HomeMy WebLinkAboutPlanning Commission 2012-07-24 #5 CITY OF
Community Development Department – Planning Division
P. O. Box 151560, San Rafael, CA 94915-1560
PHONE: (415) 485-3085/FAX: (415) 485-3184
Meeting Date: July 24, 2012
Agenda Item:
5
Case Numbers:
ED11-091
Project Planner:
Kraig Tambornini – (415)
485-3092
REPORT TO PLANNING COMMISSION
SUBJECT: 220 Shaver Street (AT&T Telecommunications Building) – Request for
Environmental and Design Review Permit to allow construction of a mechanical room
building addition on the south side of an existing multi-story telecommunications
building; along with parking lot, landscaping and fencing modifications and
improvements; APN: 011-245-38; High Density Residential (HR1) District; AT&T,
owner/applicant. Downtown/West End environs. Case No.’s ED11-091
EXECUTIVE SUMMARY
The project consists of a 1,640 square foot, 27-foot-2-inch tall mechanical room addition proposed to an
existing 35,263 square foot telecommunications building, 36-feet tall with two-stories over a basement.
The facility is legal non-conforming in that consists of a quasi-public utility located in a residential district.
Pursuant to San Rafael Municipal Zoning Code Chapter 14.25, the project requires Planning
Commission approval as a major addition, with a recommendation provided by the Design Review
Board. The Design Review Board has reviewed and recommended approval of the project design.
The proposed addition has been designed to integrate into the site with minimal impact on the
neighborhood. The design elements are intended to be architecturally compatible with existing design
features of the building in terms of details, materials, and horizontal and vertical elements. In addition, a
substantially larger landscape planter and new fence in front of the addition are proposed with a setback
that would match the minimum HR1, 15-foot front yard standard.
The policies in General Plan 2020 and design criteria in the Zoning Ordinance Chapter 25 have been
relied on for purposes of this review. Upgrading of public facilities and infrastructure, including
telecommunications utilities, are deemed important for purposes of promoting the community safety and
general welfare. Staff concludes that the site and building design approach generally responds to the
applicable general policies, zoning standards and design criteria identified above. Staff supports
enhancements proposed along with the addition, particularly the increases in site landscaping along the
frontage.
RECOMMENDATION
It is recommended that the Planning Commission Adopt a resolution to approve the Environmental and
Design Review permit for a 1,640 square foot major addition for mechanical cooling equipment to the
existing AT&T legal non-conforming telecommunications building switching station facility.
PROPERTY FACTS
Address/Location: 220 Shaver St Parcel Number(s): 011-245-38
Property Size: 41,317 sq. ft. Neighborhood: Downtown
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 2
Site Characteristics
General Plan Designation Zoning Designation Existing Land-Use
Project Site: High Density Residential HR1 Telecommunications
North: West End Village WEV Financial Institution
South: High Density Residential HR1 Single Family Residence
East: Second/Third Mixed Use 2/3MUW Offices
West: High/Med Density Residential HR1/MR2.5 Single Family Residence
BACKGROUND
The subject property is a rectangle-shaped parcel in an HR1 district and directly adjacent to the
downtown portion of the West End Village neighborhood. The site itself lies just inside the Second/Third
Corridor of downtown. The West End and Second/Third Corridor divide at Shaver Street. The parcel is
relatively level, and lies across from residences to the west (MR2.5), adjacent to a residential use to the
south (HR1), backs up to a tall retaining wall and office use to the east (2/3MUW) and adjacent to a
commercial bank use to the north (WEV), which is also separated from the site by a tall retaining wall.
Site development consists of an existing multistory, 36-foot tall (to the parapet) telecommunications
building, with associated paved parking area and a fuel tank enclosure on the north side of the building,
and metal rooftop equipment screens. The building maintains the primary telephone switching station
infrastructure for land lines in San Rafael. Existing ancillary rooftop and parapet mounted wireless
antenna facilities have also been installed on the building, under separate permit approvals. The
characteristics of the existing development on-site are as follows:
Property Area:
Building Area & Coverage (E): 12,800 sf, 30.9%
Building Addition & Coverage (N): 1,640 sf, 3.9%
Total Building: 14,440 sf, 35%
(E) Landscaping 5,483 sf, 13.2%
(E) Parking lot paving: 21,395 sf, 51%
Total 41,317 square feet
Parking:
Use Sq. Ft. Rate Required Prov
Office 1804 sf 1/300 6 41
Quasi-Public 35099 * * *
Total 36903 41
*Total parking is determined by parking study. Currently, the site has 41 parking spaces available.
