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HomeMy WebLinkAboutPC AgStmt Item 8.1 PA05-043 Emerald Place SDR & CUP AGENDA STATEMENT PLANNING COMMISSION MEETING DATE: February 28, 2006 SUBJECT: ATTACHMENTS: RECOMMENDATION: PROJECT DESCRIPTION: PUBLIC HEARING: PA 05-043, Site Development Review a~ Conditional Use Permit for the Emerald Place Retail Center Report prepared by: Rick Tooker, Contract Planner I. Resolution recommending that the City Council approve a Site Development Review and Conditional Use Permit for Emerald Place, and approve the Findings and Conditions. 2. Reductions of the project plans for Emerald Place. 3. Proposed colors and materials palette. 4. Preliminary Lighting Fixtures. 5. Site plan illustrating possible locations for public art. 6. Stage 1 and 2 Development Plan for the combined IKEA facility and Retail Center approved on April 6, 2004. 7. January 24, 2006 Planning Commission Study Session Staff Report. 8. January 24, 2006 Planning Commission Minutes for the Study Session. 1. Receive Staff presentation; 2. Open the public hearing 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 1). BACKGROUND The project site was originally part of a combined proposal called "Market Place at Hacienda" to develop the 27-acre site with a 317,000 square foot IKEA home furnishings store and a 137,000 square foot retail center proposed by Opus West Corporation. In April 2004, the City Council approved a number of planning actions and entitlements related to the project, including a Stage I and 2 Development Plan for the entire site, and a Site Development Review (PA 02-034) and master sign program for the IKEA portion of the development, leaving the easterly portion of the site where the retail center was proposed for future consideration. The option to develop the retail center has now been picked up by Blake Hunt Ventures, who request approval of a Site Development Review and Conditional Use Permit to develop the easterly portion of the site into the Emerald Place Retail Center. The proposed development is essentially the same as the Stage 1 and 2 Development Plan approved by the City Council in April 2004; however, minor revisions are COPIES TO: Property Owner/Applicant In-House Distribution File ITEM NO. 8. \ Page 1 of 14 G\PA#\2005\05.043 Emerald Place Lifestyle Retail CenterlPCIFeb28 meeting\PC SR 2-28-06.doc proposed, which in accordance with Section 8.32 of the City's Municipal Code may be approved through the Conditional Use Permit process (discussed below). 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. Planning Commission Study Session The Emerald Place project was originally scheduled for Planning Commission consideration on December 13, 2005, but was continued at the request of the Applicant to ensure that any outstanding issues were addressed in advance of the hearing. Prior to the January 24, 2006 Planning Commission Study Session, the Applicant and Staff met to discuss project issues and solutions. The request for a continuance also provided an opportunity to schedule the project for a Planning Commission Study Session, which was held on January 24, 2006 (Planning Commission Minutes provided in Attachment 8). At the Study Session, several issues were raised, which are listed below: . The status ofthe IKEA project and Alameda County lands near the project site; . Use ofthe green wall concept at the backs of buildings, particularly Buildings 301 and 401; . The anticipated time the green wall would take to completely cover the facades and its method of irrigation; . Tree plantings along both sides ofIKEA Way; . The use of trees to reduce the mass and scale of buildings, but also to frame important views of the paseo and signs on the site; . The potential for pedestrian/vehicular conflicts in the interior of the site, how the plaza will be used, and if flexibility could be provided in the future should changes be necessary to reduce congestion; . The width ofthe paseo and its use as an outdoor seating area; . Use of materials at the seatwalls; . Providing more clarity at the loading docks, utility doors, refuse areas and rear of buildings; . Integrating the pedestrian circulation with the future master signage program; and . Opportunities for public art, including at the east entry to the paseo. Based on the discussion, it appeared that the Planning Commission was generally supportive of the proposal and, in particular, of the green wall concept as an architectural feature of the project and the use of trees, including specimen oaks, to reduce the mass and scale of the project. Proposed Project The Applicant, James Wright of Blake Hunt Ventures, requests approval of a Site Development Review and Conditional Use Permit to construct a 140,155 square foot open-air retail center. The project 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 IKEA Way, respectively. Consideration of this application includes a Site Development Review (SDR) for the design of the proposed new structures, circulation plan, on-site parking, landscaping, lighting and site amenities and a Conditional Use Permit (CUP) for minor changes to the Planned Development for the property. A master sign program will be submitted separately after the City Council takes action on the SDR and CUP applications. Emerald Place proposes 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. Two points of access are provided, 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 Page 2 of 14 Way. As illustrated in the project plans (Attachment 2), vehicles may enter 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 of the 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 where people can gather and socialize. In addition to the curbside parking, there are several peripheral parking lots, including the primary parking area extending from the northeast corner around to the southwest corner ofthe 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 Planned Development for the property. The 140,155 square feet of commercial floor area will be contained within nine buildings, with the fronts 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 plaza. 