PLANNING COMMISSION
Staff Report
Scenic Pacifica
Incorporated Nov. 22, 1957
DATE: June 13, 2023 FILE: CDP-435-22
PSD-857-22
UP-130-22
PE-194-22
ITEM: 1
PUBLIC NOTICE: Notice of Public Hearing was published in Pacifica Tribune on May 31, 2023 and mailed to 225 surrounding property owners and occupants.
APPLICANT &
OWNER:
North Coast County Water District
2400 Francisco Boulevard
Pacifica, CA 94044
PROJECT LOCATION: 2400 Francisco Boulevard (APN 016-322-230) – West Sharp Park PROJECT DESCRIPTION: File No. 2022-0007 – Demolition and replacement of portions of the existing North Coast Country District Water Headquarters site, and construction of a new two-story administrative building and other site improvements on an approximately 0.8-acre site.
SITE DESIGNATIONS: Local Coastal Land Use Plan: North Coast County Water District (NCCWD) and High Density Residential (HDR)
2040 General Plan: Public and Semi-Public
Zoning: Public Facilities (P-F) & Multiple-Family Residential (R-3) CEQA STATUS: North Coast County Water District, acting as Lead Agency, has determined the project meets Class 1 Exemption, CEQA Guidelines Section 15301 (Existing Facilities) and Class 2 Exemption, CEQA Guidelines Section 15302 (Replacement or Reconstruction) ADDITIONAL REQUIRED APPROVALS: None. Subject to appeal to the City Council.
RECOMMENDED ACTION: Approve with conditions.
PREPARED BY: Stefanie Cervantes, AICP, Senior Planner
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PROJECT SUMMARY, RECOMMENDATION, AND FINDINGS
The Public Facilities (P-F) zoning district allows development standards to be determined by the Use Permit and Site Development Permit. While a portion of the site is zoned Multiple-Family Residential (R3), the work proposed within that area includes, underground utilities, flatwork, and a new trash enclosure.
ZONING STANDARDS CONFORMANCE:
Standards Existing Proposed
Lot Size (sf) 34,848 No change
Coverage 26.7% 33%
Floor Area 9,409 sf 15,882 sf
Height 19’-2” 26’-4” top of roof
35’-9” top of mechanical
equipment
Landscaping 4.9% 6.8%
Setbacks
Front 0’-0” (Brighton Road) Existing -No change
New - 2’-9”
Side (corner) 0’-0” (Francisco Boulevard) No change
Side (interior lot) 5’-1” (left/ west) No change
Rear 135’-0” (Clarendon Road) 41’-4”
Parking1 15 on-site 20 on-site2
1 Pursuant to Section 9-4.2818(f)(8) of the Pacifica Municipal Code, public utilities and public service uses require one parking space for each employee on a maximum shift, plus parking spaces equal in number to 10% of the capacity in persons of any conference and meeting room. Per the proposed number of employees and occupancy of meeting rooms and conference rooms, the site is required to have 30 off-street parking spaces. 2 The Sharp Park Specific Plan area has an established parking in-lieu fee that the project may pay into. The applicant has not proposed payment of the in-lieu parking fee. A parking exception is required with or without payment of the in-lieu parking fee.
1. Project Description
The project site consists of an existing one-story administration building, two maintenance buildings, warehouse, and various storage structures. The applicant proposes to demolish the existing administrative building and one of the maintenance buildings, and to construct a new 9,500 square-foot administrative building, construct a new 1,375 square-foot maintenance building, retrofit the existing maintenance building, construct a new wash rack, and provide new solar panel canopies over the proposed parking area (Attachment B). The resulting administrative building would be a two-story structure. The first floor would contain individual offices, a small conference room, and employee areas.
The second floor would contain individual and shared offices, file storage, a medium conference room, a 1 Packet Pg. 4
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multi-purpose room, and exterior deck. The new maintenance building would contain a vehicle lift inside and would be next to the new open air wash rack.
Materials and colors for the existing and proposed structures would match. The proposed administrative building would use a fine sand stucco finish, as well as weathered wood siding and a concrete stem wall to create distinguished stories. The proposed administrative building also uses metal exterior finishes for windows, doors, and deck. The applicant proposes to use similar exterior enhancements on the existing maintenance structure to create a cohesive façade along Brighton Road. The proposed maintenance structure would have a metal finish with similar colors. The applicant proposes a sloped roof on the administrative building and new maintenance structure.
There are no anticipated impacts to any heritage or protected trees. The site currently has roughly 1,740 square feet of landscaping in planters along the property boundary. Landscape area along Brighton Road, the corner of Brighton Road and Francisco Boulevard, and along Clarendon Road would be maintained. The applicant proposes to add a landscape area within the site and add landscaping to the public right-of-way along the project perimeter. The proposal would increase the site landscaping by roughly 650 square feet.
