PC 2016-12-06 9a PRE 16-002 207 Pilgrim WayI&14 6RI:L•\11311NI
TO: PLANNING COMMISSION
FROM: TERESA McCLISH, COMMUNITY DEVELOPMENT DIRECTOR
BY: � ff.KELLY HEFFERNON, ASSOCIATE PLANNER
SUBJECT: CONSIDERATION OF PRE -APPLICATION NO. 16-002; LOCATION — 207
PILGRIM WAY; APPLICANT — FIRST ASSEMBLY OF GOD CHURCH;
REPRESENTATIVE — HAMRICK ASSOCIATES, INC.
DATE: DECEMBER 6, 2016
RECOMMENDATION:
It is recommended the Planning Commission review the conceptual plans and provide
comments to the applicant.
IMPACT ON FINANCIAL AND PERSONNEL RESOURCES:
There are no direct City costs related to the proposed project.
BACKGROUND:
The 11 -acre site is located on Pilgrim Way off of Orchard Street as shown on the map
below and is located in the Public Facility (PF) zoning district.
Proiect Site
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 2
Surrounding land uses include single-family residential development to the north and
south, Arroyo Grande High School to the west and US Highway 101 to the east. Site
topography is relatively flat, and a drainage channel traverses from east to west through
the middle of the property. The site is currently developed with a church, gymnasium with
classrooms and three (3) single family residences as follows:
E)dsfinq Structures
: Sizes bare feet)
Rosohition No.
Church / classrooms
18,000
Gym / classrooms
15,157
Single family residence
3,452
Single family residence
2,462
Single family residence
2,462
Single familresidence
1,854
Storage structures
3,791
ARCH 88-372
Total: 47,178
The First Assembly of God Church was originally constructed on this property in the early
1940's. The earliest building permit record the City has on file is from 1965. Available City
land use permit history for this site is provided below:
Date
Approval'Actian'�
Rosohition No.
Descfip#ion .
December 1973
CUP 73-219
PC Resolution
Authorization for a nursery
73-219
preschool
July 1988
CUP 88-437
PC Resolution
Temporary school facilities for
ARCH 88-372
88-1188
up to 150 students (Coastal
Christian School).
August 1993
Variance 93-178
PC Resolution
Variance from time extension
and
93-1427
requirements.
Time Extension
May 1997
Amendment #1 to
PC Resolution
Authorization for the operation of
CUP 88-437
97-1622
a combined first and second
rade class.
July 1998
CUP 98-568
PC Resolution
Operate a K-12 private school
98-1658
up to 200 students.
March 1999
Amendment #1 to
PC Resolution
Amendment to CUP 73-219 to
CUP 73-219
99-1684
allow construction of two single-
family residences.
November 2008
Irrigation Well
CC Resolution
Authorization to drill a
4140
replacement well to irrigate the
sports field.
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 3
Project Description
The applicant proposed to develop half of the property (5.5 acres) with sixty (60)
apartment units, a new gym and a public sports field in two phases. One (1) existing
home and a portion of an existing storage structure would be removed as part of the new
development.
Phase I includes development of sixty (60) apartment units divided into three (3)
categories, including transitional housing, senior housing and workforce housing. The
apartments are a combination of one, two and three-bedroom units in ten (10) separate
three-story buildings arranged in clusters of four (4). In total, 120 bedrooms with 97
parking spaces are proposed. The table below provides the breakdown of apartment
units, required parking and proposed parking.
Residential Parkina Statistics
Use:
Unit Type -
-No.'of Units
Required'
Covered
T'arkin -: ,�
Required.' Proposed;," j
' UJncoverecd Parking ,
'P6rkin . ` �.. .
Apartments:
1 -Bedroom
8
8 spaces
4 spaces 12 spaces
2 -Bedroom
16
32 spaces
8 spaces 40 spaces
3 -Bedroom
6
12 spaces
3 spaces 15 spaces
Subtotal:
32
52 spaces
15 spaces 67 spaces
Independent
1 -Bedroom
4
4 spaces
0 spaces 4 spaces
Living Senior
2 -Bedroom
20
20 spaces
0 spaces 20 spaces
Apartments:
3 -Bedroom
6
6 spaces
0 spaces 6 spaces
Subtotal:
30
30 spaces
0 spaces 30 spaces
TOTAL:
60 Units
1 82 spaces
15 spaces 97 spaces
As shown in the above table, the project meets Development Code standards for parking.
The project plans include pictures of the conceptual building design, which is similar to the
Spanish Revival architectural style using a low-pitched tiled roof with little or no eave
overhang, rounded arch elements, stucco surface and asymmetrical fagade. Green
screens are proposed on the south side for both resident privacy and to screen the project
from the residences located within the Vista Del Mar residential subdivision.