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 a sleek and clean appearance that will add visual interest to the area without conflicting with the building design of the future IKEA facility located to the west of Emerald Place across IKEA Way. Building materials will include an acid etched stucco finish with cast stone base and aluminum storefront windows. The two-story buildings elements will be constructed with tilt-up concrete walls with a textured bead blast finish. At the pedestrian passage connecting the peripheral parking to the central plaza (called the "Paseo" and/or "Vista Garden"), 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, metal gates and a trellis structure, and truck unloading areas are recessed in most 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 (see Sheet Ll-Ol on the project plans). Additionally, monument plantings with perennials, bulbs and grasses are proposed at the northeast corner of the site at the intersection of Hacienda Drive and Martinelli Way and the northwest corner of the site at the entrance to IKEA Way. Streets will have potted plants with annuals, ground covers and trees to include both evergreen and decorative materials. As described above, green screens or "living walls" are proposed on some of the building walls facing the peripheral parking areas to reduce their scale and to provide additional color, texture and variety. The landscape plan is accented with seat walls, street and sidewalk accent pavement treatments, such as 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 paseo, which connects the peripheral parking area to the east of the project site and the central plaza, is an outdoor seating area for future restaurants separated from the pedestrian pathway by a railing (as required by the State Department of Alcoholic Beverage Control). The paseo 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 (See the project plans attached to this report for additional detail regarding this project). Page 3 of 14 General Plan and East Dublin Specific Plan Conformance The project site is designated in the City of Dublin's General Plan and Eastern Dublin Specific Plan as General Commercial, both of which were amended in 2004 for the combined IKEA facility and Retail Center project. This designation allows for a broad range of general retail commercial uses. The proposed use of the site as an open air 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 Center project) would be fiscally beneficial to the City compared to the former office complex approved on the site in February 2001. 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 proposed commercial retail development which would commence construction in 2006 and be ready for occupancy by late spring 2007. Planned Development Conformance The project site is located in the Planned 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 Planned Development for the project site include, but are not limited to, the following: 1) permitted and conditionally permitted uses; 2) property development regulations, including setbacks, FAR, height limits and parking requirement; 3) architectural standards and design guidelines; 4) a preliminary site plan of the project; and 5) other requirements that regulate the improvement and maintenance of the property. The development of Market Place at Hacienda (including both the IKEA development and the former Retail Center 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 1 and 2 Development Plan 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, Emerald Place Retail Center is consistent with the property development and land use standards approved in P A 02-034 and the Stage 1 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 include small- to medium-size tenants consistent with the uses permitted in the underlying Planned Development district. 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. The changes proposed in the Emerald Place Retail Center project compared to the project reviewed in April 2004 are minor 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). (See discussion below under "Conditional Use Permit.") SITE DEVELOPMENT REVIEW: The intent of the City's Site Development Review process IS to promote orderly, attractive and Page 4 of 14 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 points of access provided to the two main streets at Emerald Place. IKEA Way provides two southbound lanes where motorists may turn left (eastbound) onto the main street and travel to the interior of the site. Alternatively, motorists driving eastbound on Martinelli Way may enter the main street entrance by turning right (southbound) into the site. It is anticipated that people familiar with the retail center will drive to the end of IKEA Way and turn left into the peripheral parking lot at the southwest corner ofthe property, which is a more direct route to the large parking field, however there are multiple options on the site to access parking. (See the proposed site plan in Attachment 2.) Pedestrian accessibility is provided at the perimeter and within the interior of the site by sidewalks that connect the buildings along the internal 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 are 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 unit 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 of the 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 corners 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 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 exits 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 corners to avoid pedestrian/vehicular conflicts. Analysis of Issues Associated with the Site Design and Circulation There are two areas associated with the site design and circulation plan that have changed from the plan's last review by the City Council in April 2004 as part of the Stage 1 and 2 Development Plan (Attachment 6). 