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HomeMy WebLinkAboutAttachment 5 December 13, 2005 Staff Report AGENDA STATEMENT PLANNING COMMISSION MEETING DATE: December 13.2005 SUBJECT: PUBLIC HEARING: PA 05-043, Emerald Place Site Development Review and Conditional Use Permit for Emerald Place lifestyle retail center. Report prepared by: Rick Tooker, Contract Planner A TT ACHMENTS: I. Resolution recommending that the City Council approve a Site Development Review and a Conditional Use Permit for Emerald Place, and the Conditions of Approval as Exhibit A. 2. Reductions ofthe project plans for Emerald Place (full size set provided separately). 3. Written application submittal materials. 4. Preliminary color palette. 5. Consulting Traffic Engineer memorandum dated October 21, 2005. 6. Preliminary Lighting Fixtures. 7, Site plan illustrating possible locations for public art. 8. Stage I and 2 Development Plan for the combined IKEA facility and Hacienda Lifestyle Center (now called "Emerald Place") approved on April 6, 2004. 9. PI armed Development regulations for the combined IKEA facility and Hacienda Lifestyle Center approved on April 6, 2004. 10. April 6, 2004 adopted City Council Minutes regarding the combined IKEA facility and Hacienda Lifestyle Center. RECOMMENDATION: I. Open the public hearing; 2. Receive Staff presentation and take testimony from the Applicant and the Public; 3. Close the public hearing and deliberate; and 4. Adopt a Resolution recommending that the City Council approve the Site Development Review and Conditional Use Permit for Emerald Place (Attachment I). PROJECT DESCRIPTION: BACKGROUND The project site was originally envisioned for development as an office complex containing four, six-story office buildings, a five-level parking garage and a dining and fitness center totaling 780,000 square feet of floor area constructed over several phases, An electronics commerce software company (Commerce One) had received initial approval from the City Council in February 2001 to develop the site as its corporate COPIES TO: Property Owner/Applicant In-House Distribution File ATT.~CHMENT 5 ITEM NO. 2;, 4 G:\PA#\2005\05-043 Emerald Place Lifestyle Retail Center\PC\PCSR 12.13-05 JB comments.doc headquarters; however, the development was withdrawn in August 2001 after the property owner (Alameda County Surplus Property Authority) informed the City that it was no longer in contract with Commerce One. Shortly thereafter, in May 2002, IKEA contacted the City requesting consideration of a proposal to develop the 27 acre site with a 317,000 square foot IKEA home furnishings store containing 1,126 parking spaces and a 137,000 square foot lifestyle retail center proposed by Opus West Corporation. The combined development was called "Market Place at Hacienda." In April 2004, the City Council approved a number of plarming actions and entitlements relating to the project, including: . Amendments to the General Plan and Eastern Dublin Specific Plan reflecting the change in land use designation from Campus Office to General Commercial; . Approving a Planned Development on the site which established the land use and property development standards applicable to the site; . . Approving a Stage I and 2 Development Plan establishing the preliminary site design, parking layout and similar issues associated with development of the project; . Approving a Development Agreement vesting the applicable standards for a five-year time frame; and . Adopting a Supplemental Environmental Impact Report which analyzed the potential environmental effects of the project. Additionally, the City Council approved a Site Development Review (PA 02-034) including the site layout, architecture and master sign program for the IKEA portion of the development, leaving the easterly portion ofthe site where the Hacienda Lifestyle Center was proposed for future consideration. A number of improvements approved as part of the IKEA Site Development Review are currently under construction, including development of Martinelli Way, which will ultimately provide access to the home furnishings store in the future. The option to develop the lifestyle retail center has now been picked up by Blake Hunt Ventures, which requests approval of the Site Development Plan to develop the easterly portion of the site into Emerald Place. The proposed development is essentially the same as the Stage I and 2 Development Plan approved by the City Council in April 2004; however, minor revisions are proposed (discussed below), which in accordance with Section 8.32 of the City's Municipal Code may be approved through the Conditional Use Permit process. Although the Emerald Place project shares a common property boundary and primary access road, it is not part of the IKEA development approved by the City Council in April 2004. Proposed Project The Applicant, James Wright of Blake Hunt Ventures, requests approval ofa Site Development Review and Conditional Use Permit to construct a 140,155 square foot open air lifestyle retail center providing a variety of specialty shops, eating places and associated uses in an integrated space. The project is commonly referred to as Emerald Place (formerly "Hacienda Lifestyle Center") and is located on a generally flat, vacant +/'13.08 acre parcel bounded to the south by the on-ramp to 1-580, to the east by Hacienda Drive and Hacienda Crossings, and to the north and west by Martinelli Way and lKEA Way, respectively. Consideration of this application includes a Site Development Review (SDR) and Conditional Use Permit (CUP) for the design of the proposed new structures, circulation plan, on-site parking, landscaping, lighting and site amenities. A master sign program has not been submitted as a part of this application, and is therefore not under consideration at this time. However, as a Condition of Approval for this 20fl6 SDRlCUP, the Applicant is responsible for preparing a master sign program for future review and approval by the Plarming Commission. Emerald Place is an open air lifestyle retail center providing a variety of retail shops, eating places and associated uses in an integrated space on a +/13.08 acre parcel located at the southwest comer of Hacienda Drive and Martinelli Way. A "lifestyle center" is a collection of specialty retail shops and restaurants with small and medium size tenants organized in a modified city block with a main street running through the center of the project. In the Emerald Place project, two points of access are provided to the project site, including a primary access at the entry road shared with the future IKEA development ("IKEA Way") and a secondary entry driveway connecting directly to Martinelli Way. As illustrated in the project plans (Attachment 2), vehicles are charmeled in the interior of the site along retail-oriented esplanades with curbside parking, street trees, lighting, planter pots, benches and special pavement surfaces at sidewalks, crosswalks and intersections creating a downtown or "Main Street" experience. Within the center ofthe project is a multi-functional outdoor space that serves as a central plaza with specimen oak trees located at each of the four street corners along with raised planters, seat walls, enhanced pavement treatment, and a fountain located in the plaza area where people will gather and socialize. In addition to the curbside parking, there are several peripheral parking lots, including the primary parking area which extends from the northeast comer around to the southwest comer of the site. Two smaller parking areas are located at the entrance to IKEA Way and at a secondary entry driveway connecting directly to Martinelli