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Home My WebLink About6.1 WestDubTransitVillageCITY CLERK File # ❑ ®101-1aa AGENDA STATEMENT ` o -30 CITY COUNCIL MEETING DATE: May 4, 2004 SUBJECT: PUBLIC HEARING: PA 02-003 AMB Properties, West Dublin Transit Village — 2"d Reading. Planned Development Rezoning and Stage 2 Development Plan, and Development Agreement Prepared by Janet Harbin, Senior Planner ATTACHMENTS: 1. Ordinance approving the Planned Development Rezoning and Stage 2 Development Plan (with Rezoning Exhibit, Development Plan/Project Plans, as modified by the City Council, attached as Exhibit A) 2. Ordinance approving a Development Agreement between the City and AMB Properties (with Development Agreement attached as Exhibit A) 3. City Council Agenda Statement and minutes of April 20, 2004 4. Evaluation of Development Scenarios (including Market Assessment) for Downtown Specific Plans, prepared by EPS and dated June 23, 2000 RECOMMENDATON: 1. Hear Staff presentation. 2. Open public hearing. 3. Take testimony from the Applicant and the public. 4. Close public hearing and deliberate. 5. Waive the 2"d Reading and Adopt the Ordinance (Attachment 1) approving the Planned Development Rezoning and Stage 2 Development Plan. 6. Waive the 2"d Reading and Adopt the Ordinance approving a Development Agreement between the City and AMB Properties (Attachment 2). DESCRIPTION: An Ordinance approving a Planned Development Rezoning and Stage 2 Development Plan, Vesting Tentative Parcel Map, Site Development Review and a Development Agreement for a mixed -use project transit village consisting of a maximum of 304 multi -family residences with a small amount of neighborhood retail uses on the ground story, and the construction of an approximately 150,500 square foot office building on the southern portion of the site closest to Dublin Creek (Alameda County Flood Control Line T) and the I-580 freeway corridor. The project is proposed by AMB Property, Inc. for an COPIES TO: Property Owner Interested Parties PA file Appellant gApa#\2002\02-003 legacy\cc\cc-sr- 2nd reading.doc 1 b3 ITEM NO. * s r approximately 9.06 acre property presently developed with a warehouse and distribution center operated by the Cor-O-Van Company. The property is located south of the future extension of St. Patrick Way in the West Dublin BART Specific Plan area of Dublin. The extension of St. Patrick Way will be constructed as part of the project. Previous Approvals The Project has been the subject of several prior City approvals. The West Dublin BART Specific Plan (WDBSP) and related General Plan amendment were adopted by the City Council on December 19, 2000 to provide a master plan for the portion of the City's downtown between 1-580 and Dublin Boulevard, and generally between San Ramon Road and 1-680. In December 2000, the City adopted three separate Downtown Specific Plans, each focusing on a particular portion of the City's downtown central urbanized area. Most of this area, including the Project site, is developed with urban-type and urban-intensity uses. The major exception is the vacant BART property east of the Project site. On June 4, 2002 the City rezoned the site from the M-1, Light Industrial district to the PD-Planned Development district and adopted a related Stage 1 Development Plan, as required by the PD district regulations. In approving the PD zoning and Stage 1 Development Plan, the City determined that the prior Negative Declaration covered the zoning approval, again noting the self-mitigating nature of the previously adopted Specific Plan. The current project applications are the last in the series of discretionary approvals for the Project. Through the Planned Development Rezoning and Stage 2 Development Plan, Vesting Tentative Parcel Map and Site Development Review, the Applicant shows the City how all the applicable standards and programs from the Specific Plan, and the uses and development standards from the Stage 1 Development Plan and those in Attachment 1, Exhibit A, will be implemented through building, grading and other ministerial development permits. Planning Commission Action On February 24, 2004, the Planning Commission adopted four resolutions, recommending City Council adoption of a Mitigation Negative Declaration for the Legacy Partners/AMB Transit Village Project [PA 02-003]; City Council approval of a Planned Development District (PD) Rezoning/Stage 2 Development Plan; approving a Vesting Tentative Parcel Map and Site Development Review; and recommending that the City Council adopt an ordinance for a Development Agreement the West Dublin Transit Village project. The Planning Commission's approval of the Vesting Tentative Parcel Map and Site Development Review were conditioned upon the Council's approval of the PD Rezoning and Development Agreement. On March 4, 2004, the law firm of Adams Broadwell Joseph and Cardozo, representing the International Brotherhood of Electrical Workers Union Local 595, Sheet Metal Workers Union Local 104, and the Plumbers and Steamfitters Union Local 342, submitted a Letter of Appeal appealing the February 24, 2004 Planning Commission approval of the Site Development Review and the Tentative Parcel Map for the AMB Property project and the Planning Commission's recommendations of approval of the Mitigated Negative Declaration, Planned Development Rezoning and Stage 2 Development Plan, and the Development Agreement, to the City Council. City Council Action On April 20, 2004 the City Council held a public hearing on the project, denied the appeal and upheld the Planning Commission approval of the Vesting Tentative Parcel Map and the Site Development Review for the transit village (see City Council Agenda Statement and Minutes of April 20, 2004, Attachment 3). Additionally, at that meeting, the City Council approved the Mitigated Negative Declaration for the project, determining that it was adequate and complete for the project as proposed, and waived the reading and introduced an Ordinance (Attachment 1) adopting the Planned Development Rezoning and Stage 2 Development Plan, with two modifications to the Development Plan as discussed below. Also at the hearing, the City Council waived the reading and introduced an Ordinance adopting a Development Agreement (Attachment 2) for the project between the City and AMB Property, Inc. The City Council approved the following modifications for inclusion in the Planned Development Stage 2 Development Plan provisions in Exhibit A of Attachment 1 based on the discussion at the hearing on April 20, 2004: 12. Inclusionary Zoning Ordinance: Applicant/Developer shall comply with the provisions of the City Inclusionary Zoning Regulations through the approval and execution of an Affordable Housing Agreement prior to Final Map approval. The Applicant/Developer commits to provide A a minimum ofq3-g 30 affordable units within the High Density (multi-family) residential area, which equals 7.5 10% of the total number for units within the project site. These dwelling units will be for-rent apartment units. The remaining percentage of the affordable housing requirement may be met through the payment of in-lieu fees if approved by the City Council. An agreement between the City and the Developer will be prepared to facilitate meeting the affordable housing requirement. The City Council will be the authority in determining how the applicant will be required to meet this housing need. The City Council also added the following provision to the Development Plan: 14. Public Art:...T.,he,,,,Applicant/Developer commits to providing space for public art and working with the City's Public Art consultant consistent with the Public Art Policy. Additionally, Councilmember Oravitz requested Staff provide a copy of the fiscal study prepared for the West Dublin BART Specific Plan area in 2000 for the City Council's information. The Evaluation of Development Scenarios (including the Market Assessment) for the three Downtown Specific Plans prepared by EPS, Economic and Planning consultants, and dated June 23, 2000, is contained in Attachment 4 for the Council's review. This document, and the Market Assessment included with the evaluation, analyzed the short-term and long-term land use scenarios, and the potential fiscal impacts of each scenario for the three downtown planning areas: Downtown Core, West Dublin BART, and the Village Parkway Specific Plan areas. In adopting the West Dublin BART Specific Plan, the City Council selected the long-term land use scenario for the West Dublin BART Specific Plan area as the preferred alternative for future development in the area based on the fiscal impact analysis contained in Attachment 4. ANALYSIS: As required by the City of Dublin Municipal Code, a second reading of the proposed Ordinances is necessary prior to final adoption of the Planned Development Rezoning/Stage 2 Development Plan and the Development Agreement. RECOMMENDATION: Staff recommends that the City Council; 1) hear Staff presentation; 2) open public hearing; 3) take testimony from the Applicant and the public; 4) close the public heating and .deliberate; 5) waive the 2® reading and adopt the Ordinance (Attachment 1) approving the Planned Development Rezoning and Stage 2 Development Plan; and, 6) waive the 2n0 reading and adopt the Ordinance (Attachment 2) approving a Development Agreement between the City and AMB Property, Inc. ORDINANCE NO. -04 AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF DUBLIN AMENDING THE ZONING MAP TO REZONE PROPERTY TO A PLANNED DEVELOPMENT (PD) AND APPROVING A RELATED STAGE 2 DEVELOPMENT PLAN FOR APPROXIMATELY 9.06 ACRES AT 6700 GOLDEN GATE DRIVE PA 02-003 WHEREAS, AMB Property Incorporated requests approval of a Planned Development District (PD) Rezoning Stage 2 Development Plan for a project consisting of 304 multi-family dwelling units, approximately 1,000 square feet of neighborhood retail, and 150,500 square feet of retail/office space, surface parking, landscaping and related improvements on approximately 9.06 acres of land within the West Dublin BART Specific Plan area at 6700 Golden Gate Drive, generally located near the northwest comer of Golden Gate Drive and Interstate 580; and WHEREAS, a completed application for the requested action is available and on file in the Dublin Planning Department; and WHEREAS, the Project site is in the Dublin downtown area and within the planning area for the West Dublin BART Specific Plan ("Specific Plan"). The Specific Plan is one of three downtown specific plans approved by the City on December 19, 2000 and intended to improve the appearance, functionality, and economic vitality of the downtown area, particularly in recognition of a planned BART station adjacent to the Project site. (See Resolution 00-227, incorporated herein by reference). The effects of implementing the Specific Plan and related general plan amendments were reviewed in a Negative Declaration which was properly circulated for public review and adopted by the City Council on December 19, 2000 (See Resolution 00-227, incorporated herein by reference). The City subsequently rezoned the Project site to PD Planned Development and adopted a related Stage 1 Development Plan on June 4, 2002, based on the prior adopted Negative Declaration. The Negative Declaration is available for review in the Planning Department and is incorporated herein by reference; and WHEREAS, the Specific Plan was prepared as a self-mitigating plan. Upon adoption of the Negative Declaration, the City found that the Specific Plan and associated actions would not have a significant effect on the environment because mitigation was incorporated into the Plan as part of the Plan implementation (Resolution 00-227). In this context, the Specific Plan policies, standards and programs act as mitigations that must be included in subsequent implementing developments, such as the Project. The Project is consistent with and implements the Specific Plan land uses, policies, standards, guidelines and programs; and WHEREAS, the City prepared an Initial Study dated November 6, 2003 for the Project consistent with CEQA Guidelines section 15162 and determined that the Project would not result in any significant adverse impacts. The draft Mitigated Negative Declaration and Initial Study are attached as Exhibit A of Attachment 1 to the Staff report and incorporated herein by reference; and WHEREAS, the draft Mitigated Negative Declaration was circulated for public review from November 10, 2003 to December 2, 2003. Although not required by CEQA, the City prepared written responses to all the comments in a Responses to Comments document dated February 10, 2004. The comment letter and responses are attached as Exhibit B to Attachment 1 of the Staff report, and incorporated herein by reference; and :m-~t'~ ATTACHMENT 1 WHEREAS, the responses provide the City's good faith, reasoned analysis of the environmental issues raised by the comments; and WHEREAS, the City carefully reviewed the comments and written responses and determined that no subsequent EIR-level review of the document was warranted, that the prior Negative Declaration and the Project Mitigated Negative Declaration adequately identified and analyzed the Project's environmental impacts, and that the comments and responses did not constitute or require substantial revisions to the Mitigated Negative Declaration; and WHEREAS, the Planning Commission considered the Planned Development rezoning and Stage 2 Development Plan for the project, and all related reports, studies, environmental documents, including comments and responses and recommended the said project to the City Council on February 24, 2004; and WHEREAS, a Staff report, dated April 20, 2004 and incorporated herein by reference, described and analyzed the draft Mitigated Negative Declaration, including comments and responses, and the Project for the Planning Commission; and WHEREAS, the City Council reviewed the Staff report, the PD Planned Development Rezoning and Stage 2 Development Plan, the draft Mitigated Negative Declaration, including comments and responses, at a noticed public hearing on April 20, 2004 at which time all interested parties had the opportunity to be heard; and WHEREAS, the draft Mitigated Negative Declaration, including comments and responses, reflects the City's independent judgment and analysis on the potential for environmental impacts from the AMB Property, Inc. West Dublin Transit Village Project; and WHEREAS, a Stage 2 Development Plan has been submitted to the City as required by Section 8.32.030 of the Dublin Zoning Ordinance; and WHEREAS, the City Council did hold a public hearing on said application on April 20, 2004; and WHEREAS, proper notice of said hearing was given in all respects as required by law; and WHEREAS, a Staff Report was submitted to the City Council recommending approval of the Planned Development District RezoningJStage Development Plan prepared by Staff; and WHEREAS, the City Council did hear and use their independent judgment and considered all said reports, recommendations and testimony hereinabove set forth. NOW, THEREFORE, BE IT RESOLVED THAT THE Dublin City Council does hereby make the following findings and determinations regarding said proposed Planned Development District Rezoning/Stage 2 Development Plan: A. The PD Planned Development District Rezoning (PA 02-003) is consistent with the general provisions, intent and purpose of Section 8.32.010 (Planned Development Zoning District) of the previously adopted Stage 1 Development Plan and the West Dublin BART Specific Plan which designates this area as Mixed Use (MU) and Office (O), in that the project would result in development with the land uses allowed by said designation, and will contribute towards implementation of said Plan; and O ILoO B. The PD Planned Development District Rezoning is consistent with the general provisions, intent and purpose of the Dublin General Plan, as amended, which designates this area as Mixed Use and Retail/Office, in that the project would result in development with the land uses allowed by said designation, and will contribute towards implementation of said Plan which is focused on transit-oriented development; and C. The PD Planned Development District Rezoning is consistent with the general provisions, intent, and purpose of the PD Planned Development Zoning District of the Zoning Ordinance. The PD Planned Development District Rezoning will be appropriate for the subject property in terms of providing land use provisions which set forth the purpose and applicable provisions of the Dublin Zoning Ordinance, range of permitted and conditionally permitted uses, and Development Standards which will be compatible with existing and proposed residential, business, public/semi-public and light industrial uses in the immediate vicinity; and D. The PD Planned Development District Rezoning is consistent with the general provisions, intent, and purpose of the PD Planned Development Zoning District of the Zoning Ordinance in that it contains all information required by Chapter 8.32 of the Zoning Ordinance and accomplishes the objectives of Section 8.32.010, A through H, of the Zoning Ordinance; and E. The PD Planned Development District Rezoning will provide an environment that will enhance development of the West Dublin BART Specific Plan Area; and F. The PD Planned Development District Rezoning will provide efficient use of the land pursuant to the West Dublin BART Specific Plan according to the coordinated site plan and circulation system; and G. The Planned Development District Rezoning will not have a substantial adverse effect on health or safety or be substantially detrimental to the public welfare or be injurious to property or public improvement as all applicable regulations will be satisfied; and H. The Planned Development District Rezoning will not overburden public services as all agencies must commit to the availability of public services prior to the issuance of building permits as required by the West Dublin BART Specific Plan policies and mitigation measures; and I. The Planned Development District Rezoning and accompanying Stage 2 Development Plan, will create an attractive, efficient, and safe environment; and J. The Planned Development District Rezoning will benefit the public necessity, convenience, and