Cotati City Council
Agenda Staff Report
Item type: PUBLIC HEARINGS (ACTION)
To: City Council
Subject: CONSIDERATION OF A RESOLUTION APPROVING
ENTITLEMENTS TO ALLOW CONSTRUCTION OF A 126-
UNIT MULTIFAMILY MIXED-USE DEVELOPMENT ON A
5.62-ACRE PROPERTY LOCATED AT 7515 ALDER AVENUE
AND 8145 GRAVENSTEIN HIGHWAY (SR-116), AND FINDING
THE PROJECT CONSISTENT WITH THE COTATI GENERAL
PLAN AND ITS ENVIRONMENTAL IMPACT REPORT AND
EXEMPT FROM FURTHER ENVIRONMENTAL REVIEW
PURSUANT TO CEQA GUIDELINES SECTION 15183.
Date: August 27, 2024
Written by: Autumn Buss, Associate Planner
Recommendation
The Planning Commission and staff recommend that the City Council conduct a Public Hearing and adopt the accompanying resolution finding that the project is consistent with the General Plan Environmental Impact Report and exempt from further environmental review under CEQA Guidelines Section 15183, and approving Preliminary Design Review and a Tree Removal Permit to allow construction of a multifamily mixed-use development of 126 apartments and 2,250 square feet of commercial space on a 5.62 acre property located at 7515 Alder Avenue and 8145 Gravenstein Highway (SR-116).
I. Project Overview
The proposed Project, located at 7515 Alder Avenue and 8145 Gravenstein Highway (California State Route (SR)116), is a multifamily mixed-use development consisting of two residential buildings containing 126 apartments, a third building containing 2,250 square feet of gross commercial floor area, common open space and amenities, a woonerf, frontage improvements, parking, landscaping, and ancillary improvements. Thirteen units will be reserved for very lowincome households. The Project takes advantage of the State Density Bonus Law, which allows for increased density, reduced parking ratios, and concessions and waivers from certain City development standards, by-right, when specific amounts of affordable housing units are included in the Project. The Project has also been submitted to the City of Cotati subject to the provisions of SB 330, vesting ordinances, polices, fees, and standards applicable to the Project as those in effect on February 23, 2023.
Figure 1. Site Plan
II. Background
The Project site is located at the northwest corner of Alder Avenue and SR-116. On November 12, 2019, the City adopted an Initial Study/Mitigated Negative Declaration (IS/MND) for a proposed project on this site. The scope of the 2019 project included a text amendment to Section 17.22.020 of the Land Use Code to allow Residential Care Facilities for the Elderly (RCFE) within the Commercial, Gravenstein Corridor (CG) Zoning District, subject to the approval of a Use Permit; construction of an Assisted Living Facility, Memory Care Facility, and commercial building; a commercial cannabis permit to operate the dispensary; a lot line adjustment; and frontage improvements along SR-116 and Alder Avenue.
Since adoption of the 2019 IS/MND, the following activities were completed on the project site:
• Lot line adjustment
• Demolition of an old tavern and other structures
• Construction of retail along SR-116
• Establishment of the Cannabis Dispensary in a portion of the new retail space • Occupancy of a portion of the retail space by Acre Pizza restaurant • Frontage improvements along the developed area of Alder Avenue To date, all development has taken place on southern area of the site with frontage along SR-116.
A total of 7,822 sf of commercial space and ancillary improvements including parking, landscaping, and lighting occupy the southernmost portion of the project site. The balance of the project site remains mostly undeveloped as the Residential Care Facilities for the Elderly was never constructed. This northern area of the site is primarily open field, with a small existing vacant house with auxiliary structures, overhead power poles and utilities, existing wells, and 41 trees, including native oak species, which are scattered across the site with the majority along the west side of the property and are intended to be preserved.
The Project applicant submitted a complete SB 330 application for the currently proposed multifamily mixed-use Project on February 23, 2023, which established the Project’s “vesting date” for all development standards and impact fees identified in the City’s adopted Fee Schedule.
A neighborhood meeting to present the Project concept and receive comments from the community was held by the City on November 13, 2023. Notices of the meeting were mailed to addresses within 500 feet of the Project site and including the nearby Cottages community and residential addresses on off W. Cotati Avenue and Gilman Ranch Road. There was one attendee, a resident of The Cottages, at the neighborhood meeting.
The applicant submitted a complete application for Preliminary Design Review, Environmental Review, and a Tree Removal Permit on March 5, 2024.
III. Project Description
Project Location
The Project site is located at the northwest corner of the intersection of SR-116 and Alder Avenue and includes two contiguous parcels (APNs 144-040-011 and 144-040-021). The site is bounded by SR-116 to the south, Alder Avenue to the east, an undeveloped parcel and a vehicle storage yard to the north, and Cotati Large Animal Hospital and Cotati Small Animal Hospital to the west. The southern parcel is developed with 7,822 square feet of commercial space, currently occupied by Acre Pizza and Jane Dispensary, and a 44-space parking lot. To the south of the property, across SR-116, are existing single-family residences and Shamrock Materials, Inc., a business specializing in stone and concrete building supplies. A 177-unit multifamily mixed-use development, Cotati Village 1, is proposed by the same applicant for the vacant property directly across Alder Avenue from the subject Project site, and has already received its entitlements.