In addition to the mentioned landscaping, the project design includes other off-site improvement to the surrounding public right-of-way. Along Clarendon Road, the project proposal includes a new curb cut, for a total of three (3) curb cuts, which would only be used by visitors of the recycled water refill station.
Along Francisco Boulevard, the project applicant is also proposing changes to the existing landscape planters, sidewalk, and on-street parking. The proposed changes would remove the existing 6’ wide sidewalk, construct a new 4’-6” sidewalk on the NCCWD property, install new planter areas with trees, and construct new diagonal parking on City right-of-way. The project applicant is also proposing an allway stop at Francisco Boulevard and Brighton Road.
2. General Plan, Zoning, and Surrounding Land Uses
The subject site’s 1980 Local Coastal Land Use Plan designation is North Coast County Water District (NCCWD) and High Density Residential (HDR) and a 2040 General Plan land use designation of Public and Semi-Public (Attachment C). The 2040 General Plan contain policy LU-I-3, which states that development that requires a coastal development permit shall continue to require written findings that it is consistent the City’s certified Local Coastal Program. As the City’s 2040 Local Coastal Land Use Plan is not yet certified by the California Coastal Commission, the project must be in compliance with the 1980 Local Coastal Land Use Plan. The Local Coastal Land Use Plan does not contain information regarding allowed uses in the NCCWD land use designation; however, staff has determined that the proposed use is in compliance as the use will remain the NCCWD headquarters. The HDR land use designation allows residential uses, with special considerations of site conditions to determine density. The NCCWD Headquarters is a public use that is allowed within the NCCWD and HDR land use designation.
The subject site’s location is within the P-F (Public Facility) and R-3 (Multiple-Family Residential) zoning district. The P-F zoning district allows government facilities, including, but not limited to, offices, storage facilities, and fire stations, with approval of a use permit and a site development permit. The portion of the project site within the R-3 zoning district will continue to be used for outdoor storage. Land uses 1 Packet Pg. 5
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surrounding the project site include residential uses to the north and west, commercial uses to the south, and State Highway 1 to the east.
3. Municipal Code
The applicant’s proposal requires approval for four permits under the PMC. The project requires Planning Commission approval of a site development permit (PSD) prior to issuance of a building permit per PMC Section 9-4.3201(b). The project requires approval of a use permit (UP) because the use, government facility, requires a use permit under the P-F zoning district, per PMC Section 9-4.2101(b).
Approval of a coastal development permit (CDP) is required prior to issuance of a building permit due to the project site location within the City’s coastal zone and the proposed demolition and construction, per PMC Section 9-4.403(a). The parking exception (PE) is required prior to issuance of a building permit because the proposal does not provide the necessary parking required per PMC Section 9-4.2818.
4. Required Findings
A. In order to approve the subject Site Development Permit, the Planning Commission must not render any of the nine specified findings provided in PMC Section 9-4.3204(a). Based on staff’s analysis below, staff concludes that none of the specified findings can be made, thereby supporting approval of a Site Development Permit.
1.That the location, size, and intensity of the proposed operation will create a hazardous or inconvenient vehicular or pedestrian traffic pattern, taking into account the proposed use as compared with the general character and intensity of the neighborhood.
Discussion: The project, with proposed conditions as discussed below, would not create a hazardous or inconvenient vehicular or pedestrian traffic pattern, taking into account the proposed use as compared with the general character and intensity of the neighborhood. The proposed project will expand and improve the existing North Coast County Water District Headquarters site. The new buildings will be in character with the existing residential and commercial development in the area because the proposed project is designed in a modern architecture style that is used on other recent projects in the area. The project design includes improvements to the outdoor yard area and vehicle access to the site. Improvements include removing a driveway from Francisco Boulevard, which improves traffic conditions on Francisco Boulevard by removing the potential for queuing to enter and cross traffic maneuvers to exit the site. As proposed, the project will add diagonal parking on Francisco Blvd and an all-way stop at Francisco Boulevard and Brighton Road.
The Engineering Division of the Public Works Department sent a letter dated March 20, 2023 to NCCWD requesting for the angled parking to be eliminated from the project (Attachment D). The request was due to the recommendations within a Fehr & Peers peer review, and adverse impacts to multi-modal use of the public right-of-way that do not align with the City’s adopted General Plan.
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The following traffic safety issues were identified in the Fehr & Peers peer review:
· Angled parking has a higher crash rate and frequency and should never be considered when on-street is sufficient. The City’s Sharp Park Specific Plan study of parking in the area shows adequate on-street parking in the area. · The vehicle overhang on the sidewalk from the proposed angled parking will narrow the sidewalk potentially making it impassable for a wheelchair. · Back-in parking is no feasible in the area given the proximity of the parking spaces to Clarendon Road because of conflicts between queued vehicles waiting at the stop sign and the cars backing into the angled parking. · The request for an all-way stop at Francisco Boulevard and Brighton Road does not meet any of the necessary criteria (warrants) required by the California Manual of Uniform Traffic Control Devices.
