HomeMy WebLinkAboutDRB 2019-07-16 #3II L
SAN RAFAE L
THE CITY WITH A MISSION
munity Development Department — Planning Division
Meeting Date:
Case Numbers
Project Planner:
Agenda Item:
REPORT TO DESIGN REVIEW BOARD
July 16, 2019
P18-009
Raffi Boloy - ) 485-3095
SUBJECT: Senate Bill (SB 35) Objective Planning Standards — Review of draft "objective" planning
design standards and for a ministerial ("by -right") process required by Senate Bill (SB 35).
APN: Citywide, File No: P18-009.
SUMMARY
In response to recent State legislation, local jurisdictions are required to have a ministerial, "by -right"
process for qualifying residential development projects of two or more dwelling units located near major
transit stops. Qualifying projects must comply with "objective planning standards" established by the
local jurisdiction, must provide specific levels of affordable housing, and must meet other specific
requirements. "Objective planning standards" must be prescriptive, meaning they cannot be subjective
or structured to exercise discretion. Developers pursuing a request for streamlined ministerial review
are required to pay prevailing wage for construction. Draft standards have been prepared for review of
and input by the DRB and Planning Commission and adoption by the Council.
BACKGROUND
In 2017, Governor Brown signed Senate Bili 35 (SB35), which established new housing development
legislation under State Government Code Sections 65400, 65582.1 and 65913.4. SB 35 became
effective on January 1, 2018. The new legislation created a mandated, ministerial ("by -right") process
forqualifying residential development projects. One of the requirements to be eligible as a qualifying
project is that developers pursuing a request for streamlined ministerial review are required to pay
prevailing wage for construction and meet the following requirements: 1) include two or more dwelling
units; 2) must be located near a major transit stop; 3) provide certain levels of affordable housing; and
4) meet other specific requirements (described below).
More specifically, SB 35 identifies the following criteria whether a project qualifies for streamlined SB
35 review:
• The project proposes to develop at least two residential dwelling units;
• The project is proposed to be developed on a legal parcel with 75% of its perimeter contiguous
parcels developed with urban uses and zoned for, or designated in the San Rafael General
Plan to allow, residential or residential mixed-use;
• At least two-thirds (2/3rds) of the proposed development is designated for residential use;
• The project must provide an affordable housing component projects containing 10% or more of
the total residential unit count affordable to households making below 50% - 80% (low income)
of the area median income for Marin County. The required affordability housing can change
annually, based on a City's housing production in the prior year, as documented in the Annual
Housing Report required to be filed annually (each April);
• The project meets all applicable "objective planning standards" developed by the City;
0 Meet the following minimum -required parking requirements:
o One parking space per unit shall be required for qualifying projects that are more than
1/2 -mile of public transit.
o No off-street parking is required for qualifying projects that: 1) are within 'h -mile of public
transit; 2) are located within a historic district; 3) are in an area where on -street parking
permits are required but are not offered to the occupants of the development; or 4) are
within one block of where a car -share vehicle is available.
• The project applicant must certify that it will comply with the following wage requirements
defined in Government Code Section 65913.4(a)(8):
o If the development is not in its entirety a public work project (as defined in Labor Code
section 1720 et seq.), all construction workers employed in the development of the
project must be paid at least prevailing wages, unless the project includes 10 or fewer
units and does not require a subdivision. For projects that require a subdivision or that
propose 75 or more units that are not 100 percent subsidized affordable housing,
prevailing wages must be paid and a skilled and trained workforce, as defined in
Government Code section 65913.4(a)(8)(13)(ii), must be used to complete the
development.
This legislation was coupled with Senate Bill 879 (SB 879), which set forth new annual reporting
requirements on housing approvals and construction to the State Department of Housing and
Community Development (HCD). SB 879 establishes the amount of affordability required to qualify for
SB 35 streamlined review. The required affordability can change annually, based on the prior years'
housing production. The affordability to be included in a project to be eligible for SB 35 streamlined
review is established, as follows:
• 10% for cities that do not submit their annual housing production report to the state or
do not produce the required number of above moderate income units (<120% county
median income).
