TO: Honorable Mayor and Members of the City Council
THRU: Tom Kisela, City Manager
FROM: Russell Bunim, Community Development Director
1. Subject
title
Public Hearing to consider a proposal to redevelop a former utility property with 48 two-and three-story single-family small lot homes at 901 E. Katella Avenue, and adoption of Mitigated Negative Declaration No. 1882-22 and associated Mitigation Monitoring and Reporting Program.
(General Plan Amendment No. 0004-22, Zone Change No. 1307-22, Tentative Tract Map No. 0051-22, Major Site Plan Review No. 1111-22, Design Review No. 5092-22, Administrative Adjustment No. 0293-23, and Mitigated Negative Declaration No. 1882-22).
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2. Summary
Intracorp Homes proposes to redevelop an existing 2.71-acre commercial site with 48 two-and three-story single-family small lot homes, open space recreation areas, guest parking, and related site improvements. To allow for residential development at this location, the proposal includes a request to amend the General Plan land use designation from General Commercial (Max. 1.0 FAR) (GC) to Medium Density Residential (15-24 dwelling units per acre) (MDR) and a request to amend the zoning from Commercial Professional (C-P) to Residential Multiple Family (R-3). A Tentative Tract Map is proposed for the small lot subdivision including establishment of private and common use areas. The applicant is also requesting an Administrative Adjustment to reduce the required 30-foot-wide entry drive widths off Cambridge Street and Katella Avenue between 2 feet-5 inches and 3 feet.
3. Recommended Action
recommendation
1. Adopt Resolution No. 11553. A Resolution of the City Council of the City of Orange adopting Mitigated Negative Declaration No. 1882-22 and associated Mitigation Monitoring and Reporting Program, and approving General Plan Amendment No. 0004-22, Tentative Tract Map No. 0051-22, Major Site Plan No. 1111-22, Design Review No. 5092-22, and Administrative Adjustment No. 0293-23 for the redevelopment of a vacant AT&T facility with 48, two-and three-story single-family small lot homes, open space recreation areas, guest parking, and related site improvements on a 2.71-acre site located at 901 E. Katella Avenue.
2. Introduce and conduct First Reading of Ordinance No. 13-24. An Ordinance of the City Council of the City of Orange approving Zone Change No. 1307-22 to change the zoning classification from Commercial Professional (C-P) to Residential Multiple Family (R-3) on a 2.71-acre site located at 901 E. Katella Avenue.
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4. Fiscal Impact
None.
5. Strategic Plan Goals
Goal 3: Enhance and promote quality of life in the community.
c: Support and enhance attractive, diverse living environments.
6. Discussion and Background
Existing Site
The 2.7-acre site is located at the northeast corner of Cambridge Street and Katella Avenue. The site is currently developed with a vacant two-story AT&T facility, a wireless communication facility and equipment enclosure, surface parking lot, and mature landscaping. There are two gated driveway access points off Cambridge Street and Katella Avenue.
The site is surrounded by single-story single-family residences along Carleton Avenue to the north, Katella Avenue, retail and commercial office buildings to the south, two-story retail and commercial office buildings to the east, and Cambridge Street, a gas station, and two-story apartments to the west. More detailed information about surrounding zoning is provided in Attachment 16.
Proposed Project
The proposed project would redevelop the site with 48 two-and three-story single-family small lot homes (17 paired and 14 detached), open space recreation areas, guest parking, and related site improvements. The existing wireless communication facility would be removed as part of the site redevelopment. The project includes small lots ranging from 1,461 to 2,488 square feet. Residential units are configured around a looped private interior roadway. There are 15 residences with primary entries oriented towards the street frontages along Cambridge Street and Katella Avenue, 21 units located at the center of the site with primary entries off an interior landscaped paseo, and 12 units along the northern boundary with primary entries off the interior roadway. Each unit is provided with an attached two car garage. The four-bedroom units are provided with one additional unenclosed parking space on the same lot. In addition, 24 open guest spaces are provided, for a total of 128 parking spaces provided for the project.
The architectural design of the residential units is contemporary and intended to respond to the eclectic visual character of the area. There are three plan types, all with coordinating architectural styles. The majority of units are three stories, with roof decks and/or ground floor courtyards or decks, while the units along the northern boundary are two stories with a first-floor setback of 10 feet and second-floor setback between 12 and 15 feet from the north property line, abutting the one-story single-family residences to the north. Window placement on the north facing second story elevations of these units will be clerestory to maintain privacy for the adjacent neighbors to the north. A breakdown of the unit plan types, floor areas, and stories is provided in Attachment 6.
The project provides common open space, including two pocket parks, a pet relief area, and landscaped paseo in the interior residential island. Entry portals and a signage wall at the southwest corner provide project identification at the intersection of Cambridge Street and Katella Avenue. The project also provides private open space in the form of roof decks or ground floor decks for all three-story units, and 10-foot rear yards for units along the northern boundary. Detailed information about site features and amenities is provided in Attachment 16 to this staff report.