Fehr & Peers does not recommend a multi-stop sign at Francisco Boulevard and Brighton Road based on the traffic volumes, the lack of crashes at the intersection, none of the criteria required by the California Manual of Uniform Traffic Control Devices is met, and installation of a multi-way stop at this intersection may result in noncompliance by motorists traveling on Francisco Boulevard.
The proposed project design also includes adding a third driveway on Clarendon Road, two of which flank an existing bus stop. The Engineering Division of the Public Works Department has identified that new proposed driveway would create a site distance hazard when a bus is parked at the designated bus stop.
The existing on-street parking abutting the project site allows six (6) spaces on Brighton Road, seven (7) spaces on Francisco Boulevard, and two (2) spaces on Clarendon for a total of 15 spaces. The proposed design of angled parking on Francisco Boulevard, closing the existing driveway on Francisco Boulevard, and the addition of a third driveway on Clarendon Road, allows a total of 16 spaces along the project frontage, with parking on Brighton Road to remain as is. The net increase of one (1) on-street parking space is the result of adding three (3) more spaces on Francisco Boulevard from the angled parking reconfiguration, and the removal of two (2) spaces on Clarendon Road for the third driveway. As conditioned to prohibit angled parking on Francisco Boulevard and to prohibit a new driveway on Clarendon Road, the on-street parking totals will allow for 16 on-street spaces, the same number as proposed by the applicant. By proposing removal of the Francisco Boulevard driveway, the applicant has indicated that the existing driveway on Francisco Boulevard is not necessary for NCCWD operations and thus can be removed. The City has no concerns regarding removing the existing driveway on Francisco Boulevard. This will allow an additional parallel parking space to be added to Francisco Boulevard. Please see the table below for a summary of this onstreet parking information. The conditions of approval that staff recommends will allow the project site to provide the same number of on-street parking spaces as currently proposed.
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On-Street Parking Analysis
S
t
a
f
f
Staff recommends that the Planning Commission impose Condition # 12 to prohibit angled parking and restore the curb, gutter, and sidewalk to enable parallel parking on Francisco Boulevard, Condition # 13 to prohibit all-way stop at Francisco Boulevard and Brighton Road, and Condition # 24 to reduce the number of driveways to two (2) on Clarendon Road. Angled parking and an all-way stop would create a hazardous and inconvenient traffic situation on Francisco Boulevard and Brighton Road and the third driveway will create a site distance conflict on Clarendon Road. Staff believes that with the conditions of approval, the finding cannot be made.
2.That the accessibility of off-street parking areas and the relation of parking areas with respect to traffic on adjacent streets will create a hazardous or inconvenient condition to adjacent or surrounding uses.
Discussion: The project, as conditioned, would not create a hazardous or inconvenient condition to adjacent or surrounding uses pertaining to parking areas and traffic on adjacent streets. The proposed project will remove an existing driveway from Francisco Boulevard and direct all employee access to an existing driveway on Clarendon Road.
The existing driveway will be fitted with a new gate. The proposed off-street parking access will improve traffic on Francisco Boulevard and will not create a hazard or inconvenience. The language above and conditions imposed on the project related to on-street parking areas. For these reasons, this finding cannot be made.
3.That insufficient landscaped areas have been reserved for the purposes of separating or screening service and storage areas from the street and adjoining building sites, breaking up large expanses of paved areas, and separating or screening parking lots from the street and adjoining building areas from paved areas to provide access from buildings to open areas.
Discussion: The project, as conditioned, would not reserve insufficient landscaped areas for the purposes of separating or screening service or storage areas from the street and adjoining building sites, breaking up large expanses of paved areas, and separating or screening parking lots from the street and adjoining building areas from paved areas to provide access from buildings to open areas. The proposed project will overall add 1 This assumes that the existing driveway on Francisco Boulevard will be removed, curb and gutter will be restored, and an additional parallel on-street parking space will be added, consistent with modifications to this driveway area as proposed by the applicant as part of the angled parking proposal.
Existing Proposed by Applicant With Conditions of
Approval1
Brighton Road 6 6 6
Francisco Boulevard 7 10 8
Clarendon Road 2 0 2
Total 15 16 16
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roughly 650 square feet of landscaping to the project site. The project proposal will remove some existing landscape areas, while maintaining or enhancing other existing landscaping along Brighton Road and Clarendon Road. The additional landscaping will break up the existing hardscape in the parking area and will add additional buffer along the proposed public water filling station. The proposed landscaping along the project site perimeter will also enhance the public right-of-way and create a better pedestrian experience along Clarendon Road. For these reasons, this finding cannot be made.
4.That the proposed development, as set forth on the plans, will unreasonably restrict or cut out light and air on the property and on other property in the neighborhood, or will hinder or discourage the appropriate development and use of land and buildings in the neighborhood, or impair the value thereof.
