/unit), minimum setbacks (15' front, 5' side, 10' street side, 12' pedestrian side and 5' rear), building height (36') maximum lot coverage (60%), minimum useable outdoor area (100 sq. ft./unit) and minimum landscaping (50% of required front and street side yards). Those property development standards applicable to the project are identified in the Property Facts summary above. As conceptually designed, the project appears to comply with many of the applicable property development standards for the HR1 District with the exception of the pedestrian side setback (12' required; 5' proposed) and the building height (36' allowed; 46' proposed with height bonus), which requires a financial pro forma. During Pre - application review of the project, the City's Community Services Director commented concerns that, while the project meets the minimum usable outdoor area requirement through, principally, common areas like roof decks and podium open space, the project lacks a variety of usable amenities for the residents such as fitness facilities, meeting rooms, children's play area, swimming pool, and BBQ/picnic/fire pit areas. The level of details provided in the concept design submittal limits staff's ability to determine whether the application meets the minimum landscape requirement; formal project application submittal will be required to provide landscape plans for all three new lots and the existing smaller parcel, as well as details on the proposed outdoor area amenities.. Staff requests the Board's comments on the following: ® Whether the proposed allocation and type of required usable outdoor area is appropriate and types of amenities the Board would like provided in the common outdoor areas. Chapter 5 — Commercial and Office Districts The smaller of the two parcels within the project site is located in the Office (0) District. The proposed project will require consistency with the property development standards for the O District, including maximum density (1,000 sq. ft. of lot area/unit), minimum setbacks (20' front, 6' side, 10' street side and 20' rear), building height (36') maximum lot coverage (40%) and minimum landscaping (25% of required front and street side yards). Those property development standards applicable to the project are identified in the Property Facts summary above. As conceptually designed, the project appears to comply with many of the applicable property development standards for the O District with the exception of the building height (36' allowed; 46' proposed with height bonus), which requires a financial pro forma. The level of details provided in the concept design submittal limits staff's ability to determine whether the application meets the minimum landscape requirement; formal project application submittal will be required to provide landscape plans for all three new lots. Chapter 16 — Site and Use Regulations Affordable Housing Requirement Pursuant to Section 14.16.030 (Affordable Housing Requirements) of the Zoning Ordinance, projects proposing 21 or more housing units are required to provide 20% of the proposed units as `affordable' housing units. The project proposes to provide enough `affordable' units only to allow both density bonus units and concessions (both height bonus and parking) under the State Density Bonus law. The project proposes a total of 20 `affordable' units (11 % `affordable' housing units) where a total of 37 `affordable' units are required. Density Bonus The project proposes to provide all 20 'affordable' units at the `very -low income' household level, which would allow the project to request a 35% density bonus or a total of 65 additional `density bonus' units; the project proposes a total of 34 density units. Height Bonus Concession The project proposes a ten foot (10') height bonus for all three new buildings as a concession with their request for a density bonus under the State Density Bonus law. A height bonus concession without requiring financial pro forma is allowed only if consistent with Land Use Policy LU -13 (Height Bonuses) and Exhibit 10 of the San Rafael General Plan 2020, and Section 14.16.190 of the Zoning Ordinance. The General Plan allows specific height bonuses in specific locations for projects that propose specific amenities. A 12' height bonus is available citywide for hotels; however, the project does not propose to construct or reconstruct a hotel. The project proposes to construct three new mixed-use or residential buildings and preserve the existing hotel on the project site while incorporating approximately 16,000 sq. ft. of ancillary hospitality amenities for the hotel in one of these new buildings. The proposed project does not meet these specific requirements to be granted a height bonus under the General Plan and the Zoning Ordinance without requiring a financial pro forma. Parking Concession The project also proposes to utilize the State parking rates as a concession with their request for a density bonus. Under the State parking rates, studio and one -bedroom units require one (1) on-site parking space and two- and three-bedroom units require two (2) on-site parking spaces, inclusive of ADA -accessible and guest parking spaces. The project proposes a total of 217 new units (139, one - bedroom units and 78, two-bedroom units) requiring a total of 295 on-site parking spaces. While the residential component of the project meets the State parking rates, Planning staff has determined that the proposed relocation of the hotel's hospitality amenities (restaurant and ballroom space) from 1010 Northgate Dr. to the new mixed-use building on a new lot 1020 Northgate Dr.) would need to be reviewed by a parking study to determine the appropriate parking requirement. Creek Setback The north fork of the Gallinas Creek is located along the entire west property boundary of both parcels within the project site. Pursuant to Section 14.16.080 of the Zoning Ordinance, the appropriate creek setback for the project is determined through the review of setback criteria, including a biological report. Section 14.16.080 further requires lots two or more acres in size, like the larger parcel within the project site, require a minimum setback of 25' between any structure and the high top of creek bank and lots less than two acres in size, like the smaller parcel within the project site, should provide a minimum setback of 25'. The project proposes a minimum 10' creek setback on the smaller parcel within the project site and a minimum 35' setback on the larger parcel. During Pre -application review of the project, the City's Acting Public Works Director commented that the minimum 25' creek setback should be also applied to the smaller parcel within the project site to help facilitate the development of uniform public access and improvements along the entire creek and through both parcels within the project site, irrespective of biological evaluation. A 35' -wide 'greenbelt' easement currently encumbers the entire west property boundary of the larger parcel. During formal project application submittal, staff will require a biological report, with an assessment of the existing biological conditions along the west property boundary of the smaller, to help determine the appropriate creek setback on the smaller parcel. Staff requests the Board's comments on the following: o Whether a minimum 25' creek setback should be applied to the smaller parcel (1005 Northgate Dr.) to help provide uniform public access and improvements along the entire creek and through both parcels within the project site. Chapter 18 — Parking Standards The project proposes the use of mechanical parking lifts or "parklifts" to partially meet the parking required on the smaller parcel of the project site (1005 Northgate Dr.). These proposed `vertical' parking spaces are a departure from the parking facility design envisioned by the Parking Standards of the Zoning Ordinance, which is providing parking on a horizontal configuration. A Parking Modification will be required, through a Use Permit, with the recommendation of both the Community Development Director and the Public Works Director. During formal project application submittal, staff will require details on the "parklifts" and their operation. The remainder of the parking proposed by the project would meet the design standards for parking space dimensions (both standard and compact), drive aisle width and percentage of compact spaces. Pursuant to Section 14.18.050 of the Zoning Ordinance, the proposed 2,000 sq. ft. of ground -floor commercial space on smaller parcel will require an off-street loading/unloading space or area, with minimum dimensions of 10' (width) x .35' (length) x 14' (height), adequately screened from public view and not located within the required front or street side yards. During formal project application submittal, staff will also require details be provided on the required loading/unloading space. On the larger parcel within the project site, a portion of the approved hotel parking, along with the hospitality amenities for the hotel (restaurant and ballroom), are proposed to be relocated to the new mixed-use building on a new lot (1020 Northgate Dr.). This parking condition, where the required parking for a use is located on a separate lot, requires Use Permit approval with the recommendation of both the Community Development Director and the Public Works Director. Upon the Use Permit approval for the remote parking area, the owner of 1020 Northgate Dr. will need to memorialize the remote parking area through the creation of a restricted -use easement and the execution and recordation of a deed restriction prior to occupancy. Pursuant to Section 14.18.240 (D) of the Zoning Ordinance, the proposed relocation of the hospitality amenities for the hotel (restaurant and ballroom) to the new lot (1020 Northgate Dr.) represents a change in the manner of approved operation of the hotel and require re-evaluation of the required parking for the relocated hotel amenities. The project proposes to relocate 116 existing surface parking spaces to 1020 Northgate Dr. Pursuant to Section 14.18.040 of the Zoning Ordinance, a parking study will be required, at the time of formal project application