general welfare by providing multi-family housing, retail and office uses in close proximity to the future BART Station and at a prime location in the City; and K. The Planned Development District Rezoning and accompanying Stage 2 Development Plan will be compatible with and enhance the general development, economic development and vitality of the transit-oriented West Dublin BART Specific Plan area. NOW, THEREFORE BE IT RESOLVED THAT THE City of Dublin City Council does ordain as follows: SECTION 1. RECITALS Pursuant to Chapter 8.32, Title 8 of the City of Dublin Municipal Code the City of Dublin Zoning Map is amended to rezone the following property ("the Property") to a Planned Development (PD) Zoning District: Approximately 9.06 acres of land located in an incorporated area of Alameda County in the City of Dublin within the West Dublin BART Specific Plan area at 6700 Golden Gate Drive, generally located near the northwest comer of Golden Gate Drive and Interstate 580 (APN: 941-1580-047-02). A map of the rezoning area is shown below: SECTION 2. The regulations of the use, development, improvement, and maintenance of the Property are set forth in the Rezoning and Stage 2 Development Plan for the Project Area (Exhibits A-1 & A-2,. hereto attached) which are hereby approved. Any amendments to the Stage 2 Development Plan shall be in accordance with section 8.32.080 of the Dublin Municipal Code or its successors. SECTION 3. Except as provided in the Stage 2 DeveloPment Plan, the use, development, improvement and maintenance of the Property shall be governed by the provisions of the Dublin Zoning Ordinance. SECTION 4. EFFECTIVE DATE AND POSTING OF ORDINANCE This Ordinance shall take effect and be enforced thirty (30) days following its adoption. The City Clerk of the City of Dublin shall cause this Ordinance to be posted in at least three (3) public places in the City of Dublin in accordance with Section 36933 of the Government Code of the State of California. PASSED AND ADOPTED BY the City Council of the City of Dublin, on this 4th day of May 2004, by the following votes: AYES: NOES: ABSENT: ABSTAIN: Mayor ATTEST: City Clerk G:\PA#~2002\02-003\CC-PDfinalord2.doc EXHIBIT A REZONING/DEVELOPMENT PLAN - AMB PROPERTY INCORPORATED (PA 02d003) WEST DUBLIN TRANSIT VILLAGE This is a Development Plan pursuant to Chapter 8.32 of the Dublin Zoning Ordinance for the AMB Property, Inc. West Dublin Transit Village PA 02-003, located at 6700 Golden Gate Drive, south of Dublin Boulevard, and generally located near the northwest corner of Golden Gate Drive and Interstate 580 on 9.06 acres (APN 941-1580-047-02). This Development Plan meets all of the requirements for Stage 2 review of the project. This Development Plan includes Site, Architectural, Circulation, and Landscape Plans, other plans and exhibits dated received January 2, 2004, labeled Exhibit A to the Ordinance approving this Development Plan (City Council Ordinance No. -04), and on file in the Planning Division of the Community Development Department. The Planned Development District allows the flexibility needed to encourage innovative development while ensuring that the goals, policies, and action programs of the General Plan, West Dublin BART Specific Plan, and provisions of Section 8.32 of the Zoning Ordinance are satisfied. Zoning: PD Planned Development Zoning District. This is a mixed-use zoning district which provides for retail commercial, service, office and multi-family residential uses. e Permitted Uses: The following are permitted uses in this PD / C-N / R-M Planned Development (Neighborhood Commercial and Multi-Family Residential) Zoning District: a. Local-serving retail uses including but not limited to: Grocery Food Store General Merchandise Store. Discount/Warehouse Retail Store. Clothing/Fashion Store. Shoe Store. Home Furnishing Store. Office Supply Store. Home Appliance/Electronics Store. Home Improvement Store. Music Store. Hobby/Special Interest Store. Gifts/Specialty Store. Jewelry and Cosmetic Store. Drug Store. Auto Parts Store. Toy Store. Book Store. Pet Supplies Store (Including In-Store Veterinary Clinic). Sporting Goods Store. + Similar Uses that sell goods based on price and quality of a neighborhood retail character. b. Office and service establishments including, but not limited to, the following: 1 EXHIBIT A "T i LoO Bank/Savings and Loan. Real Estate/Title Office. Legal. Travel Agent. Accounting. Medical and Dental. Optometrist. Architect. Employment Agency. Hair/Beauty Salon. Cleaner and Dryer. Shoe Repair. Key Shop. Tailor. Athletic Club. Formal Wear/Rental. Other Administrative and Professional Office. Technology Access Center. Tele-Commuting Center. Eating, drinking and entertainment establishments including, but not limited to, the following: Restaurant (full-service, sit-down) Restaurant (convenience: Delicatessen, Bakery, Ice Cream Shop, Sandwich Shop) Outdoor Seating Wine or Liquor Bar with On-Sale Liquor License. Micro-Brewery. Specialty Food. Video Arcade/Rentals. Multi-family residential and associated uses including, but not limited to, the following: Accessory structures and uses Home occupations (per Chapter 8.64) Multi-family dwelling Multi-story parking structure Private recreation facility/small (for tenants use only Rental / Management Office Conditional Uses: The following are conditional uses in this PD / C-N / R-M Planned Development (Neighborhood Commercial and Multi-Family Residential) Zoning District: Community, Religious and Charitable Institutional Facilities. Public Facilities and Uses. Veterinary Office. Recycling Center. In-Patient and Out-Patient Health Facilities as Licensed by the State Department of Health Services. 2 Daycare Center Gas Station. Automobile Sales. Automobile Service. Hotel/Motel. Outdoor Food Vendors (by Zoning Administrator) Dublin Zoning Ordinance - Applicable Requirements: Except as specifically modified by the provisions of this PD District Rezoning/Development Plan, all applicable general requirements and procedures of the Dublin Zoning Ordinance shall be applied to the land uses designated in this PD District. Site Plan & Architecture: See attached site plans and building elevations contained in Exhibit A-2, Development Plan. This development plan applies to approximately 9.06 acres shown on this plan. Any modifications to the project shall be substantially consistent with these plans and of equal or superior materials and design quality. Density: The maximum square footage/number of dwelling units of the proposed development under this Development Plan (as shown on the site plan, Exhibit A-2) are as follows: Office 3.28 acres Net (Approximate) 3.28 acres Gross FAR .28 Neighborhood Commercial Included in the Multi-Family Residential .02 acres gross 1,000 Sq. Ft. building area (Approximate) FAR - According to Standards established by the West Dublin BART Specific Plan Multi-Family Residential 4.45 acres Net (Approximate) 5.8 acres Gross 304 Units 34 Du/Ac. Phasing Plan: Project is anticipated to be built in two phases. Both phases may be constructed at as one phase, if market conditions permit. Neighborhood Commercial Development Standards: Development Standards Neighborhood Commercial Minimum Parcel Size N/A Parcel Depth N/A Parcel Width N/A 3 Minimum building setback from face of 12'-0"~'2 curb Building Height 50'-0" Maximum commercial floor area ratio As provided for in the West Dublin BART Specific Plan The setback zones shall be fully landscaped with both hardscape (private sidewalks and other hard surfaced areas) and softscape (trees, shrubs, ground cover, etc.). The setback includes a 10-foot wide sidewalk as required by the West Dublin BART Specific Plan. Exceptions to above setback requirements are the following: a. Architectural projections, (such as columns, fireplaces, bay windows, window seats, second floor overhangs, balconies, decks, porches, building facades at entries), planters and planter boxes may encroach up to a maximum of two feet into the required setback. b. Freestanding signage must be permitted under a Master Sign Program. c. Outdoor seating areas may encroach up to a maximum of four feet into the required setback. The number of parking spaces required for the uses shall be in compliance with the parking provisions in this Development Plan and the project Site Plan, contained in Exhibit A-2. Multi-Family Residential Development Standards: Development Standards Multi-Family Residential Lot Size N/A Minimum building setback from face of 12'-0" curb - St. Patrick Way Minimum Private Open Space 100 s.f. patio w/a 10' min. dimension or 50 s.f. deck with a min. Dimension of Common Open Space Maximum Building Height Maximum Stories Required Parking Maximum residential unit density 50 s.f. of common open space per dwelling unit. The minimum dimension of any space satisfying this standard is 10'. This common open space shall be improved for either passive or active use by the residents. 75'-0" 4 stories A reduction of 15% in the total supply as required by the Zoning Ordinance is permitted in conjunction with shared parking for uses 34 units/acre as calculated based on the adopted Development Agreement The setback zones shall be fully landscaped with both hardscape (private sidewalks and other hard surfaced areas) and softscape (trees, shrubs, ground cover, etc.) Exceptions to above setback requirements are the following: a. Architectural projections, (such as columns, fireplaces, bay windows, window seats, second 4 10. floor overhangs, balconies, decks, porches, building facades at entries) and planter boxes may encroach up to a maximum of two feet into the required setback. Freestanding signage as permitted in the Master Sign Program. Decel lanes required by the City of Dublin at the entrances to the site. Parking/Garage and Loading: Parking/Garage and Loading shall be provided in accordance with the parking reduction study, and as shown on the Site Plan (Exhibit A-2). The number of parking spaces shall be provided in accordance with sections 7 and 8 above. ArchiteCtural Design Guidelines, Concepts & Themes: Implementation of the following architectural design standards is required. Architecture associated with a specific corporate entity is not permitted. As an exception, corporate architecture may be considered if it is consistent with the design and intent of the Design Guidelines of the West Dublin BART Specific Plan, as shown on the Elevations in Exhibit A-2, and the following general design concepts. Unique and consistent architecture that is in keeping with the urban transit-oriented theme of the project shall be a requirement for all structures on the project site. The basic design concepts below shall also be followed: Concept and Character: The architecture shall complement the style of the surrounding buildings and landscaping in the West Dublin BART Specific Plan area. Common design elements from the surrounding buildings in the Specific Plan area shall be incorporated into the individual building design. The goal for the development is to evoke the feeling of an urban transit village and pedestrian friendly environment as opposed to a suburban office and retail center or apartment complex. "Corporate Themes" shall be discouraged and the urban transit-oriented theme of the project shall be a requirement for all structures on the project site. Form and Massing: · Building design shall employ varied forms to break down the scale of larger buildings to appear as if there are several smaller buildings that may have evolved over time instead of one large building built all at once. · Building design shall provide for transitional spaces such as trellises, arcades, pergolas, courtyards, and decorative paving, etc. between indoor and outdoor areas. · Wall planes shall provide variations in thickness and offsets to avoid the look of large open expanses of blank wall. Building Height: · Building heights will vary throughout the project. Refer to Sections 7 & 8 above for height limits in this district. Building Entries: · Primary building entries shall be visible from the street. · Landscaping shall be designed to highlight the entry. Enhanced paving is encouraged at the building entries. A strong connection between the street and sidewalk and the building entry shall be provided. Pedestrians shall be able to access the building entry from the public sidewalk without having to walk between parked cars. Fenestration: · Openings in walls for windows and or doors shall be recessed into building walls to provide an enhanced level of detail. · Individual punched openings are encouraged instead of continuous lengths of storefront or windows. · Metal storefront and window frames shall be primed and painted to match the approved palette of colors for the center. Materials: · The primary wall surface material shall be exterior cement plaster or EIFS finish system when finished to match plaster. · Wall accents shall be ceramic tile and/or precast concrete medallions. · Cornice molding caps shall be cement plaster, GFRC or EIFS. The finish shall match the exterior wall finish. · Sheet metal flashing shall be painted to match the adjacent surface. · Decorative columns shall be precast concrete or GFRC. Trellis elements shall be metal or wood. · Decorative brackets at cornice shall be painted or stained wood. · Awnings shall be of approved fabric with painted metal frames. Colors and Textures: · The color and texture of building materials shall complement surrounding buildings in the West Dublin BART Specific Plan area. · Colors and textures shall be as shown on the approved color and material board (on file at the Dublin Planning Division of the Community Development Department) for the West Dublin Transit Village. Minor variations are acceptable provided that they are in keeping with the spirit of the overall Design Guidelines. Roof Forms and Materials: · Flat roof forms with parapets are the primary roof forms for the West Dublin Transit Village. · Accent elements such as comer towers or entry features is encouraged. These features may have metal roofs. The roofing shall match the approved roofing for the West Dublin Transit Village. · Decorative cornice molding is encouraged at parapet walls. 11. Landscaping Plan: Refer to attached conceptual landscape plan included in Exhibit A-2, Development Plan, Sheets L-1 through L-6. 12. Inclusionary Zoning Ordinance: Applicant/Developer shall comply with the provisions of the City Inclusionary Zoning Regulations through the approval and execution of an Affordable Housing Agreement prior to Final Map approval. The Applicant/Developer commits to provide 6 A a minimum of 30_affordable units within the High Density (multi-family) residential area, which equals 10% of the total number for units within the project site. These dwelling units will be for-rent apartment units. The remaining percentage of the affordable housing requirement may be met through the payment of in-lieu fees if approved by the City Council. An agreement between the City and the Developer will be prepared to facilitate meeting the affordable housing requirement. The City Council will be the authority in determining how the applicant will be required to meet this housing need. 13. Compliance with related Planning Approvals: The Applicant/Developer shall comply with all the related Site Development Review and Vesting Tentative Parcel Map conditions of approval for PA 02-003. 14. Public Art: The Applicant/Developer commits to providing space for public art and working with the City's Public Art consultant consistent with the Public Art Policy. G\paL2002\pa 02-003\DEVPlan 7 S. TAGE 1+2 DEVELOPMENT t0 SEPTEMBER 2003 PLAN DRAWING INDEX: t-3 L-~ RgCE~vED DUBLIN TR 6700 GOLDEN GATE DRIVE D LIB LIN~ CALIFORNIA ANSIT VIL LAGE P~OJt[CT NO: 40565 EXHIBIT~ "~"°"'"'" ST. PATRICK WAY DEDICATION SJ'TE - 5'[ ,097 SQ. FT. ./ ASSUMED PROPERTY UNE -'---r COMMERCIAL SiTE TRASH L f TERSTATE ~ ' '"" DUBLIN TRANSIT 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PROPOSED SITE (RESIDENTIAL & OFFICE) - 335,957 SQ. FT. BART PROPERTY FRONTAGE DEDICATION SITE B,010 SQ. FT, ~ MONUMENT SIGN 11 SITE INFO AND PROJECT MATR X- SITE ACREAGE EX-1 10 SEPTEM~.ER 2003 VILLAGE PROJECT.NO: 40565 SiTE INFO AND PROJECT MATRIX-PARKING DUBLIN TRANSIT 6700 GOLDEN .GATE DRIVe' DUBLIN, CALIFORNIA VILLAGE 10 SEPTEMBER PR'OJECT NO: 405~.5 PEDESTRIAN PATH OF TRAVEL TO N BART EX-3 NOT TO .~CAL-~ DUBLIN TRANSIT VILLAGE 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PRO.SECT NO: 40565 ARtAL PHOTO P-1 NO/TO SCALE t0 SEPTEMBER 2003 DUBLIN TRANSIT 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA VILLAGE PROJECT VICINITY L~GEND NOTES ?ARC~'L 2 A.?J% PARCEL 1 ~'ARO:F_.L THRES-C-% PARCEL 1 PM 4224 (~ 43 M 6) ~i'~tl~ LOT C 0.~ 672 AC. LOT ~ RECEIVED JAN 0 ~ 2004. DUBUN PLANNING I . --~~..-.-~,-'~ .... LEGEND LOT C PARCEL PM 4224 (143 C C C C C C ! c j - [ ! R~:.StDENTIA~, i ~PACES + ~ MOTORqYCLE PARKING C C C R E.S'f DENTIAL PARK BASEMENT N LEvELA. 1 1~-- 10 :SEPTE~BE'R 2005 DUBLIN TRANSIT VILLAGE 6700 GOLDEN GATE DRIVE DUBLIN, C. ALiFOR NJA DUBLIN TRA 6700 GOLDEN GATE DRIVE DUBLIN, 'CALIFORNIA NS I.T VILLAGE R ES1DEI',,FIIAL PARKI~ 73 S~PACES + 71MOTORC' ONLY 'CLE PARI~JNG N -GRAD~E LEVEL A. 14 N~ARCH 200,$ PROJECT NO: 405/~5 -4 DUBLIN TR'ANSI 6700 GOLDEN GATE DRIV~ D U BI. 1N, CALIFORNIA T VILLAG.E N Y'PICA~ LEVELS A.3 2 ,~EPTEMBER 2003 P~OJECT NO: 40565 ! I HAFT, TYP. DUBLIN TRANSIT 6700 GOLDEN 'GATE DRrvt: DUB LIN, CALIFORNIA VILLAGE i ! ALL FLAT ROOFING SHALL HAVE LIGHJf REFLECTING AND ENERGY SAVING QUAL~ES.I TYPICAL AT ALL BUILDINGS. / ~,ELOW, TYP. N DEN'TI.A~ ROOF A.4 1": 16'-Ce SEPTEMBER 2003 P~OJECT NO:. 4056,5 /. "¢ I / OFF]'CE - GRADE DUBLIN TRAN.SIT 6700 GOLDEN GATE DRIVE DUBLIN, CALiFORNiA VILLAGE LEVEL A.5 l"-- I 6'-0' 1'0 5EPT,:MBE.R 2003 PRO..JECT NO:. 4'05~,5 X OFFICE SECOND TO FOURTH LEVELS A.6 l": DUBLIN TRANSIT VILLAGE 6700 GOLDEN GATE DRIVE DU~LIN, CALIFO]Nf^ PROJECT NO: 40565 'Z / ] i' / " ']liii~:. OFFICE - 1": 16~-(7' 10 SEPTEMBER 2003 DUBLIN TRANSIT VILLAGE 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PROJECT NO: 40555 /,, I I OF J i BALCONY ELEVATOR ~I4AFTS ENERGY · / / SHALL OFFICE- ROOF A.8 1"--. t0 SEPTEMBER 2003 D.UBLtN TRANSIT VILLAGE ~71) 0 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PROJECT NO: 40565 SECOND FLOOR GROUND FLOOR RES DENT AL-SOUTH ELEVATION 1~: 1 .