Parking for at least 25 vehicles is shown on revised plans.
The existing principal building footprint is 98 feet wide by 112 feet deep (10976sf), and contains the
following improvements on its three levels:
• Basement. This level includes a cable vault along the south side wall with telecommunications
(Telco) and building equipment areas and janitor/storage closets primarily located along the west and
north sides of the building.
• First Floor. This level contains approximately 1,188 sf of conference/office/breakroom assembly
space, as well as equipment and storage areas and restrooms located along the west and north
sides. The majority of the first floor space (approx 7,332 sf) is designated for Telco equipment.
• Second Floor. Similar to the first floor, this level contains an approximately 1,160 sf small office and
breakroom space (58’ by 20’), plus equipment and storage and restrooms along the west and north
sides. The majority of the space is also used for Telco equipment.
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 3
The project zoning application was received on November 11, 2011, after a zoning determination was
made that the building modifications would not result in an intensification of an existing legal non-
conforming use (Exhibit 4). This determination was made following and in response to a prior building
permit submittal that was made by the applicant for the proposed mechanical system upgrades. Staff
deemed the application complete and proposed to downgrade review from major to minor level pursuant
to SRMC Chapter 14.25. A Zoning Administrator hearing was scheduled for February 11, 2012 and
subsequently cancelled upon staff concluding that the downgraded level of review may not be
appropriate in this case; following comments received from the public and Commissioners in response to
the hearing notice.
The project was scheduled and reviewed by the Design Review Board on March 6, April 17 (revised
concept elevation) and June 19, 2012. Initially, the applicant had proposed fluted block construction for
the addition, which staff suggested would appear massive and out of character and scale with the
existing building. The current proposal reflects changes that have been recommended by staff and the
Design Review Board to incorporate a more generous landscape setback and enhancement of frontage
landscaping and propose a design that would be in harmony with existing materials and elements found
on the main building and character of the neighborhood. At its June 19 meeting, the Board
recommended approval of the project with the following stipulations:
¾ All four sides of the addition rooftop parapet shall be enclosed.
¾ The ends of the new awnings shall be enclosed.
¾ Pilasters must be a minimum of 16” dimension with the cap and base designed to overhang.
¾ The landscape planter in front of the fuel enclosure shall be enlarged by extending it out to the
front property line in keeping with the rest of the frontage landscaping.
¾ Add 2 column pilasters along the north entry gate to match the south gate.
¾ The stucco fascia shall include a fiber-reinforced plastic stealth screen detail that would allow the
existing cell antenna panels on the building parapet walls to be screened behind the new stucco
façade.
¾ Sound absorptive panels shall be incorporated on 100% of the area of the four interior surfaces of
the mechanical well, where the two condensers will be located. The panels shall have a Noise
Reduction Coefficient (NCR) of not less than 0.9.
¾ The applicant shall extend an underground drainage pipe from the site to the nearest stormdrain
(anticipated to lie in 2nd Street), as deemed feasible and required by the Department of Public
Works.
¾ Revise the colors to match the rendering on sheet A2.1 which would reduce the bright white
color.
¾ A paint-out shall be provided before final colors are implemented to verify that it achieves the
intent of the rendering.
¾ Provide an ongoing landscape maintenance program
PROJECT DESCRIPTION
The project consists of an exterior addition to a legal non-conforming public utility use in order to install
mechanical equipment required to service and upgrade the existing facility equipment. The project would
not increase office, meeting or other space and is solely for the purpose of upgrading and serving
existing telecommunications facility equipment. The project includes the following details:
• Building: Construction of an approximately 22 foot wide by 68 foot long by 27 foot tall (1,496 gross
sq. ft.) mechanical room addition on the south side of the existing building, setback 25-plus feet from
the existing front building façade and designed to match the materials and details of the existing
building. The addition would consist of 17’8” tall one-story room with a 9’6” tall parapet screen wall.
