TO: Chair and Members of the Planning Commission
THRU: Anna Pehoushek, Assistant Community Development Director
FROM: Monique Schwartz, Senior Planner
1. Subject
title
Public Hearing to consider a proposal to redevelop a commercial site with 49 two-and three-story single-family small lot homes located at 901 E. Katella Avenue; and adoption of Mitigated Negative Declaration 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).
body
2. Summary
The applicant proposes to redevelop an existing 2.71-acre commercial site with 49, two-and three-story single-family small lot homes (17 paired and 15 detached), open space recreation areas, guest parking, and related site improvements. To allow for the 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).
3. Recommended ActionS
recommendation
1. Adopt Planning Commission Resolution No. PC 06-24 recommending City Council approval of General Plan Amendment No. 0004-22, a request to change the General Plan designation from General Commercial to Medium Density Residential on a 2.71-acre site located at 901 E. Katella Avenue.
2. Adopt Planning Commission Resolution No. PC 07-24 recommending City Council approval of Zone Change No. 1307-22 and adoption of an Ordinance to change the zoning designation from Commercial Professional to Residential Multiple Family to establish consistency between the Medium Density General Plan Land Use designation and zoning classification in accordance with state law on a 2.71-acre site located at 901 E. Katella Avenue.
3. Adopt Planning Commission Resolution No. PC 08-24 recommending City Council approval of 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 and associated Mitigation Monitoring and Reporting Program for the redevelopment of a vacant AT&T facility with 49, 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.
end
4. AUTHORIZING GUIDELINES
Orange Municipal Code (OMC) Table 17.08.020 depicts the authority of the City’s reviewing bodies to make decisions and / or recommendations on land use applications. This project involves applications for a General Plan Amendment, Zone Change, Tentative Tract Map, Major Site Plan Review, Design Review, Administrative Adjustment, and Mitigated Negative Declaration which require a final determination by the City Council. Table 17.08.020(b) states that when more than one type of application is filed for a single project, the application requiring the highest level of approval shall dictate the review process for the entire group of applications. Therefore, the Planning Commission is to act in an advisory capacity to the City Council for the sum of applications for the project because the City Council is the final decision-maker for the General Plan and zoning change.
5. project background
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Applicant: |
Intracorp Homes, Emilie Simard |
|
Property Owner |
Phoenix Power & Light, LLC, Jonathan Schurgin |
|
Property Location |
901 E. Katella Avenue |
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Existing General Plan Land Use Element Designation |
General Commercial, Max. 1.0 FAR (GC) |
|
Existing Zoning Classification |
Commercial Professional (C-P) |
|
Old Towne |
No |
|
Specific Plan/PC |
No |
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Site Size |
2.71-acres |
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Circulation |
The project site is located at the northeast corner of East Katella Avenue and North Cambridge Street. The City’s Master Plan of Streets and Highways classifies East Katella Avenue as a Smart Street Major Arterial with an ultimate right-of-way width of 120 feet, and North Cambridge Street as a Secondary Arterial with an ultimate right-of- way width of 86 feet. The existing site is currently accessed by two-way driveways with gated entries along East Katella Avenue and North Cambridge Street. There is an existing bus stop located on East Katella Avenue near the intersection with North Cambridge Street. |
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Existing Conditions |
The site is currently developed with a 20,621 sq ft two-story vacant commercial building (AT&T switching and service truck facility), a 53-foot-tall wireless communication facility and equipment enclosure located to the east of the building, a surface parking lot with 152 spaces, mature trees and landscaping, perimeter walls, gated entries off Cambridge Street and Katella Avenue, and site improvements. All structures and site improvements, including the wireless communication facility will be removed to accommodate the project. |
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Surrounding Land Uses and Zoning |
Surrounding development to the north includes single-story residences along Carleton Avenue, zoned Single Family Residential, 7,000 SF (R-1-7). To the south is Katella Avenue. Further south are retail and commercial office buildings zoned Commercial Professional (C-P). To the east is a two-story retail and commercial office building, zoned C-P. To the west is Cambridge Street. Further west is a gas station and two-story apartments zoned C-P and Residential Multiple Family (R-3). |
|
Previous Applications/Entitlements |
On June 13, 2013, the Community Development Director approved Minor Site Plan Review No. 0733-13, a request to modify an existing Sprint monopole wireless communication facility. On September 12,2019, the city processed a preliminary review application (Minor Site Plan Review No. 0990-19) for the construction of a 8,500 sq ft retail center, 2,236 sq ft drive-through restaurant, 4,107 sq ft carwash, and relocation of an existing wireless communication facility. On June 9, 2020, the city processed a preliminary review application (Minor Site Plan Review No. 1015-20) for the construction of a 9,200 sq ft retail building and 3,100 sq ft drive-through restaurant. On July 14, 2021, the city processed a preliminary review application (Minor Site Plan Review No. 1056-21) to redevelop an existing commercial building into a residential care facility for the elderly, with residential amenities and parking. On May 4, 2022, the city processed a preliminary review application (Minor Site Plan Review No. 1097-22) submitted by this same applicant for a 54-unit townhome project. |
6. PROJECT DESCRIPTION
The project is a request to demolish a vacant AT&T facility and develop 49, two-and three-story single-family small lot homes (17 paired and 15 detached), open space recreation areas, guest parking, and related site improvements (See Attachment 7 Project Plans).