~'-0" 1D ,SE'PTEMB'ER 2003 DUBLIN TRANSIT 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA VILLA'GE P~OJECT NO: 40565 SECOND FLOOR GROUND FLOOR RESiDENTIAL-WEST ELEVATION DUBLIN TRA. NS 6700 GOLDEN GATE DRIVE DUBLIN~ CALIFORNIA 1T VILLAGE '['= $0 SEPTEMBER 2003 PI~OJECT NO'. 40565 GROUND FLOOR RES DENTIAL-NORTH ELEVATION I": 16'- 0" t0 SEPTEMBER 2008 DUBLIN TRANSIT VILLAGE, 6700 GOLDEN GATE DRIVE DUBLIN; CALIFORNIA PROJ.ECT NO: 40565 SECOND FLOOR GROUND FLOOR RES DENTIAL-EAST ELEVATION ~, A.12 1": t ,~'-(Y' 10 SE?TE~BER 2'003 DUBLIN TRANSIT VILLAGE 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PROJECI NO: 405~,5 NORTH ELEVATION WEST ELEVA'flON SOUTH ELEVATION EAST ELEVATION OFFICE-ELEVAT ONS ,~ A.13 ]": i ~- cr' '~0 ~:EPTEMBER 2003 DU'BLtN TRANSIT V. ILLAGE 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PROJECT NO: 40565 UNR" C 2 BEDROOM / 2 BATH (``'1,025 SQFT) UNIT A STUDIO (..'*555 SOFT) 42'-6' q · r,~-~,,,¢.,~, ~ d !IIi, i,ih i :,i I .'- ,., ',. i ! , UNIT D 3 BEDROOM / 2 BATH (,'1,275 SOFT) UNIT b 1 BEDROOM I 1 BATH (``695 SQFT) TYPICAL UNIT LA A.14 T": '~0 SEPTEMBER 2003 DUBLIN TRANSIT VILLAGE 6700 GOLDEN GATE DRIVE DUBLIN, CALIFORNIA PEOJECT NO: 40565 GOLDEN GATE DRIVE DUBUN, CALIFORNIA m ~ PRELIMINARY LANDSCAPING PLAN ' PODIUM DETAIL PLAN ~700 GOLD~r-N GATE DP, NE DUBI:IN, CALIFORNIA ~2 VILLAGE PARK DETAIL' P.LAN 6700 GOLDEN GATE DELVE DUBLIN, CALIFORNIA 40565 10 $~?¥5~B~ 2 0 0 ~ P~L ~ TYPICAL CROSS SECTIONS 67a0 GOLDEN GATE DRIVE DUBLIN, CAL}FO RNIA 4056,5 lO SEPTEMBER 2003 !j SHP. UBS SHP. USS J 'PEL~C.,AN' LICHT 'C~LLMIN¢' L1,SNT WAC. 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MBE~ 2OO3 6700 GOLDEJ',I GA'E DRIVE DUBUN, CALIFORNIA 4O565 C.~.DUCCI ~c ASSOCb%T~S, [NC. ORDINANCE NO. -04 AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF DUBLIN APPROVING THE DEVELOPMENT AGREEMENT BETWEEN THE CITY OF DUBLIN AND AMB PROPERTY CORPORATION (PA 02-003) The Dublin City Council does hereby ordain as follows: Section 1. RECITALS A. The proposed AMB Property Corporation's West Dublin Transit Village project (PA 02- 003) is located within the boundaries of the West Dublin BART Specific Plan ("Specific Plan") in an area which is designated on the General Plan Land Use Element and the West Dublin BART Specific Plan Land Use Map as Mixed Use and Office. An application has been filed by AMB Property, Inc. to change the approximately 9.06-acres site occupied by the Cor-O-Van warehouse business to Planned Development (PD). B. This project is within the scope of the West Dublin BART Specific Plan and General Plan, for which a Negative Declaration was prepared for the Specific Plan, and approved by the Dublin City Council on December 19, 2000. An initial study and Mitigated Negative Declaration has been prepared for the AMB Property/Legacy Partners project, herein after called the AMB Property project. That initial study and Mitigated Negative Declaration together with the Negative Declaration for the Specific Plan, the Responses to Comments prepared and dated February 10, 2004, and updated April 20, 2004, adequately describes the total project for the purposes of CEQA. The analysis indicated that no new effects could occur and no new mitigation measures are required for the AMB Property project that were not addressed in the Negative Declaration as certified by the City Council (Resolution 00-227). Further, that analysis found that the project is in conformity with the West Dublin BART Specific Plan/General Plan. C. AMB Property, Inc. has filed an application requesting approval of a development agreement for the West Dublin Transit Village project. E. A Development Agreement between the City of Dublin and AMB Property, Inc. has been presented to the City Council, a copy of which is attached as Exhibit A to Attachment 4 of the agenda statement. F. A public hearing on the proposed Development Agreement was held before the Planning Commission on February 24, 2004, for which public notice was given as provided by law. Agreement. The Planning Commission has made its recommendation for approval of the Development H. A public hearing on the proposed Development Agreement was held before the City Council on April 20, 2004, for which public notice was given as provided by law. J. The City Council has considered the recommendation of the Planning Commission at the February 24, 2004 meeting, including the Planning Commission's reasons for its recommendation, the ATTACHMENT 2 Agenda Statement, all comments received in writing and all testimony received at the public hearing in making its determination on the project. Section 2. FINDINGS AND DETERMINATIONS THEREFORE, on the basis of (a) the foregoing Recitals which are incorporated herein, (b) the City of Dublin's General Plan, (c) the West Dublin BART Specific Plan, (d) the Negative Declaration for the Specific Plan,. (e) the Mitigated Negative DeclaratiOn for the project, (f) the Responses to Comments on the MND, and (g) the Agenda Statement, and on the basis of specific conclusions set forth below, the City Council finds and determines that: 1. The Development Agreement is consistent with the objectives, policies, general plan uses and programs specified and contained in the City's General Plan, as amended by the West Dublin BART General Plan Specific Plan in that (a) the General Plan and Specific Plan land use for the site is currently Mixed Use and Office, which allows development of the West Dublin Transit Village. The proposed project is consistent with the land use designation of Mixed Use and Office, (b) the project is consistent with the fiscal policies of the General Plan and Specific Plan with respect to provision of infrastructure and public services, and (c) the Development Agreement includes provisions relating to financing, construction and maintenance of public facilities and similar provisions set forth in the Specific Plan. ' 2. The Development Agreement is compatible with the uses authorized in, and the regulations prescribed for, the land use district in which the real property is located in that project approvals include a Planned Development Rezoning/Stage 2 Development Plan, Site Development Review, and Vesting Tentative Parcel Map adopted specifically for the West Dublin Transit Village project. 3. The Development Agreement is in conformity with public convenience, general welfare and good, sound land use policies in that the West Dublin Transit Village project will implement land use guidelines set forth in the Specific Plan and General Plan. 4. The Development Agreement will not be detrimental to the health, safety and general welfare in that the project will proceed in accordance with all the program and policies of the West Dublin BART Specific Plan. 5. The Development Agreement will not adversely affect the orderly development of property or the preservation of property values in that the project will be consistent with the General Plan and West Dublin BART Specific Plan and is consistent with the planned development of a transit- oriented mixed use project intended for the Specific Plan area. Section 3. APPROVAL The City Council hereby approves the Development Agreement (Exhibit A of Attachment 4 to the Staff Report) and authorizes the Mayor to sign it on the City's behalf. Section 4. RECORDATION Within ten (10) days after the Development Agreement is executed by the Mayor, the City Clerk shall submit the Agreement to the County Recorder for recordation. This Ordin~¢e shall take eEect and be in force ~irt¥ (~0) days ~rora and a~ter the date o£ it~ p~age. ~e Cit~ Clerk of the City of D~blin shall cause thc ©rdinaace to be po~ted in at lea~t tkee (3) public places in the City of Dublin in accordance with Section 36933 of the Government Code of the State of California. PASSED AND ADOPTED BY the City Council of Dublin, on the 4th day of May 2004 by the following votes: AYES: NOES: ABSENT: ABSTAIN: ATTEST: Mayor City Clerk G;\paL2002\02-003\CC-DAord Agreement for PA 02-003 West Dublin Transit Village [Attached to Agenda Statement for Agenda Item 6.1] 9. Planning Commission Staff report and minutes from February 24, 2004 [Attached to Agenda Statement for Agenda Item 6. 10. Planning Commission Staff report and minutes from February 24, 2004 [Attached to Agenda Statement for Agenda Item 6. 11. List of Project-Related Studies and Information 12. Late Comments on Mitigated Negative Declaration and' Staff Responses RECOMMENDATON: 1. Hear Staff presentation. 2. Open public hearing. 3. Take testimony from the Applicant and the public. 4. Question Staff, Applicant, and the public. 5. Close public hearing and deliberate. 6. Adopt Resolution approving the Mitigated Negative Declaration (Attachment 1).' 7. Waive the Reading and Introduce the Ordinance (Attachment 2) approving the Planned Development Rezoning and Stage 2 Development Plan. 8. Waive the Reading and Introduce the Ordinance approving a Development Agreement between the City and AMB Properties (Attachment 4). DESCRIPTION: AMB Property Incorporated has submitted a project application consisting of a Planned Development Rezoning and Stage 2 Development Plan, Vesting Tentative Parcel Map, Site. Development Review and a Development Agreement for a mixed-use project transit village consisting of a four and ½.story,structure, containing a maximum of 304 multi-family residences with a small mount of neighborhood retail uses on the ground story. The project also includes the construction of an approximately 150,500 square foot office building on the southern portion of the site closest to Dublin Creek (Alameda County Flood Control Channel Channel Line Tand 1-580 freeway corridor. The approximately 9.06 acre property is developed with a warehouse managed by Legacy Partners. The site is owned by AMB Property, inc. who is the Applicant and Developer for this project. Legacy Partners has been assisting AMB Property, Inc., with the processing of the project through the City. The property is located northwest of the 1-580 freeway, south of the future extension of St. Patrick Way in the West Dublin BART Specific Plan area of Dublin. The extension of St. Patrick Way will be constructed as part of the AMB Property, Inc. project. Adjacent to the west boundary of the property are light industrial and professional/administrative office uses. Adjacent to the east is the Ampelon Development Gro~p (formerly Orix) residential project on vacant property owned by the Bay Area Rapid Tra~_sit District (BART), and recently approved by the City Council for high-density residential land use and commercial development. The Project has been the subject of several prior City approvals. The West Dublin BART Specific Plan (WDBSP) and related General Plan amendment were adopted by the City Council on December 19, 2000 to master plan the portion of the. City's downtown between i-580 and Dublin Boulevard, and generally between San Ramon Road and 1-680. The goal of the plan was to encourage the transition of light industrial land uses to a more vital, high-intensity development of mixed uses thereby creating a transit- oriented community near a transit hub. This land use transition was stimulated by BART's 1990 decision to extend service east along the 1-580 corridor. BART subsequently extended its line east and the. Eastern Dublin station was completed and has been in operation for several years. Both BART and the City continued planning for the West Dublin portion of the 1-580 corridor. -2.. CITY Cq'q - :;tKL File# i AGENDA STATEMENT CITY COUNCIL MEETING DATE: April 20, 2004 SUBJECT: PUBLIC HEARING: PA 02-003 AMB Properties, West Dublin Transit Village - Mitigated Negative Declaration, Planned Development Rezoning and Stage 2 Development Plan, and Development Agreement Prepared by Janet Harbin, Senior Planner L~ ATTACHMENTS: 1. Resolution approving the Mitigated Negative Declaration and Mitigation Monitoring Program with attached Exhibits: Exhibit A: Mitigated Negative Declaration and Initial Study Exhibit B: Comments Received and Staff Responses 2. Ordinance approving the Planned Development Rezoning and Stage 2 Development Plan with attached Exhibits: Exhibit A: Rezoning Exhibit, Development Plan, Project Plans 3. Applicant's Written Statement, Project Plans, Elevations (Binder 1) Project-Related Technical Studies (Binder 2) -Distributed under separate cover 4. Ordinance approving a Development Agreement between the City and AMB Properties (with Development Agreement attached as Exhibit A) 5. ?larming Commission Resolution No. 04-08, Recommending City Council Adoption of a Mitigation Negative Declaration for the Legacy Partners/AMB Transit Village Project [PA 02-003] [Attached to Agenda Statement for Agenda Item 6.1] 6. Planning Commission Resolution No. 04-09, Recommending City Council Approval of a Plmmed Development District (PD) Rezoning/Stage 2 Development Plan for PA 02-003 Legacy Partners - West Dublin Transit Village [Attached to Agenda Statement for Agenda Item 6.1] 7. Plmming Commission Resolution No. 04-12, Approving a Tentative Parcel Map 8069 and Site Development Review PA 02-003 Legacy Partners - West Dublin Transit Village (with Vesting Tentative Parcel Map 8069 attached as Exhibit A, and Site Plan attached as Exhibit B) [Attached to Agenda Statement for Agenda item 6. J] 8. Planning Commission Resolution No. 04-11, Recommending that the City Council Adopt an Ordinance for a Development g:\pa#L2002\02-003 legacy\cc\ccsrkitl.doc COPIES TO: Property Owner Interested Parties PA file Appellant I~EM. NO, ~ '-./~ PD - Office/Retail Permitted Use: Conditional Uses: Accessory Uses: Phase 2 - Office/Retail /.~_ 5~ As provided in the regulations' and procedures of the C-1 Zoning District As provided for in the regulation and procedures of the Zoning Ordinance Stage 2 Site Plan: The Stage 2 Site Plan is shown in Attachment 3, Sheets EX-1 and EX-2. The Stage 2 Site Plan depicts the location of the proposed land uses, circulation system, parking areas, topography and limits of grading on the site. Phasing Plan: The project is anticipated to be constructed in two phases, with construction of the residential and small ground-floor retail uses on approximately 4.5 acres (net acreage) of the property fronting on the future alignment of St. Patrick Way as the first development phase. The office building will be constructed in the second phase of the project on approximately 3.28 acres (net acreage) of the site closest to the 1-580 freeway. The parking for the residential and neighborhood retail development will consist of a ½ story of subterranean parking area and one ground-level parking area as the first floor of the building. The office building will have ground-level parking located on the east portion of the site, close to the existing flood control channel and the freeway corridor. The first phase of the project will include construction of 304 multi-family dwelling urdts with approximately 1,000 square feet of neighborhood retail on the ground level, and is located adjacent to the south side of the future St. Patrick Way alignment from Golden Gate Drive to Regional Street. Additionally, property along the proposed alignment for St. Patrick Way will be dedicated, and roadway access will be constructed in this phase.' On-site improvements proposed, such as the loop roadway within the project and the paved courtyard area providing pedestrian access to the BART Station between the residential building and the office building (see Attachment 3, Sheet EX-3), will also be constructed in this phase of the project. Additionally, the Applicant proposes to complete rough grading for the second phase of development as part of Phase 1. The development of Phase 1 is anticipated to commence in 2004, with Phase 2 fol}owing thereafter. .. The second phase of develoPment consists of the construction of the 150,500 square foot office building designated Retail/Office, and located to the south of the residential complex. Road improvements in Phase 2 include additional improvements as determined necessary for safe access to the entire development. A phasing summary is provided below indicating the proposed land use, number of units, and ne._~t acreage (minus dedicated land and improvements) for each phase. PHASING PLAN *Net Acreage excludes the private roads and local streets Lots/ Max. Net Acreage* Phase No. Land Use Parcel # Units or Sq. Ft. 1 Mixed Use 1 304 4.44'6 Multi-Family Residential & Retail 1,0'00 sq. ft. 2 Office 1 150,500 sq.ft. 3.281 304 units Total 2 151,500 sq. ft. 7.73 Planned Development District Rezoning and Stage 2 Development Plan As the next step in the series of approvals required for the Project, the Applicant has proposed a PD Planned Development District rezoning for the site. The existing zoning of the property is PD Planned Development with a Stage 1 Development Plan. Chapter 8.32 of the Dublin Zoning Ordinance establishes the intent, purpose and requirements of the Planned Development District. The intent of the Planned Development Zoning District is to create a more desirable use of the land, a more coherent and coordinated development, and a better physical environment than would otherwise be possible under a single zoning district or combination of zoning districts. This district requires that a Stage 1 and Stage 2 Development Plan be adopted to establish regulations for the use, development, improvement, and maintenance of the property within the requested Planned Development Zoning District. As the Stage 1 Development Plan was previously approved by the City Council in June 2002 with the rezoning of the West Dublin BART Specific Plan area, the Applicant is requesting approval of a Stage 2 Development Plan for the specific development of the subject site at this time to further implement 'the project. The Stage 2 Development Plan depicts the precise location of land uses, unit count, and densities for the project, and addresses the requirements of the Zoning Ordinance for this stage of development. The Development Plan and Project Plans for the residential, retail and office sites, roof views, ground level parking, podium-level parking, utility lines, grading and elevations are contained in the project plans in Attachment 2, Exhibit A. Prior to rezoning of the specific plan area to a PD and Stage 1 Development Plan, many of the area businesses .were in the process of relocating to other areas in the City or other jurisdictions. The project proposed by AMB Properties would provide support for further office and commercial development in the Specific Plan area, and also serve as a transition from the existing light industrial uses in the area to development consistent with the vision of the adopted West Dublin BART Specific Plan. The design objective of the AMB Properties' Transit Village is to combine a dense, urban residential and · .