submittal, to determine the appropriate parking required meet the demands of the relocated hospitality amenities for the hotel. The proposed parking for the project is aggressive but allowed as a concession under the State Density Bonus law. During Pre -application review of the parking for the project, both the City's Acting Public Works Director and the Economic Development Manager commented concerns with the lack of guest parking and the operation of "parklifts" proposed by the project. Staff requests the Board's comments on the following: • Whether the proposed use of mechanical parking lifts or "parklifts" are appropriate in meeting the parking requirement for the project. Chapter 22 — Use Permits As discussed earlier in staff's report, Use Permit approval will be required for both the proposed Parking Modification, for the design and operations of the "parklifts" and the relocated or remote parking for 116 parking spaces from the hotel (1010 Northgate Dr.) to the adjacent new mixed-use building on a new lot (1020 Northgate Dr.). Chapter 25 — Environmental and Design Review Permit The project will require Environmental and Design Review Permit approval by the Planning Commission given that it proposes to construct a new residential structure on vacant property located within 100' vertical feet of a ridgeline (Major Physical Improvement per Section 14.25.040(A)(1) of the Zoning Ordinance). The pertinent review criteria for Environmental and Design Review Permits, pursuant to Section 14.25.050 (Review Criteria; Environmental and Design Review Permits), are as follows: Site Design. Proposed structures and site development should relate to the existing development in the vicinity. The development should have good vehicular and pedestrian circulation and access. Safe and convenient parking areas should be designed to provide easy access to building entrances. The traffic capacity of adjoining streets must be considered. Major views of theSan Pablo Bay, wetlands, bay frontage, the Canal, Mt. Tamalpais and the hills should be preserved and enhanced from public streets and public vantage points. In addition, respect views of St. Raphael's Church up "A" Street. Architecture. The project architecture should be harmoniously integrated in relation to the architecture in the vicinity in terms of colors and materials, scale and building design. The design should be sensitive to and compatible with historic and architecturally significant buildings in the vicinity. Design elements and approaches which are encouraged include: a) creation of interest in the building elevation; b) pedestrian -oriented design in appropriate locations; c) energy-efficient design; d) provision of a sense of entry; e) variation in building placement and height; and f) equal attention to design given to all facades in sensitive location. • Materials and colors. Exterior finishes should be consistent with the context of the surrounding area. Color selection shall coordinate with the predominant colors and values of the surrounding landscape and architecture. High-quality building materials are required. Natural materials and colors in the earth tone and wood tone range are generally preferred. Concrete surfaces should be colored, textured, sculptured, and/or patterned to serve design as well as a structural function. • Walls, Fences and Screening. Walls, fences and screening shall be used to screen parking and loading areas, refuse collection areas and mechanical equipment from view. Screening of mechanical equipment shall be designed as an integrated architectural component of the building and the landscape. Utility meters and transformers shall be incorporated into the overall project design. • Exterior Lighting. Exterior lighting should provide safety for building occupants, but not create glare or hazard on adjoining streets or be annoying to adjacent properties or residential areas. • Landscape Design. Landscaping shall be designed as an integral enhancement of the site and existing tree shall be preserved as much as possible. Water -conserving landscape design shall be required. A landscaped berm around the perimeter of parking areas is encouraged. Smaller scale, 10 seasonal color street trees should be proposed along pedestrian -oriented streets while high - canopy, traffic -tolerant trees should be proposed for primary vehicular circulation streets. The review criteria for Environmental. and Design Review Permits require that the proposed design (architecture, form, scale, materials and color, etc.) of all new development 'relate' to the predominant design or 'character -defining' design elements existing in the vicinity. The project site is truly unique geographically which makes determining the predominant design character difficult. A majority of the site is located on top of a knoll, 25' above the street grade along both the Manuel T. Freitas Pkwy and U.S. Highway 101 frontages. The existing five -and six -story hotel on the project site has an office -like appearance. Similarly, an existing six -story office building (1050 Northgate Dr.) is located at the base of the