Phase 11 includes development of a 9,600 square foot gymnasium and a 55,000 ± square
foot soccer field that will also function as a drainage basin. Parking requirements for
Phase II is unclear. Development Code parking requirements for the gymnasium include
either one (1) space for every fifty (50) square feet of floor area, or one (1) space for every
five (5) fixed seats (Development Code Section 16.56.060 for public and semi-public
buildings — assembly, including auditoriums, theaters, lodges, clubs, churches, and
mortuaries). Given the size of the gym (9,600 square feet) and lacking information about
fixed seating, it is estimated that 192 parking spaces would be required. The
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 4
Development Code does not include a parking standard for recreational facilities such as a
soccer field.
The overall parking proposed is 328 spaces, including 94 existing spaces and 234 new
spaces as shown below. Depending on how the parking is calculated for Phase II, the
site is either under parked by a minimum of fifty-five (55) spaces, or by much more.
uveraoi site varKma - txistina ana
Existing Site Parking (church and 94
school)
Proposed Site Parking:
• New Residential
New Gym/Soccer Field
• Additional Parking (pedestrian
bridge)
97 97
192 (gym only; soccer 118
field to be determined)
Wo
328
Staff Advisory Committee (SAC)
The SAC considered this project on May 25, 2016. Issues discussed included water
availability, adequate sewer connection and stormwater drainage, lighting impacts of the
soccer field to neighbors, fire protection, road improvements, traffic impacts, and parking.
These issues are discussed below under Environmental Review.
ANALYSIS OF ISSUES:
The property currently has a land use designation of Community Facilities (CF) and is
zoned Public Facility (PF). Relevant allowable uses in the PF zoning district include
churches, public parks and recreation facilities, assisted living facilities for seniors, and
public buildings and grounds not otherwise mentioned. The proposed gym and soccer
field are allowed under the PF zoning, but the proposed housing is not allowed. The
project as proposed will therefore require the following applications:
• General Plan Amendment (GPA) to allow Multi -Family Residential Very High
Density housing (MFR-VHD — 25 dwelling units per acre);
• Development Code Amendment (DCA) to allow Multi -Family Very High density
housing (MFVH — 25 dwelling units per acre);
• Tentative Parcel Map (TPM) or Tentative Tract Map TTM) to subdivide the property
into separate uses;
• Conditional Use Permit (CUP) to develop the gym and soccer field; and
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 5
• Minor Use Permit (MUP) for multi -family attached apartment units.
All applications will be considered comprehensively through the environmental review
process.
General Plan Consistency
The General Plan Land Use Map designates the project site as Community Facilities (CF),
which is intended to provide a variety of public and quasi -public uses, serving
neighborhood, community or regional needs throughout the City. These community
facilities are beneficial to the City, but their location, nature of operation, and scale
sometimes creates compatibility issues such as noise, traffic, lighting and other issues. As
proposed, the residential component would be inconsistent with the CF land use.
Objective LU9 of the Land Use Element outlines a general goal regarding Community
Facilities to "provide for appropriate maintenance, development and placement of
Community Facilities relative to existing and planned land uses." Relevant land use
policies under this objective are as follows:
LU9-3. Balance the supply and size of Community Facilities with the existing and planned
demand for the services they provide based on the General Plan Land Use Element.
LU9-4. Ensure that new developments provide opportunities for recreation that are
commensurate with the level and type of development. Ensure that recreational uses are
compatible with surrounding uses and with sensitive resources that may be present.
The proposed gymnasium and soccer field will be open to the public, providing additional
recreational opportunities within the community.
The Housing Element provides numerous goals, policies and programs related to
affordable housing, including the following principal goals:
Goal A: Housing for All Income Groups within the Community (Provide a continuing
supply of affordable housing to meet the needs of existing and future Arroyo
Grande residents in all income categories)
Goal B: Affordable Housing (Ensure that housing constructed in the City is affordable to
all income levels)
Goal C: Identify Funding for Extremely Low, Very Low, and Low -Income Housing
(Research and identify various additional financial and other resources to
provide extremely low, very low, and low-income housing for current and future
residents of the City)
Goal D: Encourage Diverse Housing Stock (In order to provide affordable housing,
especially for extremely, very -low and low-income households, encourage
apartment construction)
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 6
Goal F: Inclusionary Housing (Strengthen the City's inclusionary housing ordinance to
require more affordable units in both residential and commercial development
projects)
Goal J: Special Needs Housing (Meet the housing needs of special groups of Arroyo
Grande residents, including seniors, persons with disabilities, persons with
developmental disabilities, single parents, large families, and farmworkers)
The proposed transitional, senior, and workforce housing units would further assist the City
with meeting the above goals.
The project also helps further two of the City's primary Economic Development Element
goals, including helping to create a thriving economy (housing for the City's workforce is
important to local businesses) and addressing unmet community needs (recreational
opportunities).
Environmental Review
The formal application will require a thorough analysis of potential environmental impacts
pursuant to the California Environmental Quality Act (CEQA). Environmental issues of
concern for this project include:
• Water availability. The 2001 General Plan Program EIR identifies the change in
quantity of groundwater withdrawals and the amount of water otherwise available
for public supplies associated with increased population growth and agricultural
preservation as a potentially significant impact to water resources, and therefore a
Statement of Overriding Considerations was approved. The subject property was
included in the General Plan Update as eleven (11) acres of PF zoned land, and
therefore did not account for a high density residential use. Because the 2001
General Plan and EIR did not anticipate residential units on this site, the applicant
will need to determine how additional water will be obtained to serve the project,
such as through water offsets.