Figure 2. Vicinity Map
Project Site Design
The proposed Project is comprised of a mixed-use development consisting of two four-story residential buildings containing 126 dwelling units, a one-story building containing 2,250 square feet of gross commercial floor area intended to operate as a café, common open space and amenities, a woonerf, frontage improvements, parking, landscaping, and ancillary improvements.
The Project would include 46 one-bedroom units, 64 two-bedroom units, and 13 three-bedroom units, ranging in floor area from 702 square feet to 1,230 square feet. Residential Building A, containing 59 units, would be oriented north-south along the western side of the property, and Building B, containing 67 units, would be oriented east-west toward the northern side of the property. The new commercial building would be located to the southeast of the residential buildings. A landscaped common open space area would be located immediately to the south of Building B, with the ground floor units in that building having individual direct access from patios into the open space. A one-way driveway, entering from the north side of the property from Alder Avenue and exiting from the south side to Alder, would provide access to the units and parking in a loop through the development. The driveway would transition to a woonerf that passes between the common open space and the café before exiting to Alder.
The central common open space would feature a playground; an oak grove with seating areas, an existing heritage Valley Oak to be preserved, and additional Valley Oaks planted as mitigation for trees proposed to be removed elsewhere on the site; a lawn area; pedestrian paths leading to the woonerf, new café space, and the existing commercial uses to the south site; and a number of trees planted along the periphery. The development would also feature a smaller playground and seating area to the south of Building A.
As part of the Project, a Class I multi-use path would be constructed along the SR-116 frontage from Alder Avenue to the western property line. Another Class I multi-use path is proposed for the western edge of the site, from the northern property line to connect with the Class I path on SR-116, consistent with the City’s adopted Active Transportation Plan (ATP). The Project will also install new on-street parking, sidewalk, street trees, street lights, and a bike lane on Alder Avenue. The City’s General Plan calls for a cul-de-sac on Alder at SR-116 in the future, and the Project reserves land for that purpose. The Project also includes a dedication of land along the west side of the property for a future north-south street that is also envisioned by the General Plan.
Architecture
The architectural design of the Project’s residential buildings would incorporate contemporary craftsman style elements. Both buildings would be four stories in height with low pitched roofs and exposed beam elements. The rectangular building form of the two buildings is articulated through the use of recessed and projecting building frontages, projecting balconies, two colors for separated wall planes and materials, two primary finish materials including stucco and painted wood siding, and complementary exterior window trim. Ground-floor dwelling units would feature a wooden fence to delineate private space.
The new commercial building would echo the architectural design of the existing commercial building along SR-116 of the, with a flat roof and parapet, large windowpanes, and glazed entry doors on the east elevation facing Alder Avenue.
Figure 3: Project Rendering
Site Access and Circulation
The residential portion of the project will feature a one-way loop driveway that will be entered from the northern end of the property from Alder Avenue and transition to a woonerf between the residential common open space and the new commercial building in the southeast portion of the site, before exiting to Alder. The residential driveway and woonerf will only be for residential auto traffic. The new commercial building, intended to be a café, would be accessed by auto via the separate driveway from Alder Avenue near SR-116 that serves the existing commercial development on the site. The residential driveway would be 26 feet wide on its north and west sections and 24 feet side on its southern section. The woonerf would be 42 feet wide total with a minimum 20-foot-wide clear path of travel. The driveways and woonerf will accommodate emergency vehicle access, with the wider portions facilitating access adjacent to the residential buildings.
Although auto traffic will enter the Project directly from and exit directly to Alder Avenue, there are a few different scenarios for traffic circulation beyond that point, including south on Alder to SR-116, north on Alder to Helman Lane, across Alder to a future Batchelor Lane to connect to the future realigned and signalized W. Cotati Avenue-SR-116 intersection, and a potential future cul-de-sac on Alder at SR-116. These are discussed below in the Land Use and Planning Considerations section.
Pedestrian and bicycle access would be accommodated throughout the Project site via new Class I pedestrian and bicycle paths proposed along the SR-116 frontage and along the western side of the Project site. Pedestrian access would be further accommodated with a new 7-foot sidewalk along the site frontage of Alder Avenue, proposed internal walkways throughout the site and around the residential buildings and community spaces, and the proposed woonerf bridging the commercial and residential portions of the Project.
Parking
The Project would provide a total of 195 off-street auto parking spaces, including 153 new spaces for the residential portion, and 44 existing spaces located in the existing commercial parking lot. Of the new parking spaces, 75 would be covered with carports. The new parking spaces would be primarily located near the residential units along the loop driveway through the development, although 6 of the spaces would be located in the woonerf. The Project would also provide 9 new on-street parking spaces on Alder Avenue, which the applicant is proposing to count toward the off-street parking requirement and would bring the number of parking spaces provided by the Project to 206. Parking for the new commercial building would be accommodated by the existing commercial parking on the property. Eight of the new spaces would be ADA parking spaces, and 3 of the existing commercial parking spaces are ADA. The project also proposes 5 motorcycle parking spaces, and 43 bicycle parking spaces.