Discussion: The project, as conditioned, will not unreasonably restrict or cut out light and air on the property and on other property in the neighborhood, nor will hinder or discourage the appropriate development and use of land and buildings in the neighborhood, or impair the value thereof. The proposed addition is located away from the existing residential use to the west. The area directly abutting the existing singlefamily residence is not proposed to be changed. The second story addition will be located on the northeastern corner of the project site along Francisco Boulevard, away from the existing single-family residence on the abutting sites, and therefore is not anticipated to hinder nor discourage the appropriate development and use of land and building in the neighborhood. The project proposes to bring an existing building into code compliance and upgrade the exterior façade and outdoor area of the project site and will therefore not impair the value of the neighborhood.
5.That the improvement of any commercial or industrial structure, as shown on the elevations as submitted, is substantially detrimental to the character or value of an adjacent R District area.
Discussion: The project, as conditioned, is not substantially detrimental to the character or value of an adjacent R District area. The proposed project elevations are a substantial improvement to the existing exterior façade of the existing public facility. The proposed building design incorporates modern architecture and uses materials and colors that are compatible with the existing neighborhood. Therefore, this finding cannot be made.
6.That the proposed development will excessively damage or destroy natural features, including trees, shrubs, creeks, and rocks, and the natural grade of the site, except as provided in the subdivision regulations as set forth in Chapter 1 of Title 10 of this Code.
Discussion: The project, as conditioned, will not excessively damage or destroy natural features, including trees, shrubs, creeks, and rocks, and the natural grade of the site, except as provided in the subdivision regulations as set forth in Chapter 1 of Title 10 of this Code. The proposed project is located on a site within an area that is substantially developed. The site does not contain any natural features and is relatively flat. For these reasons, this finding cannot be made.
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7.That there is insufficient variety in the design of the structure and grounds to avoid monotony in the external appearance.
Discussion: There is not insufficient variety in the design of the structure and grounds to avoid monotony in the external appearance. The proposed project is designed with a variety of materials and colors, as well as architectural articulation to avoid a monotonous exterior façade. Although only a portion of the existing site will be replaced, the project proposes exterior modifications to the building that will be remain and will add a decorative trellis to break up the existing blank wall plane. The proposed new administrative building will use large windows to break up the proposed facades on Brighton Avenue and Francisco Boulevard. The new administrative building also uses flat and slanted roof types for articulation of the roofline. For these reasons, this finding cannot be made.
8.That the proposed development is inconsistent with the City's adopted Design Guidelines.
Discussion: The City has adopted Design Guidelines which are intended to accomplish the following purposes:
· Ensure at least a minimum standard of design through the application of consistent policies.
· Encourage new construction which exceeds minimum standards and discourage construction which falls short of those standards.
· Provide a framework for review and evaluation of design proposals. · Implement applicable General Plan and Local Coastal Plan goals and policies. · Expedite and facilitate the planning permit process.
· Provide direction for design and redesign of projects.
The Design Guidelines are advisory in nature and, unlike zoning, do not contain explicit standards for determining strict compliance. Rather, they address significant elements of project design that, when balanced overall, result in the best possible site layout and building architecture for a project. An applicant may propose a project which complies with some but not all guidelines and the Planning Commission may still find the project consistent with the Design Guidelines. It is up to the Commission’s discretion to determine the appropriate balance and relative priority of the guidelines for a particular project when considering whether a project has achieved Design Guidelines consistency.
The proposed project complies with the following Design Guidelines:
a. Building Design: The style and design of the new buildings should be in character with that of the surrounding neighborhood. Additions to an existing structure should also retain and be consistent with the positive architectural features of the original structure.
b. Scale: An important aspect of design and compatibility is scale. A development can be out of scale with its surroundings due to its relative height, bulk, mass, 1 Packet Pg. 10
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or density. A structure which is out of scale with its site and neighborhood threatens the integrity of the overall streetscape, and residential projects, particularly single-family dwelling which are much larger than neighboring structures are therefore discouraged.
c. Materials: Compatibility of materials is an essential ingredient in design quality. Consistency and congruity of materials and design elements on individual structures is also important.
The West Sharp Park neighborhood contains an eclectic mix of architectural styles, containing a range from beach cottages to modern styles. The applicant proposes to use a modern architecture style that is used on other recent projects in the area. The proposed two-story office building is modest in size and scale compared to the existing structure to remain. As such, the proposed structure will maintain the existing character of the site and surrounding area. The proposed structures are not massive or bulky and the materials, colors design and architectural features will match and therefore be compatible with the existing structure. Furthermore, the applicant proposes to use similar color and materials to integrate the proposed mechanical equipment, at a height of 35’9”, into the building design. The height of the proposed mechanical equipment does exceed to maximum allowance of a commercial district; however, the PMC Section 9-4.2501 allows mechanical appurtenance to exceed the height limits with the approval of a site development permit. Staff believes that proposed height is in scale with the proposed structure and other site improvements. For these reasons, the proposed project is consistent with the Design Guidelines and this finding cannot be made.
