1

6.A.

CORTE MADERA TOWN COUNCIL

STAFF REPORT

Report Date: November 14, 2019

Meeting Date: November 19, 2019

TO: Honorable Mayor and Members of the Town Council

FROM: Adam Wolff, Director, Planning and Building

SUBJECT: Discussion of existing Town thresholds used in determining when residential and

non-residential construction is required to obtain Design Review permits, and

consideration and direction regarding potential amendments to such thresholds.

* * * * * * * * *

RECOMMENDED ACTION

Consideration and direction to staff whether to initiate a process to clarify, simplify, and consider

other potential amendments to the existing Town policies exempting residential construction from

Design Review permits and amend existing regulations for commercial and other non-residential

types of construction to allow for more flexibility for minor modifications to such uses without the

need for Design Review permits.

BACKGROUND

Design Review permits are generally required to ensure that proposed construction that may

otherwise meet the Town’s development standards related to height, permitted floor area, setbacks,

etc., adheres to Town policies and objectives for thoughtful planning and design, with respect to

the physical and natural context in which construction is proposed, and the surrounding neighbors

and broader community that may be affected. These policies and objectives are expressed in the

discretionary findings that are required to be affirmatively made in order to grant an approval of a

Design Review permit (see Attachment 1 – Design Review Findings). Implicit or explicit in all

regulations related to requirements for Design Review permits is a policy that expresses the type

of construction or change to a structure or site that should be subject to additional review (and the

additional process, costs, and uncertainty that entails), and those construction projects or physical

changes that should not. This determination of a Design Review permit “threshold” can vary

widely between jurisdictions and communities as described in the table in Attachment 2, which

shows the varying design review policies just in Marin County.

Existing Design Review Regulations

The Town of Corte Madera currently mandates that a Design Review permit be approved by the

Town for specific types of construction activities. The specific type of construction activity that

is subject to the Design Review permit requirement varies depending upon the zoning district in

which such construction takes place.

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As shown on the Town of Corte Madera Zoning Map, updated in 2018 (Attachment 3), the vast

majority of the Town’s single-family residential areas are located in the R-1 and R-1-A zoning

districts.

In these districts, Design Review permits are required pursuant to Sections 18.08.220(h) and

18.04.320(h) respectively.

Design Review. Design review approval is required for all structures except:

(1) Additions to structures less than fifteen feet in height and less than two hundred

fifty square feet in area. (See Figure 13);

(2) Accessory structures which are ten feet or less in height and less than one

hundred twenty square feet in area;

(3) Fences, walls and hedges less than four feet high in height in the front yard

setback;

(4) Entry gates, such arches, arbors, trellises or similar structures located in the

required front yard setback which may not exceed the following dimensions: eight feet

six inches in width, eight feet in height, and four feet in depth.

Figure 13

Additions which trigger design review

Figure 13

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The other residential single-family residential zoning districts (R-1-B and R-1-C) and multi-family

zoning district (R-2, and R-3) have slightly different thresholds for when a Design Review permit

is required, as stated in 18.08.410(f), 18.08.520(f), 18.08.120(i), and 18.08.620(i)1 respectively:

Design Review. Design review approval is required for all structures except:

(1) Additions to structures less than fifteen feet in height and/or less than two hundred fifty square feet in area. (See Figure 142);

(2) Accessory structures which are ten feet or less in height and less than one hundred twenty square feet in area;

(3) Fences, walls and hedges less than four feet high in the front yard setback.

(4) Entry gates, such arches, arbors, trellises or similar structures located in the required front yard setback which may not exceed the following dimensions: eight feet six inches in width, eight feet in height, and four feet in depth

The difference between regulations governing when residential construction activities are

required to obtain Design Review approval is a result of Zoning Ordinance amendments made

in 2007 to the R-1 and R-1-A districts during the implementation of a new floor area ratio

standard (Ordinance No. 900). Other than adding paragraph (4) to the exceptions list for all

residential zoning districts, except R-3, in 2009 (Ordinance No. 910), these exceptions to

Design Review have been in place since 1994.