knoll, between the larger hotel parcel with the project site and Manuel T. Freitas Pkwy. A 60' -wide easement for the north fork of Gallinas Creek is separates the project site from the existing one- and two-story co-op apartments (San Rafael Manor). The project proposes a contemporary design for each new building with a consistent earthtone/woodtone material and color palette, which provides a unifying visual form among the three new buildings. Cant bay window projections (4' projections), `Juliet' or 'French' balconies, and roof decks (two of the three new buildings; 1005 and 1025 Northgate Dr.) help to create a more residential character along the building facades. The other exterior colors and materials proposed for the building facades -- `rough-hewed' stamped natural concrete walls along the ground -floors and more finished plaster cements stucco upper -stories in multiple earthtones/woodtones shades with expansive trim areas of horizontal lap fiber - cement siding in a light -gray or off-white color and limited, focal use of weathering or `Corten' steel panels which will create a rust -like appearance over time — also help to create a more residential character along the building facades. A Material and Color Board has been prepared by the applicant and will be presented during the Board meeting. Planning staff believes, generally, the proposed design of the two new buildings on the larger hotel parcel is consistent with the review criteria for design review permits, as long as the height bonus concession can be supported with a financial pro forma. As discussed earlier in staff's report, staff has concerns with the proposed four-story scale of the new mixed-use building proposed on the smaller parcel of the project site (1005 Northgate Dr.) significantly impacting the existing public views of the open space hillsides from vantage points at the intersections of eastbound Manuel T. Freitas Pkwy and both Northgate Dr. and Del Presidio Blvd. Staff believes a 1 to 2 -story scale building at 1005 Northgate Dr. is more appropriate and would reduce the visual impacts on public views of the open space hills to `less -than -significant'. The level of details provided in the concept design submittal limits Planning staff's ability to comment on the exterior lighting or site landscaping; formal project application submittal will provide both lighting and landscape plans, in addition to grading and drainage plans and visual simulations of the project site from several vantage points identified by staff. Staff requests the Board's comments on the following: ® Whether the proposed general building design (architecture, scale and exterior colors and material) is appropriate for the project site. ® Whether the proposed four-story building scale for the smaller parcel within the project site (corner of Northgate Dr. and Manuel T. Freitas Pkwy; 1005 Northgate Dr.), in particular, is appropriate given its potential impacts on public views of open space hillsides. San Rafael Design Guidelines: Planning staff requests the Board's guidance in evaluating the project for consistency with the following applicable Residential Design Guidelines: 11 Building Design • Where there is an existing pattern, particular attention should be given to maintaining a consistent streetscape. • All building facades should be varied and articulated. Long monotonous walls should be avoided. • Attention should be paid to the street- and Canal -front facades of buildings by incorporating similar materials and details. Scale • Where necessary to replicate existing patterns or character of development, design techniques should be used to break up the volume of larger buildings into smaller units. For example, a building can be articulated through architectural features, setbacks and varying rooflines to appear more as an aggregation of smaller building components. • Transitional elements, such as stepped facades, roof decks and architectural details that help merge larger buildings into an existing neighborhood should be used. Building Height • Adjacent buildings should be considered and transitional elements included to minimize apparent height differences. Roof Shapes • Where possible, relate new roof form to those found in the area. • Rooftop equipment should be screened from view and integrated into the building architecture. • The visual impact of roof vents should be minimized. Building Entrances • There should be a clear, well-defined sense of entry from the street to the building. • Examples of elements that can be used to define the primary entrance and to further define the street facade are a usable front porch or verandas, an overhead trellis canopy, or other similar feature. Windows • The placement and size of windows in the building should be consistent with the overall building design and the neighborhood streetscape. Where windows do not reflect an existing pattern, greater attention should be paid to other means such as balcony overhangs, porches, materials, colors, etc. of articulating the fagade. • Window proportions should be consistent with the proportions of the building and with other windows on the building. • Windows should overlook the street, parking and public areas to permit surveillance and increased safety. • Window placement along rear and side elevations should consider privacy needs of adjacent neighbors. Driveways and Parking Areas • Driveway cuts and widths should be minimized, in compliance with zoning. • Minimize large paved areas, for example by using alternative materials (i.e., turf block, stamped concrete or pavers). • For multifamily buildings, parking should be distributed to provide easy access to the units and/or building entrances. Visible front or structured parking should be screened, landscaped or have an articulated design. 