Woonerf
As required by the City’s Land Use Code, the Project would feature a woonerf on a portion of the driveway. The woonerf would be approximately 133 feet in length and provide a pedestrianoriented zone between the future café and the residential common open space area, essentially functioning as an extension of the open space. The woonerf would feature a meandering path of travel for motorized and non-motorized vehicles, with landscape and seating bulb-outs to slow traffic. The total width of the woonerf would be 42 feet, with the area provided for motor vehicle travel and emergency vehicle access being 20 feet wide. The woonerf will be intersected by three pedestrian walkways between the commercial and residential portions of the development.
Colored and textured paving, signage, a posted 8-mph speed limit, pedestrian-scale lighting, landscaping, seating, and traffic calming at the entrance to slow motor vehicles will make the woonerf a safe and welcoming space for pedestrians. The woonerf would also include 6 auto parking spaces. Full design details for the woonerf, as described in the attached Conditions of Approval, will be a part of the Final Design Review process for the Project.
Landscaping, Trees, and Lighting
The Landscape Site Plan proposes a mix of trees, shrubs, groundcover, grasses, and vines. Trees and other landscaping are proposed along the perimeter of the Project site, throughout the parking lot, between buildings, along the woonerf, within the common open space courtyard, and along the Project frontage on Alder Avenue. New street trees will be planted along Alder Avenue, as well. Landscaping would feature drought tolerant plants and a high efficiency irrigation system, including weather-based controllers. Landscape areas would establish buffers, provide shading, and serve as biofiltration and stormwater detention facilities.
The undeveloped portion of the Project site features 41 existing trees over 6 inches in diameter, the majority of which are Valley Oaks located along the western side of the site. The Project proposes to preserve 36 of these trees. Trees proposed to be removed to accommodate the development, which requires approval of a Tree Removal Permit, include three heritage Valley Oaks, one Redwood, and one Mexican Fan Palm. The proposed removal of heritage oak trees requires that the Tree Removal Permit be approved by the City Council. Per the replacement criteria set forth in CMC Section 17.54.050, a total of 55 Valley Oaks and 16 trees of other varieties would be required as mitigation trees. The Project proposes to incorporate 24 of the mitigation Valley Oaks on-site, including plantings in an oak grove in the central common open space that will be centered on a preserved heritage Valley Oak. An in-lieu payment of $300 per tree will be made to the City’s tree mitigation fund for the balance of 31 mitigation Valley Oaks that cannot be accommodated on the project site due to space constraints. The 16 remaining mitigation trees for the removal of the Redwood and Mexican Fan Palm would be placed on-site.
In total, 138 new trees are to be planted as part of the Project per the landscaping plans.
Proposed lighting includes 11-foot-tall street lighting on Alder Avenue in the City’s decorative street light standard, 14-foot-tall overhead street lighting placed throughout parking areas and the woonerf, and 10-foot tall lighting along the Class I multiuse path along the western side of the Project. LED bollard lighting fixtures of 3.5 feet high are proposed throughout the site in pedestrian walkways between buildings and in the central open space. The Project is conditioned to comply with outdoor lighting standards as provided in the City of Cotati Land Use Code Section 17.30.060.
Water Supply
Potable water to the Project would be accommodated via the installation of new water laterals that would connect the new buildings to the existing 10-inch water line within Alder Avenue.
Four fire hydrants are proposed throughout the Project site and two on Alder Avenue along the project frontage, to be served by new water connections.
Wastewater
Wastewater would be accommodated via the installation of new sanitary sewer laterals that would connect to the existing 10-inch sanitary sewer main within SR-116. The new sanitary sewer lines would collect wastewater generated onsite and convey flows through the existing sanitary sewer system to the wastewater processing plant for treatment.
Solid Waste
Two covered solid waste enclosures serving the residential buildings are proposed along the north property line. Each enclosure would include four dumpsters: One for trash/landfill materials, one for recyclable materials, one for organic material, and one for either landfill or recycling, depending on demand. The enclosures would be enclosed by 6-foot-high concrete masonry unit walls with metal gates and screened on the back and sides by landscaping. The new commercial space will utilize the existing solid waste enclosure for the existing commercial businesses.
Storm Drainage Infrastructure
Onsite runoff will flow overland to a series of proposed Low Impact Development Best Management Practices (LID BMP’s) with underground volume capture to provide treatment before entering the underground drainage system. Runoff from the west half of Alder Avenue will first enter tree wells with volume capture through curb openings. In addition to removing pollutants, these features will also reduce the amount of runoff by capturing and infiltrating storm water on-site in underground volume capture before entering the storm drain. All landscape-based LID BMPs will have overflow inlets 3 inches above the flowline to adequately intercept and capture trash and particles as small as 100 microns.
Site Preparation and Construction
It is assumed that site preparation and construction would occur within an approximately 12- month period. Site preparation would initiate with the removal of two existing structures (a single-family residence and detached garage), vegetation, and five trees, including three heritage native oaks, and two abandoned wells and a well house.
The project proposes to cut approximately 1,420 cubic yards of earth and require approximately 2,370 cubic yards of fill that would disturb approximately 4 acres of the site. Following completion of grading activities, infrastructure improvements and building foundations would be constructed. Foundations are proposed to be slab-on-grade. Utilities, storm drains and catch basins would be installed and buildings erected. New driveways, sidewalks, curbs and gutters, striping, landscaping, and signage would be installed.