To allow for the development in this location, the applicant is proposing a General Plan Amendment 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 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 proposed development will have a density of 18 dwelling units per acre. The proposal includes a Tentative Tract Map for the small lot subdivision including establishment of private and common use areas.
In 2021, Title 17 of the OMC was amended to provide development standards for small lot subdivisions. The Small Lot Subdivision Development Standards and Guidelines allow for the development of smaller fee simple, single-family residential lots in multi-family residential zones (R-3 and R-4) and the NMU-24 mixed use zone. The lots created under these standards are less than the typical minimum area of a traditional single-family lot, which allows for flexibility in lot configuration, and reduces the amount of land required for new-single family residences. The development standards include regulations for lot frontage, setbacks, stories, height, private open space, and parking. These development standards allow for a space-efficient and economical alternative to traditional options for home ownership.
The project includes small lots ranging from 1,468 to 2,442 sq ft. Residential units are configured around a 25-foot wide looped private interior roadway. There are 15 residences that have primary entries accessed from the Cambridge Street and Katella Avenue frontages, providing a pedestrian oriented sidewalk interface along both streets. There are 22 units located at the center of the site that have primary entries off an interior landscaped paseo, and 12 units along the northern boundary have primary entries off the interior roadway.
The project provides three different floor plans with units ranging from 1,604 to 2,001 sq ft (See Sheet A1.0 - Conceptual Site Plan of Attachment 7). Modifed floor plans will also be offered for Plan 2 styles with the option of an office or loft in lieu of a fourth bedroom (Plan 2 ALT). In addition, each unit plan provides garage space dedicated for the storage of three trash carts for the collection of solid waste, recyclables, and organics and a minimum of 250 cubic feet of overhead storage.
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Floor Plan |
No. of Units |
Gross Area (sq ft) |
No. of Stories |
No. of Bedrooms |
No. of Bathrooms |
Garage (sq ft) |
|
Plan 1 |
17 |
1,965 |
3 + Roof Deck |
3 |
3.5 |
487 |
|
Plan 2 |
18 |
2,001 |
3 + Roof Deck |
4 |
3.5 |
471 |
|
Plan 2 ALT Units 47 and 49 |
2 |
2,001 |
3 + Roof Deck |
3 + Loft or Office |
3.5 |
471 |
|
Plan 3 |
12 |
1,604 |
3 + Roof Deck |
3 |
2.5 |
471 |
|
Total |
49 |
|
|
|
|
|
Architecture
The project site is located in an area containing a mix of commercial and residential uses with eclectic architectural styles. The area along Katella Avenue is in transition with a three-story senior apartment building under construction to the east (Katella Terrace, 1249 E. Katella Avenue), Kiddie Academy daycare facility to the west (232 E. Katella Avenue), Rapids Express Car Wash to the west (1325 W. Katella Avenue), and recently constructed five-story multi-family apartments further to the west (Garrison Modern Apartments, 1725 W. Katella Avenue).
