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Site Plan Review, SPR P-2015081, for the expansion of an existing retail warehouse store (Costco) at 13463 Washington Boulevard in the Commercial Regional Retail (CRR) Zone.
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Contact Person/Dept: Gabriela Silva (310) 253-5736
Public Hearing: X
Action Item:
Attachments: X
Public Notification: On September 30, 2015, a notice was mailed to all property owners and occupants within a 500-foot radius and various block extensions from the site, and to other interested persons. The notice was also emailed to the Master Notification List on September 30, 2015.
Approval: Planning: Thomas Gorham (310) 253-5727 Dept.: Sol Blumenfeld (310) 253-5700
RECOMMENDATION:
That the Planning Commission:
1. Approve Site Plan Review, SPR P-2015081, subject to the Conditions of Approval as stated in Resolution No. 2015-P006 (Attachment No. 1).
PROCEDURES:
1. Chair calls on staff for a brief staff report and Planning Commission poses questions to staff as desired.
2. Chair opens the public hearing, providing the applicant the first opportunity to speak, followed by the general public.
3. Chair seeks a motion to close the public hearing after all testimony has been presented.
4. Commission discusses the matter and arrives at its decision.
BACKGROUND:
Request
On July 2, 2015, an application was submitted for a Site Plan Review to allow the demolition of an existing 63,213 square foot grocery store (Albertsons) and the construction of an approximately 31,023 square foot addition to an existing retail warehouse store (Costco). In addition, the application includes a request to improve an existing fueling station, by adding new underground tanks and four (4) new fueling pumps, as well as the construction of various site improvements such as off-street parking, lighting, landscaping, and circulation improvements within the project site located at 13463 Washington Boulevard in the Commercial Regional Retail (CRR) Zone.
Existing Conditions
The site is located on the north side of the Washington Boulevard, and is bound by Walnut Avenue to the west, Glencoe Avenue on the east, and Zanja Street on the north, as outlined in the Vicinity Map (Attachment No. 2). The Land Use Element of the City's General Plan designates this site as Regional Center, which is consistent with the site's zoning designation of CRR. Surrounding properties to the south are zoned Commercial General (CG); to the east properties are zoned Residential Single Family (R1); to the north and west, properties are within the boundaries of the City of Los Angeles, and are zoned R1-1 ("One-Family Zone) and R2-1 ("Two-Family Zone).
The project site totals approximately 18.41 acres and is developed with an approximately 225,000 square foot shopping center consisting of a vacant 63,213 square feet grocery store structure recently vacated by the tenant (Albertson's); a 142,152 square foot Costco retail warehouse store; and six smaller commercial buildings totaling 19,721 square feet and occupied by a Verizon retail store, a Starbucks coffee store, an In-N-Out Burger, a Valvoline oil change facility, a Costco gas station; an Unleashed pet store, and One West Bank. The site is fully improved with off-street parking, site lighting, parking lot and perimeter landscaping, decorative paving, and covered seating. All buildings, ingress/egress, and pedestrian and vehicular access is oriented towards Washington Boulevard, with the site surrounded by a masonry wall on all sides adjacent to residential streets.
The existing shopping center, including the commercial structures and associated improvements at the site, was originally approved via Planning Commission Resolution No. 98-P013 on July 8, 1998. This resolution approved Conditional Use Permit, CUP No 97-01, in place of a Site Plan Review, and Tentative Parcel Map No. 52382, TPM No. 97-01, allowing the development of a "retail facility" on the subject property. In addition, the Planning Commission adopted Resolution No. 98-P012 on July 8, 1998, making specified environmental findings and adopting a statement of overriding considerations for the project. The Environmental Impact Report (EIR) for the project was certified via Planning Commission Resolution No. 98-009, which was adopted June 10, 1998.