~., commercial/office development in a compact Space tO create a "transit village"character. This is reflected .. in the proposed high density'residential dwelling units and the commercial/office uses close to amajor transit station, the proposed future West Dublin BART Station. Stage 2 Development Plan: The Applicant's proposal consists of a multi-family residential product with a small retail component and an office building of approximately 150,500 square feet (see Attachment 3). Further details on the Applicant's development concept are also contained in Attachment 3, the Applicant's Written Statement. Statement of Proposed Uses: The project is proposed for development in two phases (see Attachment 3 for Phasing Plan). One phase of the project consists of the development of residential dwelling units at a density of 34 dwelling units per acre, and the establishment of a small amount of retail space at ground level to serve the residents and office users in the project (see Attachment 3). Conditional and accessory uses would be permitted in accordance with those allowed by the Zoning Ordinance. The proposed land uses for the property are as follows: PD - High Density Residential/Neighborhood Retail Permitted Use: Phase 1 - Multi-Family Dwellings & Neighborhood Retail Retail uses ora neighborhood retail character Conditional Uses: As provided inthe regulations and procedures of the R-M and C-N Zoning Districts as modified by the PD Rezoning Accessory Uses: As provided for in the regulation and procedures of the Zoning Ordinance Creating a more pedestrian friendly environment within the West Dublin BART planning area to attract businesses and visitors. The City Council recently approved a General Plan Amendment and PD Planned Development/Stage 1 Development Plan on the adjacent site owned by BART to allow a high-density residential development and a commercial center associated with the future construction of the West Dublin BART Station. That project and the proposed AMB Properties project will provide a cohesive and interrelated transit-focused community. Floor Area Ratio (FAR): The WDBSP also established Floor Area Ratios (FAR) for properties within the West Dublin BART planning area. The square footage of the office use proposed as part of the subject project is approximately 150,500 square feet. The FAR for the office use on the site is .38. This is consistent with the maximum FAR of 1.0 allowed on the site by the WDBSP. The proposed project would be consistent with goals and policies contained in the West Dublin BART Specific Plan and the Dublin General Plan, and with the projected land uses and land use designations of the Specific Plan as it consists of a rezoning to implement the existing general plan designations on the 9.06 acre site. Additionally, this project as a whole is an interrelated transit village and will be developed consistent with the provisions of the General Plan, Specific Plan, the negotiated Development Agreement (see Resolution, Attachment 4, Exhibit A). Mixed Use Residential Density: The Dublin General Plan and the WDBSP contain policies and guidelines to regulate the density of residential development in the City. The AMB Properties' site contains approximately 9.06 gross acres of land, and with the construction of 304 multi-family units as shown on the Applicant's plan, the residential development would result in a density of approximately 34 dwelling units per acre for the site. This density is consistent with the density range of 30 to 50 units per acre allowed by the WDBSP when found appropriate for residential projects (per Amendment to WDBSP on December 19, 2000, at Plan adoption). The total number of residential units in the mixed use project is also consistent with the Mixed Use land'use category in the WDBSP which allows a maximum development, of 331 dwelling units in the area. Mixed Use Retail Component: The Mixed Use land use category in the General Plan and Specific Plan requires that the residential development also contain a non-residential component, such as retail or office use. The proposed project contains a neighborhood retail component of approximately 1,000 square feet with small storefronts on the ground level floor to serve residents and office users. Additionally, the office use within the 9.06 acre site adds to and complements the mix of uses in the Project. Traffic Issues: As required by the General Plan and West Dublin BART Specific Plan, traffic impacts and programmed improvements for this proposed project have been reviewed in the Negative Declaration for the West Dublin BART Specific Plan; the Supplemental Environmental Impact Report prepared by BART for the BART extension project (certified by the BART Board in April 2001); the Mitigated Negative Declaration prepared for the AMB Properties project (previously known as the Legacy Partners project); and the specific traffic studies prepared for this project. The specific studies prepared for the project are located in the second binder in Attachment 3. Consistent with the Specific Plan and the various Project CEQA reviews, improvements have been identified and incorporated into the Stage 2 Development Plan. No significant traffic impacts will result with inclusion of these improvements in the Project. In summary, the project is consistent with the General Plan and West Dublin BART Specific Plan. Further details of the traffic improvements incorporated into the project are contained in the section on Traffic in this report. Existing Uses On The Project Site a/ ~ 6~ The project site is currently developed and improved, containing the Cor-O-Van warehouse, a storage and distribution center, with associated paving for parking and loading areas. All utilities, infrastructure and improvements have been constructed on the property, and are fully operational. The Cot-O-Van center building also contains other smaller distribution businesses such as Airborne Express; however, the Cor- O-Van operations utilizes the majority of the square footage of the warehouse building. The operations have been located at this site since the mid-1990's, with the building previously occupied by Unisource. The Cot-O-Van distribution center intends to continue to operate as an interim use at the site until AMB Properties is prepared to commence construction on the mixed use development. An interim parking plan for the use was reviewed by the City Council on November 12, 2003 in conjunction with the review and approval of a minor amendment to the approved alignment plan for the extension of St. Patrick Way from Regional Street to Golden Gate Drive. ANALYSIS: The project site is located at 6700 Golden Gate Drive, near the intersection of Golden Gate Drive and adjacent to the future extension of St. Patrick Way on the Cor-O-Van warehouse site. The site is also located within the West Dublin BART Specific Plan (WDBSP) area, a planning area in the City's downtown subject to the goals and policies of that specific plan. TheWDBSP was adopted by the City of Dublin on December 19, 2000 for the purpose of directing the land use, circulation, infrastructure and development for 71.40 acres of land located in the central portion of Dublin, west of the 1-680 freeway and north of the 1-580 freeway. At build-om over the next five to seven years, the West Dublin BART Specific Plan area would allow the development of a range of residential, commercial office, retail, employment and public/semi-public uses. General Plan and WDB Specific Plan Consistency The Dublin General Plan and West Dublin BART Specific Plan designate the site as Mixed Use on the northerly portion of the site adjacent to' the extension of St. Patrick Way, which permits residential use as well as retail or office uses, and as Office on the southerly portion of the site closest to the freeway corridor. The project site is also designated as an "Opportunity Site" in the Specific Plan as it is considered a property in transition, moving away from the industrial uses in the past to a more vital urban transit-oriented use. The proposed Planned Development District Rezoning would implement and be consistent with the General Plan and West Dublin BART Specific Plan by: Providing a high profile, state-of-the-art transit-oriented development with a mix of both residential and commercial uses in the vicinity of the West Dublin BART station; Providing higher intensity residential development for households desiring a more urban living environment close to a transit station; Promoting the development of a state-of-the-art transit-oriented development on properties adjacent to the West Dublin BART station to create a vital and visually distinctive district, both locally and regionally; Encouraging the stimulus of the new BART station to increase economic vitality and overall activity within downtown Dublin; and, Hierarchy of Land Use Approvals for the AMB Properties Transit Village Project LEGISLATIVE APPROVALS General Plan Amendment Broadest policy decision as to whether it is a good idea to change the use of the site from industrial to mixed use and office. Council adopts amendment 12/19/2000 West Dublin BART Specific Plan Identify land use objectives for the planning area. Identify policies, uses, improvements, programs that will be used to meet the objectives. Council adopts specific plan 12/19/2000 PD Rezoning and Stage ! Development Plan Adopts specific plan policies, uses, improvements and programs as regulations to be implemented through project development. Council adopts rezoning and development plan 6/4/2002 ADMINISTRATIVE PERMIT APPROVALS Non-shaded Boxes: Previous Approvals Shaded Boxes: Current project In December 2000, the City adopted three separate Downtown Specific Plans, each focusing on a particular portion of the City's downtown central urbanized area. Most of this area, including the Project site, is developed with urban type and intensity uses. The major exception is the vacant BART property east of the Project site. The general goals for planning in the downtown area were to revitalize the area through modified uses, public improvements, and design. The West Dublin BART Specific Plan focused on proximity to 1-580 and to the planned BART station on the property adjacent to the Project site. The General Plan and Specific Plan designated a portion of the BART property for a BART station. The remainder of the BART property as well as the Project site were planned for a mix of uses in order to provide residential, office, and ancillary retail uses in appropriate combinations and densities to take advantage of and support the planned BART station. As required by CEQA, the City prepared an initial study for the general plan and specific plan actions, and adopted a Negative Declaration. The Negative Declaration was based on the self-mitigating nature of the Specific Plan; that is, the policies, standards, and improvements programmed in the Specific Plan functioned as mitigation measures, whose implementation would avoid the potential for significant environmental impacts as the Specific Plan area was built out in the future. The next layer of approvals for the Project site occurred on June 4, 2002 when the City rezoned the site from the M- 1, Light Industrial district to the PD-Planned Development district and adopted a related Stage 1 Development Plan, as required by the PD district regulations. The Stage 1 Development Plan functions as a Project-specific zoning ordinance that specifies uses and development standards to implement the West Dublin BART Specific Plan policies and programs. In fact, the Specific Plan was adopted as the Stage 1 Development Plan for the Project site. In approving the PD zoning and Stage 1 Development Plan, the City determined that the prior Negative Declaration covered the zoning approval, again noting the self-mitigating nature of the previously adopted SPecific Plan. The current applications are the last in the series of discretionary approvals for the Project. Through the Stage 2 Development Plan, Vesting Tentative Parcel Map and Site Development Review, the Applicant :. shOwS the City how all the applicable standards and programs from the Specific Plan, and the uses and development standards from the Stage 1 DeVelopment Plan will be implemented through building, grading and other ministerial development permits. BART has also been planning for its property. In April 2001, BART approved the West Dublin BART Station and Transit Village and certified a Supplemental EIR examining the potential environmental effects of both the planned station and a mixed use transit village north of the station. The developer of the transit village portion of the project has since applied for and received development approvals from the City. The chart on the following page illustrates the succession of pertinent project approvals prior to, and proposed by the Project. It is well established that general plan level actions are at the top of the land use hierarchy, implicating the broadest legislative policy issues as to appropriate uses for a site or area. Once policy is established, the next steps in the hierarchy are to establish ordinances and regulations to implement the planning policy. Finally, administrative permit level approvals implement the regulations through the site-specific details of a particular development project. As reflected in the hierarchy chart on the next page, the Project has obtained most of its required legislative approvals, and the current applications are for the last legislative approval and for administrative permit entitlements for a Vesting Tentative Parcel Map and Site Development Review. Compatibility with Stage 1 Development Plan. The Stage 2 Development Plan proposed at this time is generally consistent with the Stage 1 Development Plan approved with the rezoning of the West Dublin Specific Plan area in June 2002 as the table below illustrates: West Dublin Transit Village Acre~ Units/SquareFootage Acres* Units/Square Footage Multi-Family Residential "4.~" 304 units 4,45 331 Retail ........ 1,000 sq.ft. Max. For Plan Area Office ............ 3.28 150,500 sq.ft. 2.5 6.98 For Entire Plan Area St. Patrick Way R.O.W ............... 1.15 59,101 2.11 N/A Property for B.. ART Frontage .. .,1..8... . N/A TOTAL 9.06 304 9.06 331 Max. For Plan Area (per WDBSpecific Plan) Architectural Standards: The architectural design standards and unit floor plans for the Stage 2 Development Plan are established by the architectural drawings prepared by the MBH in the project plans (see Sheets A.9 through A. 14 of the Project Plans in Attachment 3). Additionally, the Applicant has provided' supplemental information in Attachment 3, Colored Elevations, which also includes the color samples for residential/retail complex as well as the office building. Development Standards: To accomplish the land plan envisioned, specific development standards are established in the Development Plan to guide the Stage 2 development of the property. The proposed Development Plan and deVelopment standards for the PD zoning district are included in the Ordinance in Attachment 2, Exhibit A, Project Plans, stamped by the City, "received January 2, 2004." Preliminary Landscape Plan: The Preliminary Landscape Plan is shown on Sheets L.1 through L.6 of the project plans, Attachment 2, Exhibit A. A condition of the Site Development Review (see Resolution, Attachment 7) requires the submittal of a Final Landscaping and Irrigation. Inclusionary Zoning Regulations: The Applicant will comply with the Inclusionary Zoning Ordinance and any City Council Resolution relating to that ordinance in effect at the time of the issuance of the first building permit for this project. The regulations recently adopted by the City Council require new residential projects to provide 12.5% of the total number of dwelling units with the development as affordable units. The City Council may authorize that fees in-lieu of construction can be paid for 40% of the required units. At the present time, the Applicant proposes to provide a minimum of 38 affordable units within the High Density (multi-family) residential area, which equals 7.5% of the total number for units within the project site. These dwelling units will be for-rent apartment units. The Applicant proposes to meet the remaining percentage of the affordable housing requirement through the payment of in-lieu fees. An agreement between the City and the Developer will be prepared to facilitate meeting the affordable housing requirement.' The City Council will be the authority in determining how the Applicant will be required to meet this housing need. Development Agreement The property owner of the site, AMB Properties, proposed to enter into a development agreement with the City. Unlike the mandatory development agreements requir.ed for projects developed within the Eastern Dublin Specific Plan area, the proposed agreement is not required of the project by the provisions of a(5~ · specific plan or other adopted plan, but rather it would be voluntarily entered into by the developer and the City. In other words, whether to enter into the development agreement is within the City's discretion. The purpose of the Development Agreement Statute and the City's regulations implementing the statute (See Municipal Code, Chapter 8.56) is to provide certainty to a developer that once a project is approved the developer can proceed with the project without fear that local regulations would change and prevent development. Absent a development agreement, or some other vesting mechanism such as a vesting tentative map, a developer's right to construct a project under California law does not "vest" until such time as they have obtained all permits, begun construction, and made substantial expenditures in such construction. In exchange for vesting the developer's fight to