The proposed project introduces a contemporary residential design that is intended to respond to the eclectic contemporary visual character of the area. The majority of units are three-stories with roof decks (35 feet tall), while the units along the northern boundary are two-stories (25 feet, 5 inches), with a first-floor setback of 10 feet and a second-floor setback between 12 and 15 feet from the north property line, abutting the one-story single-family residences to the north. The building orientations along Cambridge Street and Katella Avenue consider the site’s characteristics and the City’s Small Lot Subdivision Guidelines (Attachment 19) in that the main entrances are oriented towards the streets and sidewalks to create a relationship between the buildings and pedestrian and to establish a strong tie to the street frontages.
Architectural elements include a combination of hip, shed, and flat roof forms, parapets, arched entries, distinctive window arrangements, recessed and simple door and window detailing, porch elements, use of trim and siding, and alternating plane changes to add visual interest. Window placement has also generally been considered to preserve the privacy of adjacent neighbors within the project, and the single-story residences to the north. The north facing second story windows on Units 1-12 will be clerestory. Although not illustrated on the plans, the applicant has indicated that the windows will be located approximately seven feet from the interior finished floor to the bottom of windows.
The use of varied rooflines, articulated building elevations (especially along the street frontages), and arches help soften the scale and rectangular massing of the buildings. The project’s rectangular building forms and openings, relationship to the street, and scale along the Katella Avenue frontage are generally visually compatible with the architecture of the two office buildings to the east. The proposed exterior building materials also contribute to the architectural character of the project, including composite roof shingles, painted stucco finish, metal canopies, vinyl windows, stucco over foam trim details, engineered wood siding, faux wood balcony railing, and painted metal sectional garage doors. The coordinated exterior color scheme consists of subtle natural tones, with contrasting colors used for accents and details. The project provides a residential design that is distinctive, yet compatible with the commercial and neighborhood area context, and scale of the adjacent roadways.
Project Access and Parking:
Vehicle access is provided by two-way entrance driveways along Cambridge Street and Katella Avenue. These entry drives connect to a looped private interior roadway that provides vehicle and pedestrian access to the main entrances and garages of the dwelling units. The internal roadway includes curb, gutter, and intermittent landscape planters. No unit driveways or sidewalks are provided along the interior roadway. Each unit is provided with an attached two-car garage, and there are 30 open parking spaces for occupants and guests for a total of 128 parking spaces provided for the development, which is compliant with the parking required by the Small Lot Subidivison Ordinance. Pedestrian access from the street frontages is provided via paved walkways at the Cambridge Street driveway, at the southwest corner of the site, and through gated courtyards for each unit along Cambridge Street and Katella Avenue. The project is also within walking distance to nearby shopping, restaurants, office, and residential uses, as well as adjacent to a bus stop located on Katella Avenue near the southwest corner of the site. Interior walkways are provided on the east and west sides of the interior residential island that connect to a landscaped paseo that leads to the entries of Units 14-33 and at the entrance to the pocket park along the northern boundary providing access to the park. The private interior roadway, parking spaces, common open space, and landscape areas designated in green on Sheet L-5 (HOA Maintained Areas Plan) of Attachment 7 will be maintained by a Homeowner’s Association for the development.
In addition, the Site Distance Analysis included in Appendix L of the MND (Attachment 10) analyzed inbound left turns to the project from Cambridge Street and determined that sight lines 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, which could potentially create a dangerous turning movement. As a result, a traffic mitigation measure (MM Trans-1) is included in the MND (Attachment 9) that requires the applicant to install striping modifications or signage to prohibit southbound left turn movement from Cambridge Street into the project.
Common and Private Open Space:
The Small Lot Subdivision development standards require a project to provide common open space only if the buildings on each lot exceed 75% lot coverage. As noted on Sheet A1.0 (Conceptual Site Plan) of Attachment 7, lot coverage for the project ranges from 44 to 57% and therefore the project is not required to provide common open space. However, in an effort to enhance the project aesthetics and provide amenities to the residents, the applicant has provided an enclosed pocket park with shaded picnic tables, barbeque, multipurpose lawn area, and enhanced paving along the northern boundary, a pocket park with bench seating, entry portals, signage wall, and lawn area at the southwest corner of the site, and a landscaped paseo between Units 13-34 in the interior residential island. The project also provides private open space in the form of roof decks for all three-story units, and 10-foot rear yards for units along the northern boundary.
Streetscape and Landscape
Sheet L-1 (Existing Conditions Plan) of Attachment 7 shows the removal of 19 existing mature trees in order to accommodate the new residential development. A total of nine existing street trees will be protected in place and three new street trees will be installed along the Katella Avenue frontage.