• 50% for cities that do not submit their annual housing production report to the state or
do not produce the required number of low income units (50%-80% of county median
income),
For 2019, the threshold for projects to be eligible in San Rafael is 10%, based on San Rafael's housing
production during 2018. This requirement can change annually.
Under SB 35, City's are required to review qualifying projects using a ministerial, "by -right", review
process, which means that no discretionary approvals can be required, and the City is required to
process applications within the time frames specified in Government Code Section 65913.4(c) (cited
above). The review process would be also be streamlined because, as a ministerial project, the project
would not be subject to environmental review under the California Environmental Quality Act (CEQA).
For San Rafael, that means that qualifying projects would not be required to apply for a Use Permit
(when required by the Code) or Design Review Permit or go through DRB review or any public hearing
or discretionary planning process as is typically required. Therefore, the ministerial, "by -right", process
would be similar to the processing of a building permit, where staff would review the application to
determine whether it qualifies and if so, confirm it meets the City's objective planning standards. There
would be no public hearing, or public process for qualifying projects.
"Objective planning standards" must be prescriptive and quantifiable, meaning they cannot be
subjective or structured to exercise discretion, require no personal or subjective judgment and must be
verifiable by reference to an external and uniform source available prior to submittal.
2
In November 2018, the City Council adopted enabling legislation through a Zoning Ordinance
amendment establishing the required ministerial review process. Section 14.16.245 was adopted
(Ordinance 1964) and states
14.16.245 - Ministerial "by -right" process for multi -family housing projects.
A residential housing development project that contains two (2) or more residential units located
on one or more contiguous parcels may qualify for the state -mandated ministerial, "by -right"
approval process. Pursuant to California Government Code Section 65913.4, the "by -right, "
ministerial process is applicable to qualifying residential development projects that are located.
near major transit. The availability of the "by -right" approval process is determined by the city's
annual housing progress report to the state department of housing and community
development. Qualifying residential projects must: a) comply with a list of objective planning
standards; b) meet specific levels of affordable housing, and c) be subject to a commitment to
specific hiring (skilled and trained workforce) and prevailing wage requirements. The
applicability of and requirements for the "by -right" process shall be adopted by resolution of the
city council.
This Ordinance established the authority and the framework for the ministerial, "by -right" process.
To date, the City has not received any applications for ministerial, streamlined review under SB35. At
this point, the City's only objective planning standards are the development standards for the zoning
district in which the project is location, such as setback, height, lot coverage, and landscaping
standards of the base zoning district.
PROJECT DESCRIPTION
The next step to complete the required ministerial, "by -right" process and ensure that the City has
some standards to address design in the "by -right" process is to develop the objective planning
standards. Therefore, staff has prepared the attached draft SB 35 of objective planning standards.
There are three components of these draft standards:
• Attachment 1 provides the summary of the requirements that project must meet in order to
qualify for the ministerial by right process;
• Attachment 2 identifies objective planning standards drafted by staff for the downtown area
(Table 1); and
• Attachment 3 identifies objective planning standards drafted by staff for the all other areas
of the City (Table 2)
Given the differences in character of the downtown from the rest of the City, two separate objective
planning standards have been prepared, one for downtown and one for rest of the City.
On a separate track, the City is applying for funding under a State Grant (Senate Bill SB 2), and one of
projects applied for is to develop graphics to accompany these objective planning standards. If the
funding is obtained, staff will contract with a design professional to develop supportive graphics and
present those to the Board for review.
ANALYSIS
In developing the SB 35 "objective planning standards" staff used existing design criteria, fine tuning
the criteria to be as objective and quantifiable. Sources used to develop these draft standards include:
San Rafael General Plan 2020 (primarily the Neighborhood and Community Design Elements), San
Rafael Zoning Ordinance. Downtown Vision, Good Design Principles for Downtown, and Residential
Design Guidelines.