Project Description
The proposed project (See Attachment No. 4 - Project Plans) will consist of the demolition of the existing 63,213 sq. ft. former Albertson's grocery store structure and a 31,023 square foot addition to the existing Costco store resulting in a net reduction in floor area in the amount of 32,190? square feet at the site. In place of the existing grocery store structure, the applicant proposes to provide additional off-street parking with new lighting and landscaping. The parking area will be surrounded by a ten (10) foot high block wall along the street abutting perimeter. This proposed perimeter wall will follow the line of the existing grocery store building at the northeast corner of the site, in order to preserve an existing open space area in that location. The proposed building addition will be incorporated along the south and east fa?ades of the existing Costco building. A majority of the proposed expansion will be located along the southerly portion of the existing building, where the existing food service area and tire center are currently located. The addition along the southerly portion of the building will include additional merchandising and sales area and the new food service area. The addition along the easterly portion will include the relocated tire center, which is proposed to have the same number of bays (four) as the existing. The building addition will create a new exterior appearance consistent with the Costco's corporate design. The building will have a maximum height of 34 feet - 6 inches.
The project application also includes improvements to the existing Costco fueling station, including the installation of two (2) underground tanks and four (4) fueling pumps. In addition, the queuing area for the fueling station will be expanded in order to provide improved circulation in the abutting parking area and drive aisles. Consequently, the length of the adjacent access aisle will be increased, allowing for improved circulation at this point of ingress/egress for the site. Similarly, a number of minor reconfigurations are proposed throughout the site in order to improve onsite circulation. The existing parking area to the east of the site will be reoriented to an east/west direction, consistent with the orientation of the new parking area, to provide improved pedestrian access to and from the Costco store. No new points of vehicular or pedestrian access to the site are proposed. Further, the total overall number of on-site parking spaces will be reduced from 1,042 to 969; however, the ratio of parking spaces per overall floor area will be increase from 4.65 to 5.05 spaces per 1,000 square feet of floor area.
The applicant plans to keep the store open during construction and will employ strategies to segregate construction work from shoppers throughout the construction process. Proposed Condition of Approval No. 44 addresses requirements for construction phasing.
ANALYSIS/DISCUSSION:
The CRR Zone allows large-scale commercial uses emphasizing a variety of retail uses, including anchor tenants, entertainment and restaurant uses that may share parking, and serve a regional market area. The CRR Zone requires minimum setbacks of fifteen (15) feet for street facing frontages, and sixty (60) feet for the sides and rear when adjacent to a residential zone, and the maximum allowable height is fifty-six (56) feet. There is no maximum floor area ratio, but all gross floor area must meet required off-street parking requirements. As illustrated in the Project Summary (Attachment No. 3), the proposed development conforms to all regulations of the CRR Zone.
1. SITE PLAN REVIEW
Architectural Design
The proposed addition will cause significant changes to the existing southerly and easterly building fa?ades, creating a new exterior appearance consistent with the Costco's corporate design. The proposed building expansion is designed to have a contemporary architectural style, including flat roof lines of varying heights, and the use of masonry (concrete, block, etc.) and metal as primary materials. The current existing structure incorporates primarily multi-color block and concrete walls with accents of corrugated metal and ornamental features, as well as awnings and canopies. The proposed fa?ade design will have a masonry base, and will utilize variegated block walls, consistent with the existing building design. In addition, the new building fa?ades will incorporate vertical architectural metal panels to coordinate with the existing metal panels at the receiving area and northwest corner of the building. Additional vertical and horizontal ribbed metal panels will be incorporated throughout the building addition in order to create visual interest and variation in the building plane. The building will also have trellis canopies at strategic locations in the fa?ade, positioned at approximately mid-height, and serve to scale-down the building. The use of various materials, textures, decorative architectural features, and variation in the building height also allows the building mass to be appropriately articulated. At the southeast corner of the building, a proposed canopy will create a focal point for the new building entrance. The canopy will be comprised of concrete columns, a metal frame, and expanded steel mesh cover. The existing building wall facing the residential neighborhood to the north, across from Zanja Street, will remain the same in order to conserve the existing landscape and minimize any visual changes to the existing streetscape. The smaller commercial buildings on site, along Washington Boulevard, will not be altered, but will continue to match the subject building by the continued use of variegated block walls. Overall, the design of the proposed project is compatible with surrounding commercial structures and the building height and massing is consistent with the zoning standards of the CRR Zone.