Site access is provided by two-way entrance driveways along Cambridge Street and Katella Avenue. The Site Distance Analysis prepared for the MND (Attachment 8, Appendix L) analyzed inbound left turns to the project from Cambridge Street and determined that sight lines for turning movements could be obstructed by vehicles queued in the southbound left-turn lane and/or southbound through lane at the intersection of Cambridge Street and Katella Avenue. As a result, a traffic mitigation measure (MM Trans-1) is included in the MND (Attachment 7) that requires the applicant to install striping modifications or signage to prohibit southbound left turn movement from Cambridge Street into the project.
Landscaped setbacks are provided at the interfaces with Cambridge Street and Katella Avenue. Landscaping is also provided along the private interior roadway and in landscape pockets between units. A dense row of shrubs and trees is proposed along the entire north property line wall and at the northeast corner of the site to provide additional privacy screening for the single-story residences to the north. The landscape palette is a mix of water efficient groundcover, shrubs, and trees that will complement the contemporary architectural style.
Detailed information regarding the architecture and landscaping are provided in the Planning Commission Staff Report (Attachment 16).
General Plan Amendment and Zone Change
To allow residential development at this location, the applicant is requesting approval of a General Plan Amendment (GPA) to change the General Plan Land Use Element designation from General Commercial (Max. 1.0 FAR) (GC) to Medium Density Residential (15-24 dwelling units per acre) (MDR), and a Zone Change (ZC) from Commercial Professional (C-P) to Residential Multiple Family (R-3) to accommodate a small lot subdivision in accordance with the city’s Small Lot Subdivision Ordinance (OMC Section 17.14.270). The project proposes a density of 17.7 dwelling units per acre which is within the range allowed under the MDR General Plan land use designation and the R-3 zoning.
The proposed GPA and ZC are necessary to allow for residential development on this site. The MDR General Plan designation and R-3 zoning are consistent with the General Plan and zoning designations to the west across Cambridge Street and along Katella Avenue between Glassell Street and Cambridge Street. The land uses allowed under the MDR land use designation and R-3 zoning are compatible with the abutting residential land use that would remain to the north, and commercial land uses that would remain to the east, south, and west, which accommodates a mix of retail and service commercial uses and professional offices. The land use changes also enable the implementation of the Small Lot Subdivision Development Standards, which allows for alternative in-fill housing typologies within multiple-family residential zones. These development standards allow for the development of smaller residential lots on infill development sites which ultimately provides alternative options for single-family home ownership in the City.
The proposed small lot development is also consistent with the intent of the MDR land use designation and R-3 zoning, in that the project provides private and common open space with amenities, a pedestrian-friendly integration along both street frontages, is adjacent to public transportation, and is in close proximity to commercial, retail, medical and professional offices, and recreational uses.
The subject development proposal repositions the proejct site from commercial to residential General Plan and zoning designations, and represents a continuation of the adjacent multifamily land use designations and development to the west on Cambridge Street and Katella Avenue, between Glassell Street and Cambridge Street. These long-established multifamily developments have a MDR General Plan designation and are zoned R-3. Additionally, senior apartments are under construction a short distance to the east of the site at 1249 E. Katella Avenue. While the length of the E. Katella Avenue corridor has a predominately commercial and light industrial character, the segment between Tustin Street and Glassell Street consists of a mix of commercial and residential development. The presence of residential uses along this portion of Katella Avenue is logical given the neighborhood-serving goods and services in the area, proximity to elementary and middle schools, the Taft Library, and its interface with single-family residential neighborhoods.
In addition, the project site is located within the Katella Avenue Corridor General Plan Focus Area where future land use change is contemplated. The Katella Avenue Corridor Focus Area consists of properties generally located on Katella Avenue between the Santa Ana River on the west and California Street on the east. The land use plan features both GC and MDR land use designations between Glassell Street and California Street. The proposed land use change for the project and implementation of the Small Lot Subdivision Development Standards will provide additional housing options that contribute to the Medium Density Residential development in the Katella Avenue Corridor Focus Area between Glassell Street and California Street.
Tentative Tract Map
The applicant is requesting approval of a Tentative Tract Map to establish small lots, with common and private space areas on the site. Common areas include the private interior roadway and guest parking, pocket parks, and common landscape areas. Private space areas are provided in rear yards, and on roof and ground level decks. The Tentative Tract Map has been reviewed and found in compliance with the Subdivision Map Act and Orange Municipal Code (OMC) Title 16, Subdivisions.