Way. Total parking on the site is 667 spaces, which is 17 spaces more than the minimum requirements established in the applicable development standards for the property. (See analysis in Parking section below.) The project will include 140,155 square feet of commercial floor area contained within nine buildings, of which the fronts are designed to face the two Main Streets. These buildings are predominantly one-story in height, except for the two buildings located to the east end of the central plaza (Buildings 301 and 401) which provide a backdrop to the open space and an urban scale with interesting architectural forms and a unique roof design. The upper floors of these two buildings represent 23,979 square feet or 17% of the total floor area on the site. The project's architecture combines a variety of materials, textures and colors to provide richness and visual interest in the project and to complement the surroundings, including the large, relatively simple building forms of the future IKEA facility located to the west of Emerald Place across the shared entry road. Building materials will include an acid etched stucco finish with cast stone base and aluminum storefront windows, except for the two-story buildings which will be constructed with tilt-up concrete walls with textured bead blast finish. At the pedestrian passage ("Vista Garden") located between Buildings 301 and 401, which connects the peripheral parking to the central plaza, building accents will include a clear, natural wood finish with small pane divided windows and a trellis element located above the outdoor seating area. Additional materials used throughout the retail center include painted metal siding, steel rafters and a standing seam metal roof on the taller building elements. Some of the building walls facing the parking areas will be covered with plants, which are intended to climb upward from the building base to the roof parapet providing a green screen and adding texture to the development. Trash areas will be screened with concrete masonry unit enclosures and metal gates and a trellis structure, and truck unloading areas are recessed in many instances back from the primary building plane and gated to help shield their view. A 70 foot tall clock tower is located between the central plaza and pedestrian passageway at the Vista Garden providing an architectural focal point to the site. The landscaping is integrated throughout the site accenting gateways, intersections and the central plaza where large specimen oak trees (24" box minimum) will be planted providing an immediate impact on the setting. Approximately 37 trees that will grow to be large specimen trees, including the 12 oaks to be planted to create an immediate impact, are shown on the plans at key locations on the project site (see Sheet Ll-OI on the project plans). Additionally, monument plantings with perennials, bulbs and grasses are proposed at the northeast comer of the site at Hacienda Drive and Martinelli Way and the northwest 30fl6 comer of the site at the entrance to IKEA Way. Streets will have potted plants with armuals, ground covers and trees to include both evergreen and decorative materials. As described above, green screens or "living walls" are proposed on some ofthe unrelieved surfaces facing the peripheral parking areas to reduce their scale and to provide additional color and texture. The landscape plan is accented with seat walls where people can sit beneath trees, street and sidewalk accent pavement treatments (e.g. stamped colored concrete at pedestrian walks, raised brick with concrete banding at crosswalks, and brick accent paving in the street at the central plaza and the secondary plazas). A variety of interesting bench styles, bollards, tree grates and guards, and trash receptacles are also proposed in the plan. Within the Vista Garden, which connects the peripheral parking area to the east of the project site and the central plaza, is an outdoor seating separated from the pedestrian pathway by a railing (required by the State Department of Alcoholic Beverage Control). The Vista Garden also contains a meandering water element with small bridges, rocks and plantings flanked by the large fountain at the central plaza and smaller fountain at the east end of the entryway. No signs are proposed at this time, although the Applicant is preparing a master sign program for the project. Where areas for signage are shown on the project plans, such as at individual business entrances or at the periphery of buildings facing IKEA Way, Martinelli Way or Hacienda Drive, these are for illustrative purposes only. (See the project plans attached to this report for additional detail regarding this project.) General Plan and East Dublin Specific Plan Conformance The project site is designated in the City ofOublin General Plan and Eastern Dublin Specific Plan as General Commercial, both of which were amended in 2004 for the combined IKEA facility and Hacienda Lifestyle Center project. This designation allows for a broad range of general retail commercial uses. The proposed use of the site for an open air lifestyle retail center providing a mix of specialty shops, eating places and associated uses conforms to the land uses stipulated in these policy documents. As determined by the City Council in April 2004, the proposed use of the site (including both the IKEA facility and retail lifestyle center project) would also be fiscally beneficial to the City compared to the former office complex approved on the site. This determination was based on a recognition that the new development would pay for its own infrastructure and required services, thereby minimizing its impact on the community, This determination was also based on the recognition that with the decline in demand for office space within the region, development of the site would not be expected prior to 2013, as compared to commercial retail development of the site which could commence construction in 2006 and be ready for occupancy by the late spring in 2007. Planned Development Conformance The project site is located in the Plarmed Development district, which is intended to provide for a comprehensive development that is sensitive to surrounding land uses by virtue of the layout and design of the site plan, Further, the Planned Development district provides for a creative mix of complementary uses to establish the project as a focal point for the area. Regulations provided in the Plarmed Development for the project site include, but are not limited to (Attachment 9): I) permitted and conditionally permitted uses; 2) property development regulations, including setbacks, FAR, height limits and parking requirement; 3) architectural standards and design guidelines; 4) preliminary site plan of the project; and 5) other requirements which regulate the improvernent and maintenance of the property. The development of Market Place at Hacienda (including both the IKEA development and the former Hacienda Lifestyle Center originally proposed by Opus) was initially reviewed in a Stage 1 and 2 Development Plan approved by the City Council in April 2004. At that time the plan called for approximately 137,000 square feet of retail commercial floor area, up to 15 percent of which could be dedicated to food services. The mix of allowed land uses was broad, including home furnishings, apparel and accessories, gifts, books, sporting goods, and a host of service uses, such as banking, professional, medical and dental offices, and personal services. Additionally, the Stage I and 2 Development Plan approved as part of the City Council's action in April 2004 40fl6 provided a site layout that