Staff is referring this to the Board for their review and recommendation on these standards. The key is
that any new standards must meet the objective planning standards definition..."Objective planning
standards" must be prescriptive and quantifiable, meaning they cannot be subjective or structured to
exercise discretion, require no personal or subjective judgment and must be verifiable by reference to
an external and uniform source available prior to submittal."
The draft objective planning standards in Tables 1 and 2 include reference to development standards,
such as height, parking, setback, lot coverage, etc. Development standards are inherently objective
and quantifiable. In an attempt to ensure some level of design standards for these ministerial projects,
staff has incorporated many of the design principles that are found in the above sources and attempted
to make them as objective and quantifiable as possible.
Therefore, staff requests that the Board review the attached Tables 1 and 2 containing the draft
objective planning standards and provide the following recommendations:
• Are the proposed objective planning standards appropriate and objective. If not, please
provide some recommendations on how to improve them;
• Are there other objective planning or design standards that can be added to these tables
to ensure high quality design; and
• Provide any other feedback on the proposed process and objective design criteria
NEIGHBORHOOD CORRESPONDENCE
Notice of this meeting was mailed to all neighborhood groups/homeowner associations within the City,
as well as other commercial and housing advocacy groups.
At the time of publication, staff had not received any public comments. Any comments received after
the reproduction of this staff report, will be forwarded to the Board under separate cover
CONCLUSION
Although the City of San Rafael officially opposed S1335, as it undermines a City's control on design
and process for evaluating new development, the State Legislature in their role has determined that
such changes are necessary to eliminate discretionary processes that Cities use to evaluate projects
and thereby support and encourage additional development of housing.
Given the passage of this state law, the City must ensure that we have as many appropriate tools as
allowed by the State law to ensure that any project which applies for SB 35 review is designed as best
as it can be. The key is to develop objective planning/design criteria, that are not subjective and can be
confirmed without using any subjective discretion.
Therefore, development of the proposed objective planning criteria is critical in making the best of this
situation.
EXHIBITS
1. Draft SB 35 Standards/process and eligibility criteria
2. Table 1 - Residential Development Project Ministerial Review (Sb 35) "Objective Planning
Standards" Requirements for Downtown Zoning Districts
3. Table 2 - Residential Development Project Ministerial Review (Sb 35) "Objective Planning
Standards" Requirements for Non -Residential & Residential Districts
4
RESIDENTIAL DEVELOPMENT PROJECT MINISTERIAL REVIEW (SB35)
Background
In 2017, Governor Brown signed Senate Bill 35 (SB35), which establishes new housing
development legislation under State Government Code Sections 65400, 65582.1 and 65913.4.
The new legislation creates a mandated, ministerial ("by -right") process for qualifying residential
development projects of two or more dwelling units located near major transit. Qualifying
projects -must comply with "objective planning standards" established by the local jurisdiction,
must provide specific levels of affordable housing and must meet other specific requirements.
"Objective planning standards" must be prescriptive, meaning they cannot be subjective or
structured to exercise discretion. Developers pursuing a request for streamlined ministerial
review are required to pay prevailing wages for construction. This legislation is coupled with
Senate Bill 879 (SB879), which sets forth new annual reporting requirements on housing
approvals and construction to the State Department of Housing and Community Development
(HCD).
II. Applicability & Non -Applicability
A. The ministerial review process is applicable to projects meeting the following conditions:
1. Projects containing two or more residential units.
2. For the 2018-2019 annual housing progress reporting period to HCD, the ministerial
review is applicable to projects containing 10% or more of the total residential unit
count affordable to 50%-80% of the area median income for Marin County (low
income). This threshold can change annually, based on the results of the Annual
Housing Progress report for the prior year.