Construction equipment expected to be utilized during site preparation and grading includes tractors, backhoes, haul trucks, graders, pavers and water trucks. All material and equipment would be staged on-site or, through issuance of an encroachment permit, at abutting rights-ofway.
Biological Resources
A total of 3.64 acres of the Project site is considered potentially suitable habitat for the California Tiger Salamander (CTS). The Project will be conditioned to require an Incidental Take Permit (ITP) or a Consistency Determination from California Department of Fish and Wildlife prior to commencing grading or site work and to secure CTS mitigation credit from an approved Conservation Bank at a ratio of 2:1.
In addition, construction of the proposed project will result in the fill of 0.06 acre of jurisdictional seasonal wetland regarded as waters of the U.S. and State subject to regulation by the U.S. Army Corps of Engineers and the Regional Water Quality Control Board (RWQCB).
Accordingly, credits from a US Army Corps of Engineers- and RWQCB-approved wetland mitigation bank shall be purchased by the applicant at a ratio of no less than 1:1 to compensate for the loss of waters of the U.S. and State. The Project will also be required to purchase vernal pool conservation credits for impacts to suitable Sebastopol meadowfoam habitat at a 1.5:1 ratio.
IV. Land Use and Planning Considerations
General Plan Conformity
The Project site is consistent with the General Plan land use designation of General Commercial (GC) and zoning district of Commercial, Gravenstein Corridor (CG) for the site. The GC land use designation is intended to provide for basic business and service needs of the local community, including shopping centers, neighborhood-oriented retail, and highway-oriented commercial uses. Office and multi-family residential land uses which are easily integrated into the adjacent districts are also appropriate. Base densities allow for 15 dwelling units per acre, with 80 percent site coverage. The CG zoning designation implements the GC land use designation of the General Plan. CG is a mixed-use designation that allows for a wide range of retail and service land uses that serve both the local population and regional markets, and for residential uses as part of mixed-use projects. The Project proposes ground floor commercial spaces and multifamily residential units consistent with the allowable uses under the General Plan and zoning designations.
The Project proposes development of base units consistent with the standard of 15 dwelling units per acre and sets aside 15% of base units for very low-income households, which qualifies the Project for the addition of density bonus units as allowed by right per State law under Government Code Section 65915. The proposed development is consistent with the overall projected development in the City of Cotati General Plan and 2013 General Plan EIR, which assumed build out would result in approximately 1,431 new housing units and 2.39 million square feet of industrial, commercial, public facility, and other non-residential uses within the city limits.
The Project is consistent with General Plan policies, including the following:
• Policy CI 1.3: Establish a minimum motor vehicle Level of Service (LOS) standard of LOS D at intersections.
• Policy LU 1.4: Require new development to occur in a logical and orderly manner, focusing growth on infill locations and areas designated for urbanization on the Land Use Map, and be subject to the ability to provide urban services, including paying for any needed extension of services.
• Action LU 1c: Prioritize the processing of development applications for infill, underutilized, or vacant parcels designated for urban uses over those projects requiring annexation. • Policy LU 2.11: Continue to mix residential and commercial uses in appropriate areas, with an emphasis on providing mixed uses in the areas with Specific Plan land use designations. • Policy LU 3.2: Encourage infill development of vacant lots within existing commercial districts and the core downtown/business areas and prioritize such development. • Policy H-2.1: Ensure that adequate land designated for residential and/or mixed-use development is available to accommodate the City’s fair share of ABAG’s Regional Housing Needs Allocation (RHNA) and monitor on an annual basis to ensure continual compliance with State law.
• Policy H-2.2: Continue to require that residential development in the NU, NM, CG, and DSP zones meet the minimum density requirements identified in the Land Use Code, and report requests for reduced density on an annual basis.
• Policy H-2.7: Require housing developments to provide housing units at a range of affordability levels to assist in meeting the City’s housing needs as required by Chapter 17.31 of the Land Use Code.
• Policy H-2.11: Encourage housing development on existing infill sites in order to efficiently utilize existing infrastructure.
• Policy H-3-2: Provide incentives for discretionary affordable housing development that address community priorities, including density bonuses, expedited processing, relaxation in development standards through the use of concessions and incentives, and either reduction, delay, or waiver of fees when financially feasible.
• Policy H-3-3: Continue to provide density bonuses to eligible projects as required by Government Code Section 65915, including projects that meet the minimum amount of total units affordable to extremely low, very low and low income households or provide units restricted to occupancy for senior households.
State Density Bonus Law
As noted above, the Project qualifies for a by-right density bonus per State law under Government Code Section 65915. State Density Bonus Law (SDBL) is designed to encourage the development of affordable housing by granting favorable development requirements in exchange for building deed-restricted affordable units.
The Project site is in the CG zoning district which allows for 15 units per acre. This would normally restrict the number of units to 84 units on a 5.62-acre project area (5.62 x 15= 84). The applicant is proposing to build those 84 units but also restrict 13 of the units (15%) to be affordable to very low-income households. This restriction allows the project to qualify for a 50% increase in density (42 additional units). This equates to 126 units (84 + 42 = 126 units), which is the current unit count proposed.
The SDBL grants further rights to density bonus projects, including prescribed (reduced) parking ratios and concessions and waivers from City development standards.