9.That the proposed development is inconsistent with the General Plan, Local Coastal Plan, or other applicable laws of the City.
Discussion: The subject site’s 1980 Local Coastal Plan land use designation General Plan land use designation are North Coast County Water District (NCCWD) and High Density Residential (HDR) and a 2040 General Plan land use designation of Public and SemiPublic. The 2040 General Plan contain policy LU-I-3, which states that development that requires a coastal development permit shall continue to require written findings that it is consistent the City’s certified Local Coastal Program. As the City’s 2040 Local Coastal Land Use Plan is not yet certified by the California Coastal Commission, the project must be in compliance with the 1980 Local Coastal Land Use Plan.
The HDR land use designation permits residential uses. Neither the 1980 Local Costal Land Use Plan nor the 1980 General Plan contain a description of land uses allowed in the NCCWD land use designation; however, staff has determined that it allows the North Coast County Water District use and other similar public facilities.
However, the City’s 1980 General Plan Circulation Element states that City should encourage alternatives to automobile transportation and that safety shall be a primary objective in street planning and traffic regulation. As currently proposed, the project is inconsistent with the City’s General Plan Circulation Element as the three (3) driveways on Clarendon Road, angled parking on Francisco Boulevard, and all-way stop at 1 Packet Pg. 11
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Francisco Boulevard and Brighton Road are traffic safety concerns in the opinion of the City Engineer that have not been satisfactorily addressed by the applicant.
Staff recommends that the Planning Commission impose Condition # 12 to prohibit angled parking and restore the curb, gutter, and sidewalk to enable parallel parking on Francisco Boulevard, Condition # 13 to prohibit all-way stop at Francisco Boulevard and Brighton Road, and Condition # 24 to reduce the number of driveways to two (2) on Clarendon Road. Angled parking and an all-way stop would create a hazardous and inconvenient traffic situation on Francisco Boulevard and Brighton Road and the third driveway will create a site distance conflict on Clarendon Road. Staff believes that with the conditions of approval, the finding cannot be made. Staff believes that with the conditions of approval, the project will be consistent with General Plan.
According to available records, the project site is not a single legally created lot and contains a lot that was most likely intended for a single-family residence and is zoned R3. The NCCWD has used both of these lots for many years and the current proposal contains improvements that would cross legal property lines but be within the NCCWD site. Staff does not have any concerns regarding the existing property lines. Any building and fire code requirements related to distance to property lines will be addressed during the building permit review. The R-3 district portion of the site will continue to be used for outdoor storage and site access for NCCWD. The R-3 zoning district does not contain any language regarding outdoor storage; however, there are other uses, such as churches, parks, and crop and tree farming, allowed in residential districts that often require outdoor storage of materials. Furthermore, this area of the site will be continued to be used in the same manner as it has historically been used. The proposed project is consistent with the present use of this portion of the site.
PMC Section 9-4.2102 contains criteria that shall be considered in the review of proposed projects in the P-F district. That criteria states that the proposed use shall be of such size, design, and operating characteristics as will make it compatible with surrounding uses with respect to bulk, scale, design, coverage, density, noise, the generation of traffic, and other environmental impacts; will enhance the successful operations of the community or will provide a service to the community; and attention shall be given to provision of buffering of uses from the surrounding neighborhood, and significant adverse impacts shall be mitigated. While reviewing the project, staff considered this criteria, computability with surrounding uses is discussed in more detail in the findings #8 above. The proposed project will provide a service to the community by continuing to provide adequate water service to the City. As mentioned above, a portion of the site abutting a residential use will continue to be used for outdoor storage and vehicle access for the rest of the site and all improved areas, such as the shop area, will be buffered from the existing residential use.
As noted in the Table 1 of this staff report, the addition would meet all applicable zoning development regulations, except parking which is discussed below and height as discussed above. Additionally, the findings for Local Coastal Plan consistency are included below, and incorporated herein by reference.
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Based on the foregoing analysis, none of the findings can be rendered, and supports approval of a site development permit.
B. In order to approve the subject Coastal Development Permit, the Planning Commission must make the two findings indicated by PMC sec. 9-4.4304(k). The following discussion supports the Commission’s determination that none of the following findings can be made.
1. That the proposed development is in conformity with the City’s certified Local Coastal Program.
Discussion: The certified Local Coastal Program (LCP) includes a Local Coastal Land Use Plan (LCLUP), which contains policies to further the City’s coastal planning activities. The proposed project is consistent with the applicable policies of the LCLUP, as discussed below. · Coastal Act Policy No. 24: The location and amount of new development should maintain and enhance public access to the coast by:
o (a) Facilitating the provision or extension of transit service. o (d) Providing adequate parking facilities or providing substitute means of serving the development with public transportation.