Sheets L-32 - L-34 (Plant Palette and Conceptual Planting Plan) of Attachment 7 illustrate the proposed landscape palette for the project. The project incorporates a variety of water efficient plant material along the street frontages, project interior, and perimeter boundaries, including a total of 54 new trees. Streetscape treatment includes retention of existing street trees, and the incorporation of three new Camphor street trees along Katella Avenue (Condition of Approval #36 of Resolution No. PC 08-24). Detailed information about site landscaping is included in Attachment 15. The streetscape landscaping conveys the residential nature of the land use along the predominatently commercial Katella corridor, articulates and helps soften the three-story building design, and provides a friendly pedestrian-oriented interface with the buildings and sidewalk. The project interior includes a mix of small and medium-stature trees, shrubs and groundcover, including artificial turf in the pocket parks. A dense row of Shrubby Yew Podocarpus and Bay Laurel shrubs will be planted along the entire north property line wall and at the northeast corner of the site to address neigbhorhood privacy concerns and soften the visual interface between the northern units and adjacent neighborhood. A large stature Southern Live Oak tree will be planted in the pocket park along the north property line to provide additional green screening for the single-story residences to the north. Condition of Approval #37 of Resolution No. PC 08-24 has been included to require routine trimming and maintainenance of trees and shrubs along the north property line so they do not grow to interfere with the overhead utility lines, and requires replacement of said trees and shrubs if they are damaged, removed, or die. Enhanced paving is also proposed for pedestrian walkways, within the pocket parks, and within the fenced unit courtyards along the street frontages.
Fences/Walls:
Sheet L-3 (Conceptual Fence and Wall Plan) of Attachment 7 illustrates low stucco walls with wooden gates for the unit courtyards along both street frontages, contributing to the pedestrian interface of the project and sidewalks while also providing a physical cue of private property space. The southwest corner of the site is accentuated with 8-foot pedestrian portals and low stucco walls that will contain development identification signage. Two existing seven-foot parallel block walls will remain in place along the northern boundary, one on the project site, and the other on the adjacent Carleton Avenue residential properties. A variable height (3 feet, 6 inches to 8 feet) precision block wall is proposed along the eastern boundary between the project and the adjacent commercial site. Side yard stucco walls and gates (6 feet tall) are proposed between the units, and low tubular steel fencing and gates will enclose the landscape area at the northwest corner and pocket park along the northern boundary.
Lighting:
Sheets EP1.1 - EP1.2 of Attachment 7 include the Photometric Plan and fixture designs for the project. New 16-foot-tall LED pole streetlights are proposed in landscape planters at the entry drives, adjacent to guest parking spaces, and in the pocket park along the northern boundary. These fixtures will have shields directed downward to prevent off-site light spillage. Three-foot-tall LED bollard lighting is proposed in the pocket park at the southwest corner, and various landscape lighting, including shade structure down lighting, in-ground flush mounted fixtures, tree and sign up-lighting will also be provided. Decorative LED wall light fixtures (shown on building elevations) are proposed at the front, rear patio (Units 1-12), and garage door entries of each unit. The proposed fixture styles are contemporary and compatible with the architecture of the buildings.
Signage:
Conceptual signage is included for illustrative purposes on Sheet L-24 of Attachment 7 and is not part of this project proposal. Monument signage is proposed on a low wall at the southwest corner pocket park for visibility at both street intersections. The sign concept appears compatible with the building design; however, the City’s Building Security Ordinance will likely require a lighted address on the monument sign and at each residential unit. All signage will comply with the City’s sign regulations.
Overall, the project’s coordinated architectural style, use of matching colors and materials for all structures, as well as landscape and streetscape design as proposed presents an integrated design theme. The project’s contemporary design attempts to provide a visual transition from the eclectic appearance of the Katella Avenue commercial corridor and immediately abutting residential neighborhoods, non-descript uses at the other three corners of the intersection, and at a key “gateway” location leading to the Fairmeadow Eichler Tract Historic District.