The SDBL states that a city or county shall not require an auto parking ratio the exceeds the following ratios:
• Zero to one bedroom: one onsite parking space (Project: 46 units proposed) • Two to three bedrooms: one and one-half parking spaces (Project: 80 units proposed) • Four or more bedrooms: two and one-half parking spaces (Project: 0 units proposed) Using the auto parking ratios above, the Project must provide at least 166 off-street parking spaces for the 126 residential units. This number is below the two spaces per unit, or 332 spaces, that the City would normally require. The Applicant is proposing 153 off-street spaces within the residential portion of the development, including 6 parking spaces in the woonerf. The Applicant is further proposing to count the 9 new on-street parking spaces on Alder Avenue that the Project will install toward the Project’s residential parking requirement. In addition, the Applicant is proposing to allow shared parking between the commercial and residential portions of the Project to further increase the parking available to residents.
The Project must provide parking for the new commercial floor space (2,250 square feet) at a ratio of 1 space per 250 square feet, which equates to 9 additional parking spaces. Commercial parking ratios are not affected by the SDBL. The existing commercial on the site provides 44 parking spaces in its lot. The existing 7,822 square feet of commercial requires 31 parking spaces. With the additional 9 spaces required for the new commercial square footage that the Project proposes, the commercial component of the project would require a total of 40 parking spaces. Therefore, 4 of the parking spaces may be considered “surplus” and potentially available for the residential parking.
With the utilization of 9 on-street parking spaces and 4 parking spaces shared with the commercial, 166 residential parking spaces would be available, which is consistent with the SDBL minimums. In addition, since the commercial businesses in the Project would have complementary hours of use with the residential, additional parking in the commercial lot could be available for residents to use in the evenings.
Pursuant to SDBL, the Project also qualifies for three concessions from the City’s development standards. A concession is a change in the adopted development standard that results in an identifiable cost reduction in producing affordable housing units. The concessions must be granted by-right and are non-discretionary. The applicant requests two concessions:
• Reduction in commercial component requirement for a mixed-use project. The CG zoning district requires at least 25% of the Project’s total floor area to be commercial.
The Project’s total proposed floor area is 151,752 square feet. Of that total square footage, 10,072 square feet is proposed to be commercial (existing 7,822 plus new 2,250), which results in less than 1% of commercial floor area. The concession results in cost savings because significantly more building floor area would need to be added to the project to meet the 25% requirement, or the number of residential units would need to be decreased.
• Relief from requirement that 80% of street-facing building façade meet build-to line. The CG district requires a build-to line of zero at the front property line of a development, and the Land Use code requires that 80% of the front building face meet this build-to line.
This means that the Project should have at least 80% of its building façade on Alder Avenue built immediately adjacent to the sidewalk. However, due to the irregular shape of the lot, meeting this requirement would result in an angled façade and customized end unit plans, which would add significant costs to the construction or require the number of residential units to be decreased.
SDBL law also allows an unlimited number of waivers of the City’s development standards. A waiver is a change in the adopted development standard that results in the project’s ability to be built at the permitted density and with the granted concessions. The waivers must be granted byright and are non-discretionary. The Project requests several waivers of development standards:
• Reduction of standards for woonerf. The City’s woonerf design standards prohibit parking spaces within the woonerf from being located directly across from one another or within 35 feet of the woonerf’s entrance or exit, and also require that a 20-foot transition zone be located before the woonerf’s entrance. Compliance with these standards would result in reducing the number of parking spaces located in the woonerf and/or reduction of the length of the woonerf.
• Increase the maximum building height. The height limit in the CG district is 35 feet. The proposed building height is 42 feet to the main roof and 47 feet to the peak of the pitched portion of the roof, which allows for a four-story, rather than three-story, building.
Compliance with the 35-foot height limit would result in a reduced number of dwelling units.
• Placement of structures and parking in side setbacks. Residential development in the CG district must comply with the standards of the NU district, which requires a 10-foot side setback for any structures or uses of one story or less in height. The Project proposes to place uncovered auto parking spaces, parking spaces covered with carports, and two onestory trash enclosures within the side setbacks. Compliance with the requirement to keep these structures and uses out of the side setbacks would result in reduced parking, open space, and number of dwelling units.
• Reduction of offer of dedication on west side of property. The Project is required to dedicate 34 feet of land along its western side to the construction of a future north-south street as called for by the General Plan. This width is equal to half of a commercial street, which is a minimum of 68 feet wide. The Applicant is proposing to dedicate 28 feet toward the future roadway instead. This corresponds to the City’s neighborhood street standard, which requires a 56-foot width. Compliance with the 34-foot dedication requirement would result in reduced parking, open space, and number of dwelling units. • Eliminate requirement for orientation of buildings to street. The City’s objective design standards for multifamily residential require that buildings be oriented toward the street with entries and porches facing the street. The Project proposes a site design that orients the residential building closest to Alder Avenue at a right angle to that street, such that the entryways and patios of the dwelling units do not face the street but rather are oriented north, toward the parking area, or south, toward the common open space area.
Due to constraints of the size and shape of the Project site, alignment of this building along Alder Avenue to meet this standard would result in a reduced number of dwelling units as well as open space and parking.
• Allow on-street parking to count toward off-street parking requirement. The Land Use Code does not currently allow on-street parking to be counted toward a project’s required parking spaces. The Project proposed to count the 9 new on-street parking spaces that the Project will install on Alder Avenue toward the required off-street residential parking, to allow for the number of dwelling units proposed. The parking would not be reserved for residents; rather it would remain public and could be utilized by Project residents as available.