contained the location and placement of buildings on the parcel, interior network of roads and parking areas, access points to the public right-of way, architectural design and landscape plan. As submitted, the Emerald Place project is consistent with the property development and land use standards approved in P A 02-034 and the Stage I and 2 Development Plan for the site. Although the exact land uses for the site are not yet known by the City, since the Applicant is in negotiations with many of the prospective tenants, the proposed commercial retail and restaurant uses will be small to medium size tenants consistent with the uses permitted in the underlying Plarmed Development district, with possibly one anchor located at one end ofthe project. Moreover, the location and placement of buildings on the site, interior circulation and parking are consistent with the preliminary plans approved by the City Council in April 2004. There are a few changes that proposed in the project compared to the April 2004 Market Place at Hacienda project, to include: I) a 3,155 square foot increase in floor area; 2) an increase in height to accommodate the 70 foot clock tower; and 3) multiple landscaped areas rather than one large landscape area at the base of buildings adjacent to parking lots. These changes are discussed below in the Required Findings section of the Staff Report and in the Draft Resolution (Attachment I) and are allowed through the Conditional Use Permit process, provided the City can make the required findings contained in the Zoning Ordinance (Chapter 8.32). SITE DEVELOPMENT REVIEW: The intent of the City's Site Development Review process is to promote orderly, attractive and harmonious development of a property, and to ensure compatibility with surrounding properties and neighborhoods. This process is also intended to ensure compliance with development regulations and the requirements of the underlying land use district and to resolve major project-related issues, such as building location, architectural and landscape design, parking, internal circulation and impacts on the circulation system within the vicinity of the project. Pursuant to the Zoning Ordinance (Chapter 8.104) and the Planned Development district regulations for the project site (Ordinance 10-04), Site Development Review is required for new construction on the subject property, Site Design and Circulation There are two primary points of access provided to Emerald Place. IKEA Way provides two southbound lanes connecting to Martinelli Way. Motorists visiting the retail center will either turn left (eastbound) onto "Main Street" and travel into the interior of the site or will drive to the end of IKEA Way and turn left into the peripheral parking lot at the southwest comer of the property. A second primary entrance into Emerald Place is provided at the north end of the site where a driveway connecting to Martinelli Way is proposed. (See the proposed site plan in Attachment 2.) Pedestrian accessibility is provided at the perimeter and within the interior ofthe site by sidewalks that connect the buildings along the internal main and secondary streets to the peripheral parking lots. To the extent that pedestrians will travel between the IKEA facility and Hacienda Crossings, a walkway is provided both through the Emerald Place east parking lot and along the sidewalk on the south side of Martinelli Way, which will be illuminated during the evenings. Specialized pavement treatments are proposed at several locations within the development, including the courtyard parking areas at the driveway entrance from Martinelli Way where integrated colored concrete with decorative Wlit pavers and banding is proposed; at the north, south and west esplanades where decorative unit pavers and banding is proposed at the crosswalks; and within the central plaza where decorative unit pavers and banding is proposed within the roadway and at crosswalks to form the plaza. The preliminary colors ofthe pavement treatments are proposed by the Applicant within the warm grey, tan and brown tones to complement the overall context of the site (i.e. architecture, materials and building colors) and the surroundings. The comers of the internal streets are kept as tight as possible to provide an appropriate pedestrian scale, while also providing wide turning radii for large fire apparatus, which require access throughout the site in 5ofl6 the case of an emergency. Walkways are generally broad, ranging between 12 to 15 feet at building frontages along the main streets (sidewalks adjacent IKEA Way and Martinelli Way will be 8 feet and secondary walks for emergency exists are 4 feet). Landscaped median strips are provided along the main streets and a flush pavement surface is provided at the central plaza between the pedestrian walkways and roadway to minimize the appearance of surfaces dedicated to vehicles and to enhance the comfort of pedestrians. Within the central plaza, bollards are used to demarcate the edge of the walkways at comers to avoid pedestrian/vehicular conflicts, Analysis of Issues Associated with the Site Design and Circullltion There are two areas associated with the site design and circulation plan that have changed from when the plan was last reviewed by the City Council in April 2004 as part of the Stage I and 2 Development Plan (Attachment 2). One proposed change, located in the northwesterly portion of the site, is minor and includes reconfiguring some of the parking spaces closest to Martinelli Way, The new parking area contains essentially the same number of parking spaces; however, the drive aisle has been shifted slightly to the south behind a row of stalls placed perpendicular to the landscaped buffer and public sidewalk at the south side of Martinelli Way. Staff does not believe this change is significant and it does not appear to represent an inconsistency with the Planned Development objectives applicable to the site. However, if the Planning Commission believes that the original design is preferable, Alternate Condition A (below) should be added to the Draft Resolution: A. The applicant shall design the parking lot located in the northwest corner of the site to match the plans presented in the Stage 1 and 2 Development Plan, to include the drive aisle abutting the landscape strip separating Martinelli Way from the project site. A second change, which is significantly more noticeable and has visual implications to the project, is located at the Martinelli Way entrance to Emerald Place. In this location, the distance between Buildings 101 and 20 I has been increased and two parking courts are now proposed adjacent to the entry drive to serve these buildings. Two large circular planted pots and specialized pavement treatment focus attention at the ground level to Main Street to help channel traffic to the interior of the site; however, to those motorists who want to park ordrop-off/pick-up passengers at buildings 101 or 102, there is now an alternative to pull into the small parking courts. This revised design accomplishes two additional benefits to the project, including: I) providing visibility of the tenant spaces at the north ends of Buildings 301 and 90 I; and 2) providing a place for motorists to turn around while traveling northbound from the central plaza toward Martinelli Way without having to exit the site and make a U-turn at the comer of Martinelli Way/Hacienda Drive. Staff is concerned that this change at the Martinelli Way entry to Emerald Place will adversely impact the "sense of arrival" to the retail center that was evident in the original plan, which contained buildings tight to the main street and an