Landscaping
As required by the Zoning Code, all setback and open space areas not occupied by driveways, parking areas, walkways, building projections and approved hardscape areas, as well as all perimeter areas between the onsite parking area and the public right-of-way will be landscaped. The existing landscaped setbacks along the north, south, and west sides of the subject site will remain The area abutting the easterly wall of the existing grocery store building will be slightly modified to provide additional off-street parking. The current existing landscaped setback in this area varies in width from thirteen (13) to twenty (20) feet. The proposed layout accommodates a landscape setback with an overall width of twelve (12) feet, exceeding the minimum Zoning Code requirement of five (5) feet. The proposed landscape setback is bifurcated by the proposed block wall located within that setback; the proposed wall design jogs in and out within the landscape setback, consistent with the existing block wall layout, creating a variation in the width of the landscape area on either side of the proposed block wall. Due to the narrowing of the landscape setback, six trees are proposed to be removed from this area; however, new trees are proposed to be planted to replace these and additional trees will be required in this area in conformance with Zoning Code Section 17.310.020.C. The proposed landscaping will incorporate a combination of trees and shrubs in order to soften the appearance of the proposed block wall and building fa?ade beyond, as well as to enhance the street view aesthetics of the site. The proposed perimeter landscaping will also act as an added layer of screening to buffer the new onsite parking lot area and lighting. In addition, additional plantings will be installed within the existing open space area at the northeast corner of the site and landscape setback along the north side of the proposed new parking area.
Due to the proposed building footprint expansion and reconfigurations proposed in the existing parking and circulation areas, a number of existing trees will be removed; however, some of these removed trees will be relocated within the site. New trees are proposed to be planted throughout the entire easterly parking area, which includes the added parking area from the grocery store building footprint and the existing parking area south of said building, which is to be reoriented. The main parking area abutting the south side of the Costco building will also be improved with new trees to maintain a consistent landscape palette throughout the site. The quantity of trees in the new easterly parking area will be in conformance with the requirements of Zoning Code Section 17.310.020.C. Parking area planters will also include shrubs and ground cover, which will serve to soften the visual appearance of the paving. Proposed landscaping will complement the buildings and enhance the aesthetic appearance of the development. Preliminary landscape plans are included in the preliminary development plans made part of the application. Complete landscape and irrigation plans shall be submitted for review and approval by all applicable divisions/departments prior to installation and final inspection.
Open Space
Currently, the existing site incorporates an open space area at the northeast corner of what is currently the Albertson's parcel, measuring approximately 7,500 square feet. This area includes a significant amount of landscape, including mature trees, and is located outside the perimeter walls of the site, making it accessible to the public. The applicant proposes to retain this open space area in order to preserve the aesthetic appearance it creates along the streetscape, and also to maintain the layer of screening and buffer this area and landscaping provides between the subject site and adjacent residential neighborhood. Although the existing grocery store building will be demolished, a new perimeter block wall is proposed to be installed in place of the existing building wall, and none of the existing trees in this area will be removed as a result of the proposed demolition.
Lighting
The site is currently equipped with exterior lighting throughout, including parking area lighting in the form of freestanding light poles, which are currently fifteen (15) feet in height. Although the Zoning Code allows a maximum height of eighteen (18) feet for freestanding light poles and luminaires, the proposed light poles will be a maximum of fifteen (15) feet in height, consistent with the existing light poles. The proposed lighting fixtures will be energy efficient and will be equipped with controls and timers, that will allow the lighting to be adjusted as needed to be sensitive to the surrounding uses. Lighting fixtures will conform to the requirements of the Zoning Code, with regard to orientation and design in order to confine glare and reflections within the boundaries of the site. In addition, the proposed parking area and perimeter landscaping will act as a buffer between onsite lighting and abutting public right-of-ways and adjacent residential uses
Noise
In order to understand and address possible concerns regarding potential noise generated by the proposed Costco expansion project, and in particular the tire center relocation from the southerly fa?ade to the easterly fa?ade of the building, the applicant provided a noise impact study at the request of the Planning Division. The study was prepared by Giroux & Associates Environmental Consultants, dated June 3, 2015 (Attachment No. 5), and examines potential noise from various sources, including construction activity. The study identified existing noise level measurements at residential locations abutting the site along Zanja Street, as well as existing noise measurements at seventy (70) feet from open roll-up doors during the busiest five-minute period of the tire center operations. The measured reference noise generation was assigned to the proposed tire center location. Further, residual noise levels were calculated at the closest home north of the proposed tire center location, on Zanja Street, and the closest home to the east, on Glencoe Avenue. The proposed tire center location is proposed to be approximately 200 feet from the north property line and approximately 400 feet from the easterly property line, with additional distance provided by the existing public right-of-ways, measuring fifty-three (53) and sixty (60) feet on Zanja Street and Glencoe Avenue, respectively. Based on the study submitted, any noise generated by the project, including the relocated tire center, will be well below the standards specified in the General Plan Noise Element.