Small Lot Subdivision Development Standards
R-3 Zoning District
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Required/Permitted |
Proposed |
Code Section |
|
Maximum Permitted Density |
15.1 - 24 dwelling units per acre or 65 units |
18.1 dwelling units per acre or 49 units |
17.14.270 |
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Dwelling Units per Subdivided Lot |
1 |
1 |
17.14.270 |
|
Lot Area |
n/a |
1,467 to 2,476 sq ft |
17.14.270 |
|
Lot Frontage |
25 feet |
25 - 35.83 feet |
17.14.270 |
|
Lot Depth |
50 feet |
58 - 62.59 feet |
17.14.270 |
|
Perimeter Setback: Front (Cambridge Street) |
15 feet |
15 feet |
17.14.270 |
|
Perimeter Setback: Street Side (Katella Avenue) |
10 feet |
10 feet |
17.14.270 |
|
Perimeter Setback: Side (North Property Line) |
5 feet |
First story: 10 feet Second story: 12-15 feet |
17.14.270 |
|
Perimeter Setback: Rear (East Property Line) |
10 feet |
24 feet, 6 inches |
17.14.270 |
|
Interior Setbacks |
No front, side, or rear yard is required between interior lot lines created within an approved small lot subdivision. |
Front: 8 feet Side: 3 - 6 feet Rear: 14 feet |
17.14.270 |
|
Building Height |
35 feet or 3 stories |
35 feet, 3 stories |
17.14.270 |
|
Lot Coverage |
75 percent of approved small lot |
44 - 57% |
17.14.270 |
|
Private Open Space |
150 square feet per dwelling unit |
356 - 921 sq ft per dwelling unit |
17.14.270 |
|
Common Open Space |
Only required when lot coverage of each lot exceeds 75 percent. |
Each lot does not exceed 75 percent lot coverage; however, 4,855 sq ft of common open space is provided in the form of two pocket parks and landscaped paseo |
17.14.270.C.3(f) |
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Fence height |
3 feet, 6 inches: Front yard setback areas along the perimeter of the proposed subdivision. 6 feet: Side and rear yard setback areas along the perimeter of the proposed subdivision. 8 feet: When adjacent to commercial development. |
3 feet, 6 inches Existing 7-foot parallel walls along north property line to remain. 8 feet along east property line |
17.14.270, 17.12.070.B.1.c |
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Landscaping |
Setbacks and open areas of the site not occupied by buildings shall be landscaped, including surface parking lot areas. |
15,844 sq ft (open space areas, streetscape, and hardscape) |
16.50, 17.14.270.C.9 |
|
Secured Storage |
120 cubic feet / unit Must be in addition to cabinets and closets typically found within a unit (such as kitchen and bathroom cabinets, clothes and linen closets) |
250 cubic feet / unit in garage |
17.14.140 |
|
Parking |
2 parking spaces per unit, either enclosed or covered (i.e. garage or carport). For units with 4 or more bedrooms, 1 additional space shall be provided which may be enclosed or unenclosed. Enclosed or covered parking may be provided in a tandem format, except for guest parking in common parking areas. A minimum of 0.25 spaces per unit (with a minimum of 2 guest spaces) shall be provided as easily accessible and distinguishable guest parking in addition to the required parking for each unit. Guest parking may be unenclosed. 3 Bed: 2 spaces x 31 units = 62 spaces 4 Bed: 3 spaces x 18 = 54 spaces Guest: .25 x 49 = 12 spaces Total Required: 128 spaces |
128 total provided 98 spaces enclosed garage spaces 18 open resident spaces 12 open guest spaces |
17.34.060(A). 17.14.270.C.8 |
|
Trash Enclosures |
A small lot subdivision shall provide trash (including trash, recycling, and green waste) collection areas screened from public view. |
Unit garages have been designed to accommodate 3 trash carts for the storage of trash, recycling and green waste. |
17.14.270.C.11 |
7. analysis and statement of the issues
Issue 1: Land Use
The project site has been vacant for several years, with the varous preliminary redevelopment concepts referenced in Section 5 of this report never submitted for fomal city review. With submittal of the subject development proposal that repositions the project site from commercial to residential General Plan and zoning designations, staff recognized the adjacent multifamily land use designations and development to the west on Cambridge Street (Cambridge Court Apartments, 1350 N. Cambridge Street) and Katella Avenue, between Glassell and Cambridge Street (Grove House Apartments, 501 E. Katella Avenue and Orangevale Townhomes, 1300 N. Shaffer Street). These multifamily developments have a MDR General Plan designation and are zoned R-3. Additionally, senior apartments are under construction a short distance east of the site at 1249 E. Katella Avenue. While the length of the E. Katella Avenue corridor has a predominantly 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.