develop, cities can obtain benefits that they could not otherwise require as a condition of approval of the project. City Staff and developer negotiated the proposed development. The basic terms are as follows: The term of the agreement is 10 years. The project approvals and the land use in existence at the time of the approvals are vested for the term of the agreement. The term of the project approvals are extended for the term of the agreement. The developer would not be subject to any new development impact fees adopted during the term of the agreement, excepting the proposed, but now tabled, Linkage Fee for affordable housing. However, the developer would be subject to increases in existing development impact fees, such as the public facilities fee. The developer agrees upon development of the proj eot to construct and dedicate certain land for the completion of St. Patrick Way between Regional Street and Golden Gate Drive. The City will pay the costs of construction and acquisition of land of the eastern one-third of the extension, and the developer will pay for the costs of construction and acquisition of land for the western two-third. The City would pay a fixed price of $13 per square foot for land dedicated by developer in the eastern third. Additional contingencies regarding the construction of St. Patrick Way are set forth in the agreement. These provisions generally allow the City, if it deems necessary, to complete the St. Patrick Way extension, and in particular the eastern one-third, prior to development of the Project and require the developer to dedicate the necessary land. The terms set forth in the proposed agreement are consistent with Dublin Municipal Code Chapter 8.56, Development Agreement Regulations. Staff feels that the development agreement provides substantial benefits to the City. It ensures the completion of the entire extension of St. Patrick Way. The developer is also absorbing the costs of much of the project, and those costs will not have to be passed along to other developers. This will encourage development in the Downtown area, where the costs of the necessary transportation infrastructure improvements is a potential barrier to development. The proposed development agreement was considered by the Planning Commission and recommended for approval by the City Council at the public hearing conducted on February 24, 2004. The Commission found the agreement to be consistent with the objectives, policies, land uses, and programs specified in the General Plan and West Dublin BART Specific Plan. As such, the Commission adopted Resolution No. 04-09 recommending that the City Council adopt an Ordinance approving the agreement. The following describes the Site Development Review and Tentative Parcel Map, as approved by the Planning Commission: Site Development Review Topography and Site Development: The site is located within a developed portion of the City's downtown area. The topography of the site is relatively flat as the site was previously graded for the construction of the warehouse and the paving when the facility was built. The site lies at a lower elevation than the 1-580 corridor, and is separated from Dublin Creek by a gentle upward slope and a grassy filtration swale. The Preliminary Grading and Drainage Plan for the project (Sheet C.2 of Attachment 2, Exhibit A) takes into consideration the existing contours and infrastructure of the site to minimize excessive cuts and fills. The parking lot for the proposed office building, lying closest to the freeway, is setback from Dublin Creek by approximately 20 feet and a grove of mature redwood trees.' Architectural Concept & Theme: The architectural concept for the West Dublin Transit Village community is to create a modem, urban transit-oriented character with an interesting color palette. This architectural style is articulated on the residential complex and the office building with detailed features such as colored stucco, wood, glass, and steel. The selected architectural style has been developed by MBH Architects for AMB Properties to achieve the urban transit village architectural concept and provide a clean innovative design (see Elevations in Exhibit A of the Development Plan/Project Plans, Attachment 2). The proposed architectural design will complement the style of the modem urban buildings and landscaping which eventually will be constructed in the Specific Plan area, and also provide interest in the physical landscape from the freeway corridor. MBH Architects has provided supplemental information in Attachment 3, Colored Elevations with color samples for the building design. These illustrations were presented at the Planning Commission hearing for review and approval, and provide renderings of the architectural style and design of the project. The four-story apartment complex is designed with four buildings constructed around a large landscaped courtyard. The apartment units consist of 20 studio, 132 one-bedroom, 124 two-bedroom, and 16 three- bedroom units. Unit sizes range between 575 to 1,275 square feet. The parking garage is two levels under the living space, one level of which ½ is subterranean and contains 723 parking spaces. The ground level garage floor is hidden behind the first-story faCade of the building and the neighborhood retail storefronts. The garage is entered from the looped accessway within the complex, creating a pedestrian-friendly fully landscaped street frontage and main entry to the complex along St. Patrick Way. The typical unit plans are illustrated on Sheet A. 14 of the project plans (Development Plan), and many of the units provide balconies. MBH Architects has provided supplemental information in Attachment 3, Colored Elevations in Section VI, for the building design and proposed elevations. The office building is an approximately 150,500 square foot four-story structure with a paved parking lot containing 484 surface parking spaces. Between the residential/retail complex and the office building is a paved and landscaped courtyard area (see Sheet L-3 of the Preliminary Landscape Plans in Development Plan), providing pedestrian access to the residential, retail and office uses, and a convenient paved walkway to the adjacent development proposed by Ampelon Development Group on the BART-owned property. The Applicant and BART/Ampelon Development Group will cooperate together to make this an uninterrupted pedestrian pathway to the BART Station. Sheet EX-3 of the Development Plan in Attachment 3 illustrates the' various paths of travel from the project to the BART Station, including the connection of a future Ampelon Development Group/BART pedestrian access. Lot Coverage: in the context of this planned Development, the Applicant"is requesting that the lot coverage standard in the Zoning Ordinance of 50% for the high-density residences be applied. The residential/retail portion of the project has a 50 % lot coverage, and is, therefore, consistent with the Zoning Ordinance. Landscape Design Theme: The Preliminary Landscaping Plan is presented in Sheets L-1 through L-6 of the project plans. The landscape elements have been designed by Caducci and Associates, Landscape Architects, to blend with and enhance the architectural theme. The landscape elements have also been designed to tie the project to the surrounding street network, sidewalks and pedestrian pathways which lead to the BART Station and the commercial areas of the central downtown. The residential/retail complex is enhanced with landscaping, creating an outdoor courtyard wrapping around and in between the four buildings and the total percentage of landscaping on the developed site would be approximately 32% of the site area. The landscaping and decorative paving along the walkways is continued to the office building site and integrates the development into a cohesive community. Enhanced landscaping has also been added to the surface parking lot of the office building to buffer the visual landscape of the development from the freeway. The grove of redwood trees near the freeway corridor near the northwest corner of the site will remain undisturbed. Should any trees be proposed to be removed or altered in the future, the procedures in the City's Heritage Tree Ordinance must be followed. A street tree program and streetscape with pedestrian walkways unify the project and provide a hierarchy of color, texture and size. The various entries to the development are characterized by monumentation, textured concrete paving and boxed specimen canopy trees (see Sheets L-1 through L-5 of the project plans for monuments, landscaping and paving features). Landscaped sidewalks along the street frontage of the project are designed for pedestrians to travel throughout the site year-round and for visual relief. The landscape has been designed to enhance the residents' experience and provide the City with a quality development, and will greatly improve the visual experience in the West Dublin BART Specific Plan area. Irrigation for this development will be an automatic and efficient system designed to reduce overspray and excessive runoff, utilize low precipitation heads and conserve water. Irrigation valves will be separated based on orientation, exposure to the sun, shade and wind and will be designed to be sensitive to the water requirements of the plant material selected. The irrigation design in the Final Landscape and Irrigation Plan will be required to meet the City's water efficient landscape regulations. Additionally, this project is located within the DSRSD District Recycled Water Use Zone, which calls for installation of recycled water irrigation systems to allow for future use of recycled water for approved landscaped irrigation demands. Compliance with this District regulation is required, unless the District Engineer approves an exemption (see Conditions of Approval in Resolution, Attachment 7). Traffic and Circulation: The consulting firm of Omni-Means, Engineers & Planners completed a traffic impact study for the proposed AMB Project in May 2002. The initial site plan was later modified in 2003 and the traffic study was updated in May of that year to reflect minor adjustments to the initial site layout, office size and residential units. The traffic study analyzed existing and future levels of service (LOS) at 16 adjacent intersections on Amador Valley Boulevard, Dublin Boulevard, St. Patrick Way and San Ramon Road. The study also analyzed LOS on roadway segments in the vicinity of the project along Golden Gate Drive, Regional Street and St. Patrick Way. The LOS calculations under build-out traffic conditions in the project area took into consideration circulation improvements planned for intersections and roadway segments in downtown Dublin based on improvements identified in previous traffic studies for the Downtown Specific Plan, proposed Downtown Dublin Traffic Impact Fee (TIF), and Dublin Transit Center. Intersection LOS Analysis: Based on the above analysis, it was found that two intersections in the Project area would operate at an unacceptable LOS with or without the Project during the AM or PM peak hour. The two intersections are Amador Valley Boulevard/Starward Drive and San Ramon Road/l-580 Westbound Off-Ramp. The unacceptable LOS at Amador Valley Boulevard/Starward Drive refers to traffic delay caused by the Stop-sign controlled southbound left- and fight-mm movements from Starward Drive onto Amador Valley Boulevard. This forthisinters__~ ~ I~O unacceptable LOS will be resolved with a traffic signal installation planned by the City .~ ~ecuon. design for this traffic signal is currently underway and installation is anticipated for 2005. The unacceptable LOS at San Raraon Roacl/I-580 Westbound Off-Ramp is attributed to a traffic-weaving problem from the diagonal westbound off-ramp to make a left turn at the San Ramon Road/Dublin Boulevard intersection. Re-alignment of this off-ramp to intersect with the San Ramon Road overpass at a 90~degree angle and installation of a traffic signal at this new intersection will provide an acceptable LOS. This improvement project is currently under construction with completion anticipated in Spring 2004. Roadway Segment LOS Analysis:.The roadway segment LOS analysis revealed that Regional Street just south of Dublin Boulevard would operate at an unacceptable LOS under build-out traffic conditions, with the St. Patrick Way extension in place between Golden Gate Drive and Regional Street. This would primarily be due to cross-traffic access and lack of turn lanes at major driveways, which causes delays to through-traffic. On-street parking is currently prohibited along Regional Street within approximately 300 feet south of Dublin Boulevard. Left-turn pockets and/or a two-way left-turn lane at the major driveways will be re-striped in this 300-foot segment of Regional Street without any removal of on-street parking, which would provide an acceptable LOS on Regional Street. These improvements are included in the Project. Parking Analysis: The parking for the residential and retail development consists ora ½ story of subterranean parking area and one ground level parking area as the first floor of the building. The office building will have ground-level parking located on the east portion of the site, close to the flood control channel and the freeway corridor, and adjacent to Sl~t "F" on the project plans. Based on the proposed site plan, there will be a total of 944 parking spaces apportioned to residential, office, and "shared" residential/office uses as follows: ReSidential spaces: Office spaces: "Shared" residential/office spaces: 460 221 263 Total parking supply: 944 spaces The Applicant is proposing that 263 parking spaces within the parking garage for the residential/retail portion of the project share spaces with the office use to the south. According to the Parking Regulations of the Zoning Ordinance, the parking requirement is 1,046 parking spaces for the mixed-use development. The Applicant has requested a 15% parking ratio reduction to allow provision of less parking for the development than would normally permitted under the Zoning Ordinance. The Applicant is also requesting permission to implement a shared parking space program for the mix of uses on the site, along with a parking management plan. A shared parking analysis was conducted as part of the Omni-Means traffic study and found that the hourly residential and office demand would peak at 849 spaces between 10:00 and 11:00 a.m., including a peak demand of 209 spaces for shared residential/office spaces. Based on these projections, the traffic study concluded that the proposed shared parking plan would provide sufficient spaces to accommodate peak residential and office parking demand. The study also recommended that a parking management plan be instituted so that exclusive spaces for residential or office use be clearly identified. Traffic Effects of BART Development: Traffic and parking studies have analyzed the Project both with and without the BART station. If the BART station is not constructed, the overall traffic generated in the project area would decline, further reducing potential traffic in the general area. Dedication of St. Patrick Way: The new segment of St.. Patrick Way between Golden Gate Drive and Regional Street will provide access to the proposed West Dublin BART/Ampelon Development Group and AMB Properties (Cor-O-Van) developments. The future extension of St. Patrick Way will be a connection to 1-680 on/off ramps, allowing development of surrounding land uses per the West Dublin BART Specific Plan. The ultimate right-of-way width for St. Patrick Way will vary between 68 and 71 feet. The ultimate section will consist of two 12-foot wide travel lanes, a 12-foot wide center two-way left-mm lane, and 8-foot wide parking lane on the south side and sidewalks that vary between 6 feet and 11 feet on both sides of the street. The St. Patrick Way improvements will assure safe and convenient access to abutting properties, and the design will be based on a 25 mile per hour speed limit. Access to BART-Owned Property: Under the Conditions of Approval in Attachment 7, and approved by the Planning Commission, the Applicant is required to dedicate a private egress easement across the northeastern portion of Parcel 1 for the benefit of the neighboring BART property (APN 941-1500-046). The easement is necessary to accommodate vehicle and pedestrian egress from the future BART development across Parcel 1 's eastern drive aisle, terminating at St. Patrick Way. The dedication will be required with approval of the final map, or sooner as stipulated by the Development Agreement. The proposed driveway along the east side of Parcel 1 (residential/retail parcel) is to be designed to accommodate the connection of a future BART egress driveway near its northern terminus at St. Patrick Way, assuming the Project precedes development of the neighboring BART property (see exhibits in Attachment 4, Development Agreement, and in Attachment 3, Development Plan). Should the BART development occur first, the Applicant will be required to adjust the alignment of the proposed driveway to conform to the BART egress driveway to maintain access from the BART driveway open and unobstructed at all times during construction. Emergency vehicle access will be provided as a secondary use of the internal pathway/accessway between the buildings for fire and police access to the residential, retail and office uses. Pedestrian Access to BART Station: As this project is within the west Dublin BART Specific Plan area and implements development of land uses in accordance with the Specific Plan, the basic concept of providing pedestrian-friendly access to the future BART Station on Golden Gate. Drive is reflected in the project site design. The adjacent BART project contains a parking garage and provides for bus access directly through the garage. As the AMB Properties' project is within walking distance (via low volume intemal roadways) of the BART garage, the project plan includes an uninterrupted walking path through the site to the adjacent BART-owned property (see Pedestrian Path of Travel diagram in Attachment 3, Sheet EX-3): To enhance the transit access, BART has also included the continuation of the pedestrian accessway to the BART Station in