Special Design Review thresholds for residential construction on Christmas Tree Hill were

also adopted in 1994, following on the heels of the 1992 Christmas Tree Hill Community

Plan. As stated in Section 18.18.405(3)(B):

Exemptions from design review shall be granted for:

(i) Single-family home additions with all of the following characteristics: no greater than one hundred square feet of floor area, less than fifteen feet in height, and not including a window or deck;

(ii) Accessory structures which are no larger than fifty square feet and less than six feet in height.

(iii) Fences, walls and hedges less than four feet in height in the front yard or any portion abutting a street.

1 18.08.620(i) related to the R-3 zoning district (High Density Multiple-Dwelling District) does not include

paragraph (4) in its list of exceptions to Design Review approval. 2 The reference to Figure 14 is a drafting error. The correct reference is to Figure 13.

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For construction activities in almost all other zoning districts, including commercial, public

and semi-public, parks, open space, and natural habitat, and professional and administrative

office zoning districts, Design Review permits are currently required as follows:

Design review approval as prescribed in Chapter 18.30, Design Review, is required for any exterior modification of structures or site.

The requirement for Design Review approval in these zoning districts has been in place since

1994 as well.

Recognizing the extremely broad applicability of this code provision, staff proposed, and the

Town Council adopted, a modification of the Design Review requirement above, for the Mixed-

Use – Tamal Vista Corridor District (MX-1) in 2016.

Design review approval as prescribed in Chapter 18.30, Design Review, is required for any exterior modification of structures or site, except that replacement in-kind of exterior structures, amenities, or other site features, and modifications to the site landscaping may be allowed by approval of the Planning Director. The Planning Director, at his/her sole discretion may refer such items to the Planning Commission for Design Review. (Section 18.13.197)

Application of Design Review Regulations

The application of the above codes in residential and non-residential construction is a significant

consideration for prospective applicants when beginning their conceptual planning process given

the time, costs, and uncertainty involved with obtaining a Design Review permit. Staff’s

determinations and interpretations of all codes, including those related to the Design Review

“thresholds,” is guided by many pieces of information and principles including: the plain language

of the text, the intent and purpose of the text given other provisions of the code, logic and reason,

past practice and interpretations, and perhaps most importantly, the ability to apply the code

consistently and thus fairly.

With respect to residential construction activities, it has been the consistent practice of this

Planning Department to exempt a variety of common construction activities from the Design

Review approval process3, including:

- Additions to structures as long as they do not exceed 15 feet in height and are less than

250 square feet in gross floor area.

- Changes to exterior colors and materials;

- Changes to landscaping including installation of patios and other structures that serve

as design elements, stairs, and natural features;

3 It should be noted that if a prior Design Review permit was previously approved at a particular property, an

amendment to the Design Review permit would be necessary for any changes to the previously-approved site or

structures, whether or not such changes required a new Design Review permit.

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- Installation of new or modified windows or skylights;

- Re-roofs, including changing flat roofs to pitched, provided that no portion of the roof

is 15 feet in height or higher;

- New or enlarged decks or other surfaces less than three feet in height;

- All interior construction, including interior structures;

- Accessory structures, fences, walls, and hedges, and entry gates as noted in (2), (3),

and (4) above.

Based on a review of past Design Review approvals, this practice is also consistent with the Design

Review thresholds administered by prior Planning Department staffs.

For non-residential construction, Staff has generally permitted in-kind replacement of existing

structures without the need for Design Review approval. This includes replacing trees and shrubs

with similar species, replacement of siding or windows, and the repaving or re-striping of parking

lots. On the other hand, Design Review permits have been required for relatively minor changes

to non-residential structures and sites including:

- Construction of shade structures, trellises, or other outdoor landscape structures

- Changes to paint colors or building materials

- Changes to sign colors and subject matter

- Landscaping and parking lot modifications

- Minor façade modifications

DISCUSSION:

Over the last five years, Staff has had the opportunity to evaluate current policy and practice related

to Design Review “thresholds” and recognizes a need to amend the existing code in several ways

to make it easier to understand, consistent with Staff interpretations, and applicable to certain types

of construction activities.