intimate setting resembling a typical downtown environment. Moreover, Staff is concerned that the change will adversely impact vehicular circulation at this key entrance to Emerald Place by blocking inbound traffic on Martinelli Way while motorists are waiting to turn left into the parking court at Building 201 and vehicles are queuing to exit the retail center. This assessment was supported in a report dated October 21, 2005 prepared by Omni-Means, which is a traffic consultant requested by the City to review the proposed plans (Attachment 5). The Applicant has attempted to address this Staff concern by designing different pavement surfaces to help distinguish the drive aisle from the parking courts and to channel vehicles to the interior of the site where parking spaces are more plentiful. A low circular planter has also been designed at the entrance to each parking court to help visually separate the drive aisle from the parking areas. Only by shifting both Buildings 101 and 201 inward toward the main street and eliminating both parking courts would this problem be fully addressed. This solution would charmel all vehicles from the Martinelli Way entrance 60fl6 into the site and eliminate the potential for vehicles queuing into the street, as was approved in the original Stage 1 and 2 Development Plan. However, this solution would reduce visibility of Buildings 30 I and 901 from Martinelli Way-an issue expressed by the Applicant as important to providing viable tenant spaces. If the Planning Commission believes the original design approved in the Stage I and 2 Development Plan is more preferable given issues associated with the pedestrian scale of buildings at the Martinelli Way entrance, Alternate Condition B should be added to the Draft Resolution. Conversely, if the separation of Buildings 101 and 201 is acceptable provided that the traffic conflicts are addressed, Alternate Condition C should be added to the Draft Resolution. B. The applicant shall design the Martinelli Way entrance to Emerald Place to provide a more pedestrian scale by shifting Buildings 101 and 201 closer to one another. consistent with the Stage 1 and 2 Development Plan approved by the City in April 2004. C. The applicant shall design a raised landscaped median to separate the inbound/outbound lanes between the Martinelli Way entrance and the North Main Street Esplanade to prevent vehicles from queuing of vehicles in the public right-of-way. In all other respects, with the exception of some minor amendments to the plans that can be reconciled through Conditions of Approval, improved coordination between the civil engineering and architectural plans, and implementation in the construction documents submitted as part of the building permit application, Staff believes that vehicles will be able to efficiently circulate on and off the site without difficulty. Similarly, with the recommended conditions in place, Staff believes there is sufficient access throughout the site for emergency services and the safety of pedestrians and motorists has been addressed. Parking The parking design at Emerald Place is governed by Chapter 8.76 of the Dublin Zoning Ordinance based on the square footage in terms of gross floor area. As submitted, a 140,155 square foot retail center with 14,822 square feet (11%) of restaurant space is required to provide a minimum of650 parking spaces. Compact parking spaces may be provided up to 35 percent of the total number of spaces provided they are generally not intermixed with spaces designed for full-sized vehicles and are located in low turnover areas typically used by employees of the retail center. Bicycle racks, as required in the City"s Parking Ordinance, are also required at a minimum ratio of one rack accommodating four bicycles for every 40 parking spaces. Bicycle racks should be located where they will have adequate lighting and public visibility. Parking lots are required to be landscaped with shade trees and perimeter screening (typically I tree for every 4 parking spaces). Pedestrian paths are required throughout the parking lot to connect to public sidewalks and buildings in a safe marmer and the parking lot and walkways should be adequately illuminated. The Applicant proposes a combination of curbside parking along the main streets and in several peripheral parking lots at the edge of the retail center. The largest of the parking areas extends from the northeast comer around to the southwest comer of the site and in three smaller parking areas located at the northwest comer of the site and in the two parking courts at the north entrance to the sight at Martinelli Way. Total parking provided on the site is 667 spaces, which is 17 spaces more than the minimum requirements established in the applicable development standards for the property. This represents a parking ratio of 4.63 spaces per 1,000 square feet of gross commercial floor area, or I stall per 100 square feet of restaurant use and I stall per 250 square feet of retail space. Approximately 148 spaces (22%) will be for compact vehicles. These compact spaces are generally aggregated along the southerly border of the site facing 1-580 and along IKEA Way at the southeast comer of the site. Approximately 16 spaces will be accessible and will be located closest to the entrances to buildings and contain proper signage. 70fl6 Landscaped islands are designed between rows of parking to be planted with trees and shrubs that will minimize the lifting of sidewalks and pavernent for continued maintenance into the future. All landscaped areas will be fully irrigated. Three layers of substantial tree canopies will be provided to help screen the backs of buildings, loading docks and refuse enclosures, including at the property boundaries, within the parking lots and at the base of buildings. Methods will be employed during site grading to ensure proper under drainage, which will allow for maturation of the landscape plan where large paved areas can otherwise stifle tree growth. A pedestrian circulation plan provides adequate connection of the peripheral parking areas to the interior of the site, which will be fully illuminated at night. (See analysis iflighting below.) Analysis of Issues Associated With Parking The City's Zoning Ordinance allows up to 35 percent of parking stalls on the site to be designed for compact vehicles, subject to approval through the Site Development Review process. This would allow 233 compact spaces, which far exceeds the proposal to construct 148 compact spaces (22%) on the site. However, according to a review of the project plans by Omni-Means dated October 21, 2005 (Attachment 5) a retail project should typically not exceed 20 percent compact spaces, or in this instance 120 spaces. The difference between the proposed number of compact spaces in the project and the number identified as desirable by Omni-Means is quite small (representing 18 spaces). However, if the applicant were required to revise the plans to provide no more than 20 percent compact spaces, the total number of parking spaces on the site (667) would have to be reduced. Presently, the applicant has designed 17 more parking spaces in the project than are required by the Zoning Ordinance. Staff believes that maintaining the existing number of parking spaces is more important than replacing 18 compact spaces with standard spaces. As an alternative to redesigning the parking lot and losing spaces, Condition of Approval 17 has been included in the Draft Resolution requiring the Applicant to prepare and distribute to all future employees of Emerald Place a parking map identifying which areas of the parking lot employees are to park. This