The wall would be stucco with vertical fins and a perforated metal screen along the parapet walls
facing west and south.
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 4
• Fencing: Installation of a new 6-foot tall slat cyclone fence and gate at least 15-feet setback from the
sidewalk.
• Landscaping: Upgrade, expansion and installation of new landscaping along the entire property
frontage, with a 15-foot landscape planter along the south frontage (area of addition).
• Parking Lot: Restriping of entire parking lot.
ANALYSIS
San Rafael General Plan 2020 Consistency:
The site is designated for multi-family residential development and located in the Downtown environs in
the Neighborhood Element; in the Second/Third Corridor (directly adjacent to the 4SRC to the north side
and WEV to the west side downtown environs). The area of downtown in which this site lies does not
have an FAR limit established by the General Plan 2020 Land Use Element, as it is designated for multi-
family use. Applicable Neighborhood Element policies include the following:
¾ NH-29. Downtown Design. New and remodeled buildings must contribute to Downtowns hometown
feel. Design elements that enhance Downtowns identity and complement the existing attractive
environment are encouraged, and may be required for locations with high visibility or for compatibility
with historic structures. Design considerations include: -varied and distinctive building designs, -
sensitive treatment of historic resources, -generous landscaping to accent buildings, -appropriate
materials and construction, and –site design and streetscape continuity.
¾ NH-32. Historic Character. Recognize and use the unique character of Downtowns many attractive,
well-liked, historic buildings. Encourage new development on sites in the Downtown area to be
compatible with nearby historic buildings, the historic Downtown street pattern, and the areas historic,
pedestrian oriented character.
¾ NH-33. Downtowns Neighbors. Distinguish Downtown from adjoining neighborhood areas by: -
establishing major entrances to Downtown with gateway treatments, -keeping all Downtown activities
within the Downtown area, and –providing a gradual transition into adjacent residential
neighborhoods in terms of building scale and intensity of use.
¾ CD-2. Neighborhood Identity. Recognize and promote the unique character and integrity of the City’s
residential neighborhoods and Downtown. Strengthen the “hometown” image of San Rafael by: -
maintaining the urban, historic and pedestrian character of the Downtown, -preserving and enhancing
the scale and landscaped character of the City’s residential neighborhoods, -improving the
appearance and function of commercial areas, and -allowing limited commercial uses in residential
neighborhoods that serve local residents and create neighborhood-gathering places.
¾ I-2. Adequacy of City Infrastructure and Services. Assure that development can be adequately
served by the City’s infrastructure and that new facilities are well planned and well designed.
¾ I-3. Availability of Utilities. Promote the availability of reliable and reasonably priced utilities
necessary for businesses and residences to prosper.
¾ I-15. Telecommunication Improvements. Ensure that residents, schools, businesses and
organizations have access to reliable, modern and cost-effective telecommunications.
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 5
Necessary upgrades to the telecommunications infrastructure are important and supported. Staff has
concluded that the addition of mechanical equipment is necessary to support and maintain the
telecommunications infrastructure in the building, which serves the San Rafael community.
The pertinent Downtown neighborhood area policies strongly encourage that the design of development
and additions respect the existing character. In this case, the predominant character consists of dense
19th century single-family downtown neighborhood development. The site is also visible from public
streets, along Shaver Street and in passing from nearby Second Street.
Zoning Ordinance Consistency:
The subject public utility use is a legal nonconforming use in the HR1 multi-family residential district.
Thus, review of an addition is required to assure compliance with the following standards:
Table 14.04.040 – Base District Standards
The property development standards require minimum setbacks of 15’ front yard, 5’ side yard, 5’ rear
yard, and 50% front yard landscaping, with a maximum 36’ height and 60-percent lot coverage. The
project complies with these requirements at the new addition and would enhance existing frontage
landscaping.