With respect to the Design Review thresholds in residential zoning districts, an opportunity exists

to make the thresholds consistent for all single family zoning districts by changing “and/or” to

“and” in R-1-B and R-1-C districts in Sections 18.08.410(f) and 18.08.520(f) respectively. This

same change may be appropriate in the R-2 and R-3 multi-family zoning districts. Reformatting

to consolidate the Design Review requirements in one location, rather than in each zoning district,

would allow prospective applicants, Staff, and others to more easily navigate the Town’s code.

Additionally, Staff would like to clarify that additions to residential structures less than 250 square

feet in gross floor area (and less than 15 feet in height) are exempt from Design Review, consistent

with Staff’s interpretation and practice, and explore a new Design Review threshold that would

address instances in which construction activity involves demolishing and rebuilding a substantial

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portion of an existing residential structure without adding significant new floor area or increasing

the height of the structure over 15 feet.

Staff does not recommend amending the current Design Review threshold that exempts

construction that adds less than 250 square feet of gross floor area to an existing structure from

Design Review. This is based primarily on the relative success of this threshold as evidenced by

the very few instances where such exemption has led to significant concerns by surrounding

neighbors or the broader community. For perspective, approximately 40 residential construction

projects have added less than 250 square feet of floor area since the beginning of 2016. In that

same time period, Staff is aware of only two projects that raised significant concerns from

neighbors. While there may be a small number of cases in the future where relatively small

projects create real or perceived adverse impacts to a surrounding neighbor, subjecting

significantly more projects to the Design Review process may negatively affect the ability of Corte

Madera homeowners to make modest improvements to their properties. Other considerations

include the relatively aggressive applicability of Corte Madera’s existing Design Review

thresholds when compared to other Marin County jurisdictions and the additional staff costs that

would be necessary to process additional Design Review applications. That said, there may be

strategies outside of changes to the Design Review thresholds that are worth exploring, which may

further reduce the possibility of negative impacts from modest home improvements. This may

involve considering enhanced noticing or other strategies aimed at fostering early engagement and

communication with potentially impacted neighbors prior to building permits being issued.

With respect to non-residential construction, Staff would like to pursue amendments to the Design

Review thresholds that allow for relatively minor changes to structures and sites without the need

for approval of a Design Review permit. The goal would be to reduce the time, costs, and

uncertainty associated with minor aesthetic improvements or necessary safety or functional

improvements to commercial, public, and semi-public properties.

FISCAL IMPACT:

Staff time would be required to develop a package of Zoning Ordinance amendments

ENVIRONMENTAL IMPACT

This is a discussion item and does not involve the exercise of discretionary powers and therefore

is not a project pursuant to CEQA.

OPTIONS

1) Direct Staff to initiate a process, to clarify, simplify, and consider other potential

amendments to the existing Town policies exempting residential construction from

Design Review permits and amend existing regulations for commercial and other non-

residential types of construction to allow for more flexibility for minor modifications to

such uses without the need for Design Review permits (Recommended Option).

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2) Direct Staff not to initiate a process to revise current practices with respect to

administering requirements for Design Review Permits.

ATTACHMENTS

1. Design Review Findings

2. Design Review Threshold Comparisons for Marin County

3. Corte Madera Zoning Map (2018)

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ATTACHMENT 1

Design Review Findings

ATTACHMENT 1

18.30.070 - Required findings.