will provide for increased efficiency of the standard parking spaces located closer to the businesses for use by customers. Additional Conditions of Approval are included in the attached Draft Resolution (see Conditions 113, 114 and 118) to help ensure compliance with the parking design and associated landscaping standards, as required in the Zoning Ordinance. These issues are relatively minor, and include: I) maintaining landscaping at a height of 30 inches at comers to provide adequate sight lines, 2) providing the required concrete curbs at the border of landscape and parking areas, and 3) maintaining the minimum required planting area for all trees within parking lots. If the Plarming Commission believes that the proportion of compact spaces on the site should not exceed 20 percent, the following condition should be added to the Draft Resolution: D. The applicant shall be required to revise the parking plan to include no more than 20 percent of the total number of spaces dedicated to compact vehicles. Architectural Design The proposed design appears to comply with the design objectives and guidelines contained in the Plarmed Development for the subject property, as follows: . The front and side facades of buildings shall be designed to provide visual interest to pedestrians and motorists. Front and side building facades shall include sufficient articulation to prevent long, horizontal elements and uninterrupted walls. Street facing facades which also incorporate service uses for the building will have architectural interest and be of a size sufficient to provide space for signage and identification; . The design of windows, reveals, parapets and other architectural features should promote a 80fl6 visually stimulating and coherent architectural theme. Long stretches of windows shall be broken up by perpendicular elements. Tenants will be permitted to modity individual storefronts pending review and approval by the landlord; . Distinctive materials shall be used in the design of entry areas to highlight these areas; . Rooftop mechanical equipment shall be screened from view; . Truck docking areas shall be designed as a part of the overall architectural design for a principal building, such that the view of these areas shall be screened to the maximum extent feasible from street views or otherwise architecturally treated to resemble the site or front of the same building; . Storage facilities shall be architecturally integrated with the main building design; and . Outdoor storage of materials is specifically prohibited. Designing a pedestrian-oriented, lifestyle retail center that provides an exciting "Main Street" experience, while also integrating with and complementing the future IKEA building located to the west across the shared primary entry drive presents a significant challenge for the Applicant. This becomes even more challenging when considering the wide vehicular corridors of 1-580 and Hacienda Drive and peripheral parking areas that are needed to serve the 140,155 square feet of commercial retail, eating places and associated uses. To address these issues, Emerald Place proposes buildings that are predominantly one- story in height, except for the two buildings located at the east end of the central plaza (Buildings 301 and 40 I), which serve as a backdrop to this focal point providing an urban scale for the retail center. Interesting architectural forms and a unique roof design are proposed and a combination of materials, textures and colors provide richness and visual interest in the project and complement its surroundings, including the large, relatively simple building form of the future IKEA building. Building materials will include an acid etched stucco finish with cast stone base for the single-story elements and a cast stone base and textured bead blast finish on the tilt-up concrete walls on the two story elements. Aluminum storefront windows are proposed on all buildings. Building accents will include a clear, natUral wood finish with small pane divided windows and a trellis element at the storefronts facing the pedestrian pass through ("Vista Garden") which connects the peripheral parking to the central plaza; painted metal siding, steel rafters and large overhangs; and a standing seam metal roof are provided throughout the site. Some ofthe building walls fronting the parking areas will be covered with plants, which are intended to climb upward from the base to the roof parapet providing a green screen and adding texture to the development. Trash areas will be screened with concrete masonry unit enclosures with metal gates and a trellis structure. Truck loading areas will contain roll-up metal doors, which are in many instances recessed well back into the building and gated to help shield their view. A 70 foot tall clock tower is located between the central plaza and pedestrian passageway at the Vista Garden providing an architectural focal point for the project primarily visible from the site's periphery at IKEA Way, Martinelli Way and Hacienda Drive. There are no areas proposed for outdoor storage and the rooftop equipment is set into wells below the roof parapet or screened with a metal enclosure, consistent with the Plarmed Development regulations for the subject property. Analysis of Issues Associated With Design There are a few issues relating to the design that may warrant particular discussion by the Plarming Commission. One issue relates to the selection of preliminary pavernent treatment colors and building colors, which according to the Applicant are subject to change. The preliminary color palette selected by the Applicant illustrates that concrete walkways will be a buff color to match the building, crosswalks at intersections will be grey pavers, the central plaza and gateway entrance will be interlocking pavers in grey and charcoal colors and the Vista Garden will be a combination of buff pavers and washed aggregate in grey and tan tones. These colors are compatible with the overall context of the architecture and surroundings. The preliminary building colors include a natural grey base with tan, brown or terra cotta body and trim. The metal roof material will be a Brandywine color with the metal accent siding material 9 of 16 and wood paneling painted a bronze and red color, respectively. Fabric awnings, window displays and business signage will add individual variety and interest to the buildings at each tenant space, The actual tenants of Emerald Place are not known to the City, as the Applicant continues to negotiate with prospective retailers and restaurants. These colors are reflected on a materials sample board shown in photo provided by the Applicant (Attachment 4) and are available at the City of Oublin for review, The materials board will also be presented at the public hearing along with a model constructed by the Applicant. Since color selection is an important element of the Site Development Review process, the Applicant has been requested to provide final colors (as opposed to preliminary colors) at the Planning Commission hearing on December 13. 