• Allow shared parking between residential and commercial components of Project. The Land Use Code does not currently allow shared parking between residential and commercial uses in a horizontal mixed-use project. The Applicant proposes to allow 4 of the commercial spaces to be counted toward the residential parking space requirement, and for general shared parking between the residential and commercial components based on complementary use times. Shared parking would allow the project to build the number of dwelling units proposed.
Traffic
All auto traffic will enter and exit the Project site via Alder Avenue. Currently, the City of Cotati’s General Plan envisions Alder Avenue being terminated as a cul-de-sac at SR-116. The timeframe for the closure of Alder Avenue is unknown and is dependent on funding and prioritization. For the foreseeable future, therefore, auto traffic to and from the Project would likely come from SR-116 to the south via Alder, as well as from Helman Lane to the north. The intersection of Alder Avenue and SR-116 is currently unsignalized.
A Traffic Impact Study (TIS) for the proposed Project was completed by W-Trans on July 23, 2024. General Plan Circulation Element Policy CI 1.3 calls for a minimum level of service (LOS) standard of LOS D at intersections. (LOS ranges from A-F in descending order.) The TIS analyzed traffic operations along the Project frontages on SR-116 and Alder Avenue, as well as the intersections of SR-116 at Alder Avenue, West Cotati Avenue, and a proposed future northsouth street to be constructed along the west property line of the Project to determine the level of service under the existing conditions, existing conditions plus Project conditions, baseline (existing plus approved projects), baseline plus Project, future, and future plus Project conditions at weekday morning peak hour and weekday afternoon peak hour.
The TIS concluded that the additional traffic generated by the Project would lead to LOS F on Alder Avenue southbound at SR-116 without improved traffic facilities at that intersection. Restriping the southbound lane of Alder to create both dedicated left and right turn lanes would result in LOS E. Since both LOS E and F are not in compliance with the General Plan, the Project will need to take measures to improve traffic circulation in the vicinity. These include the following two options, which are conditions of Project approval. The Project will need to complete one or the other in order to obtain a certificate of occupancy.
The first option is installation of a traffic signal at Alder and SR-116, which would allow for LOS B, to remain in place until the future installation of a permanent traffic signal at the intersection of the new north-south street to the west of the Project site and the realignment and signalization of W. Cotati Avenue, as called for by the General Plan. Under this option, the Project would also be conditioned to install a left turn lane from eastbound SR-116 onto Alder Avenue. This option, however, would introduce additional expense to the project without longterm value, as it is anticipated that Alder Avenue may eventually end in a cul-de-sac at SR-116, and more importantly, the Project applicant’s financial outlay toward traffic mitigation measures might be better invested in the improvement of the W. Cotati Avenue/SR-116 intersection, which is the second option.
West Cotati Avenue currently terminates at SR-116 immediately south of the neighboring Cotati Village 1 site. A project to realign W. Cotati Avenue to improve vehicle, bicycle and pedestrian safety, signalize the intersection and widen the highway to accommodate bicycle and pedestrian facilities is undergoing design and environmental analysis by the City. The implementation of the W. Cotati Ave Realignment project is expected to build out as vacant and underutilized parcels along SR-116 are developed and when the City secures fundings to install improvements.
Both the Cotati Village 1 and Cotati Village 2 projects are expected to provide significant funding support to the W. Cotati Ave project through TIF funding. Cotati Village 1 will also create the publicly accessible Batchelor Lane roadway to connect Alder Avenue to W. Cotati Avenue, which would allow traffic to and from Cotati Village 2 access to a signalized intersection with SR-116 without travelling south on Alder Avenue.
Thus, the second option is for the Project to substantially support the W. Cotati Avenue Realignment project in order to bring it to completion before Project occupancy. This may involve support beyond the Project’s required TIF. This option would also require the Project to ensure that Batchelor Lane is completed as a publicly accessible roadway, in the event that Cotati Village 1 is not developed or otherwise does not build out that street. If this option is pursued, the Project would also be conditioned to extend a median on SR-116 across the Alder Avenue intersection, such that only right turns would be possible to and from Alder. The TIS projects a LOS C at the W. Cotati Avenue/SR-116 with Project traffic. In addition to directing funds toward a permanent, rather than temporary, solution, this second option is advantageous in that if the Alder Avenue cul-de-sac is constructed in the future, Project traffic will be able to use the Batchelor-W. Cotati Avenue route rather than Helman Lane.
Both options are included as conditions of the Project; the Project applicant would work in collaboration with City staff to determine which option to pursue.
Design Review Findings .