their concept plan for the Planned Development Rezoning and Stage 1 . Development Plan for their site recently approved by the City Council. Water Supply: The project site is presently served and will continue to be served by Dublin San Ramon Services District (DSRSD). Water facilities must be connected to the DSRSD or other approved water system, and must be installed at the expense of Applicant in accordance with the District's Standards and Specifications. D SRSD's specific requirements are included in the Conditions of Approval, and the Applicant must comply with them prior to issuance of building permits and/or acceptance of final improvements. Sanitary Sewer and Recycled Water irrigation: The existing warehouse use on the property is currently served with sewer service from the DSRSD. Expansion of water and sanitary sewer infrastructure and relocation of pipes within the right-of-way of St. Patrick Way is a requirement of the project (see Resolution, Attachment 7) to provide adequate capacity to the project. Existing sewer mains on Golden Gate Drive between St. Patrick Way and Dublin Boulevard, and sewer mains on Dublin Boulevard between 1-680 and Golden Gate Drive also require upsizing to meet the project demands. These improvements are included in the project improvement and roadway plans, and the Applicant will be required to submit all plans to DSRSD for review and approval prior to issuance of building permits and '~ construction. Storm Drainage/Hydrology: The storm drain system for the development will be connected to Dublin Creek, which is owned and maintained by Zone 7 of the Alameda County Flood Control and Water Conservation District as Line T. This open channel flows southerly adjacent to 1-580. The site is fully developed, including impervious coverage and drainage facilities developed with an industrial use, and is covered with concrete and paved areas which provide a greater amount of impervious coverage and stormwater drainage than the development proposed. Overall site drainage will be improved with the proposed development through the reduction in impervious coverage on the site. The Applicant will be installing a substantial amount of landscaping and various paving types in the project which will allow the drainage facilities to work more efficiently. Additionally, prior to issuance of building permits to construct the project, the Applicant will be required to submit calculations and soil information to the Director of Public Works and to the Zone 7 for approval. This will ensure that any improved drainage facilities are of sufficient capacity to service the development and other development proposed for the area. The Applicant will be required by the City to contribute a fair-share portion of the cost of any facility expansion serving the development. Police and Fire Department Requirements: The Applicant will comply with all Alameda County Fire Services (ACFD) rules, regulations, City of Dublin and standards, including minimum standards for emergency access roads and payment of applicable fees, including City of Dublin Fire facilities Fees. Maintenance of Landscaping and Streets: The City generally is responsible for maintenance of landscaping within the rights-of-way of streets that are accepted for dedication. The landscape improvements for street right-of-way will be installed by the Developer concurrently with the development of the parcel unless otherwise specified by the Development Agreement. St. Patrick Way and the public streets in the project will be publicly maintained. All private'.accessways and pedestrian pathways wilt be maintained by the property owner. Vesting Tentative Parcel Map 8069 The Applicant submitted a Vesting Tentative Parcel Map 8069 for the two phases proposed with the project which was also approved by the Planning Commission on February 24, 2004. The map subdivides the AMB property into two parcels for each of the phases of development, with Parcel 1 to be developed with the multi-family residential development, and Parcel 2 to be developed to coincide with the office development closest to the freeway corridor. The primary access to the project will be from the two driveway accessways from the future extension of St. Patrick Way, a public street (See Attachment 3, Sheet C.1 for diagram ofaccessway). The access way loops around the office portion of the project, and continues to St. Patrick Way where it will provide an additional shared accessway to residences and those on the adjacent BART property site. Further details on traffic and circulation can be found in the section Traffic and Circulation under Site Development Review, above. Improvements provided by the Vesting Tentative Parcel Map, along with the Conditions of Approval in the Resolution in Attachment 7, address flood control, street improvements, utilities, schools, phasing, noise attenuation, landscaping. The Development Agreement for the project (Exhibit A of Attachment 4) also includes information and reflects the requirements of the Applicant related to improvements. Street improvements and right-of-way dedications are shown in detail on the Vesting Tentative Parcel Map and Site Plans contained in the Stage 2 Development Plan (Exhibit A of Attachment 2). Requirements of the affected utilities and special districts have been incorporated into the Conditions of Approval as part of the required obligations of the Applicant (see Resolution in Attachment 7 for Conditions of Approval). ENVIRONMENTAL ANALYSIS: The City prepared an Initial Study dated November 6, 2003 for the Project consistent with CEQA Guidelines section 15162 to determine whether the Project would require additional review beyond the Specific Plan ND. Based on the Initial Study, no subsequent EIR was required for the Project and the Project would not result in any significant adverse impacts. Although not required by CEQA, the City prepared a draft subsequent Mitigated Negative Declaration pursuant to CEQA Guidelines section 15162 to examine how the Specific Plan policies, standards and programs were included in the Project, and thus how prior adopted mitigation established in the Specific Plan would be implemented. The draft Mitigated Negative Declaration and Initial Study are attached as Exhibit A to the Resolution in Attachment 1. The draft Mitigated Negative Declaration was circulated for public review from November 10, 2003 to December 2, 2003. The City received one comment letter on the Project, from Adams Broadwell Joseph & Cardozo, dated December 2, 2003. Although not required by CEQA, the City prepared written responses to all the comments in a Responses to Comments matrix dated February 10, 2004 which is contained in Exhibit B of the Resolution in Attachment 1. The comment letter included a substantial amount of background materials that are on file and available for review in the Planning Department. Staff carefully reviewed the comments in preparing the written responses and the responses provide the City's good faith, reasoned analysis of the environmental issues raised by the comments. Adams Broadwell submitted another set of comments on February 20, 2004, well after the close of the public review and comment period on the Project MND. Like the previous letter, the comments objected to the City approving a Mitigated Negative Declaration rather than preparing an EIR. Again, although not required by CEQA, the City prepared written responses to the late comments. The February 20, 2004 letter and the City's written responses dated April 20, 2004 are contained in Attachment 10 of the Staff report. Both sets of comments generally assert that the Project may have potentially significant impacts on air quality, water quality, traffic, and public services that have not been mitigated. All of the letters include extensive consultant repons. City Staff carefully .reviewed all the comments, .including the consultant reports. Where appropriate, the written responses explain why the City disagrees with the consultant reports, and how the City's conclusions are supported by the record. In general, the Adams Broadwell comments reflect a number of common misunderstandings, as discussed below. First, many of the comments state or assume that the Project site is vacant, and thus that the Project is going from no development to intense urban development, with its attendant impacts. However, the Project site is not vacant; it is fully developed and operational with a high intensity trucking and warehousing operation, and a high level of existing impacts. Pursuant to CEQA, the potential for the Project's environmental impacts is measured against the existing development and operations. As explained in the City's written responses, the Project will reduce rather than increase certain potential impacts, e.g., by reducing the amount of impervious surfaces on a site which currently is almost entirely covered by building or paving. Second, the comments do not reflect the past environmental reviews for the Project and Project site. As noted in the earlier chart showing the hierarchy of land use approvals for the site, the Project and site have been the subject of past approvals and related CEQA reviews. Contrary to the comments' assertions, CEQA's "fair argument" standard does not apply to the Project. Instead, the Project is subject to the subsequent review standard under CEQA Guidelines section 15162, which prohibits the City from requiring a subsequent EIR unless the Project will cause new or more severe significant impacts than previously analyzed. Section 15162 states that when a negative declaration has been adopted for a project, no subsequent EIR shall be prepared for the project unless substantial evidence shows that 1) the project is substantially changed or the circumstances of the project have substantially changed from the previous review, such o /(.¢0 that the project would involve new significant environmental effects, or, 2) substantial new information which was not known and could not have been known when the previous negative declaration was adopted shows the project will have new significant effects. In this case, none of these standards for a subsequent EIR is present. 1) No Proiect Chan~es, No Chamted Circumstances. The Project has not changed from that analyzed in the Specific Plan ND; the Project is consistent with the general plan and specific plan land uses and development standards assumed in the ND and later approved by the City Council in 2000. Of particular note is the fact that during the specific plan process, changes were proposed for the Project site in anticipation of the current mixed use and office development applications. Those changes were considered by the Council and are reflected in underscored text in the adopted Specific Plan ND. See, for example, underscored text on pp. 3, 14 of the ND describing and analyzing the increased office density then proposed for the Project site. The current Project is consistent with these changes that were specifically analyzed in the prior ND. Similarly, there have been no substantial changes in circumstances since the prior ND. None was identified when the City relied on the prior ND for the 2002 rezoning approval, and none was identified in the Project MND. 2) No New Information of New Significant Impacts. There is no new substantial information showing that the Project will have new significant environmental effects. The record contains various reports and studies for the Project, as required by the Specific Plan, the Specific Plan ND, and City standards, such as updated traffic studies and preliminary geotechnical studies referenced earlier in this Staff report, in the Project MND and elsewhere in the record. The reports generally show how the Project implements the Specific Plan and City standards, and none identifies the potential for new significant impacts. in their comment letters, Adams Broadwell appends several consultant reports in support of their contention that an EIR should be prepared for the Project. City Staff carefully reviewed the letters and consultant reports to determine if they provided any new information of new significant impacts. Much of the information in the reports predates both the 2000 and 2002 City actions based on the Specific Plan ND, so that information was available at the time and is not new information. Similarly, the impacts addressed in the letters, such as construction and operational air quality, construction and operational water quality, traffic impacts and public services were addressed in the Specific Plan and the Specific Plan ND. More importantly, the consultant reports often assume the Project site is vacant rather than fully developed, and generally do not acknowledge-the Specific Plan standards or adopted City standards that apply to the Project and Project site. As such, the information and analysis in the consultant reports is faulty and does not constitute substantial evidence of the potential for significant impacts. Throughout the responses to Adams Broadwell's MND and late comments, Staff explained where and how it disagreed with the consultant reports. As noted in CEQA Guidelines section 15151, experts may disagree on the environmental consequences of a Project, Although not required for a Mitigated Negative Declaration, or for late comments, the City has provided written responses to the comments consistent with section 15151 in an effort to provide an adequate, complete, and good faith disclosure of the potential effects of the Project. The City adopted a Negative Declaration when it approved the Downtown Specific Plans, including the West Dublin BART Specific Plan, on December 19, 2000. The City revisited the Negative Declaration when it adopted the PD zoning for the Project site in June of 2002. CEQA allows, even requires, the City to rely on these previous reviews unless new or more significant 'impacts are identified. All of the issues raised in the comments, including air quality, water quality, traffic and public services are typical development issues, and all were addressed in the previous reviews. Third, the comments do not recognize the self-mitigating intent of the West Dublin BART Specific Plan. As further explained in the written responses, the Specific Plan contains extensive policies, programs and improvements, which ensure that implementing projects will not have significant environmental effects. In addition, the Project is subject to the City's comprehensive regulatory scheme for land development, including adopted ordinances and programs and standard conditions of approval. For example, the Project included programmed roadway improvements identified in the Specific Plan, and is subject to such adopted requirements such as preparation of a construction management plan for air quality, traffic and noise during construction. The site is presently developed with a land use (light industrial) generally considered more intense than the mixed use (residential and retail) and office use now proposed with the AMB Property project. The site will be redeveloped in accordance with the City's General Plan, West Dublin BART Specific Plan, and Zoning Ordinance, all of which have been previously reviewed and adopted or amended for the Project, with appropriate CEQA analysis. Under these circumstances, preparation of an EIR is unwarranted. Based upon the substantial amount of environmental review completed for the project and the measures incorporated in the project by the Applicant's plan, Staff has determined that no subsequent EIR4evel review or recirculation of the document is warranted, that the prior Negative Declaration and the Project Mitigated Negative Declaration adequately identify and analyze the Project's environmental impacts, and that the conunents and responses do not constitute or require substantial revisions to the Mitigated Negative Declaration. Appeal of Planning Commission Approvals On March 4, 2004, the law firm of Adams Broadwell Joseph and Cardozo, representing the International Brotherhood of Electrical Workers Union Local 595, Sheet Metal Workers Union Local 104, and the Plumbers and Steamfitters Union Local 342, submitted a Letter of Appeal appealing the February 24, 2004 Planning Commission approval of the Site Development Review and the Tentative Parcel Map for the AMB Properties project; and, the Planning Commission's recommendations of approval of the Mitigated Negative Declaration, Planned Development Rezoning and Stage 2 Development Plan, and the Development Agreement, to the City Council. The appeal is discussed in a separate Agenda Statement for tonight's meeting and will be acted upon by' the Council separately from the actions on the PD Rezoning, Stage 2 Development Plan and Development Agreement. CONCLUSION: This application has been reviewed by the applicable City Departments and agencies, and their comments have been incorporated into the Stage 2 Development Plan (see PD Ordinance, Attachment 2) and the conditions of approval for the Vesting Tentative Parcel Map and Site Development Review (see Resolution, Attachment 7), the Planning Commission approval that Staff recommends the City Council affirm. The proposed project is consistent with the Dublin General Plan, West Dublin BART Specific Plan, and Stage 1 Development Plan rezoning previously approved, and represents an appropriate and well-planned transit-oriented project for the site to assist in revitalizing the West Dublin BART Specific Plan area and the economic viability of the area. Additionally, the City has taken many steps prior to this project in approving various environmental documents and taking action to support the mixed use development of this site. RECOMMENDATION: Staff recommends that the City Council; 1) open the public heating and hear Staff presentation; 2) take testimony from the Applicant and the public; 3) question Staff, Applicant, and the public; 4) close the public hearing and deliberate; 5) adopt Resolution approving the Mitigated Negative Declaration and Mitigation Monitoring Program (Attachment 1); 6) waive the Reading and Introduce the Ordinance (Attachment 2) approving the Planned Development Rezoning and Stage 2 Development Plan; and 7) waive the Reading and Introduce the Ordinance (Attachment 4) approving a Development Agreement between the City and AMB Properties. Planning SYstems Public Finance Real Estate Economic, Regional Economic, Land Use Policy MEMORANDUM To: From: Subject: Date: Janet Harbin, City of Dublin Jerry Haag, City of Dublin Andy Byde, City of Dublin Walter Kieser and Jearmie Young Evaluation of Development Scenarios, Downtown Dublin; EPS #9310 June 23, 2000 This Memorandum provides a summary of EPS' effort to define and evaluate development scenarios within Dublin's central area and provide direction for the Specific Plans. This task has included a detailed market assessment (see EPS Memorandum dated March 29, 2000) and, more recently, an interactive effort with City staff to define development scenarios and to evaluate these alternatives. This effort will provide guidance to the City as it prepares three Specific Plans. These Specific Plans will reflect new City policy for developing the central area. The fundamental policy question relates to the feasibility of changes in land use that would create a more traditional "downtown" in the area. The development scenarios reflect different land use policies and public investments, beginning with a "current policy" alternative which Would, as its name suggests, involve no change to existing land use policy. The second scenario would create significant regulatory incentives by allowing higher density and mixed uses in two of the three planning areas. The third development scenario would include additional public investment in parking structures and other public facilities needed to create a "new urban form" in the areas. While this analysis is informative, it does not consider the full range of factors that might lead to a preference between the scenarios. For example, the social and cultural value of creating a more pedestrian friendly environment. Appendix A provides detailed assumptions regarding development potential. Appendix B provides the detailed, parcel-by-parcel land use assumptions. In summary this evaluation, in concert with the prior market research and planning efforts, validates the potential utility of specific plans designed to help the City achieve · a variety of important goals and objectives. Through careful planning, effective collaboration with the private sector, and selected public investments, the City Council's goal of creating a more traditional "downtown" in the area can be achieved. Moreover, this objective can occur in a manner that preserves and even expands the vitality of the area as a focus of retail and business activity. BERKELEY EACRAMENTO DENVER 2501 Ninth Street, Suite 200 phone: 510-841-9J90 -a~.