12 Front Landscapinq and Fences ® Landscaped front yards should contribute to the overall visual quality of the neighborhood and to create a strong landscaped character for the site. ® Fences in front and street side yards should include detailing in character with the residential design. ® Landscaped areas adjacent to sidewalks are encouraged. Lightinq ® Limit the intensity of lighting to provide for adequate site security and for pedestrian and vehicular safety. ® Shield light sources to prevent glare and illumination beyond the boundaries of the property. ® Light fixtures should complement the architecture of the project. Planning staff has no additional comments concerning the conceptual site and building design beyond those listed elsewhere in this report. Subdivision Ordinance Consistency The project proposes a 20,318 sq. ft. exchange of land from the larger parcel within the project site to the smaller parcel, nearly doubling the size of the smaller parcel, from 24,459 sq. ft. to 44, 777 sq. ft. This proposed exchange of land will require approval of a Lot Line Adjustment, which shall be submitted concurrently with the other project entitlements. The project also proposes to subdivide the larger parcel on the project site into three (3) new lots. This subdivision will require review and approval of a Tentative Parcel Map either concurrently with the other project entitlements or as a condition to project approval with subsequent review and approval separately. The new lots need only meet the minimum 6,000 sq. ft. size requirement and provide access to Northgate Dr. through a private right-of- way or private street with adequate width and configuration for emergency service vehicles and appropriately measures implemented to guarantee permanent maintenance through the recordation of an easement. NEIGHBORHOOD CORRESPONDENCE Notice of hearing for the project was conducted in accordance with noticing requirements contained in Chapter 29 of the Zoning Ordinance. A Notice of Public Hearing was mailed to all property owners and occupants within a 300 -foot radius of the project site and the appropriate neighborhood group (the North San Rafael Coalition of Residents), a minimum of 15 calendar days prior to the date of this hearing. Additionally, notice was posted on the project site, along both the Manuel T. Freitas Pkwy and Northgate Dr. frontages. (Planning staff has determined to enlarge noticing to 1,000' during all meetings and hearings for formal project application submittal review and to include the Mont Marin -San Rafael Homeowner's Association, Santa Margarita Neighborhood Association, Terra Linda Homeowner's Association, Villa Marin Homeowner's Association, Quail Hill Townhomes Homeowner's Association, Contempo Marin Homeowner's Association and the Smith Ranch Homes Homeowner's Association.) Staff received four (4) email comments (Exhibit 3) on the concept project resulting from this notice. Alan Goldfarb (1004 Los Gamos Rd. Apt. #B). Corey and Polly Shultz (1036 Los Gamos Rd. Apt. #D), Julia Wayland (1008 Los Gamos Rd. Apt. #E) and Richard Olive (1012 Los Gamos Rd Apt. #H), all residents at San Rafael Manor, a co-operatively owned apartment development located immediately west of the project site, across from Gallinas Creek, expressed the following concerns about the project: Traffic. Vehicular access to/from the project site is by way of Northgate Drive only. The project will place significant additional demands on existing streets and intersections along Manuel T. Freitas Pkwy, which is already impacted by traffic; 13 ® Density and Height Bonuses. The proposed density and building height bonuses would create a development that is out of scale with the surrounding single-family neighborhood and without justification. • Commercial Space. The 2,000 sq. ft. ground -floor commercial space proposed for the smaller parcel in the project site (1005 Northgate Dr.) is unnecessary due to the proximity to the existing commercial development in the immediately vicinity (Northgate Mall, Northgate I Shopping Center and Northgate III Shopping Center); • Noise. The temporary construction impacts of the project, predominantly noise, would adversely affect the San Rafael Manor residents; ® Environmental Impacts. The project poses unknown environmental risks, particularly with the removal of the Gateway Gas infrastructure, including dust, particulate matter and