The planning commission or zoning administrator may approve a design review or a sign application as it was applied for or in modified form if, on the basis of the application and the evidence submitted, the planning commission or zoning administrator makes all of the following findings:

(1) The project conforms with the general plan, any applicable specific, area or community plan, master sign program and all provisions of the zoning ordinance.

(2) The project will not unnecessarily remove trees and natural vegetation, will preserve natural landforms and, whenever possible, avoid development within fifty vertical feet of ridgelines, does not include excessive or unsightly grading of hillsides, and otherwise will not adversely affect the natural beauty of the town.

(3) The project will not significantly and adversely affect the views, sunlight or privacy of any nearby residences, will provide adequate buffering between residential and nonresidential uses, and otherwise is in the best interest of the public health, safety and general welfare.

(4) The structure, site plan and landscaping are in scale and harmonious with existing and future development adjacent to the site, and in the vicinity, and with the landforms and vegetation in the vicinity of the site, and landscaping shall be based on water conservation designs.

(5) Development materials and techniques will result in durable high-quality structures and landscaping.

(6) The structures, site plan and landscaping create an internal sense of order, provide a visually pleasing setting for occupants, visitors and the general community, are appropriate to the function of the site, and provide safe and convenient access to the property for pedestrians, cyclists and vehicles.

(7) To the maximum extent feasible, the project includes the maintenance, rehabilitation and improvement of existing sites, structures and landscaping, and will correct any violations of the zoning ordinance, building code or other municipal codes that exist on the site.

(8) The design and location of signs are consistent with the character and scale of the buildings to which they are attached or which are located on the same site, the signs are visually harmonious with surrounding development, and there are no illegal signs on the site.

(Ord. 842 § 3, 1999; Ord. 785 § 3(b) (part), 1994)

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ATTACHMENT 2

Design Review Threshold Comparisons for Marin County

ATTACHMENT 2

Design Review Thresholds For Other Marin County Jurisdictions1

City/Town Single Family Residential Commercial/Office/Public Facilities

San Anselmo Above 150’ Elevation: - New Dwelling - Any second story addition or higher - Any addition greater than 500 sf except replacement in

kind Below 150’ Elevation:

- New Dwelling - Any second story addition or higher - Additions where new construction will increase existing

floor area by 50% or more - Additions in conjunction with the demolition of 50% or

more of exterior walls. - (cumulative from 2001)

- New buildings - Any exterior modifications. Minor modifications

can be approved by staff without notice.

Larkspur - Any second story addition or higher - New single-story dwelling or duplex increasing the floor

area of previously-existing floor area by 50% or more - Additions to single-story dwelling or duplex increasing the

existing floor area by 50% or more or above 15’ in height

- Any exterior modifications. Planning Director may approve minor or incidental modifications without Design Review. 18.64.020

Mill Valley - New single-family or multi-family dwelling units - Single-family additions greater than 1,000 square feet in

floor area or where the addition increases existing floor

- New structures or additions in Commercial zoning districts

- All new structures or changes in use of an existing

1 The information in this table is not intended to be comprehensive but provide basic information regarding Design Review requirements in other jurisdictions.

ATTACHMENT 2

City/Town Single Family Residential Commercial/Office/Public Facilities

area by more than 35% - Demolition of more than 50% of exterior surface area of

the dwelling - Single family additions in certain corridors such as East

Blithedale - New accessory structure over 150 SF of gross floor area or

additions to accessory structures over 35% of existing floor area.

- (cumulative over 2 year period)

structure of 150 square feet or more of gross floor area in any zoning district, physical improvements and all additions, extensions, changes in color, and other exterior changes of or to existing buildings, structures and physical improvements shall be subject to design review, whether or not a building permit is required, except as otherwise exempted by Section 20.66.030. “Physical improvements” as used herein may include, but is not limited to, parking and loading areas, driveways, retaining walls, fences and garbage or trash enclosures.