Parking
The existing development provides a total of 1,042 parking stalls for all uses on the site, which total 225,086 square feet of floor area as specified in Table 1 below. As illustrated in the summary table, the existing condition does not conform to the current Zoning Code requirement with regard to the provision of off-street parking at the site. The original project resolution specified a total of 222,668 square feet with 1,055 off-street parking spaces, which also does not conform to the current Zoning Code requirements for off-street parking. Pursuant to Zoning Code Section 17.320.020.H, Table 3-3B, shopping centers greater than five (5) acres in net parcel area are required to provide off-street parking at a ratio of on space per 200 square feet of gross floor area. The table below summarizes the existing non-conforming condition, which identifies an existing off-street parking deficit in the amount of eighty four (84) parking spaces.
Table 1: Existing Parking for 13401-13463 Washington Boulevard
Building
Sq. Ft.
Retail Warehouse (Costco)
142,152
Pad A (Grocery Store, Albertson's)
63,213
Pad B
6,400
Pad C
1,692
Pad D
3,149
Pad E
3,200
Pad F
5,280
Subtotal Pad A through F
82,934
TOTAL
225,086
Parking Required: One space per 200 sq. ft.
1,126 spaces
Parking Provided
1,042 spaces
Existing Parking Deficit
84 spaces
The proposed project will result in a net reduction of 32,190 square feet of floor area. Similarly, the proposed circulation improvements and changes in building footprint will result in an overall reduction in the number of parking spaces at the site; however, the ratio of parking stalls per square foot of floor area will be improved and brought into compliance with Zoning Code requirements. In fact, the end result will provide a small surplus of parking in the amount of four (4) stalls, as summarized in Table 2 below.
Table 2: Proposed Parking for 13401-13463 Washington Boulevard
Building
Sq. Ft.
Retail Warehouse (Costco)
173,175
Pad B
6,400
Pad C
1,692
Pad D
3,149
Pad E
3,200
Pad F
5,280
Subtotal
Pad B through F
19,721
TOTAL
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192,896
Parking Required: One space per 200 sq. ft.
965 spaces
Parking Proposed
969 spaces
Proposed Parking Surplus
4 spaces
All new parking spaces drive aisles are in conformance with the minimum required stall dimensions, backup and circulation aisle widths. The proposed parking stalls are designed at nine (9) and ten (10) feet in width, rather than the minimum 8 feet - six inches. Similarly, and in various cases the proposed backup/drive aisles exceed the minimum required twenty-four (24) feet in width. The drive aisle abutting the south side, and the east side of the Costco building will be thirty (30) feet in width.
Traffic and Circulation
Vehicular and pedestrian access to the site is provided along Washington Boulevard, which is an existing 100 feet wide public right-of-way identified as a Primary Artery in the Culver City General Plan Circulation Element. There are two vehicular ingress/egress points: one (1) at the easterly end of the site; and the other at the westerly end, both of which are signalized. In addition, one (1) exit-only driveway is provided from the existing fueling station. No new access points are proposed.
A traffic analysis was prepared for the proposed project by Kittleson & Associates, Inc. Transportation Engineering/Planning, dated August 14, 2015 (Attachment No. 6). The traffic analysis was reviewed and accepted by the City's Traffic Engineer. The report analyzed the proposed project with regard to internal site circulation, site trips, transportation system impacts, neighborhood traffic, and impacts to surrounding intersections, including the signalized entries to the site. The analysis estimated that "removing the supermarket and expanding the existing Costco will reduce the overall site trips during all assessment periods".