Section 14.16.260 – Site and Use Regulations
The performance standards require compliance with the City Noise Ordinance Chapter 8.13. Noise
attenuation shall be provided as necessary to ensure that existing and new equipment does not violate
City noise standards established for the area. This includes avoiding noise that would cause the following
effects:
• Generate loud or unusual noise.
• Increase noise levels in a residential district by more than 3 decibels (Ldn) or increase noise to
more than 60 decibels (Ldn), whichever restrictive.
• Exceed the residential property general noise limits of Section 8.13.040.
The noise study (Exhibit 3) evaluates the noise anticipated from the two new condenser units proposed
in the roof well of the addition. As noted in the project description, the existing cooling tower unit on the
roof of the building would be removed. The two new units are noted in the noise study to be redundant
systems with only one unit running when outdoor temperatures are significantly above 60 degrees
Fahrenheit. Thus, one cooling unit is anticipated to run during summer days, when traffic noise would
also be greatest. Table 2, on page 4 of the noise study identifies that nighttime operations of the
condenser unit is anticipated to occur between April and November, with the greatest level of activity in
the warmest summer months of July, August and September.
The study notes that the equipment’s predicted noise levels would be 38 to 40 dBA at most of the homes
nearby. This would be near or below the lowest level of noise that was recorded during the quietest times
of day. Hence, the equipment noise, including background mechanical noise from its motors and fans, is
not expected to be audible under most circumstances. The only exception to this applies to the house
directly south of the facility, which is expected to receive a noise level of up to 43 dBA when the
condenser is running. Thus, this is the only location that would experience noise levels exceeding the
City noise ordinance threshold of 40 dBA (for residential exterior noise). However, the new condenser
units would generate less noise than the existing cooling units (on the roof of the building which are to be
removed) and would not exceed the existing prevailing noise levels that are experienced at this location
due to the existing traffic. An increase in noise of up to 3 decibels is not considered to be perceptible and
did not conclude that the change in the existing noise environment would result in this level of increase.
In order to minimize the noise produced by the equipment, and to maintain compliance with the City
noise ordinance, the study recommends that the addition must incorporate sound absorptive panels on
100% of the area of the four interior surfaces of the mechanical well where the two condensers will be
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 6
located; with a Noise Reduction Coefficient (NCR) of not less than 0.9. This has been incorporated into
the project as a condition of approval. Thus, noise attenuation in the enclosure should also assure that
background mechanical noise from fans and motors should not be perceptible outside of the enclosure.
14.16.270 - Nonconforming use standards
A legal non-conforming use may continue and building additions may be made, subject to the following
criteria:
• The development shall comply with the standards of the district.
• No increase in the discrepancy between the existing conditions and standards for the district shall
result.
• No expanded intensity of operations shall result.
As noted in Exhibit 4, staff has determined that upgrades to existing mechanical equipment for primary
telephone switching station infrastructure on this site would be compliant with the nonconforming use
provisions.
Chapter 14.18 - Parking
“Grandfathered” parking rights may be maintained for existing uses. The majority of the building is for a
utility use which does not generate a significant demand for parking. The modification would not increase
the intensity of use or parking demand on this site.
Furthermore, the project proposes to incorporate finger islands near the addition and plant additional
trees, which will help soften its appearance and comply with the recommended parking lot design
standards.
Chapter 14.25 – Design Review
Major design review applies to additions over 1,250 square feet made to non-residential development.
The design review criteria state that 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, and
should enhance important community gateways, view corridors and waterways as identified in the
general plan.
Site and Building Details
The building meets all setback, height, parking and lot coverage development standards for the site and
use. Revised plans, details and materials have been provided in response to the direction given by staff
and the Design Review Board, as discussed herein. This has included requiring upgraded fencing and
landscaped frontage improvements, new façade upgrades to the existing building to reduce the building
scale and provide a more pedestrian-friendly frontage, wrapping the parapet walls around all sides of the
new addition, and incorporating existing wireless antenna panels into the new building parapet façade.