overall air quality; and ® Property Values. The project, and its grading and construction activities, will negatively affect the property values in the neighboring San Rafael Manor residential development. CONCLUSION Though the concept design submittal, generally, appears to meet many of the applicable General Plan policies, development standards for the HR1 and O Districts and review criteria for Environmental and Design Review Permits, the project is not compliance with General Plan policies and Zoning regulations regarding maximum building height, minimum affordable housing, parking and public views, as discussed earlier in staff's report. At the time of formal project application submittal, staff will require a a financial pro forma, biological assessment, visual simulations, parking and traffic studies, landscape, grading and drainage plans, geotechnical investigation and hydrology reports, and an amenities plan for the common outdoor areas proposed by the project. Staff requests the Board provide direction on the points specified in the Analysis section of this report and any other additional plans, details and materials that the Board would like to see when the proposed project returns for formal review. Following the Board's comments, the applicant will submit their formal project application. EXHIBITS 1. Vicinity Map 2. Reduced Project Plans 3. Public Comments Full-sized and reduced color plans have been provided to the DRB members only. cc: David Trachtenberg — Trachtenberg Architects; 2421 Fourth St.; Berkeley, CA 94710 San Rafael Hillcrest, LLC — 1801 Century Park East, Suite 2400; Century City, CA 90067 San Rafael Commercial, LLC -- 1801 Century Park East, Suite 2400; Century City, CA 90067 North San Rafael Coalition of Residents — Carolyn Lenert; P.O. Box 6449; San Rafael, CA 94903 14 1005 - 1010 Northgate Dr. I MaLk "O?e SCALE 1 :2,086 100 0 100 200 300 FEET Rl N EXHIBIT I A Wednesday, September 02, 2015 11:24 AM AN SCALE 1 :2,086 100 0 100 200 300 FEET Rl N EXHIBIT I A Wednesday, September 02, 2015 11:24 AM Lo z _CD - • L. 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U) Lo N \) O � 0 ®LU® 2 \ §} Lo \ § \ \ } ; |)|'§ \ \ 04 F- / ! Gd a 2 o « § | ■|9 |g jig A/} 2 m 3 ; w U) Lo N \) O � 0 - � \� y d| _._ §( §f � UJ w 2§! § § \ § \ y LO% |(|'| ui ) \ }CDcm ` u ) O o< Z�®n. Mi,6\ - � \� y d| _._ §( §f � \ ui W \ \ LL j_ / � � § \ C, ui N t) ■ § :!.! g \ )\; | § J |ri4} . !2; z m I ~ ( ®Ga; ' §h§ e e ; L % I 67 / q z) § y! $ z 0) §) Mow |r|; )/} co ui N O � I�A 1� (D ui N O � � } \ §\/ : - q \ \ ( ) §\ $ � k � § |■|;§ /9 0 < ± z r ® § ! !(§ I�A 1� (D ui N O � � } Steve Stafford From: Richard Olive <ollipops@comcast.net> Sent: Tuesday, September 01, 2015 4:16 PM To: Steve Stafford Cc: Richard Olive Subject: Projects 1005, 1010 Northgate Dear Mr. Stafford: As a resident of San Rafael Manor, I am expressing my deep concern and reservations about the captioned project, which clearly will have a profound impact on my neighborhood. (I reside at 1012 Los Gamos Drive, Apt. H, just across the slough from the Gateway gas station). Even before hearing details about the proposed projects, I can envision numerous negative impacts, including the following: 1) The addition of 217 residences adjacent to San Rafael Manor and the prospect of some 500 more residents to the neighborhood will place significant added demands on the infrastructure, including roads and sewer lines; 2) the addition of more than 200 motor vehicles to this neighborhood will strain traffic flow to levels approaching the intolerable, particularly during the regular commute. Intersections at the corners of Northgate and Freitas Parkway and the one immediately to the south already are scenes of an unusually high number of traffic accidents from drivers attempting to make turns at those locations. Installing a left -turn arrow at the Northgate-Freitas intersection to accommmodate cars exiting the proposed project sites would cause even worse backups than the currently intolerable ones currently existing on southbound Freitas Parkway traffic bound for Highway 101 north and south. (Currently, there are two traffic signals at the Northgate-Freitas intersection that impede the Freitas Parkway traffic flow); 3) adding three more four-story buildings will have an unfavorable effect on the neighborhood's esthetics, pleasing to the eye because of relatively unimpeded views of surrounding hills; 4) the scope of the captioned projects will add for some time to the noise level of the neighborhood, which is already affected by traffic flow on 101, notwithstanding the wall built to reduce that noise; 5) excavation for the new buildings, particularly at the site of the Gateway gas station, poses undetermined environmental risks as dust and other particles take to the air; 6) 1 anticipate that the project and its construction will impact negatively the value of my property and that of my neighbors in this cooperative living arrangement. Very truly yours, Richard Olive 1012 Los Gamos Road Apartment H San Rafael 94903 EXHIBIT 3 Steve Stafford From: Polly Shultz <pollycoreyben@gmail.com> Sent: Sunday, August 30, 2015 9:20 PM To: Steve Stafford Subject: Proposed Project: 1005 and 1010 Northgate Drive Dear Mr. Stafford, I am a resident at San Rafael Manor, inc. at 1036 Los Gamos Rd unit D. Our co-op is just across the creek from the proposed project, and consists of 160 one -and two story owner -occupied units. Many of those who have received notices of the Design Review Board meeting are concerned about the proposed project, even though we have only minimal information at this time. Fire Safety: Does San Rafael Fire Department have the ability to adequately serve these high-rise buildings? Density impact: The proposal is not in harmony with the surrounding neighborhood. These three proposed 46 - foot tall buildings, for some unknown reason, will receive height and density bonuses. Why, bonuses, when it is way out of scale with the surrounding single-family neighborhood. Traffic Impacts: Northgate Drive is the only access street to the project, a very steep two-lane street. It will funnel traffic onto Freitas and Northgate through an already busy intersection that already requires to wait through two traffic signal cycles. Commercial Development: In addition to resident development, some 2,000 square feet of commercial development is proposed for a site that is just across the street from the Northgate shopping area which has almost every conceivable need in Terra Linda. Construction alone would have a huge impact on our co-op (noise, pollution, etc) since we just on the other side of the channel. My wife and son both have asthma. This is not a short term project and could go on for years at our expense. I think it would be good to say that: This proposal looks like another "WinCip" project. Too much development in too little space. It's way out of scale for our low density neighborhood, and will further exacerbate our street traffic. It will loom over our homes like a dark cloud! Thank you, Corey and Polly Shultz 1036 Los Gamos Rd. Apt D San Rafael CA 94903 Steve Stafford From: Julia Wayland <juliawayland@comcast.net> Sent: Saturday, August 29, 2015 10:19 PM To: Steve Stafford Subject: Proposed Project/1005, 1010 Northgate Dr. Dear Mr. Stafford, My family and I are homeowners at the San Rafael Manor co-op on Los Gamos Road in Terra Linda. We are shocked and extremely concerned about the proposed project at 1005 and 1010 Northgate Drive. These sites are just steps away from our homes. As residents who know the neighborhood and the already heavy noise and traffic density, we cannot imagine the impact and congestion the proposed development would have on all the existing homeowners. This is a very tight intersection and it already has burdensome waits at the traffic lights to access the Northgate Mall and the entrance to Highway 101. We feel strongly that this project should be scaled back dramatically so that it does not ruin the "livability" of our already squeezed, but beloved streets. We will be in close contact with you with more detail regarding our many objections and concerns. Thank you so much for your careful consideration of the welfare of our neighborhood. Sincerely, Julia Wayland 1008 E Los Gamos Rd. San Rafael, Ca 94903 Steve Stafford From: A. Goldfarb <goldfarb80@gmail.com> Sent: Friday, August 28, 2015 12:26 PM To: Steve Stafford Subject: Proposed Project: 1005 and 1010 Northgate Drive Steve, thank you for your prompt return of my call and for responding to some preliminary concerns regarding the subject development in Terra Linda. I am a resident of San Rafael Manor, Inc., at 100.4 B, Los Gamos Rd. Our co-op is just across the creek from the proposed project, and consists of 160 one- and two-story owner -occupied units. Many of those who have received notices of the Design Review Board meeting are concerned about the proposed project, even though we have only minimal information at this time. Here are some of the issues: Traffic Impacts: Northgate Drive is the only access street to the project, a very steep two-lane street. It will funnel traffic onto Freitas and Northgate through an already busy intersection that already requires vehicles to wait through two traffic signal cycles. Density impact: The proposal is not in harmony with the surrounding neighborhood. The three proposed 46 - foot tall buildings, for some unknown reason, will receive height and density bonuses. Why bonuses, when it is way out of scale with the surrounding single-family neighborhood? Commercial development: In addition to resident development, some 2,000 square feet of commercial development is proposed for a site that is just across the street from the Northgate shopping area, which already serves almost every conceivable need in Terra Linda. Fire Safety: Does the San Rafael Fire Department have the ability to adequately serve these high-rise buildings? Other Impacts: Construction alone would have a huge impact on our co-op (noise, pollution, etc.) since we are only a stone's throw away. These are only my preliminary concerns. Other neighbors will also be contacting your office. Thank you. Alan Goldfarb 1004 B, Los Gamos Rd. San Rafael, CA 94903