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. A second change, which 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 201 has been increased and two parking courts are now proposed adjacent to the entry drive to serve these buildings. This revised design provides two benefits to the project, including providing visibility of the tenant spaces at the north ends of Buildings 301 and 901 and 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 Martinelli Way/Hacienda Drive. Although Staff was initially concerned that this change would adversely impact the "sense of arrival" to Page 5 of 14 the retail center that was evident in the original plan, maintaining visibility into the site from Martinelli Way will help to provide a more inviting entrance and will provide improved economic viability of the retail center. Additionally, Staffs concern relating to vehicles potentially blocking inbound traffic on Martinelli Way while motorists wait to turn left into the parking courts has been addressed by shifting the entrances to the parking courts away from Martinelli Way which provide adequate space for queuing. In all other respects, with the exception of some minor amendments to the plans that can be reconciled through Conditions of Approval, such as improved coordination between the civil engineering and architectural plans, Staff believes that vehicles will be able to efficiently circulate on and off the site without difficulty and that there will be sufficient access throughout the site for emergency services and safety of pedestrians and motorists. Parking The parking design at Emerald Place is governed by Chapter 8.76 of the Dublin Zoning Ordinance and is based on the square footage of the 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 of 650 parking spaces. Compact parking spaces may be used for 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 1 tree for every 4 parking spaces). Pedestrian paths are required throughout the parking lot to connect to public sidewalks and buildings in a safe manner 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 corner around to the southwest corner of the site and in three smaller parking areas located at the northwest corner 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 1 stall per 100 square feet of restaurant use and 1 stall per 250 square feet of retail space. Approximately 148 spaces (22%) will be for compact vehicles, which is well below the 35 percent allowed in the Planned Development regulations for the site. These compact spaces are generally aggregated along the southerly border of the site facing 1-580 and along IKEA Way at the southeast corner of the site. Approximately 16 spaces will be accessible and will be located closest to the entrances to buildings and contain proper signage. 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 Applicant's 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 which was commissioned by the City to primarily study the site's circulation, particularly at Martinelli Way, Omni-Means recommended that the retail project should typically not exceed 20 percent compact spaces, or in this instance 120 spaces. The basis for this recommendation is for the high turnover of space in a retail center and the habit for motorists who will park wherever spaces are available regardless of the size of their vehicles. 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 28 spaces). However, if the applicant were required to revise the plans to provide no more than 20 percent compact spaces consistent with Omni-Means' recommendation, the total number of parking spaces on the site (667) Page 6 of 14 would likely be reduced. Presently, the applicant has designed 17 more parking spaces in the project than are required by the Zoning Ordinance, and Staff believes that maintaining the existing number of parking spaces is more important than replacing 28 compact spaces with standard spaces. As an alternative to redesigning the parking lot and losing spaces, Staff recommends Condition of Approval #17 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. If the Planning 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: 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. 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 include: 1) maintaining landscaping at a height of 30 inches at corners 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. Architectural Design The proposed design appears to comply with the design objectives and guidelines contained in the Planned 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 visually stimulating and coherent architectural theme. Long stretches of windows shall be broken up by perpendicular elements. Tenants will be permitted to modify 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 open air retail center that provides a "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. 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 401), which serve as a backdrop to this focal point providing an urban scale for the retail center. Sleek and clean architectural Page 7 of 14 forms and a unique roof design are proposed, and together with the combination of materials, textures and colors, these will provide visual interest in the project without conflicting with nearby development. 