The proposed General Plan Amendment and Zone Change 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 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 commerical 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 which provides alternative options for 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.
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.
Issue 2: Project Design
The Design Review Committee commented extensively on the project design on December 6, 2023 and February 21, 2024. At the December meeting, the DRC provided comments to the applicant pertaining to the overall site layout, building architecture, two-story interface with the adjacent single-family neighborhood, privacy, shade and shadow, and landscaping. At that time, concerns were also raised by area residents about privacy, backyard shading, potential roof deck light sources and shade features, and the general imcompatibility of the project with the adjacent established single-family neighborhood (See Attachments 11 and 15).
In response to DRC and community member comments, the applicant revised the plans for the February DRC meeting and provided additional information responding to several concerns and recommendations by the Committee. The most notable design changes were the second story building step-backs between 12 and 15 feet, window size and location changes for Units 1-12, and the installation of green screening in the form of dense hedges and trees along the north property line to help minimize privacy concerns for the abutting single story residences to the north. In addition, a walkway was provided for pedestrian access to the pocket park along the north property line. Detailed Committee comments, the applicant’s responses to comments, and community concerns are provided in the February 21, 2024 DRC Staff Report (Attachment 15).
The applicant’s plan revisions resolved several concerns expressed by staff, the DRC, and the neighboring community. The stepped back second story setbacks and utilization of clerestory windows on the north building elevations of Units 1-12 help address privacy concerns along the north property line. The incorporation of dense green screening and larger canopy trees along the north property line wall help screen views from third story windows and roof decks toward the northerly neighbors. Landscape plans include sunlight sensitive plans, and the addition of three street trees along Katella Avenue will help soften the three story massing along the street frontage. The addition of a pedestrian walkway to the pocket park along the north property line will also provide residents with access to the common open space amenities.
At the February meeting, the DRC reiterated many of the same concerns, and neigborhood members also commented on the project. Project comments focussed on the following:
1. Failure to meet several of the requirements within the Small Lot Subdivision Guidelines that ensure the development will fit into the existing neighborhood context.
2. Incompatibility of bulk and massing with residences to the north.
3. Inadequacy of adjusted second-story setbacks along the north property line.
4. Number of units in relation to size of site and site plan arrangement.
5. Shade and shadow effects on neighborhood and landscape sustainability.
6. Homogenous character of north elevations of northern units.
7. Visual exposure of new development from existing residences.
8. Boxy and repetitious design.
9. The safety of roof decks with respect to the use of umbrellas, canopies, furniture, cushions, lighting, and other fixtures.
10. The additional view studies provided regarding third story windows and roof decks, especially in the area of the pocket park are diagramatic, do not show the source of the views, and are not accurate. Sections A and B on Sheets L-11 and L-12 are incorrect because there are no roof deck views from either of these areas.
11. Adequacy and accuracy of the shade and shadow analysis.
12. Maintenance responsibilites of the hedges and trees along the north property line.
13. The location, canopy, and height of the Southern Live Oak tree in the pocket park along the north property line in relation to the building envelopes.
14. Suggestions were made to maintain consistent four-foot wide walkways in order to provide additional area for landscaping, to provide walkways for Units 1-12, and to install turf in the triangular landscape area adjacent to the Cambridge Street entrance.
15. The Committee recommended garage access to unit side yards and the removal of side yard gates in order to provide room for additional trees throughout the development.
16. The Committee commented that project landscaping was designed secondary to building design.
The DRC ultimately recommended project denial to the Planning Commission by a 5-2 vote. The Committee concluded that findings could not be made that the project meets all of the requirements of the Orange Municipal Code, in particular, the Small Lot Subdivision Guidelines, in that the project does not meet the goal to ensure the small lot subdivision fits into the existing neighborhood context; 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; landscaping should be used to soften walls and fences; and there should be sufficient architectural variety within the overall design.
Subsequently, the applicant has chosen not to implement any further changes to the project plans in response to comments received by the Committee and neighboring community at the February meeting. The applicant is requesting Planning Commission consideration of the project utilizing those same plans (Attachment 7).
Issue 3: Administrative Adjustment
The applicant is requesting an Administrative Adjustment to allow for a 2-foot, 5 inch 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 should 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.