2005. Condition of Approval 14 in the Draft Resolution provides for revisions to the approved colors, provided this decision is made by the Planning Commission after a mock-up of the colors has been provided on the site. Another concern regarding design relates to the challenges of designing "four sided" buildings, while also providing areas for unloading of trucks, refuse enclosures and secondary egress for fire safety. Although the main street facades contain a variety of building forms, use of materials, fenestration and landscaping, some of the side and rear elevations contain less building articulation and consequently appear more massive. The following section is intended to foster Plarming Commission discussion of those building elevations that do not front on the main streets, but are still visible from the parking areas and may warrant revisions to address their mass or scale. Buildings 101/201 (Elevations and LandscaDing on Sheet A3.02 and .03 and Ll.02) - The west elevation of Building 101 and east elevation of Building 20 I represent the backs of the buildings facing the outer parking areas. Fenestration on these elevations is difficult given that the interior space will primarily be used for storage. Steel enclosures shield the unloading areas, and there is some horizontal movement on the elevations to provide depth and shadows. Trees are placed in a planter at the base ofthe rear walls and the wall surfaces provide some texture for relief. At the property boundaries, within the parking lots and at the base of the buildings are trees, which will help to provide a vegetation layer between Hacienda Drive, Martinelli Way and lKEA Way and rear building elevations. To provide additional interest in the design of Buildings 101 and 102, the Plarming Commission should consider requiring the incorporation of the pitched roof forms on these buildings. The pitched roof elements make the retail center project unique and integrate the site along the main street frontages. These roof forms are designed on the buildings at the lKEA Way entrance to the center, but surprisingly are not located on the buildings at the Martinelli Way entrance. The following Alternate Condition could be added to the Draft Resolution: E. The applicant shall redesign Buildings J 0 1 and J 02 to include pitched roof elements characteristic of the roof design provided throughout the retail lifestyle center. Buildings 301/401 (Elevations and Landscaping on Sheet A3.04, 05, 06 and Ll.02 and 03) - These buildings serve as the backdrop to the central plaza and reflect height and mass that embodies an urban scale, while also providing an intimate setting for the central plaza. Large specimen oaks will be planted at the four street comers providing natural canopies that will move with the unique building forms and their rooflines. Smaller trees are also located at the base of these buildings. The east elevations of Buildings 301 and 401 are particularly important because these walls provide the gateway for the primary pedestrian access ("Vista Garden") to the central plaza from the large parking field in the easterly portion of the site. The Applicant proposes to break up the large mass on the east elevations of Buildings 301 and 401 with a 100fl6 vegetation screen that will add texture and reduce their scale. Sheet L 1.07 of the project plans illustrates how the vines will attach to the buildings. Several trees are also designed at the base ofthese buildings to help shield their visibility. The planters at the base of these walls need to be of sufficient width to encourage the vines to grow up and cover the walls in a thick blanket and to allow these trees to grow to maturity. However, walkways along the backs of these buildings could reduce the effectiveness of the landscaping. To address this issue, the Plarming Commission may want to add the following Alternate Condition to ensure that the walls are properly screened: F. The east elevations of Buildings 301 and 401 should be sufficiently screenedfrom view from the primary parkingfield and Hacienda Drive with trees at the perimeter of the site, within the parking lot and at the base of the buildings. Open Space and Landscaping The landscape plan is a significant element of project and helps to tie together the site plan and building elevations into an integrated unit. At the out edges of the site, the wide traffic corridors surrounding Emerald Place are enhanced by street trees, lighting, tree-lines sidewalks and furnishings to help provide scale and character. Two pedestrian-oriented esplanades connect IKEA Way and Martinelli Way to the focal point ofthe site-the multi-functional central plaza which is intended to be a destination point attracting both residents and visitors alike. The central plaza is anchored by bulb-outs at the street comers, large specimen oaks and access to natural sunlight. Raised planters, seat walls, specialized pavement treatment and a water feature help to define the character of this space. In addition to the main streets, the Vista Garden represents an attractive passageway connecting the central plaza to the perimeter parking areas. The Vista Garden is flanked by restaurants with outdoor seating on each side and contains a meandering water element running through the passageway with small bridges, rocks and plantings and fountains on each end. A variety of interesting bench styles and other elements, such as bollards, tree grates, trees guards, and trash receptacles, are also proposed in the plan. Opportunity sites for public art are shown; however, the exact location and nature of art to be incorporated into the project is not yet known at this time. (See Attachment No.7) Therefore, this issue will be further explored by the Applicant through the Parks and Community Services Commission prior to issuance of a building permit, as provided in Condition 16. Several layers of trees are provided between the outer edge of the project site and the building perimeters that face outward to Martinelli Way, Ikea Way, Hacienda Drive and the 1-580 on-ramp. Deciduous and evergreen trees provide shadow patterns and planters are designed with ground covers and shrubs. Vertical vines supports and clinging vines will create a green screen on some of the larger building elements to reduce their mass and provide visual interest from the perimeter of the site. The gateways to the site also include many ofthe same planting treatments, such as perennials, bulbs and grasses. Similarly, along the main streets and passageways between the parking areas and interior spaces at Emerald Place are potted plants, flowering street trees for color, armuals, ground covers and vines. All landscaped areas will be watered by an automatic irrigation system, which could accommodate recycled water. Plant sizes will vary depending on their location. (See the project plans attached to this report for additional information regarding the landscape design and site furnishings on Sheets Ll-OI through Ll- 08.) The proposed design appears to comply with the open space and landscape objectives and guidelines contained in the Plarmed Development for the subject property. Where one tree is typically required for each parking space on the project site, there are approximately 600 trees proposed on the site representing a rate of approximately one tree for each parking space. Landscaped islands are designed between rows of parking stalls and in the main street esplanades to be planted with trees, shrubs and groundcovers, thereby providing a more natural setting. The layering of trees between the property lines and buildings facing II ofl6 outward to the parking lot is particularly important to help screen the backs of buildings, loading docks and refuse enclosures. Of equal importance are the methods that will be ernployed by the Applicant during site grading to ensure proper under drainage, which will allow for maturation of the landscape plan. To the extent that an existing agreement between Caltrans and the City for landscaping within the edge of the on-ramp to 1-580 can be incorporated into the plans for perimeter planting at Emerald Place, Condition of Approval 122 in the Draft Resolution is provided (Attachment I). The landscape plan helps to