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 paseo 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 of the 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 paseo 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 Planned Development regulations for the subject property. The proposed color palette selected by the Applicant shows concrete walkways in 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 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 City does not know the actual tenants of Emerald Place, 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 3) and are available at the City of Dublin offices for review. The Applicant at the public hearing will also present the colors and materials board. Analysis of Issues Associated With Design Since the project was originally scheduled for Planning Commission consideration in December 2005, the Applicant has revised the plans to address Staffs concerns relating to: 1) providing additional architecture on Buildings 101 and 201 to integrate with the other buildings on the site; and 2) providing additional methods to reduce the mass and scale of the rear elevations of Buildings 301 and 401. Specifically, pitched roof elements have been added to Buildings 101 and 201 at the Martinelli Way entrance similar to those used at the IKEA Way entrance and within the interior of the site. The east elevations of Buildings 301 and 401 fronting on the east parking lot have also been revised to include scoring on the bead blast finish, which provides multiple colors and texture to the walls. A sample is shown on the color and materials photo (Attachment 3) and will be provided at the public hearing. The Applicant also proposes a living wall that will add colors and texture to the east elevations of Buildings 301 and 401 and reduce their scale. Sheet L1.07 of the project plans (Attachment 2) illustrates how the vines will attach to the buildings. Open Space and Landscaping The landscape plan is a significant element of project that helps to tie together the site plan and building elevations into an integrated unit. At the outer 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 Page 8 of 14 scale and character. Two pedestrian-oriented esplanades connect IKEA Way and Martinelli Way to the focal point of the site-the multi-functional central plaza 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 paseo represents an attractive passageway connecting the central plaza to the perimeter parking areas. The paseo 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, tree 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. In response to the Planning Commission's comments during the Study Session, the Applicant has revised the possible locations for public art to now include at the entry to the paseo between Buildings 301 and 401 and the peripheral parking lot (See Attachment No.5). The Applicant will work with Staff on the exact location and type of public art (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 of the 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, annuals, 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-Ol through Ll- 08). Staff Analysis of Landscape Plan The proposed design appears to comply with the open space and landscape objectives and guidelines contained in the Planned Development for the subject property. There are approximately 600 trees proposed on the site, which represents approximately one tree for each parking space. Landscaped islands are designed between rows of parking stalls and in the main street esplanades, which will be planted with trees, shrubs and ground covers. The layering of trees between the property lines and buildings facing outward to the parking lot is particularly important to help screen the backs of buildings, loading docks and refuse enclosures, but also to frame views of the passageways to the interior of the site and future signage. The Applicant will also employ methods during site grading to ensure proper under drainage of the tree planters, 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 1). The proposed landscape plan helps to strengthen the linkages along the esplanades into the central plaza and around the perimeter of the site. Furnishings shown on the landscape plans (Sheets Ll-06 through Ll-08) include round and rectangular pots, tree guards and grates, benches, trash receptacles and lights. The style of light post for the pedestrian walkways (See Attachment 4) is consistent with the modem architectural design or buildings; however, there will be other sources of lighting, 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 LT.Ol through LT.ll of the project plans). Page 9 of 14 Although there are a few areas on the landscape plan that will need to be revised to comply with the Planned 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 application (i.e. 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 Planned 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 Planned Development 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. Staff Analysis of the Utilities Plan 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, the application conforms to this requirement. Additionally, 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 if it 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 cannot be demonstrated, or alternative means for abandonment of this easement be accepted, Building 401 which extends over a small corner of the easement will require an adjustment to address this issue, as required in Condition of Approval #84. As noted above under the analysis of the proposed circulation, this project has been designed to provide its primary access to the shared roadway with the future IKEA facility and with Martinelli Way. Ifthe Emerald Place project assumes a first position to the IKEA project and proposes to open