Administrative Adjustment
The applicant is requesting an Administrative Adjustment to allow for a 2-foot, 5 inches to 3-foot reduction (10%) to the required 30-foot wide entry drive width off of arterial highways for both the Cambridge Street and Katella Avenue entries. The Planning Division, together with the Public Works Department, Subdivision and Traffic Divisions reviewed the request and found the reduced driveway widths adequate for the proposed development and determined that the reduction will not be detrimental to public safety or the general welfare of persons on or in the vicinity of the property. Granting the administrative adjustment does not compromise the intent of the OMC because the requested reduction continues to accommodate a functional and efficient site plan and on-site circulation.
Environmental Review
Initial Study/Mitigated Negative Declaration (MND) No. 1882-22 (State Clearinghouse No. 2023110185) was prepared to evaluate the physical environmental impacts of the project, in conformance with the provisions of the California Environmental Quality Act (CEQA) per State CEQA Guidelines Section 15070 and in conformance with local CEQA guidelines. The analysis contained in the MND determined that the project will have less than significant impacts to the environment with the implementation of Project Design Features relating to Air Quality and Noise, and Mitigation Measures related to Biological Resources, Geology and Soils, Hazards and Hazardous Materials, Transportation/Traffic, and Tribal Cultural Resources. In addition, a Mitigation Monitoring and Reporting Program has been prepared and is included in the final MND that summarizes the Project Design Features, Mitigation Measures, and the responsible party for the implementation and monitoring (Attachment 7).
The MND was circulated for public review for a 30-day period between November 9, 2023 and December 11, 2023. A Notice of Intent (NOI) to Adopt the MND was filed with the Orange County Clerk Recorder, posted at the site, mailed to property owners and tenants within a 400-foot radius of the project site, potentially affected cities, public agencies, utility service providers, and published in the Anaheim Bulletin Newspaper on November 9, 2023. The MND was made publicly available at the Community Development Department, City Clerk’s office, and the City’s website.
Public comments on the MND were received from the California Department of Transportation (Caltrans) and 37 neighboring community members. Caltrans comments were in regards to an analysis that would assist in accommodating the Regional Housing Needs Assessment allocation, transportation system equity, multi-modal transportation and improving connections to housing, safety features for multi-modal transportation, Complete Streets, bicycle infrastructure, safety during construction, signage to transit locations, automated parcel systems for deliveries, lane size and freight deliveries, and potential traffic impacts to freeway facilities. General comments from the neighboring community were related to traffic, parking, privacy, light, and shade and shadow. Responses to comments were prepared and forwarded to the respective authors in accordance with the requirements of CEQA, and in advance of the City’s consideration of any determination. Copies of the comment letters and responses to comments to address feedback relevant to environmental impacts received during the public review period were incorporated into the final MND (Attachment 7).
Committee and Commission Review
Design Review Committee
On December 6, 2023, the Design Review Committee (DRC) reviewed the project, provided comments, and voted 5-0-2 to continue the project to the February 7, 2024 DRC meeting in order for the applicant to address the Committee’s comments and concerns (Attachments 9 and 10).
On February 7, 2024, the DRC voted 5-0-2 to continue the project once again to allow the applicant additional time to work with staff and provide the requested information and revisions on the plans (Attachments 11 and 12).
On February 21, 2024, the DRC considered the revised plans and recommended denial of the project by a 5-2 vote. The Committee concluded that the required findings could not be made based on the following:
1. The project does not meet the goal to ensure the small lot subdivision fits into the existing neighborhood context;
2. The project does not comply with the requirement that buildings should respect adjacent buildings by responding to their scale and massing, and follow the established size, shape, and form of surrounding neighborhoods;
3. Landscaping should be used to soften walls and fences;
4. There should be sufficient architectural variety within the overall design
The DRC staff report and minutes are provided in Attachments 13 and 14 to this report.
Planning Commission
On March 18, 2024, the Planning Commission conducted a public hearing for the project. There were 24 public speakers, 38 written comments, and two telephone calls received by staff for a total of 64 public comments received. All but six public comments (58) were in opposition to the project. Written public comments from the March 18, 2024 meeting are included as Attachment 18.
The Planning Commission and neighboring community reiterated many of the same concerns voiced at the DRC meetings and provided additional comments. Project comments focused on the project’s failure to meet several requirements within the Small Lot Subdivision Guidelines, privacy of residences on Carleton Avenue along the north property line, lack of on-site parking and potential overflow onto neighboring streets, trash management, placement of the drive aisle along the north property line to provide an additional buffer for the Carleton Avenue neighbors, lack of safe pedestrian access to common open space amenities, existing dangerous blind curve on Cambridge Street exacerbated by the project, increased traffic and congestion at the Cambridge Street and Katella Avenue intersection, traffic analysis does not consider the geometry of the area, request for a study regarding left turn movement out of project onto Cambridge Street, setting a precedence for future small lot development, and the desire to maintain existing commercial land use designations. See Attachments 13 and 16 for more extensive DRC and neighborhood comments.