~ ,~.. phone: 916-649-801.0 phone: 303-575-8112 Berkeley, CA 94710-2515 fax: 510-841-9208 fax: 916-649-2070 fax: 303-623-1294 www. epsys.com :. ~'*~ i! ' ~ 1~ ' Memorandum City of Dublin June 23, 2000 Page 2 RECOMMENDATIONS LAND USE DESIGNATIONS AND INTENSITIES Market trends, as evidenced by recent project activity and reflected in the Market Assessment, suggest that higher densities and mixed uses can be feasible in the central Dublin area. While the value of existing uses may deter extensive private sector led redevelopment, over time such intensification will occur, in any case. This pattern of urban evolution has been evident in other suburban communities in the Bay Area and around the State. The question is "will this intensification be guided by an insightful plan or will it occur reactively. A land use plan (specific plans) that permits higher intensity land use and a mix of use types will facilitate this transformation and provide the insight to assure the most positive outcome for the City. Additionally, redevelopment can be managed to maximize the City's fiscal benefits and the implications and impacts of intensification such as additional parking demand and traffic can be managed in a cost-effective manner. 1. Establish a Specific Plan in the BART Environs that reflects and supports the BART Station Project. The BART Project sets the tone for the BART Environs area. In addition to establishing land use policies consistent with this proposed project the Specific Plan promote additional mixed use development, revitalization and redevelopment. The "Mixed Use/Intensification Scenario suggests land use designations that would achieve this objective, allowing an additional 550,000 square feet of office, housing, and retail uses. Key development objectives would be revitalization of the Monarch Hotel and its immediate environs and redevelopment of existing warehouse uses (Corvan). 2. Establish a Specific Plan in the Downtown Core Area that secures existing major retailers and promotes mixed use and intensification. The major retailers, including Target, Wards, and soon, Home Depot are located in this area. In addition to "anchoring" other retailers throughout the area, these businesses create a strong retail sales tax base, At the same time land uses along Amador Plaza Road could be intensified by introducing new uses (office, housing, entertainment). There are also opportunities to create civic facilities and public spaces in the area. The "Mixed Use/intensification" Scenario suggests land use designations that would achieve this objective, although the more aggressive "New Urban Form" scenario could also be achieved if parking and access issues were resolved. 3. Establish a Specific Plan for the Village Parkway Area that stabilizes and enhances existing land uses. The existing pattern of uses, narrow configuration, and large number of parcels in this Area are generally not conducive to higher intensity uses. A Specific Plan for this area Jun22m~n.d~c Memorandum City of Dublin June 23, 2000 Page 3 should generally reflect the existing pattern of uses, establish design standards and development guidelines, and promote streetscape improvements. TRANSITION OF LAND USES Dublin's central area is presently a hub of retail activity, including a large concentration of regional and value-oriented national credit retailers. Auto-related uses continue, although land values and other considerations are making the area less attractive for auto dealerships. Regardless of City action, retail businesses, including auto dealers, are subject to a wide array of market forces that will induce change over time. These market forces include local competition, national retail shopping behavior (e.g. web- based retailing) and changing demands and preferences of local residents. In this environment there is no "status quo". From the City's perspective is imperative to maintain retail vitality as a key contributor to the City's fiscal well-being. 4. Maintain auto related uses and dealerships in the City. While one dealer (Shamrock Ford) has relocated to another site in Dublin, two other dealers (Honda, Chevrolet) remain. While these dealers appear stable at this point, increasing land values, as well as increased competition and changing patterns in auto retailing may weaken these dealer's ability to remain in the area. A proactive approach to relocation within the City should be pursued. This can have the dual benefit of securing associated sales tax revenue, while freeing up major sites in the central area for redevelopment. 5. Promote private sector consolidation and redevelopment of older, underutilized retail buildings. Intensification efforts should focus upon those sites that exhibit under-utilization and weak sales performance. Enhancing the inherent value of these sites through increased density and pubic (and private) improvements can induce desired changes. CREATION OF PUBLIC AMENITIES Public amenities can be a key part of creating a vital retail environment, especially where an effort is underway to "create" a more traditional downtown in a historically suburban shopping district. There are a number of opportunities for such improvements in the central area, as reflected in the development scenario illustrations. The Specific Ptans for the BART Environs and the Downtown Core should explore the creation of public amenities including small plazas, pedestrian connections, and civic/cultural uses. These amenities can often be created through private investment as a part of individual project development, although some public investment may be needed and justified. Memorandum June 23, 2000 City of Dublin Page 4 Z Seek opportunities for civic, cultural, and entertainment uses in the central area. Civic, cultural, and entertainment uses create attractions that "anchor" retail businesses as well as promoting civic identity and pride. Intensification offers opportunities for such uses sponsored by the private sector (e.g. entertainment uses) as well as public sector or non-profit sector entities. MEETING PARKING DEMANDS Intensification of land uses in the central area will require additional parking. Depending on the amount of intensification that occurs parking demand could double or more. Because land values in the area are approaching those required to justify structured parking it can generally be constructed by the private sector as a part of individual projects. However, retail and civic uses may not be able to support the full cost of structured parking leading to the need for public investment. 8. Create a parking district in the central area. The parking district can provide a administrative unit for managing existing on-street and public surface parking lots as well as funding structured parking at the time such parking becomes necessary and financially feasible. The parking district can generate a range of revenue sources including paid parking, impact fees, benefit assessments, and other private or public contributions to fund improvements and operations. 9. Establish parking requirements in the Specific Plan conducive to intensification and mixed uses. The Specific Plans can estabhsh parking requirements that augment or alter existing zoning ordinance-based requirements. Incentives can be offered for mixed uses that create opportunities for shared parking or reduced parking demand. The Specific Plans can also establish an overall parking strategy, including the ideal location of surface and structured parking facilities. Additionally, parking structures integrated into mixed use buildings, similar to those being considered in Walnut Creek, Santa Rosa, and Mountain View should be encouraged. BACKGROUND The City of Dublin is preparing three Specific Plans for portions of central Dublin near the intersection of 1-680 and Dublin Boulevard. BART Environs, which includes the land east of San Ramon Blvd., south of Dublin Blvd., north of 1-580 freeway, and west of Amador Parkway, excluding the Enea Plaza Shopping Center. Memorandum City of Dublin June 23, 2000 Page 5 Downtown Core, which includes the area bounded by Dublin Blvd. to the south, Amador Parkway to the north, the 1-680 freeway to the east, and the westward parcel lines of the Montgomery Wards and Target buildings on the west. Village Parkway, which includes the parcels fronting both sides of the street between Dublin Blvd. and Amador Parkway and the corner parcels to the north of Amador Parkway on either side of Village Parkway. While the three areas are in close proximity to one another in central Dublin, they are currently quite distinct from an existing land use perspective and each presents unique development opportunities and constraints. The City Council initiated the Specific Plans as part of its effort to create a true downtown area to serve the City's residents, to improve existing businesses in the area, and to expand regional retail and other business opportunities. The Specific Plans will provide the policy and implementation framework for land use decisions, urban design continuity, public improvements, and revitalization efforts. The City seeks to achieve the following goals through the Specific Plans: Create a distinct local and regional business environment within the three areas, including more regional office and retail uses. As a part of the Specific Plans, additional uses or market niches for downtown Dublin will be identified. Create a cohesive "sense of place" within each area through implementation of new urban design guidelines and landscape standards. A unifying set of development standards and design guidelines will be prepared to achieve this goal. Create a pedestrian-friendly environment with better connections within and between the three areas, with particular emphasis upon the Downtown Core area. As a part of the Specific Plans, the public improvements that the City can undertake to assist in this revitalization effort will be identified. Developing a "downtown" in central Dublin presents several major challenges given that the area currently contains a mix of successful retail business; retail sales performance is average to strong by comparison to other suburban locations, vacancies are Iow, and rents are stable. There are many individual property owners, particularly in the Village Parkway area, and all three areas are dominated by strip commercial and auto-oriented uses. These factors make parcel assembly and redevelopment a challenge. All three areas lack effective pedestrian connections and public spaces and facilities. Finally, while market conditions are presently strong for retail development, there is substantial competition with existing nearby retail centers and development underway in East Dublin. There are also many opportunities in Dublin. The real estate market is very strong, e.g., there are key new development projects proposed that will assist the City in its revitalization goals, including the new West BART Station and surrounding transit- Memorandum June 23, 2000 City of Dublin Page 6 oriented development. There has also been interest in downtown expressed by other major developers and retailers. A number of parcels are underutilized, exhibiting low land utilization or having out-of-date buildings. Also, one auto dealer has already relocated and another may soon do the same. SUMMARY OF MARKET OPPORTUNITIES Market opportunities were documented in an earlier Memorandum, as noted above. While central Dublin provides a major concentration of retail uses, competition for new and expanding uses will come from surrounding communities as well as other parts of Dublin. A major expansion or transformation of retail is unlikely; more likely will be the continuation of existing national credit retailers (e.g., Target, etc.) along with new, smaller scale retail businesses serving Dublin and the surrounding trade area. Opportunities for other uses include multi-family residential and office. These uses, while not generating the same level of tax benefits as retail, can create land value that makes intensification and other City objectives feasible. The following sections discuss the specific opportunities for each of the three planning areas. BART ENVIRONS The market opportunity for this area is to transition into a vital, transit-oriented urban area. Spurred by the development of the proposed West BART Station and surrounding proposed mixed-use development, future uses could include a mix of office, restaurant, retail and residential uses. Intensity of use will be higher than present and could consist f retd.-rise offices, retail, high-density housing and parking structures. There could also e pedestrian pathways linking the BART station to surrounding buildings and facilities. Additional interior streets are envisioned in the area to improve interior circulation and to create opportunities for "street wall" development. DOWNTOWN CORE This area has the potential to secure its role as a major retail center and to expand this role by providing improved internal access, providing public spaces and facilities for residents and employees to gather and recreate, and intensifying retail, office, entertainment, and housing uses on certain parcels. Recognizing the importance of existing retail establishments, new land uses would be consciously complementary, filling out vacant and underutilized sites. A small central plaza, or similar feature, could be developed around which new retail, office, or residential uses could be oriented. Circulation into the area could be facilitated by a new interior street. Pedestrian linkages to the new West Dublin BART Station could be created. City of Dublin June 23, 2000 Page 7 ViLLAGE ,PARKWAY The current mix of uses, isolation from the other two planning areas, and small parcels combine to suggest that this retail should largely retain its existing retail and service/commercial orientation, but with an improved streetscape and appearance of buildings. Streetscape improvements could include enhanced landscaping along Village Parkway, entry monuments, complementary business identification signs, and building facades. New multi-family residential uses could be added to certain lots. Street improvements would be made to increase parking, calm traffic and provide for better pedestrian circulation. Existing overhead utility lines could be under-grounded and the existing median removed or reduced in size. Better signage for off-street parking and off-street circulation is also required. SCENARIO EVALUATION As noted above the scenarios reflect an increasing effort on the City's part to induce change in central Dublin. The key analytical question is "What will be the result of this effort?" i.e., will the effort and investment involve produce the desired results? Table S-1 provides a summary of the policies assumed under each of the scenarios. Categories of City effort and investment include 1) regulatory measures, 2) development conditions and negotiations, 3) public streets and other investments, and 4) public participation. Detailed land use analysis conducted as a part of the market assessment and other research allowed parcel-by-parcel consideration of land uses and land use change. Table S-2 shows the land use changes assumed under each of the scenarios in the Core Area and the BART Environs Area. The Village Parkway Area is not assumed to undergo substantial intensification in any case. The land use analysis suggests that a substantial additional development capacity could exist if properly induced and supported. Development in the Core Area could increase from its existing 484,000 square feet to over 1 million square feet of gross building area. The BART Environs Area could increase from its existing 892,000 square feet to over 2 million square feet. Table