The Engineering Division has required a number of right-of-way improvements to address existing deficiencies. Existing non-ADA compliant sidewalks along the project's frontage, and all non-ADA compliant curb ramps along the project's Washington Boulevard frontage, will be removed and reconstructed per American Public Works Association (APWA) standards. In addition, the east and west main driveways to Washington Boulevard will be reconstructed in order to alleviate the dip that occurs at each cross-gutter. This will help improve circulation conditions on Washington Boulevard, as the traffic analysis noted this existing condition results in reduced speeds and flows at the points of entry to the site. Ingress flows will also be improved by the reorientation of the easterly parking area, which as proposed will allow for through travel, instead of the right and left turn only. The proposed reorientation of the existing parking along the south side of the existing grocery store building, from a north/south direction to an east/west direction, will also help to improve pedestrian access between the parking area and the retail warehouse store. Pedestrian walkways and connections between the parking areas and Washington Boulevard are sufficiently provided, and will be decoratively paved.
The proposed additional fueling pumps will help alleviate wait times at the existing Costco fueling station. In addition, the proposed widening of the exit-only driveway at the fueling station will improve the egress maneuver at this point and also increase safety by improving the visibility at this location. The proposed modifications to the fueling station include an expanded queuing area, which will alleviate existing conflicts between vehicles in queue for fueling and vehicles circulating in adjacent drive aisles. The expanded queuing area will also create a longer drive aisle at the east driveway site, resulting in reduced circulation conflicts between vehicles waiting to exit the site and vehicles maneuvering in the adjacent parking areas. Similarly, the project proposes to modify the parking spaces and driveway at the existing In-N-Out restaurant. Currently, this use generates long queues at the drive-through, which in turn create congestion in the adjacent drive aisles. The proposed modifications will increase the queuing area for the drive-through, such that circulation for vehicles maneuvering in adjacent drive aisles and parking areas is improved.
The analysis also examines the possibility of changing the three out-bound lanes at the east driveway from dedicated left-turn, shared through/left-turn, and dedicated right-turn, to two (2) dedicated left-turn and a shared through/right turn lane. The City's Traffic Engineer has conditioned that the egress lane assignment at the project's east driveway shall remain in its current configuration, and that the project's traffic consultant conduct a follow-up study not later than six months after occupancy of the proposed expansion to determine if a change in the lane configuration is indicated by actual operational conditions. No changes are proposed to the width or number of lanes at either of the signalized driveways.
Neighborhood Compatibility
The existing development is a regionally oriented, multi-tenant shopping center, located along the north side of Washington Boulevard, which is a commercial corridor developed with varying types of commercial uses. The site is surrounded by residential uses, which vary from one-story to two-stories in height, along various streets to the north, east and west. The existing development maximizes neighborhood compatibility by orienting existing buildings and both pedestrian and vehicular access towards Washington Boulevard, and by providing perimeter block walls and landscaping as a further buffer and additional screening between the surrounding residential uses.
The demolition of the former Albertson's building will eliminate the twenty-seven (27) feet high building wall along portions of Zanja Street and Glencoe Avenue thereby opening up the site along portions of those streets. In place of the building wall will be a new ten (10) foot high perimeter block wall and landscaping to create a buffer from the adjacent residential properties. The resulting open area will be utilized for additional parking. The proposed site changes will continue to provide buffers and create a harmonious streetscape by incorporating new landscaping and the perimeter block wall. The proposed landscape will screen and insulate the onsite improvements and activity to continue conserving the neighborhood compatibility along the surrounding residential streets.
PUBLIC OUTREACH
As part of the project review process, one community meeting was held. The applicant invited interested persons to learn about the proposed project, provide comments and feedback, as well as to share any concerns regarding the proposed project.
Community Meeting
The community meeting was held Tuesday, May 12, 2015, 6:30 pm, at Culver West Alexander Park (4162 Wade Avenue). Invitations were sent by the applicant on April 24, 2015, to all property owners and tenants within a radius of five hundred (500) feet from the subject site, and including block extensions on each of the residential streets between Penmar Avenue east to Walgrove Avenue. Approximately twenty-five (25) people from the community attended the meeting, excluding City staff and the applicant project team.
The primary topics of concern identified and discussed during this meeting were regarding potential noise from the relocated tire center, visual aesthetics from the open space at the northeast corner of the site, screening, site lighting, site access, and existing operations issues (Attachment No. 7) The applicant's original plan included the complete elimination of the open space area at the northeast corner of the site to be replaced by parking, and incorporated an easterly planter which was only approximately five (5) feet in width. In addition, the original plan proposed new freestanding light poles at eighteen (18) feet in height, and contemplated a possible request for an additional seven (7) feet in height in order to potentially decrease the number and visual presence of the light poles.