The Planning Commission ultimately recommended denial of the project to the City Council by a 4-2 vote. The Commission’s reasons for the denial were as follows:
1. The project does not adequately address the Small Lot Subdivision Guidelines:
a. The design and layout does not consider parking and vehicle access, access to air and light, outdoor space and privacy, or the relationship with surrounding existing developments in an established neighborhood and public areas, such as streets and sidewalks.
b. The project requires approval by the DRC and Planning Commission.
c. The project does not maximize the number of on-street parking spaces and does not promote continuity of the sidewalks. Residents of the 12 units along the northern boundary and 15 units along Cambridge Street and Katella Avenue have to walk in the street in order to access the pocket park along the north property line, which causes a public safety concern with the confliction of vehicular circulation and pedestrian circulation in the street.
d. Sidewalks in the vehicular zone do not have a different pavement pattern or material.
2. There are issues with the trash management plan.
3. There is a lack of ADA access to the pocket park along the north property line.
4. There was a lack of assessment of the worse case scenerio between 12:00 and 1:30 p.m. in the shade and shadow analysis.
5. Policing cannot be accomplished for amenities placed on of the roof top decks.
6. Ingress and egress from the project along Cambridge Street is problematic.
7. The project will create a precedent.
8. The project is not integral in meeting the City’s RHNA numbers and does not warrant changes to the General Plan and zoning designations.
9. The project is too intense for the site.
10. The DRC could not make the findings that the project meets all of the requirements of the Orange Municipal Code, in particular, the Small Lot Subdivision Guildines.
Project Changes Subsequent to the Planning Commission Meeting:
The applicant has considered the feedback from the Planning Commission meeting and implemented the following changes to the project:
1. The project unit count was reduced by one unit (from 49 to 48). Previous Lot 24 was removed on the south side of the central island.
2. The fourth bedroom was eliminated on 10 units (from 18 to eight). The modified unit mix is presented in Attachment 6.
3. Lots with four-bedroom units were reconfigured to accommodate a third unenclosed parking space on each lot.
4. Roof decks (private open space) were eliminated on Units 13-23 and replaced with ground level decks at the entrances to the units within the central paseo area. The first floors of these units were reconfigured by reducing the floor area and creating a flex space with direct access to the decks.
5. The loft/office in the Plan 2 Floor Plan was modified with a 7 foot-5 inch wide opening.
6. Brown horizontal siding was added to the north-facing second-story elevations of Units 1-12.
7. The site reconfiguration created additional landscape area, including a dog relief area with turf and stone seating, and the addition of four trees.
8. Required parking was reduced by 12 spaces (from 128 to 116 spaces) due to the reduction of one unit and reduction of 10 four-bedroom units.
9. Unenclosed guest parking increased from 12 to 24 spaces, creating a surplus of 12 guest spaces.
10. Trash cart placement assignments were adjusted on Sheet L-6 to accommodate the third parking space on each lot with a four-bedroom unit.
11. The Fire Master Plan was revised to accommodate laddering requirements for Units 13-23.
Public Comments
Since the Planning Commission meeting, Planning Division staff received 10 letters in support of the project (Attachment 22).
7. ATTACHMENTS
• Attachment 1 Resolution No. 11553
• Attachment 2 Ordinance No. 13-24
• Attachment 3 Vicinity Map
• Attachment 4 Existing Site Photographs
• Attachment 5 Project Plans, date stamped received May 1, 2024
• Attachment 6 Breakdown of Proposed Unit Types, Floor Areas, and Stories
• Attachment 7 Final Mitigated Negative Declaration No. 1882-22 and Mitigation Monitoring and Reporting Program dated March 5, 2024
• Attachment 8 Mitigated Negative Declaration No. 1882-22 Appendices
• Attachment 9 Design Review Committee Staff Report dated December 6, 2023
• Attachment 10 Design Review Committee Minutes dated December 6, 2023
• Attachment 11 Design Review Committee Staff Report dated February 7, 2024
• Attachment 12 Design Review Committee Minutes dated February 7, 2024
• Attachment 13 Design Review Committee Staff Report dated February 21, 2024
• Attachment 14 Design Review Committee Minutes dated February 21, 2024
• Attachment 15 Draft Planning Commission Resolution Nos. PC 06-24, PC 07-24, and PC 08-24 dated March 18, 2024 - Not Adopted
• Attachment 16 Planning Commission Staff Report dated March 18, 2024
• Attachment 17 Planning Commission Minutes dated March 18, 2024
• Attachment 18 Written Public Comments from the March 18, 2024 Planning Commission meeting
• Attachment 19 Applicant’s Summary of Plan Changes
• Attachment 20 Development Standards Reference Table
• Attachment 21 Small Lot Subdivision Guidelines
• Attachment 22 Correspondence from Members of the Public since the Planning Commission meeting