strengthen the linkages along the esplanades into the central plaza and around the perimeter of the site. Furnishings are shown on the landscape plans (Sheets Ll-06 through Ll-08) to include round and rectangular pots, tree guards and grates, benches, trash receptacles and lights. The style of light post for the pedestrian walkways is consistent with the modem architectural design or buildings; however, there will be other sources oflighting, including in-grade tree up lighting, pole-mounted single and double head lights at roadways and in the parking lots, and wall mounted fixtures. (See Attachment 6 and Sheets L T.OI through L T.II of the project plans.) There are a few areas relating to the landscape design that will need to be revised to comply with the Plarmed Development and Zoning Ordinance regulations relating to the site, These issues can be addressed by Staff through review of the construction documents submitted as part of the building permit review process and include, but are not limited to, ensuring that all planter islands, landscape strips, sidewalk widths, planter curbing and planting at the base of buildings meet required minimum dimensions. Condition of Approval 9 in the attached Draft Resolution requires compliance with all City Plarmed Development and Zoning Ordinance regulations, since there are some areas on the plans that are not fully dimensioned and it will be necessary to verify these for compliance before a building permit is issued. Utilities The Plarmed Development for the project site requires that pad mounted transformers, backflow prevention devices and similar utilities shall be located and screened to minimize visibility. Additionally, the Planned Development establishes that structures other than fencing, asphalt paving for parking and landscaping shall not be located within any portion of a public utility easement, unless authorized subject to an encroachment permit. The project site has a 20 foot wide storm drain easement with an 84" line that extends from the southwest corner of the site to the relative midpoint of the east property line at Hacienda Drive, Surface elements, such as parking and landscape islands, are permitted over this easement; however, no buildings are allowed over the easement, As submitted, there are no structures proposed over the storm drain easement. All surface improvements will provide reasonable access to the storm drain in the event of a need to repair any drain lines. The placement of shade trees in this area as part of the landscape plan are assumed to be acceptable, as presented by the Applicant, and any changes to the plan as a result of the storm drain shall require review and approval by the City. The project site also contains an overland flood easement located in the easterly portion of the site. It may be possible to abandon this easement ifit can be demonstrated that the storm water flows on the site can be contained in the existing 20 foot wide storm drain easement in the event the 84" storm drain becomes plugged. If this carmot be demonstrated, or alternative means for abandonment of this easernent be accepted, Building 401 which clips a small comer of the easement will require an adjustment to address this issue, as required in condition of approval # 145. PROJECT PHASING: The Applicant proposes to submit construction documents for the plans approved as part of the Emerald 120fl6 Place retail center immediately upon approval of this Site Development Review and Conditional Use Permit. Those improvements that are not yet complete as part of the Parcel Map 8262 (IKEA Project) shall be completed by the developer of Emerald Place if this project is to be occupied before the IKEA facility. These improvements include construction oflKEA Way and Martinelli Way along the project frontage to include, but not be limited to sidewalks, planter strips, utilities, traffic signals, street lighting, bus turnouts and amenities, and landscaping. Development of the site is expected to take approximately one year after issuance of the building permit, which will include site clearing and grading, setting and pouring foundations and constructing the building shells. (See attached Schedule Overview for Emerald Place.) Once the building shells are delivered to the tenants in +/- February 2007, tenant improvements will take approximately 90 days, with Emerald Place scheduled to open to the public in May 2007. This represents an ambitious schedule that will require tenants of the lifestyle retail center to coordinate their improvements with the Applicant well in advance of completion of the building shells and to submit the construction documents for plan check by the City prior to January 2007, SIGNAGE: The Planned Development for the project site requires the review of a clear, hierarchically organized system of signage to orient users to various destinations within the development. Signs are to conform to the City's standards and are to be of a uniform style throughout the site, while also allowing specific tenant identity. Signage is intended to complement the site's architectural theme. The submittal materials provided as part of this application contain some indication of where signs could be located relative to the overall design of Emerald Place (i.e. at doorways, the rear of buildings facing the parking lot, etc.); however, no master sign plan has been provided as part of this application. Instead, the Applicant proposes to present the master sign plan at a later date after approval of the Site Development Review and Conditional Use Permit. This will allow the City to focus on the site design, architectural and landscaping elements of the project proposal. To the extent that issues relating to the possible location of signage, such as at the entrances to the retail center at IKEA Way and at the northeast comer of the site at Hacienda Drive and Martinelli Way, are raised during review of the Site Development Review and Conditional Use Permit, these issues will be incorporated into the design of the master sign permit. Condition of Approval 15 in the Draft Resolution requires approval of a master sign permit by the Plarming Commission prior to receipt of a building permit authorizing construction on the site. PUBLIC HEARING NOTICE: In accordance with State law, a public hearing notice was mailed to all property owners and occupants within 300' of the proposed project and to all interested parties at least 10 days prior to the public hearing on December 13,2005. The public notice was also published in the Valley Times and posted at several locations throughout the City, ENVIRONMENTAL REVIEW: Under the California Environmental Quality Act (CEQA), once an EIR has been certified, no subsequent or supplemental EIR is required for the project unless the lead agency determines that the following conditions exist: 1. Substantial changes are proposed in the project which will require major revisions to the previous EIR due to new significant environmental effects or a substantial increase in the severity of previously identified significant effects; 13ofl6 2. Substantial changes occur with respect to the circumstances under which the project is undertaken which will require major revisions to the previous ErR due to the involvement of new significant environmental effects or a substantial increase in the severity of previously identified significant effects; 3. New information of substantial importance, which was not known and could not have been known at the time the previous EIR was certified, shows that the project will have a significant effect not considered in the previous EIR, will be substantially more severe than