- Planning Director may exempt minor or incidental work consistent with objectives of chapter

Tiburon Any exterior change with some limited exceptions (low decks/walls/fences; interior work; ordinary repairs; solar)

Any exterior change with some limited exceptions (ordinary repairs that employ the same design, materials, and color as the original construction; solar)

Belvedere Any exterior change except with some limited exceptions (minor changes in color; in-kind replacement of roof/siding; landscaping not associated with a larger project; any work determined by the Planning Director to be minor or incidental in nature)

Same as single-family residential regulations

Marin County - In traditional subdivisions (ex: Greenbrae, older Strawberry subdivisions, Tam Valley), new single family residential homes with more than 3,500 square feet of floor area

- In PUDs, additions are handled by Staff site plan reviews to PUD (No Design Review)

Sausalito - Additions where the addition results in a setback from any adjacent structure on a neighboring property of less than 10 feet.

- New dwelling, replacement dwelling or substantial reconstruction which does not substantially replicate the

- Additions which increase the size of the structure 6. Projects for exterior remodeling of any commercial or industrial structure which have any of the following effects:

ATTACHMENT 2

City/Town Single Family Residential Commercial/Office/Public Facilities

existing structure - Projects for existing single-family residence or construction

or expansion of an accessory structure which have any of the following effects: a. Add more than 300sf of floor area where the

additional floor area will add new building coverage b. Add more than 25% of the total floor area of the

existing structure or add more than 600sf of floor area (whichever is less) where the addition will not add any new building coverage; or

c. Have the potential to impair views from other properties

d. Increase the height of any building.

a. Add more than 10 percent of the total floor area to the structure(s) or add more than 300 square feet of floor area to the structure(s) (whichever is less with respect to adding new floor area square footage); or b. Increase the height of the structure(s); or c. Have the potential to impair views from other properties.

-

Ross - All new buildings - Additions, 200sf or more of new floor area, including

enclosing existing open areas. - All building relocations. - Any increase to the existing roof height

- Any project resulting in the removal or alteration of more than 25% of the exterior walls or wall coverings

- Projects with 50 or more cubic yards of grading or work within 25ft of a creek, waterway or drainageway;

- Any project resulting in over 1,000sf of new impervious landscape surface

- Changes to existing landscaping/site work over 2,500sf in area including new hardscape, retaining walls, vegetation modifications, modification to topography, additional impervious surfaces, alterations of drainage patterns, and other site modifications that could affect the visual and/or physical character of the site and neighborhood

- Same as residential - Any outdoor advertising in C-L

Fairfax - New residences All structures, physical improvements and exterior

ATTACHMENT 2

City/Town Single Family Residential Commercial/Office/Public Facilities

- Alterations or additions constituting 50% remodels - New construction within ridgeline scenic corridors

physical modifications of buildings unless exempted by the Planning Commission

San Rafael - For non-hillside lots, second story additions greater than 500 square feet in size

- For hillside lots (average slope greater than 25%), any residential additions over 500 square feet or that raises the roof line.

All exterior modifications to structures or sites

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ATTACHMENT 3

Corte Madera Zoning Map (2018)

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P a r k v i e w C i r

C a y P a s s a g e

M a d r o n o A v e

A l t a T e r

U p u p a n d a W a y

K e y L a r g o C o u r s e

W a l n u t A v e

E b b t i d e P a s s a g e

A r r o w h e a d L n

B a h r L n

L a u r e l D r

Mo h a w k A v e

W i n d w a r d D r

. . .

Pres i d

i o A v

e

M o n o n a D r

. . .

M a n z a n i t a A v e

R i d g e w a y L n

G r a n a d a

D r

H ar t S

t

S o u t h W a y

S p r i n g T r l

K oc h

R d

Corte Madera Town Ctr

B a l c l u t h a D r

. . .

...

T r a d e w i n d P a s s a g e

O a k L n

. . .

Mo n t e c i t o A v e

. . .

V a l e n c i a L nWestw a r d D r

. . .

. . .

T e m p l e t o n C t

N T r a i l 1

. . .