Drainage Details
The applicant and staff have been working with the Department of Public Works to identify the nearest
underground stormdrain. The applicant has agreed to extend an underground drainage pipe from the site
to the nearest underground stormdrain, which should be found at 2nd Street.
DESIGN REVIEW BOARD RECOMMENDATION
On March 6, 2012, the Design Review Board reviewed the proposed mechanical room addition for this
facility, and continued the project with direction for the applicant to address the following:
¾ Provide details on potential noise impacts
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 7
¾ Provide a design solution that will enhance the existing industrial building design and provide design
solutions to integrate with the project with the existing residential neighborhood character.
¾ Provide more detailed plan information to explain why the project is necessary and evaluate if there
are any other solutions.
¾ Resolve the existing drainage runoff condition.
On April 17, 2012 the applicant presented revised conceptual elevations proposing a new stucco fascia,
entry, awnings, fencing and landscape enhancements made in response to the Boards comments, to
help integrate the building with the residential neighborhood character. The Board recommended the
design was in the right direction and suggested the following additional revisions:
¾ Further refine landscape and fence details to provide more landscaping and balance both ends of the
site.
¾ Incorporate existing wireless antenna on the building walls behind the fascia using stealth screening
technology.
¾ Provide more flushed-out details in response to the Board comments and direction, along with the
complete project plans, noise analysis and drainage solution.
On June 19, 2012 the Board reviewed detailed revised plans and recommended approval of the project,
subject the following recommended conditions:
• All four sides of the addition rooftop parapet shall be enclosed.
• The ends of the new awnings shall be enclosed.
• Pilasters must be a minimum of 16” dimension with the cap and base designed to overhang.
• The landscape planter in front of the fuel enclosure shall be enlarged by extending it out to the
front property line in keeping with the rest of the frontage landscaping.
• Add 2 column pilasters along the north entry gate to match the south gate.
• The stucco fascia shall include a fiber-reinforced plastic stealth screen detail that would allow the
existing cell antenna panels on the building parapet walls to be screened behind the new stucco
façade.
• Sound absorptive panels shall be incorporated on 100% of the area of the four interior surfaces of
the mechanical well, where the two condensers will be located. The panels shall have a Noise
Reduction Coefficient (NCR) of not less than 0.9.
• The applicant shall extend an underground drainage pipe from the site to the nearest stormdrain
(anticipated to lie in 2nd Street), as deemed feasible and required by the Department of Public
Works.
• Revise the colors to match the rendering on sheet A2.1 which would reduce the bright white
color. A paint-out shall be provided before final colors are implemented to verify that it achieves
the intent of the rendering.
• Provide an ongoing landscape maintenance program.
As noted above, the recommendations of the Board have been incorporated into the project and
conditions of approval. The meeting minutes can be viewed at http://www.cityofsanrafael.org/meetings/.
ENVIRONMENTAL DETERMINATION
The proposed project is exempt from the requirements of the California Environmental Quality Act
(CEQA), pursuant to Section 15301(e).1) of the CEQA Guidelines which exempts additions to existing
structures less than 10,000 square feet.
NEIGHBORHOOD MEETING / 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 subject site, 15 calendar days prior to the date of all meetings,
REPORT TO PLANNING COMMISSION - Case No: ED11-091 Page 8
including this hearing. Public notice was also posted on the subject site 15 calendar days prior to the
date of all meetings, including this hearing. Verbal and written correspondence were received prior to the
Board meetings expressing concern with the parking, construction noise, existing drainage runoff,
potential shadowing, existing building and landscaping poor conditions and general site maintenance.
Staff and the Board have recommended revisions and conditions to address all concerns.
OPTIONS
The Planning Commission has the following options:
1. Approve the project as presented and conditioned (staff recommendation)
2. Approve the application with certain modifications, changes or additional conditions of
approval.
3. Continue the applications to allow the applicant to address any of the Commission’s
comments or concerns
4. Deny the project and direct staff to return with a revised Resolution.
EXHIBITS
1. Vicinity/Location Map
2. Draft Resolution
3. Noise Study
4. Zoning Determination
Project plans have been provided to the Planning Commission only.