shown in the previous EIR, mitigations or alternatives to the project previously found to be infeasible would in fact be feasible, or new mitigations measures or alternatives not discussed in the previous EIR would substantially reduce a significant environmental effect. As described above, the project proposes an open air lifestyle retail center providing a variety of specialty shops, eating places and associated uses in an integrated space, to include site layout, buildings, circulation, on-site parking, landscaping, lighting and site furnishings. This project was anticipated as part of a Supplemental EIR certified by the City Council in Resolution 44-04 passed on March 16, 2004. The proposed Emerald Place project presents no substantial changes that require major revisions to the previously certified Supplemental EIR, including changes in circumstances as a result of project modifications that would cause new or more intense significant impacts or new information of substantial importance that identifies new or more intense significant impacts. Similarly, although there are minor changes to the Stage I and 2 Development Plans approved by the City Council in April 2004 as part of the Market Place at Hacienda project, to include an increase in floor area of3,155 square feet, an increase in height to accommodate a 70 foot clock tower and revisions to the dimensional standards for landscape, these changes are considered minor and allowable with a Conditional Use Permit, as established by the City's Zoning Ordinance. Although the proposed project increases floor area on the site by 3,155 square feet compared to the Market Place at Hacienda project, this is offset by a reduction in floor area dedicated to food uses. Therefore, there will be no additional peak hour vehicle trips generated by the project that was analyzed in April 2004. . Therefore, consistent with the provisions of CEQA, a Subsequent or Supplemental ErR is not required as a component of the review of the proposed Site Development Review and Conditional Use Permit for Emerald Place, and the Statement of Overriding Conditions adopted as part of the Supplemental EIR remain valid and effective. REQUIRED FINDINGS: The City's Zoning Ordinance establishes that specific findings shall be made in order to approve a Site Development Review and Conditional Use Permit. These findings generally relate to compliance with applicable General Plan and Specific Plan policies and Plarmed Development regulations established for the site. Further, these findings seek maintenance of the public health, safety and welfare of the community and ensure that a project fits into the context of its site and surroundings, protects natural resources and views, and can adequately be served by utilities. The draft Resolution (Pages 2 through 3 of Attachment I) lists the findings for approval of the Site Development Review and Conditional Use Permit for the Emerald Place project. Staff believes that the City can make these findings to approve the project. Although some changes are proposed compared to the Stage I and 2 Development Plan approved in April 2000, and therefore require approval of a Conditional Use Permit, Staff believes these changes are minor and can be approved, consistent with Zoning Ordinance Chapter 8.32. The proposed increase in floor area of 3, 155 square feet compared to the Market Place at Hacienda project represents a small amount of the total floor area (2%), The proposed increase in floor area also is offset by a reduction in the amount of floor area dedicated to food uses compared to the original project Regarding the proposal to construct a clock tower to 70 feet 140fl6 above grade, the Planned Development district regulations approved in April 2004 were based on preliminary plans that did not provide the level of detail presented in the Emerald Place project. Therefore, the City could not have envisioned that the 50' height limit to the top of roofs would preclude building elements, such as a clock tower, that help to provide an architectural focal point to the project. Changes proposed to the size of the planter areas between the parking lot and buildings, which on page 9 of the Plarmed Development district regulations (Attachment 9) appears to require 10 feet in one instance and 15 feet in another, are addressed in the project by layering the landscaped strips at the building, within the parking areas and at the property line. This design results in at least 10 to 15 feet oflandscaping between the property line and buildings, which is consistent with the intent of the regulations. Ifthe Applicant were required to provide 10 to 15 feet of landscaping at the base of the buildings and provide landscape strips in parking area islands and at the property line, there would not be sufficient space to provide the required amount of parking on the site. If the Plarming Commission does not support these changes to the Plarmed Development district regulations, a condition should be added to the attached Resolution (Attachment I) requiring the project to be revised to include a reduction in floor area to 137,000 square feet, elimination of the clock tower and redesign of the landscape plan to include between 10 and 15 feet of planting area at the base of buildings adjacent to parking areas. PLANNING COMMISSION ACTION: Staff requests that the Planning Commission refer its review authority on the Site Development Review and Conditional Use Permit to the City Council, pursuant to Section 8.96.020,C.3 of the City's Zoning Ordinance. This recommendation is based on the overall size of this project and the fact that the City Council reviewed the initial plans in April 2004 as part of the General Plan and Specific Plan Amendments, Plarmed Development and Stage I and 2 Development Plan. All comments or requested changes that the PI arming Commission has to the draft Conditions of Approval and/or the project itself will be forwarded to the City Council. CONCLUSION: The proposed project is in conformance with the City's regulations contained in the underlying Plarmed Development district for the site (PA 02-034), the City's Zoning Ordinance, and the applicable policies contained in the Dublin General Plan and Eastern Dublin Specific Plan. Additionally, the site improvements for which this Site Development Review and Conditional Use Permit are requested, including the site plan and building placement, interior network of roads, parking, landscaping, lighting, and other related plans for the lifestyle retail center, are compatible with the existing and pi armed land uses within the vicinity of the project site and, as recommended in the attached draft Conditions of Approval, will provide a creative design and mix of complementary uses providing a focal point for the community. RECOMMENDATION: Staff recommends that the Plarming Commission I) Open the public hearing; 2) Receive Staff presentation and take testimony from the Applicant and the Public; 3) Close the public hearing and deliberate; and 4) Adopt the Resolution recommending that the City Council approve the Site Development Review and Conditional Use Permit for Emerald Place (Attachment I). 15 of 16 GENERAL INFORMATION APPLICANT: PROPERTY OWNER: LOCATION: ASSESSORS PARCEL NUMBER: GENERAL PLAN DESIGNATION: SPECIFIC PLAN AREA: EXISTING ZONING AND LAND USE: Blake Hunt Ventures James Wright 41] Hartz Avenue, Suite 200 Danville, CA 94536 Pan Pacific Retail Properties Joe Tyson ] 631-B South Melrose Drive Vista, CA 92081 Southwest Comer of Hacienda Drive and Martinelli Way Dublin, CA 94568 986-0033-033 General Commercial Eastern Dublin Specific Plan Plarmed Development (P A 02-034) ]6 of 16