Water is a significant concern given the current drought and the additional
residential density that was not anticipated in the 2001 General Plan. Overall water
use will need to be modeled. The applicant will be required to neutralize the
additional water use demand or provide additional water to accommodate the sixty
(60) apartment units. Although the property was once zoned Agriculture and
includes a well on site that could be used for irrigation (similar to the Cherry Creek
residential subdivision), records do not indicate that there was agricultural
production on the site and therefore water credits are likely not available. An option
for the applicant to consider is to change the phasing such that the residential
component is developed last. This will allow the gymnasium and soccer field to
move forward while water issues are being resolved. It is anticipated that the soccer
field will utilize artificial turf; otherwise, water offsets will be required to irrigate the
36,000 square feet of grass.
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 7
• Sanitary Sewer. The applicant is required to obtain a will serve letter from the
South County Sanitation District. Currently, there is no sewer main located in
Orchard Street, and older homes along this street have sewer laterals in their
backyards. The project will either need to provide a lift station to connect to the
sewer main at Castillo Del Mar near the existing gate, or install a new sewer main
down Orchard Street to the 15" trunk at West Cherry and Arroyo Avenue. This will
need to be engineered and is expensive, but gravity is preferred over a pump
station due to the maintenance requirements involved. It is possible that the City
could participate in the cost of installing a sewer main down Orchard Street since
this is included in the City's Master Sewer Plan.
• Tree removal. Several trees are proposed to be removed for both phases,
although the species are not identified on the plans. An arborist report will be
required to identify all trees to be removed and protected, and determine tree
removal mitigation.
• Fire protection. To provide adequate fire flow protection in addition to domestic
water, the water system needs to be looped to include an 8" main that goes all the
way around the project. A truck -turn exhibit for the Fire Department ladder truck
(Appendix F of the Engineering Standards) is also required. For the 3 -story homes,
the project must meet requirements of Appendix D of the California Fire Code.
• Stormwater drainage and retention. The property includes a sizable drainage
channel that traverses through the site from east to west. The applicant proposes
to place the drainage through new culverts. This proposal, plus understanding how
post construction requirements will be satisfied, requires a hydraulic and hydrology
report. More information is also needed for the bridge proposed over the existing
drainage channel. All drainage improvements will need to be closely reviewed.
Traffic and Circulation. A traffic study is required to assess project related impacts
at the intersection of Orchard Street and Fair Oaks Boulevard, as well as other
potentially impacted intersections and road segments. Right-of-way improvements
will be required on Pilgrim Way and Orchard Street, including ADA improvements.
The driveway serving the existing residences may need to be wider for fire truck
access. It is anticipated that the applicant will also need to pay a fair share for the
extension of Castillo Del Mar.
• Parking. As indicated above, the overall parking required is 383 spaces based on
assumptions regarding the gymnasium and the lack of a parking analysis for the
soccer field. At a minimum, the site is short 55 spaces. A parking study for both
phases needs to be completed.
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 8
• Affordable Housing. All of the proposed units are considered affordable. The
applicant has indicated that it is likely a local non-profit will construct and manage
the housing component of the project, although specific details are not currently
available.
Noise and Lighting. Noise and lighting impacts will primarily emanate from the
proposed soccer field and will need to be adequately assessed during entitlement
processing.
Studies that will be required as part of the entitlement process include, but are not limited
to, the following:
• Water demand analysis and water offsets
• Hydraulic and Hydrology Report
• Sewer Study
• Traffic Study
• Parking Study
• Arborist Report
ALTERNATIVES:
The following alternatives are presented for Planning Commission consideration:
1. Provide comments and suggestions to the applicant in support of the conceptual
project as presented;
2. Provide comments and suggestions to the applicant in opposition of the conceptual
project as presented; or
3. Provide direction to staff and/or the applicant.
ADVANTAGES:
The applicant is currently seeking comments and suggestions from the Planning
Commission on processing a general plan amendment and other related applications for
the project. Ultimate approval of the project would allow an affordable housing
development, consistent with the City's Housing Element and filling a large need in the
community. The project will also provide needed recreational opportunities in close
proximity to Arroyo Grande High School.
DISADVANTAGES:
Ultimate development of the site would increase traffic in the vicinity and develop property
that is mostly vacant. The project will also place additional demand on the City's limited
water resources.
ENVIRONMENTAL REVIEW:
No environmental review is required for this item. Appropriate environmental review will
be required as part of processing the formal project submittal.
PLANNING COMMISSION
CONSIDERATION OF PRE -APPLICATION NO. 16-002
DECEMBER 6, 2016
PAGE 9
PUBLIC NOTIFICATION AND COMMENTS:
The Agenda was posted at City Hall and on the City's website in accordance with
Government Code Section 54954.2.
Attachment:
1. Conceptual Project Plans (available for public review at City Hall)