B. The ministerial review process is not applicable to projects on sites meeting any of the
following conditions:
1. The project site is located within any of the following environmentally -sensitive areas:
a. High or very high hazard severity zones (located within the Wildland Urban Interface
area);
b. Sites containing wetlands as defined by the San Rafael General Plan and Title 14 of
the San Rafael Municipal Code (Zoning);
c. Sites within the FEMA -designated floodplain and floodway unless the development
has been issued a floodplain development permit or received a no -rise certification;
d. Sites within an earthquake hazard zone (Alquist-Priolo);
e. Sites containing habitat for protected plants and/or animal species;
f. Sites encumbered by a conservation easement; and
g. Sites containing historic resources.
2. The project site has been occupied by residential tenants within the past 10 years that
would be displaced by the proposed development.
3. The project proposes to demolish housing that is subject to rent control/stabilization.
4. The project proposes a subdivision of land (residential ownership projects) unless
prevailing wages are paid for project construction.
5. The project contains one-third (1/3rd) or more of the proposed total building square
footage for non-residential use.
6. The project requires a General Plan Amendment and/or Rezoning to establish and allow
the proposed residential use.
7. The project does not comply with the provisions of Title 14 (Zoning) and requires actions
such as a Variance or Exception.
Last Updated: 7/02/2019 Attachment 1-1
RESIDENTIAL DEVELOPMENT PROJECT MINISTERIAL REVIEW (SB35)
8. The project includes a proposal for a density bonus
9. The project sponsor does not intend to use prevailing wages for construction of the
project for projects containing more than 10 residential units.
Ill. Process
This section outlines the process for ministerial review of qualifying projects. Most of the
process, timeline and action for ministerial review is prescribed by:
A. Application filing. The project sponsor shall file:
1. A General Planning Application form
2. A written narrative describing the project and demonstrating compliance with the
application criteria (Section IV, below).
3. Six copies/prints of the complete plan set. The complete plan set shall contain all the
submittal requirements prescribed for an Environmental and Design Review Permit
and/or Use Permit application.
4. A "will -serve" letter confirming availability of service from all local utilities providing
service to the project (water, sewer, electric/gas and sanitary service).
5. Written verification from Fire Department that the project will be designed to meet all
applicable provisions of the fire code.
6. A written contract confirming commitment to pay prevailing wage rates for all project
construction. The project sponsor must certify that at least one of the following is true
and is applicable to the qualifying project:
a. The entirety of the project is a public work, as defined by Government Code Section
65913.4(8)(A)(i).
b. The project is not in its entirety a public work and all construction workers
employed in the execution of the development will be paid at least the general
prevailing rate of per diem wages for the type of work and geographic area.
c. The project includes 10 or fewer units and is not a public work and does not require
subdivision.
7. Skilled and trained workforce. if the project consists of 75 or more residential units that
are not 100% subsidized affordable housing, the project sponsor must certify that it will
use a skilled and trained workforce, as defined in Government Code Section
65913.4(8)(B)(ii).
8. If the project proposes an addition to or would demolish an existing building along 4th
Street or a building listed on the City's Historic and Architectural Survey, it must first be
determined, by a qualified architectural historian, that the structure is not a historic
resource pursuant to California Environmental Quality Act (CEQA) Guidelines Section
15064.5. The architectural historian's assessment shall be submitted with the submittal
of a ministerial review application. As part of the application review, the City will
conduct a peer review of the assessment to confirm the findings.
B. Initial application review by City. Once an application is filed, the City must review the plans
and accompanying materials to determine if:
A. the development conflicts with the "objective planning standards" that are outlined
in Section V, below. This review shall include input from the Planning Division,
Building Division, Fire Department, Public Works Department, local utilities, one
Last Updated: 7/02/2019 Attachment 1-2
RESIDENTIAL DEVELOPMENT PROJECT MINISTERIAL REVIEW (SB35)
member of the Design Review Board, and one member of the Planning
Commissioner.
B. All required plans and materials and details are provided in application materials to
show adequate details and information required for review and action on
consistency with these standards.
C. Determination of compliance with "objective planning standards." The City must inform the
applicant/project sponsor in writing if the project conflicts with the "objective planning
standards" within the following time frames:
1. Within 60 calendar days of application submittal if the project contains 150 or fewer
residential units; or
2. Within 90 calendar days of application submittal if the project contains more than 150
residential units.