While the introduction of infill residential development into an existing urban setting comes with complexities related to site planning and community interface, staff believes that the change in General Plan and zoning designations from commercial to residential is logical for the site given the role that the intersection of Cambridge Street and Katella Avenue plays in linking the neighborhoods north and south of Katella Avenue, as well as the residential uses to the east and west of the intersection. The intersection is also a short distance from the Fairmeadows Eichler Historic District and has the potential to serve as a “gateway” to that distinctive Orange neighborhood.
The project’s contemporary residential design is an appropriate transitional style and scale that responds to the surrounding development along Cambridge Street and Katella Avenue. The three-story building height integrates with the large scale two-story commercial buildings to the east and south that direct massing towards the Katella Avenue frontage. The two-story units, with stepped back second stories, located along the northern boundary take into consideration the adjacent one-story single family residential development to the north. The architectural design, exterior materials, and landscaping presents a unifying theme and results in an internally consistent design that is compatible with the eclectic mix of styles in the surrounding area. Further, this residential development project implements the Small Lot Subdivision Development Standards allowing a space-efficient alternative housing type which would create an additional opportunity for homeownership in the City of Orange.
8. public notice
On March 7, 2024, the City sent a Public Hearing Notice to a total of 125 property owners/tenants within a 400-foot radius of the project site and persons specifically requesting notice. The notice was also published in the Orange County Register newspaper on March 7, 2024. The project site was posted in two locations with the notification on that same date.
9. environmental review
Mitigated Negative Declaration: 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 MND No. 1882-22 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. The Mitigation Monitoring and Reporting Program of the Final MND summarizes the Project Design Features, Mitigation Measures, and the responsible party for the implementation and monitoring (Attachment 9). On November 9, 2023, a Notice of Intent (NOI) to Adopt Mitigated Negative Declaration No. 1882-22 was filed with the Orange County Clerk Recorder, posted at the site in two locations, mailed to 122 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 public review period began on November 9, 2023 and ended on December 11, 2023. The MND was made publicly available at the Community Development Department, City Clerk’s office, and the City’s website. Public comments on MND No. 1882-22 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 9).
10. ADVISORY BOARD ACTION
Staff Review Committee:
The interdepartmental Staff Review Committee (SRC) conducted reviews of the project on December 14, 2022, July 26, 2023, and on September 20, 2023. On November 1, 2023, SRC recommended that the project proceed to the Design Review Committee.
Design Review Committee:
On December 6, 2023, the DRC reviewed the subject proposal and voted 5-0-2 to continue the project to the February 7, 2024 meeting in order for the applicant to address the Committee’s comments and concerns (See Attachments 11 and 12).
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 (See Attachments 13 and 14).
On February 21, 2024, the DRC recommended denial of the project by a 5-2 vote (See Attachments 15 and 16).
11. ATTACHMENTS
• Attachment 1 Planning Commission Resolution No. PC 06-24
• Attachment 2 Planning Commission Resolution No. PC 07-24
• Attachment 3 Planning Commission Resolution No. PC 08-24
• Attachment 4 Vicinity Map
• Attachment 5 Applicant’s Letter of Explanation
• Attachment 6 Existing Site Photographs
• Attachment 7 Project Plans, date stamped received February 23, 2024
• Attachment 8 Additional View Studies, date stamped received February 9, 2024
• Attachment 9 Final Mitigated Negative Declaration No. 1882-22 and Mitigation Monitoring and Reporting Program dated March 5, 2024
• Attachment 10 Mitigated Negative Declaration No. 1882-22 Appendices
• Attachment 11 Design Review Committee Staff Report dated December 6, 2023
• Attachment 12 Design Review Committee Minutes dated December 6, 2023
• Attachment 13 Design Review Committee Staff Report dated February 7, 2024
• Attachment 14 Design Review Committee Minutes dated February 7, 2024
• Attachment 15 Design Review Committee Staff Report dated February 21, 2024
• Attachment 16 Design Review Committee Minutes dated February 21, 2024
• Attachment 17 Public Comments from the December 6, 2023 Design Review Committee Meeting
• Attachment 18 Public Comments from the February 21, 2024 Design Review Committee Meeting
• Attachment 19 Small Lot Subdivision Guidelines
• Attachment 20 Color and Material Boards; Physical Boards Provided at Meeting