Many neighboring residents were opposed to the removal of the existing landscaped open space area. In addition, attendees communicated that they believed the proposed open parking area that would replace the existing grocery store building would create visual nuisance from site lighting and noise from the relocated tire center operations, and would remove a significant buffer between the commercial site and the adjacent residential neighborhood.
Following the community meeting, the applicant worked with staff to revise the plans to address the community concerns. Specifically, the applicant revised the site plan to maintain the existing open space area and landscape at the northeast corner of the site. The landscape in this area provides a valuable buffer between the residential neighborhood and the site, improves the appearance of the streetscape, and helps to preserve the compatibility between the two uses.
Although a new screen wall and perimeter landscaping are proposed to create a buffer and address concerns regarding light and noise spill, the project plans were revised to provide new light standards at the same height as the existing lights, fifteen (15) feet. The new lighting will be LED, which is inherently directional and produces much less light-spill than traditional lighting.
In regard to the concern/objection related to the removal of the existing grocery store building wall, which is twenty-seven (27) feet high, the plan presented at the community meeting showed a proposed perimeter wall height of ten (10) feet to match the existing perimeter block wall along the north side of the site. Although the layout of the wall was revised to follow the line of the existing building wall, the height of proposed wall was not revised. The proposed height was preserved to maintain compatibility with adjoining walls, including the existing wall on Glencoe Avenue, which is only six (6) feet in height, and was considered to be of a sufficient height to serve as a buffer.
Due to the conclusions of the noise impact study prepared for the project, there was not a specific need to revise the orientation of the tire center from the east fa?ade back to the south fa?ade, which if revised would have affected the site circulation and general business operations. Therefore, the revised plans did not include any changes to the proposed tire center relocation.
The community meeting provided valuable feedback to the applicant project team. The applicant processed this feedback and worked with staff to make significant changes to the project plans to address community concerns.
CONCLUSION/SUMMARY:
Staff has worked with the applicant to refine the project plans to meet all City requirements, address community concerns, improve existing conditions related to parking, access and circulation while meeting Costco's expansion needs. Care has been taken in the building design to break up the bulk and mass of the building with varying building materials and heights, as well as to the site design to maintain the insulated effect by the inclusion of a variety of landscape plantings, perimeter screen walls to match the existing design and layout, and lighting that is sensitive to existing conditions. Furthermore, the proposed project will incorporate changes that will improve the current condition of the property and surrounding neighborhood in terms of traffic and circulation. Based on the proposed preliminary development plans and recommended conditions of approval, staff considers the project to be compatible with the surrounding neighborhood, providing a layout, architectural design, landscape, and screening consistent with applicable standards, with adequate public facilities, and consistent with the Culver City General Plan and the requirements of the Zoning Ordinance. Staff believes the findings for Site Plan Review, SPR P-2015081, can be made as outlined in Resolution No. 2015-P006 (Attachment No. 1).
ENVIRONMENTAL DETERMINATION:
Pursuant to Section 15162 of the California Environmental Quality Act (CEQA), SPR-P2015081 is within the scope of The Costco Project Final Environmental Impact Report (FEIR) (State Clearinghouse No. 96091019) certified on June 10, 1998 by the Culver City Planning Commission, the circumstances under which the FEIR was prepared have not significantly changed and no new significant information has been found that would impact either the FEIR, and therefore no new environmental analysis is required.
ALTERNATIVE OPTIONS:
The following alternative actions may be considered by the Planning Commission:
1. Approve the proposed project with the recommended conditions of approval if the applications are deemed to meet the required findings.
2. Approve the proposed project with additional and/or different conditions of approval if deemed necessary to meet the required findings and mitigate any new project impacts identified at the meeting.
3. Disapprove the proposed project if the applications do not meet the required findings.
ATTACHMENTS:
1. Draft Resolution No. 2015-P006
2. Vicinity Map
3. Project Summary
4. Preliminary Development Plans dated September 30, 2015 [34 Sheets]
5. Warehouse Noise Impact Study, prepared by Giroux & Associates Environmental Consultants, dated June 3, 2015
6. Traffic Analysis, prepared by Kittleson & Associates, Inc. Transportation Engineering/Planning, dated August 14, 2015
7. Community Meeting Summary
8. Correspondence