To approve the proposed Project, the City must make the following findings to approve Design Review:
1. Complies with this section (Cotati Municipal Code (CMC) §17.62.040 (Design Review));
2. Provides architectural design, building massing and scale appropriate to and compatible with the site surroundings and the community;
3. Provides attractive and desirable site layout and design, including building arrangement, exterior appearance and setbacks, drainage, fences and walls, grading, landscaping, lighting, signs, etc.;
4. Provides efficient, safe, and visually attractive public access, circulation and parking;
5. Provides appropriate open space and landscaping, including the use of water-efficient landscaping, and native plants where appropriate;
6. Addresses site planning design considerations related to city services, traffic flows and patterns, and environmental conditions in a manner that ensures maximum aesthetic cohesiveness;
7. Is consistent with the general plan and applicable specific plans; and
8. Complies with any applicable city design guidelines, design standards, and/or design review policies.
Staff Response – The proposed Project, as conditioned, complies with the General Plan and provisions of CMC §17.62.040 (Design Review). The Project application provides the required information to approve Preliminary Design Review and is conditioned to provide the necessary materials to evaluate and approve Final Design Review.
As proposed, and conditioned, the Project addresses and conforms with the City’s General Plan and Land Use Code provisions for site planning and design, building architecture, landscaping, pedestrian and vehicle access and circulation, energy and resource conservation, and the use of utilities, except where concessions or waivers from City development standards are granted pursuant to State Density Bonus Law (i.e. increased density, parking minimums, reduced commercial floor area, reduced street-facing façade, reduced woonerf standards, increased building height, placement of structures and parking in side setbacks, reduced dedication of land, orientation of building facades to street, and use of on-street parking and shared parking).
The architectural design for the Project’s residential buildings incorporates contemporary craftsman style elements. The buildings would feature low pitched roofs, 18-inch-deep roof eaves, exposed beam elements, divided light windows, and 4-inch wood trim around windows and doors, consistent with the City’s objective design standards for multifamily buildings.
Dwelling units would feature low wooden fence screening for privacy at the ground level, and balconies at the upper levels. The rectangular building form is articulated through the use of recessed and projecting building frontages, projecting balconies, two colors for separated wall planes and materials, two primary finish materials including stucco and painted wood siding, and complementary exterior window trim.
The commercial building would measure 11 feet in height with a parapet that extends to 15 feet in height, which is within the height limit for the CG zone, and feature an architectural design style that matches the existing commercial building on the site. The facades provide additional transparency through the use of large windowpanes and glazed entry doors on the eastern elevation.
The Project provides dedication of land for both the future cul-de-sac on Alder Avenue at SR116 and the future north-south street along the west side of the property, as called for in the General Plan. The Project provides for pedestrian circulation throughout the site and proposes the construction of Class I multiuse paths serving bicyclists and pedestrians along SR-116 and the western side of the property. The Project includes a woonerf that will serve as an amenity for residents as well as a pedestrian connection between the residential and commercial components of the Project.
The Landscape Site Plan proposes a mix of trees, shrubs, groundcover, grasses, and vines. Trees and other landscaping are proposed along the perimeter of the Project site, throughout the parking lot, between buildings, along the woonerf, within the common open space courtyard, and along the Project frontage. New street trees will be planted along Alder Avenue, as well. The development preserves 36 trees on the site, which are predominantly Valley Oaks. Mitigation trees for the 5 trees proposed to be removed would be planted on-site as space allows, although the large number of mitigation Valley Oaks required will necessitate payment of an in-lieu fee to the City’s tree mitigation fund to avoid overcrowding the trees. Overall, the project would plant 66 new trees on-site. Landscaping would feature drought tolerant plants and a high efficiency irrigation system, including weather-based controllers. Landscape areas would establish buffers, provide shading, and serve as biofiltration and stormwater detention facilities.
The Project has been reviewed by the Community Development Department, Department of Public Works/Engineering, Police Department, Rancho Adobe Fire Protection District, and relevant outside agencies. No issues have been identified that would prevent the Project’s development or the provision of services to the residents. Final Design Review will be required to ensure the project incorporates remaining design elements required for full compliance with the City’s Objective Design Standards.
Tree Removal Findings
To approve the Project, the City must make the following findings to allow the removal of existing trees on the subject parcel.
1. The approval of the tree permit will not be detrimental to the public health, safety or welfare, and approval of the tree permit is consistent with the provisions of this chapter;
2. Measures have been incorporated into the Project or permit to mitigate impacts to remaining trees or to replace the trees removed in compliance with this chapter;
3. The removal of a healthy tree cannot be avoided by:
a. Reasonable redesign of the site plan prior to construction, or b. Trimming, thinning, tree surgery, or other reasonable treatment, as determined by the director;
4. Adequate provisions for drainage, erosion control, land stability, windscreen, buffers along the road and between neighbors have been made where these problems are anticipated as a result of the removal; and
5. The tree to be removed does not contain an active nest that has been identified through the environmental process or is otherwise known to the review authority as the nest of a migratory bird, except where a qualified professional has determined that the nest can be relocated without damage to the nestlings.
Staff response – The undeveloped portion of the Project site features 41 existing trees over 6 inches in diameter, the majority of which are Valley Oaks located along the western side of the site. The Project proposes to preserve 36 of these trees. Trees proposed to be removed to accommodate the development, which requires approval of a Tree Removal Permit, include three heritage Valley Oaks, one Redwood, and one Mexican Fan Palm. Per the replacement criteria set forth in CMC Section 17.54.050, a total of 55 Valley Oaks and 16 trees of other varieties would be required as mitigation trees. The Project proposes to incorporate 24 of the mitigation Valley Oaks on-site, including planting in an oak grove that will be centered on a preserved heritage Valley Oak and located in the central common open space. An in-lieu payment of $300 per tree will be made to the City’s tree mitigation fund for the balance of 31 mitigation Valley Oaks that cannot be accommodated on the project site due to space constraints. The 16 remaining mitigation trees for the removal of the Redwood and Mexican Fan Palm would be placed on-site.