The applicant’s proposal to add a third driveway on Clarendon Road impacts the existing bus stop. The Engineering Division of the Public Works Department has identified that new proposed driveway would create a site distance hazard when a bus is parked at the designated bus stop. SamTrans has also expressed concerned regarding servicing the bus stop between two driveways and the additional curb extension at the intersection, which may make it difficult for SamTrans’ buses to get parallel with the curb. There is also no immediate suitable location to relocate the bus stop on Clarendon Road.
As further discussed below, the project design does not meet the required number of off-street parking spaces. The project design does not comply with Coastal Policy No. 24(d), in that it does not provide adequate parking facilities off-street and it creates a potentially hazardous and inconvenient situation for the existing public transportation service that is provided. Furthermore, removal of the Francisco Boulevard driveway and restoration of sidewalk, curb, and gutter is necessary to enable additional on-street parallel parking to provide adequate parking facilities that maintain and enhance public access to the coast.
Staff recommends that the Planning Commission impose Condition # 24 to reduce the number of driveways to two (2) on Clarendon Road. Staff believes that with the condition of approval, public transit will continue to be provided in this area and the finding can be made. In addition, imposing Condition # 12 will ensure sufficient onstreet parking facilities are provided to maintain and enhance public access to the coast. · Coastal Act Policy No. 26: New development shall:
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o (a) Minimize risks to life and property in areas of high geologic, flood and fire hazards.
o (d) Minimize energy consumption and vehicle miles traveled.
The applicant proposes to demolition portions of the existing North Coast County Water District’s Headquarter, construct a new administrative building, construct a new maintenance building, and retrofit the existing buildings proposed to remain. The proposed improvements will minimize the risk to life and property because they will bring the building into compliance with new regulations pertaining to safety and building codes. The modernizations will also include meeting new energy codes, which will reduce the existing energy consumption on site. As such, the proposed project is in conformity with the City’s certified Local Coastal Program.
Additionally, the City’s certified Local Coastal Program includes an Implementation Plan (IP) to implement the policies contained in the LCLUP. The IP generally consists of the City’s zoning provisions and other PMC provisions relating to the regulation of development and coastal resources protection. As summarized in the Zoning Conformance Table above, in the project description, the proposed project would comply with applicable requirements except for parking and height. The project includes a parking exception, as discussed below, and the project may exceed the height requirement with approval of site development permit, as discussed above.
2. Where the Coastal Development Permit is issued for any development between the nearest public road and the shoreline, the development is in conformity with the public recreation policies of Chapter 3 of the California Coastal Act.
Discussion: The project site is not located between the nearest public road and the shoreline. Therefore, this finding is not applicable.
C. In order to approve the subject Use Permit, the Planning Commission must make the three findings indicated by PMC sec. 9-4.3303. The following discussion supports the Commission’s determination that the following findings can be made.
1. That the establishment, maintenance, or operation of the use or building applied for will not, under the circumstance of the particular case, be detrimental to the health, safety, and welfare of the persons residing or working in the neighborhood or to the general welfare of the City.
Discussion: The proposed use is an office use and related corporate yard for the North Coast County Water District (NCCWD) headquarters site. The site is currently used for the same purpose and the only additional office use related to the project is the addition of a multipurpose room. The proposed upgrades to the site will bring the building up to code requirements, include safety and energy standards. The updates to the NCCWD headquarters will also ensure that the water district is able to provide adequate water service to the City. However, as previously mentioned, staff believes that off-site improvements, such as moving the public sidewalk onto private property, angled parking along Francisco Boulevard and in the City’s public right-of-way, and addition of third driveway along Clarendon Road will be detrimental to safety of persons residing or working 1 Packet Pg. 14
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in the neighborhood by creating unnecessary traffic and pedestrian hazards. The proposed off-site improvements along Francisco Boulevard will also be detrimental to the general welfare of the City as the improvements do not align with the City’s right-of-way uses and multi-modal goals of the City. The addition of the third driveway on Clarendon Road will also impact bus service to people residing and working in the area that relay on public transit.
Staff recommends that the Planning Commission impose Condition # 12 to prohibit angled parking and restore the curb, gutter, and sidewalk to enable parallel parking on Francisco Boulevard, Condition # 13 to prohibit all-way stop at Francisco Boulevard and Brighton Road, and Condition # 24 to reduce the number of driveways to two (2) on Clarendon Road.
Angled parking and an all-way stop would create a hazardous and inconvenient traffic situation on Francisco Boulevard and Brighton Road and the third driveway will create a site distance conflict on Clarendon Road. Staff believes that with the conditions of approval, the finding cannot be made.