D. Environmental review. Qualifying applications are not subject to environmental review of
the provisions of the California Environmental Quality Act. However, if the project proposes
an addition to or would demolish an existing building along 4th Street or a building listed on
the City's Historic and Architectural Survey, it must first be determined, by a qualified
architectural historian, that the structure is not a historic resource pursuant to California
Environmental Quality Act (CEQA) Guidelines Section 15064.5.
E. Action by the Community Development Department Director.
If the City determines that the project meets the "objective planning standards" outlined in
Section V, below, an action of approval must be completed within the following time
frames:
1. Within 90 days of application submittal if the project contains 150 or fewer residential
units; or
2. Within 180 days of application submittal if the project contains more than 150
residential units.
Action of ministerial approval by the City shall be in the form of a letter from the Community
Development Director. The ministerial approval is not subject to any public notification or
public hearing. Further, as the action is ministerial, conditions of approval cannot be
imposed.
If the City determines that the project does not meet the "objective planning standards"
outlined in Section V, below, an action of denial must be completed within the time frames
listed above in Section IILE
F. Conditions of approval. Conditions of approval can be required with the issuance of the
ministerial approval. Conditions shall be limited to requirements that can be met (including
impacts fees) and improvements that can be implemented as part of the building permit
review and approval process. Conditions requiring discretion or subsequent subjective
review are prohibited.
Last Updated: 7/02/2019 Attachment 1-3
RESIDENTIAL DEVELOPMENT PROJECT MINISTERIAL REVIEW (SB35)
G. No appeal. Ministerial action by the Community Development Director cannot be appealed.
Any party grieved by the ministerial action may pursue the challenge by writ of mandate
pursuant to California Code of Civil Procedure, Section 1085.
IV. Eligibility Criteria
To be eligible for the ministerial review process, the applicant must demonstrate that the
proposed project meets all the following criteria:
A. The project proposes to develop at least two residential dwelling units;
B. The project is proposed to be developed on a legal parcel with 75% of its perimeter
contiguous parcels developed with urban uses and zoned for, or designated in the San
Rafael General Plan, to allow residential or residential mixed-use;
C. At least two-thirds (2/3 rd) of the proposed development is designated for residential use and
no more than one-third (1/3 rd) of the proposed building square footage for non-residential
square footage;
D. The project must provide an affordable housing component as specified under Section II.A.,
above.
E. The project meets all applicable "objective planning standards" presented in the table under
Section V, below.
F. The qualifying project meets the following minimum -required parking requirements:
a. One parking space per unit shall be required for qualifying projects that are more
than %-mile of public transit.
b. No off-street parking is required for qualifying projects that: 1) are within %2 -mile of
public transit; 2) are located within a historic district; 3) are in an area where on -
street parking permits are required but are not offered to the occupants of the
development; or 4) are within one block of where a car -share vehicle is available.
G. The applicant must verify that a skilled and trained workforce will be used through a
commitment to pay prevailing wage for all phases of project construction. This commitment
to pay the project workforce a prevailing wage must be demonstrated with the submittal of
written agreement or contract that is supported by financial securities.
V. "Objective Planning Standards"
Residential or mixed-use projects containing two of more units must comply with "objective
planning standards." The objective planning standards are presented in two tables: 1) Table 1,
which cover the Downtown Zoning Districts; 2) Table 2, which cover the Non -Residential and
applicable Residential Zoning Districts. Please note that the qualifying residential projects are
also permitted in the Public/Quasi-Public (P/QP) District. For qualifying projects proposed in the
P/QP District, the applicable, objective planning standards of the immediately abutting or
closest residential zoning districts shall apply.
Table 1- Requirements for Downtown Zoning Districts
Table 2- Requirements for Non -Residential & Residential Zoning Districts
Last Updated: 7/02/2019 Attachment 1-4
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