before the other, all required improvements along IKEA Way, including the tree plantings on both sides of the private street as presented by the Applicant during the Study Session, and to the curb and gutter along the south side of Martinelli Way will be completed by the Applicant as part of the project prior to receiving approval to occupy tenant space on the site. CONDITIONAL USE PERMIT: The project proposes minor adjustments to the regulations approved by the City Council in April 2004 as part of the Planned Development for Market Place at Hacienda (including both the IKEA development and the original retail center), to include: A) A 3,155 square foot increase in floor area; B) An amendment to the allowed height for a 70-foot tall clock tower; and C) An amendment to the width of the planter area at the base of a building adjacent to a parking area. Page 10 of 14 Section 8.32 of the City's Municipal Code establishes that the City through the Conditional Use Permit process may approve minor amendments to a Planned Development. Regarding the proposed increase in floor area on the site, the Stage I and 2 Development Plan called for approximately 137,000 square feet of retail commercial floor area. As submitted, the Emerald Place project would include 140,155 square feet of retail commercial floor area. This represents a two percent increase compared to the Market Place at Hacienda project. The actual impact of this increase is reduced when considering the adjoining IKEA site has proposed a substantial reduction in floor area (317,000 sq. ft. to 265,842 sq. ft.). 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 proposed amendment in height to accommodate a 70-foot tall clock tower, this height is similar to the tallest element of the IKEA facility and will provide an architectural focal point at Emerald Place. The Planned Development 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-foot height limit to the top of roofs would preclude an architectural element, such as a clock tower, that helps to provide a focal point to the project. Staff does not believe the clock tower is out of scale with the site and provides an attractive element within the relative center of the site. The proposed change to the size of the planter areas between the parking lot and buildings, which requires 10 feet in one section of the Planned Development and 15 feet in another section, is offset by the layering the landscaped areas at the building, within the parking areas, and at the property line. This design results in a greater amount of landscaping between the property line and buildings and is consistent with the intent of the regulations. Further, if the 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. 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, the master sign program will be submitted after approval of the Site Development Review and Conditional Use Permit. This allows 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 corner 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 Planning Commission prior to receipt of a building permit authorizing construction on the site. ENVIRONMENTAL REVIEW: Under the California Environmental Quality Act (CEQA), once an Environmental Impact Report (EIR) has been certified, no subsequent or supplemental EIR is required for the project unless the lead agency determines that the following conditions exist: Page II ofl4 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; 2. Substantial changes occur with respect to the circumstances under which the project is undertaken which will require major revisions to the previous EIR 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 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 1 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 of 3, 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 proj ect, 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 analyzed in April 2004. Therefore, consistent with the provisions of CEQA, a Subsequent or Supplemental EIR is not required as a component of the review of the 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 Planned 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 1 and 2 Development Plan approved in April 2004, 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 of3,155 square feet Page 12 of 14 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 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-foot 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. Additionally, changes proposed to the size of the planter areas between the parking lot and buildings are offset by an extensive landscape plan which includes specimen trees clustered at pedestrian walks and layering the landscaping from the outer periphery of the site at the property line inward through the parking lot and at the base of the buildings. This design more effectively provides landscaping and ensures that sufficient area is available for parking on the site. 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, Planned Development and Stage 1 and 2 Development Plan. All comments or requested changes that the Planning 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 Planned 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 planned 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 Planning Commission: 1) Receive Staff presentation; 2) Open the public hearing 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 1). Page 13 of 14 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 411 Hartz Avenue, Suite 200 Danville, CA 94536 Pan Pacific Retail Properties Joe Tyson 1631-B South Melrose Drive Vista, CA 92081 Southwest Corner of Hacienda Drive and Martinelli Way Dublin, CA 94568 986-0033-033 General Commercial Eastern Dublin Specific Plan Planned Development (P A 02-034) Page 14 of14