Adjacent to the project site is one parking space that is part of the City’s Temporary Safe Parking Program (TSPP). The space is located on the west side of Francisco Boulevard in the public right-of-way near the intersection with Clarendon Road. Construction noise, vibration, and other impacts from construction of the project could adversely affect the occupant of the TSPP vehicle utilizing the space at the time of construction. In addition, the applicant has indicated to staff that pre-construction activities and utilities work may require access near to or within the TSPP space. Therefore, staff has included a condition of approval to require that the applicant obtain City approval of an alternative location for the TSPP space prior to any construction activity or pre-construction activity that requires access to the space. With inclusion of this condition of approval, the Planning Commission can make the finding that the project would not be detrimental to the health, safety, and welfare of persons residing or working in the neighborhood or to the general welfare of the City.
2. That the use or building applied for is consistent with the provisions of the General Plan and other applicable laws of the City and, where applicable, the local Coastal Plan.
Discussion: As previously discussed in the findings for approval of a site development permit and coastal development permit, the site has a LCLUP designation of North Coast County Water District (NCCWD) and High Density Residential (HDR). Staff has determined that the proposed use is consistent with the intent of the NCCWD land use designation as it appears that the site was specifically designated for the intended use. However, the City’s 1980 General Plan Circulation Element states that City should encourage alternatives to automobile transportation and that safety shall be a primary objective in street planning and traffic regulation. As currently proposed, the project is inconsistent with the City’s General Plan Circulation Element as the three (3) driveways on Clarendon Road, angled parking on Francisco Boulevard, and all-way stop at Francisco Boulevard and Brighton Road are clear traffic safety concerns that have not been satisfactorily addressed by the applicant.
Staff recommends that the Planning Commission impose Condition # 12 to prohibit angled parking and restore the curb, gutter, and sidewalk to enable parallel parking on Francisco Boulevard, Condition # 13 to prohibit all-way stop at Francisco Boulevard and Brighton Road, and Condition # 24 to reduce the number of driveways to two (2) on Clarendon Road.
Angled parking and an all-way stop would create a hazardous and inconvenient traffic 1 Packet Pg. 15
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situation on Francisco Boulevard and Brighton Road and the third driveway will create a site distance conflict on Clarendon Road. Staff believes that with the conditions of approval, the project will be consistent with General Plan.
As noted in the Table 1 of this staff report, the addition would meet all applicable zoning development regulations, except for parking and height. There is language regarding other applicable laws in the findings for a site development permit above. Additionally, the findings for the Local Coastal Plan are above.
3. Where applicable, that the use or building applied for is consistent with the City’s adopted Design Guidelines.
Discussion: The proposed office use is consistent with the City’s adopted Design Guidelines as discussed above in the findings for approval of a site development permit.
D. In order to approve the subject parking exception, the Planning Commission must be able to the finding indicated by PMC sec 9-4.2824(a). The following discussion supports the Commission’s determination that the following finding can be made.
1. That the establishment, maintenance, and/or conducting of the off-street parking facilities as proposed are as nearly in compliance with the requirements set forth in Article 28 of PMC as are reasonably possible.
Discussion: Per PMC sec. 9-4.2818(f)(8), the site is required to provide a total of 30 off-street parking spaces on-site. The project is designed to provide 20 off-street parking spaces onsite that will be for employees only, an increase of 5 spaces from the existing condition.
However, the site is unable to accommodate all of the off-street parking required for the proposed use.
NCCWD has stated that in order to maintain safe operations within the corporation yard and the security of NCCWD’s critical utility facilities, public parking will not be allowed on-site.
The critical nature of NCCWD’s services as a public utility presents a unique circumstance where excluding public parking at its facilities is justified for public health, welfare, and safety. In addition, the project site is constrained by its existing built condition, existing dimensions, and existing development and public rights-of-way on all sides. Therefore, there is no opportunity to provide additional off-street parking facilities and in particular, appropriately located public parking facilities located outside of NCCWD’s operations area.
For these reasons, the provision of 20 off-street parking spaces (an increase of 5 spaces from the existing conditions) will result in the establishment, maintenance, and conducting of the off-street parking facilities as nearly in compliance with the requirements of Article 28 of Chapter 4 of Title 9 of the PMC as are reasonably possible.
5. CEQA Recommendation
California Environmental Quality Act (CEQA) Guidelines Section 15051(a) provides criteria for identifying the Lead Agency when more than one public agency is involved with a project. The section states that the public agency that will carry out the project shall be the Lead Agency. NCCWD will carry out the project, and therefore NCCWD appropriately identified themselves as the Lead Agency for purposes of 1 Packet Pg. 16
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performing environmental review as required by the CEQA. The City of Pacifica, due to its role in considering a discretionary permit is acting as a Responsible Agency as called for in Section 15050(b) of the CEQA Guidelines. As a responsible agency for this project, the City must consider the environmental determination of the Lead Agency and reach its own conclusions on whether and how to approve the project involved [CEQA Guidelines Section 15096(a)]. The NCCWD, acting as the lead agency under California Environmental Quality Act (CEQA), has determined that the proposed project qualifies for a categorical exemption from CEQA and filed a Notice of Exemption with the County of San Mateo on April 28, 2023 (Attachment E).