B u cc a

n ee r

C t

. . .

Cort e M a d e r a T o w n C t r

F a w n

L n

P r o s p e c t L n

. . .

T a m a l P l a z a

. . .

C r e e k s i d e C t

. . .

P r i v a t e e r D r

O a k d a l e A v e

S Hw y

1 01 R

a mp

H i l l

P a t h

C h e y e n n e W a y

M e r r y L n

N W P R R

. . .

. . .

P r e s i d i o C t

C o n o w S t

. . .

. . .

...

M a n z a n i t a C t

. . .

U p l a n d C i r. . .

. . .

S Hwy 101 Ramp

E n d e a v o r D r

Verona Pl

M a r i n e r G r e e n C t

. . .

H i l l T r l

N Hwy 101 Ramp

Echo

Ave

. . .

M ea d

o w C r

e ek D

r

. . .

Endeavor Cv

T a m a l P l a z a

. . .

. . .

N H w y 1 0 1 R a m p

S i m o n R a n c h R d

G ra c

e Ct

W o o d h u e L n

E d g e m a r W a y

B l u e R o c k C t

H a w t h o r n e L n

. . .

H i l l P a t h

Fly i

n g C l

o ud C

o ur s

e

. . .

M o r n i n g S t a r C o u r s e

. . .

. . .

B i l l y ' s L n

. . .

O c t o p u s A c c e s s F i r e R d

S H w y 1 0 1 R a m p

N e l l e nA v e

C h i c k a s a w C t

Nel l e

n A v

e

E n t e r p r i s e D r

. . .

D e e r R u n

G r e e n T an kF i r e R d

P ri n

c e R o

y al P

a ss a

g e

S e m i n o l e A v e

L u c k y D r

T u n n e l

L n

D ia m

o nd H

e ad P

a ss a

g e

P ac i

f i c Q

u ee n

P as s

a ge

P a l o m a

D r

M e a d o w R i d g e D r

L u p i n e D r

. . .

.. .

C o n s t i t u t i o n D r

R o b i n D r

Cou n

c il C

r es t

D r

N H w y 1 0 1 R a m p

M e a d o w c r e s t D r

. . .

. . .

S H w y 1 0 1 R a m p

. . .

S a n d p i p e r C i r

N W P

R R

S H w y 1 0 1 R a m p

S o n o r a W a y

R o b i n F i r e R d

. . .

. . .

S a n C l e m e n t e D r

C o r t e M a d e r a R i d g e F i r e R d

Lower Summit Fire Rd

. . .

N WP

R R

. . .

. . .

...

P a r k v i e w C i r

Parkview Cir

. . .

...

. . .

...

Hillside Land Capacity OverlayBaylands Risk Zone OverlayChristmas Tree Hill OverlayAffordable Housing OverlayAffordable Housing Optional OverlayAffordable Housing Mixed Use OverlayMixed_Use_Gateway_Overlay_District

Zoning DistrictsR-3 High-Density ResidentialMX-1 Tamal Vista Mixed Use CorridorR-1-A Low-Density ResidentialR-1-B Very-Low-Density ResidentialR-1-C Open ResidentialR-1 Medium-Density ResidentialR-2 Low-Density Multiple-DwellingO Professional and Administrative Office

C-1 Local ShoppingC-2 Regional ShoppingC-3 Highway CommercialC-4 Commercial ServiceM Light IndustrialP/SP Public and Semi-Public FacilitiesPOS Parks, Open Space, and Natural HabitatFC Flood Control and Drainage FacilitiesW Waterbodies/Waterways

TOWN OF CORTE MADERAZONING DISTRICTS AND

SPECIAL OVERLAY DISTRICTS0 675 1,350 2,025 2,700

Feet

¯Updated June 2018This map is for informational purposes only.

The Town of Corte Madera does not guaraantee its accuracy for any purpose.

1 i n c h = 4 0 8 f e e t