The Project would plant a total of 138 new trees of various species on the site per the landscaping plans.
The Project is conditioned to have an arborist prepare an oak mitigation and monitoring plan to ensure the protected oaks will survive, and requires modification of the Project to ensure survival. Where it is found the trees cannot be preserved, they will be required to mitigate the loss pursuant to the replacement criteria.
The trees proposed for removal are spaced out and do not act as privacy buffers, provide wind screening, or affect on-site drainage, erosion, or land stability, and there are no expected adverse impacts resulting from their removal.
The Project is conditioned to protect nesting birds. If construction begins between February 1 and August 31, a pre-construction nesting bird survey shall be performed within seven days of grading. If no nesting birds are observed, no further action is required, and grading must occur within one week of the survey to prevent “take” of individual birds that could begin nesting after the survey. A follow-up survey is required if a stoppage in work occurs for longer than 7 days. If active bird nests (passerine and/or raptor) are observed during the pre‐construction survey, a disturbance‐free buffer zone shall be established around the nest tree(s) until the young have fledged or the nest has naturally failed or been predated, as determined by a qualified biologist.
Planning Commission Recommendation
The Planning Commission held a public hearing on the Project on August 5, 2024. Following the public hearing and discussion, the Planning Commission unanimously adopted a resolution recommending that the City Council approve the entitlements for the Project. At staff’s request, the Planning Commission recommended several amendments to the proposed Conditions of Approval, which are primarily corrections and clarifications and are incorporated into the proposed Conditions of Approval in the Council resolution attached to this staff report.
The Planning Commission’s discussion of the project focused primarily on traffic circulation, parking, pedestrian safety within the Project, building design, and the proposed play structures.
Specific comments provided by the Commissioners to staff and the applicant include:
• Additional variation in color, texture, and materials would make the apartment building design more residential in nature and more consistent with the character of the surrounding neighborhood.
• A posted speed limit (8mph, for example, in keeping with the Code standard for a woonerf) would be desirable in the Project’s internal driveway for pedestrian safety and to slow traffic approaching the woonerf.
• Bulb-outs for pedestrians at key driveway crossing points in the Project should be installed to improve pedestrian safety. Other traffic calming measures in the Project’s driveway should also be considered.
• Ensure that the location of the play structure in the central courtyard allows adequate distance and measures to protect users from traffic on Alder Avenue. • Ensure that the tot lot/play structure at the south end of Building A is fenced to ensure children stay in the tot lot.
• Both play structures should be designed for accessibility for users of all abilities. • Manage impacts of parking for special events at the commercial space in the Project through the Limited Term Permit process.
• Traffic calming on the future Batchelor Lane should be provided to ensure resident and pedestrian safety through Cotati Village 1, in particular if traffic from the Project is routed through Batchelor and W. Cotati Avenue to/from SR 116.
V. Financial Considerations
The proposed project is not expected to have an adverse fiscal impact on the City. All staff and consultants’ time and expenses to review, permit, and inspect the project are fully covered by the project applicant. The applicant will be required to pay all development impact fees including bed tax, park in-lieu, traffic, sewer connection, water connection, and water conservation fees. Improvement of the property will result in an increase in property tax receipts the City receives. Lastly, the property will be annexed into the City’s Community Facility District, which levies a special tax on all parcels within the district to cover impacts to City Public Services such as: 1) the maintenance or upkeep of facilities, equipment, and vehicles, 2) police protection services, 3) maintenance and lighting of streets, roads, parks, parkways, and open space, 4) flood and storm water protection services, and 5) the salaries and benefits of staff that directly provide those services
VI. Environmental Review
The accompanying CEQA Analysis has been prepared by the City of Cotati, as the lead agency in full accordance with the procedural and substantive requirements of the California Environmental Quality Act (CEQA) and the CEQA Guidelines. The CEQA analysis relies upon the program level analysis prepared for the 2013 City of Cotati General Plan and its Environmental Impact Report (EIR) (SCH No. 2013082037), which was certified in 2015.
The CEQA analysis conforms to CEQA Guidelines Section 15183, which provides a streamlined review of the environmental impacts of the Project by tiering from the program level analysis prepared for the Cotati General Plan and its certified EIR. Section 15183 of the CEQA Guidelines mandates that projects which are determined to be consistent with the development density established by existing zoning, community plan, or general plan policies for which an EIR was certified shall not require additional environmental review, except as might be necessary to examine whether there are project-specific significant effects which are peculiar to the Project or its site. This focuses the analysis to potential environmental impacts of the Project relative to the impacts analyzed in the Cotati General Plan’s program level EIR.
The CEQA Analysis describes the Project and its environmental setting, including the Project site’s existing conditions and applicable regulatory requirements, and provides an assessment of the Project’s consistency with the City of Cotati General Plan. All adopted mitigating General Plan policies and mitigation measures identified in the 2013 General Plan EIR that apply to the Project are identified in the analysis and imposed as environmental conditions of approval.
Note that Appendix D is not included as an attachment, as this is the cultural resources study that was evaluated for this project but is not a public document due to confidential information.