The project qualifies as a Class 1 and Class 2 exemption provided in Section 15301 and 15302 of the CEQA Guidelines (Existing Facilities). Section 15301 states in part:
Class 1 consists of the operation, repair, maintenance, permitting, leasing, licensing, or minor alteration of existing public or private structures, facilities, mechanical equipment, or topographical features, involving negligible or no expansion of use beyond that existing at the time of the lead agency’s determination. The types of “existing facilities” itemized below are not intended to be all inclusive of the types of projects which might fall within Class 1. The key consideration is whether the project involves negligible or no expansion of an existing use.
Examples include but are not limited to:
* * * * *
(d) Restoration or rehabilitation of deteriorated or damaged structures, facilities, or mechanical equipment to meet current standards of public health and safety, unless it is determined that the damage was substantial and resulted from an environmental hazard such as an earthquake, landslide, or flood.
The proposed project would enhance the existing NCCWD headquarters site which does not meet current federal laws and had access issues. The buildings would be upgraded to meet current structural codes and would meet safety standards, including for a seismic event. The upgrades would help the site achieve current public health and safety regulations and therefore meets the criteria of a Class 1 exemption.
Section 15302 states in part:
Class 2 consists of replacement or reconstruction of existing structures and facilities where the new structure will be located on the same site as the structure replaced and will have substantially the same purpose and capacity as the structures replaced, including but not limited to:
(b) Replacement of a commercial structure with a new structure of substantially the same size, purpose, and capacity.
The proposed project would involve demolition of the existing administrative building and a maintenance building and construction of a new two-story office building in the same location. The applicant states that although the administrative building will be expanded by square footage, the overall capacity and purpose will not change and therefore meets the criteria of a Class 2 exemption. 1 Packet Pg. 17
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Additionally, none of the exceptions to application of a categorical exemption in section 15300.2 of the CEQA Guidelines would apply:
· Sec. 15300.2(a): This exception is not applicable to a Class 1 and Class 2 exemption. · Sec. 15300.2(b): There is no evidence in the record that cumulative projects of the same type would occur within the same place to create a significant cumulative impact. · Sec. 15300.2(c): There is no evidence that the activity would have a significant effect on the environment due to unusual circumstances.
· Sec. 15300.2(d) through (f): The project is not proposed near an officially designated scenic highway, does not involve a current or former hazardous waste site, and, does not affect any historical resources. Therefore, the provisions of subsections (d) through (f) are not applicable to this project.
Therefore, the project is consistent with the requirements for a Class 1 and Class 2 exemption and none of the exceptions to the exemptions in Section 15300.2 apply; there is substantial evidence in the record to support a finding that the project is categorically exempt from CEQA.
6. Staff Analysis
As proposed by the applicant, the project will comply with the General Plan, Zoning Ordinance, and the Local Coastal Program (upon approval of a parking exception for off-street parking facilities). However, the off-site improvements, specifically the number of driveways on Clarendon Road, angled parking on Francisco Boulevard, and all-way stop sign on Francisco Boulevard and Brighton Road, would conflict with General Plan policies for safety and circulation and would not meet the required findings per the Zoning Ordinance; in addition, the City Engineer has determined in his professional engineering opinion that these improvements would result in an unsafe condition in the public right-of-way. Staff recommends that the Planning Commission approve the project with the following conditions of approval: Condition #12 to prohibit angled parking and restore the curb, gutter, and sidewalk to enable parallel parking on Francisco Boulevard, Condition #13 to prohibit all-way stop at Francisco Boulevard and Brighton Road, and Condition #24 to reduce the number of driveways to two (2) on Clarendon Road.
The recommended conditions of approval will ensure that the project is consistent with the General Plan, Zoning Ordinance, and the Local Coastal Program. Additionally, the project could adversely impact occupants of the TSPP space on Francisco Boulevard and recommends a condition of approval to address this circumstance.
With the conditions of approval recommended by staff, staff recommends approval of the project.
COMMISSION ACTION
MOTION FOR APPROVAL:
Move that the Planning Commission FINDS the project is exempt from the California Environmental Quality Act; APPROVES Site Development Permit PSD-857-22, Coastal Development Project CDP 435-22, 1 Packet Pg. 18
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Use Permit UP-130-22, and Parking Exception PE-194-22 by adopting the attached resolution, including conditions of approval in Exhibit A; and, incorporates all maps and testimony into the record by reference.
ATTACHMENT LIST:
Attachment A - Draft Resolution and Conditions of Approval (DOCX) Attachment B - Project Plans (PDF)
Attachment C - Land Use and Zoning Exhibit (DOCX)
Attachment D - Letter from City of Pacifica Public Works re Proposed Angled Parking dated March 20, 2023 (PDF)
Attachment E - CEQA Final Posting Confirmation (PDF)
Attachment F - Public Comments (PDF)
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