S-3 provides a summary of the scenario evaluation for the Core Area and the BART Environs Area. Key evaluation criteria include 1) total building square footage, 2) employees, 3) parking spaces required (by ordinance), and 4) estimated public revenues (e.g., property tax, sales tax, and transient occupancy tax). DOWNTOWN CORE AREA Gi,v,e.n the amount a.n.d mix of use.s potentially created under the development scenarios, puvnc revenues could increase suOstantially in the area, with more that a doubling of existing revenues (to over $3 million annually) if development objectives reflected in the "Mixed use and intensification" scenario were achieved. This scenario generates the largest increase, mainly because it assumes the retention of lucrative auto dealers and other auto-related uses. The "New Urban Form" scenario shows the lowest increase. Memorandum City of Dublin June 23, 2000 Page 8 The trade-off here depends on if auto-related uses could be retained in the City at another site, thus freeing up acreage for other uses in the Downtown. If so, pursuing reuse of these sites, as contemplated in the "new urban form" scenario is justified. If not, it could be difficult to find retail uses to make up such a large loss of sales taxes. It is not clear whether the increased effort and investment needed to create the "New Urban Form" scenario (e.g. substantial structured parking) would be justified solely from the revenue potential criteria. Such determinations can be further explored as a part of the specific plan process or made on a case-by-case basis. BART ENVIRONS AREA The increased development in this area would also result in a substantial increase in City revenue, although, once again the differences between the scenarios (i.e. between the "Mixed Use/Intensification" and "New Urban Form" scenarios) may not justify the additional effort and public investment that could be required for access improvements and parking. The BART Environs will undergo the most significant change with no change in policy, assuming that the BART Station project proceeds as planned, along with related planned public improvements. There are also large parcels with substantial development capacity in the area (including the existing auto dealership and warehouse facilities) that could be subject to private efforts to redevelop regardless of City action on the Specific Plan. VILLAGE PARKWAY The Village Parkway Area was not evaluated simply because no substantial change in land use is envisioned, even if a Specific Plan is created for the area. jun22tnem.doc Table S-2 Summary of Land Uses by Aorea or Building Sqft Dublin Downtown Development Program Existing Ares/ Acres/ Land Use Category Unit Units Scenarios-Future Total Acree/Bldg. Sql..... i 2 3 Current Mixed Use New Urban Policy Intensification Form Core Auto sales Auto related Hotel Industrial/Warehouse Office/hotel Office/retail Office Recreation/entertainment Residential Residential/retail Restaurant Restau rentJretail/offlce Retail big box Retail general Retail/restaurant Retall/restaurant/entnmt Senior housing lot acres 8.55 8.55 8.29 0.00 bldg. sqft 0 0 0 0 bldg. sqft 0 0 0 0 bldg. sqft. 0 o 0 0 bldg. sqfl. 0 0 0 0 bldg. sqff. 0 0 88,486 543,604 bldg. sqff. 13,120 13,120 29,665 94,943 bldg. sqft. 69,752 69,752 69,752 o bldg. SClff. 0 0 0 0 bldg. sqft. 0 0 0 164,908 bldg. sqft. 0 0 0 0 bldg. sqft. 0 0 0 0 bldg. sqft. 271,354 364,484 339,800 147,434 bldg. aqft. 0 0 77,474 126,452 bldg. sqft 129,293 129,293 18,711 0 bldg. sqff. 0 0 0 108,303 bldg. sqff. o 0 72,961 32,868 Total Auto Sale Acres Total Bldg. Sqfl. (excluding auto sales) BART Auto sales Auto related Hotel Industrial/Warahouse Office/hotel (1) Office/retail Office Recreation/entertainment Residential Residential/retail (2) Restaurant Restaurant/retail/office Retail big box Retail general Retail/restaurant Ratall/restaurant/entnmt Senior housing Building on parking lot 8.55 8.55 8.29 0.00 483,519 576,649 696,849 1,218,511 lot acres 4.90 4.90 4.75 0.00 bldg. sqff. 32,88o 32,880 0 0 bldg. sqft. 103,231 223,231 223,231 120,000 bldg. sqff. 210,744 210,744 0 0 bldg. sqff. o 0 0 210,077 bldg. sqff. 0 0 0 103,653 bldg. sqft. 242,385 288,385 269,497 920,998 bldg. sqft. 35,602 35,602 0 0 bldg. sqft. 0 160,oo0 160,000 160,000 bldg. sqff. 0 0 0 291,495 bldg. sqft. 17,823 17,823 18,775 8,420 bldg. sqff. 0 0 478,233 o bldg. sqft. 0 0 0 0 bldg. sqff. 243,344 243,344 294,496 135,049 bldg. sqff. 0 0 0 0 bldg. sqft. 0 0 0 243,791 bldg. sqft. 0 0 0 0 bldg. sqff. 6,120 6,120 0 0 Total Auto Sale Acres Total Bldg. Sqft. (excluding auto sales) 4.9o 4.90 4.75 0.00 892,129 1,218,129 1,444,231 2,193,484 (1) The hotel comprises 103,231 building sqft while the remaining building sqff Is office. (2) Assumes retail comprises 33% of total building sqff. See Appendix A, continued for details. Sources: City of Dublin; Economic & Planning Systems, Inc. Eco,*x~ & Pl~nntng S*y~terr~ Irc. E Planning Systems Public Finance Real Estate Economics Regio'~al Economics Land Use Policy APPENDIX A: DEVELOPMENT ASSUMPTIONS E __ t-.- ._ Ecom Planning Systems Public Einance Real Estate Economics Regional Economics Land Use PoJlcy APPENDIX B: DETAILED LAND USE DESCRiPTION AND EVALUATION CRITERIA o~ d E ,gl 0 RECEIVED DUBLIN PLAI~NING Planning Systems Public Finance Real Estate Economics Regional Economics Land Use Policy TECHNICAL MEMORANDUM To: From: Subject: Date: Eddy Peabody, Jr., Planning Director, City of Dublin Walter Kieser and Joanne Brion Market Assessment: Downtown Dublin Specific Plans; EPS//9310 March 29, 2000 INTRODUCTION The City of Dublin is preparing three spedfic plans for portions of central Dublin near the intersection of 1-680 and Dublin Boulevard. The three specific plan areas, comprising this central part of Dublin, have been designated as the Village Parkway, the Downtown Core, and the Western Dublin BART Station, respectively. While the three areas are in close proximity to one another, they each present unique development opporttmities and constraints. Recently, the City Council has sought a more tmified downtown area to serve the City's residents, to improve existing businesses in the area, and to expand regional retail and other business opportunities. The specific plans will provide the policy and implementation framework for land use decisions, urban design continuity, public improvements, and revitalization efforts. The City seeks to achieve the following goals through the specific plans: Create a distinct local and regional business environment within the three areas, including more regional office and retail uses. As a part of the specific plans, additional uses or market niches for downtown Dublin will be identified. Create a cohesive "sense of place" within each area through implementation of new urban design guidelines and landscape standards. A unifying set of development standards and design guidelines will be prepared to achieve this goal. Create a pedestrian-friendly environment with better connections within and between the three areas, with particular emphasis upon the Downtown Core area. As a part of the specific plans, the public improvements that the City can undertake to assist in this revitalization effort will be identified. BERKELEY SACRAMENTO DENVER 2501 Ninth Street, Suite 200 phone: 510-841-9190 '~',~?,~.~'~- phone: 916-649-8010 phone: 303-575-8112 Berkeley, CA 94710-2515 fax: 510-841-9208 '~;"* fax: 916-649-2070 fax: 303~623-1294 www. epsys.com Eddie Peabody, Jr. City of Dublin March 29, 2000 Developing a new "downtown" in central Dublin presents several major challenges in that the area is currently relatively viable, sales are average to strong, vacancies are low, and rents are strong and stable. There are many property owners, particularly in the Village Parkway area, and all three areas are auto-dominated and oriented. All three areas lack pedestrian connections and public spaces. The amount of development proposed in East Dublin will provide strong competition for downtown. However, there are also many opportunities in Dublin. The real estate market is very strong, there are some key new development projects that will assist the City in its goals, including the new West BART Station and surrounding transit-oriented development. There has also been interest in downtown expressed by major developers such as Legacy Partners. After review of this memorandum and further guidance from the City staff, EPS, working in conjunction with the rest of the consulting team, will prepare development strategies for each Specific Plan Area. A key issue will be the level of intervention the City would like to pursue and how much public investment is feasible. This memorandum presents the draft market assessment of DoWntown Dublin and the potential for creating more pedestrian-oriented districts as part of the preparation of three Specific Plans (the Study Areas). West BART, which includes the land east of San Ramon Blvd., south of Dublin Blvd., north of 1-580 freeway, and west of Amador Parkway, excluding the Enea Plaza Shopping Center. Downtown Core, which includes the area bounded by Dublin Blvd. to the south, Amador Parkway to the north, the 1-680 freeway to the east, and the westward parcel lines of the Montgomery Wards and Target buildings on the west. Village Parkway, which includes the parcels fronting both sides of the street between Dublin Blvd. and Amador Parkway and the comer parcels to the north of Amador Parkway on either side of Village Parkway. This analysis reviews existing market and land use conditions in the Study Areas and presents findings concerning potential market opportunities and constraints. Many of the potential opportunities will be a function of the policy direction the City wishes to follow for each area. Provided below are brief summaries of the vision for each area, which have been considered in determining market opportunities and new development potential. MARKET OPPORTUNITIES WestBART The market opportunity for this area is to transition into a vital, higher density, transit- oriented development area. Spurred by the development of the proposed West BART station and surrounding mixed use development, future uses would include a mix of office, restaurant, retail and residential uses. Intensity of use would be higher than 2 Eddie Peabody, Jr. City of Dublin /o/ r /tv (3 March 29, 2000 ~" typically found in the remainder of Dublin and would consist of mid-rise offices, retail, high density housing and parking generally in parking structures. There would also be numerous pedestrian pathways linking these uses to each other, the BART station and surrounding areas. Linkages would also be made with the local transit provider. Additional streets are envisioned in the area including a new one to connect the Downtown Core area to the West BART area via Golden Gate. Downtown Core This area has the potential to continue to be a retail center but to expand its role in providing more public spaces for residents and employees to gather and recreate. The Downtown Core is expected to transition from a primary vehicular-oriented retail area to a more pedestrian-friendly, civic center environment. Recognizing the importance of existing retail establishments, new land uses would be complementary but generally smaller in scale to attract more people to the area and provide for additional activities aside from shopping. The focus of the Downtown Core would be a central plaza, or similar feature, around which new uses would, be oriented. Circulation into the area would be facilitated by a new collector street, but would be designed to discourage through traffic. Other smaller cross streets are also envisioned. Pedestrian linkages to the new West Dublin BART station would be emphasized. Village Parkway The market opportunities for this area suggest that it should retain its existing retail and service commercial orientation, but with an improved urban design appearance. This could include enhanced landscaping along Village Parkway, entry monuments, complementary business identification signs, and building facades. New residential uses such as live/work units could be added to certain lots to assist in adding to the local population base. Street improvements would be made to increase parking, slow down traffic speeds and provide for better pedestrian circulation. Existing overhead utility lines should be undergrounded and the existing median removed. Better signage for off-street parking and off-street circulation is also required. Some new development and intensification of uses are envisioned. EXISTING CONDITIONS As part of reviewing existing conditions, EPS toured the Study Areas and evaluated the reuse and redevelopment~ potential of each parcel by assessing the condition of the existing buildings, the viability of existing tenants, whether a parcel was vacant (either land or building), and the existing use's consistency with the vision stated for the area by the City. Each parcel was coded based on this field survey with a ranking of one to five, as shown below; the amount of land for each ranking in the three areas was then summed. z Redevelopment throughout this document refers to generic redevelopment of existing buildings and not formal redevelopment through a Redevelopment Agency. The City recently evaluated the use of formal redevelopment, and it was found not to be feasible in the ttrree Study Areas because the conditions required by the State were not present. 3 Eddie Peabody, Jr. City of Dublin I O Z. xz..I O March 29, 2000 Cd 1. Vacant and developable 2. Underutilized, and redevelopable 3. Major rehabilitatiOn/reuse and intensification 4. Modest upgrade and rehabilitation 5. Currently viable use - no change of use or building expected WEST BART AREA Table 1 summarizes existing land uses by land use category for the West BART area. As shown, there are about 77 acres with a little Under 1.0 million square feet of space. The overall FAR for the area is 0.36, excluding vacant or public land. This area has the broadest mix of land uses of the three areas under consideration. Office, retail/restaurant, and industrial uses dominate the area. About one quarter of the area is devoted to both office and industrial uses, and about 19 percent to retail uses. A hotel, bowling alley, auto dealer, and other service commercial uses are also in the area. Table 2 describes the number of business establishments in the Study Areas by the same land uses categories. During 1999, a total of 46 businesses in the area generated sales tax revenue, of which about half (48 percent) is retail, 33 percent is service commercial businesses, and 11 percent is restaurants. Businesses in the West BART Area comprise about 27 percent of total businesses in the three study areas. Table 3 summarizes the area by one of the five rankings discussed above in terms of development potential in the West BART Specific Plan area. About 13 percent of the site is vacant and represents the proposed BART development by Jones Lang LaSalle. Another 47 percent of the total 77 acres is considered opportunity sites for reuse and new development. Existing buildings would have to be demolished to accommodate new uses or buildings. About 35 percent of this area is not expected to change. The remaining parcels are either expected to need minor or major rehabilitation or upgrades, including fagade and site improvements. This information is used to estimate the amount of new development that could occur in the area, assuming new land use density and parking assumptions, discussed below the New Development Potential section. DOWNTOWN CORE AREA As shown in Table 4, there are about 535,000 square feet of buildings in the Downtown Core plan area, 90 percent of which is retail or restaurant. The area comprises about 54 acres of land and has the least diversity of existing uses of the three areas under consideration. The primary type of use is large, "big box" retail including Target, Montgomery Wards, Toys-R-Us, and PetsMart located at the Dublin Place Shopping Center, which was built in the 1960s. Two chain restaurants (El Torito and Carrows) are 4 Table 1 Summary of Existing Land Uses: West BART Area Downtown BART Specific Plan Area Downtown Dublin Market Study Bulldin~l Area Lot Size Use Type Sqft % of Total Acres Sqft % of Total FAR Existing Development (1) Autodealership 39,495 4.2% 6.89 299,946 9.0% Hotel 103,231 10.9% 5.57 242,642 7.2% Office 256,839 27.1% 14.86 647,156 19.3% Restaurant 19,519 2.1% 1.97 85,743 2.6% Retail 176,649 18.6% 12.82 558,579 16.7% Service Commercial 66,695 7.0% 3.10 135,152 4.0% Recreation/Bowling 35,602 3.8% 3.54 154,400 4.6% Industrial/Warehouse 243r624 25.7% 10.96 477,443 14..__~3% Subtotal 941,654 99.4% 59.71 2,601,061 77,7% 0.13 0.43 0.40 0.23 0.32 0.49 0.23 0.51 0.36 Public 0.0% 5,86 255,296 7.6% Vacant Commercial 6,120 0.6% 11.26 490,527 14.7% Total 947,774 100.0% 76.83 3,346,884 100.0% 0.00 0.01 0.28 (1) Parcels with buildings with more than one use have been separated into the appropriate categories. If a lot contained more than one use type, EPS used the dominate land use to estimate the acres and sqft of the lots, thus FAR estimates by land use are slightly misleading. Sources: City of Dublin; Rosenow Spevacek Group, inc.; Economic & Planning Systems, Inc. 5 Economic & Planning Systems, Inc. ~_/00 H:t9310dublldatalDublln2,xls Table 2 Number of Establishments with Taxable Sales in 1999 Dublin Downtown Market Study Retail Category (1) Core West Village Area BART Parkway Total %of Total Retail 17 22 44 83 Service Commercial 4 15 27 46 Restaurant 10 5 17 32 Autodealerships 4 1 0 5 Recreation/Hotel 0 2 0 2 Industrial/Warehouse 0 I 0 1 Office 0 0 _0 _0 Total 35 46 88 169 49% 27% 19% 3% 1% 1% O% 100% (1) These establishments reported taxable sales as of third quarter 1999, and thus do not represent the. total number of businesses in the area. Sources: City of Dublin; Economic & Planning Systems, Inc. 6 Economic & Planning Systems, Inc. 3/2_/00 H:19310dubllclatsLsales,xls Table 3 Redevelopment Potential Downtown BART Specific Plan Area Downtown Dublin Market Study Ranking: Definition Square Feet Acres Percent 1. Vacant and developable 2. Underutilized and redevelop 3. Major rehabilitation/reuse and intensification 4. Modest upgrade and rehabilitation 5. Currently viable use - no redevelopment potential 424,717 1,574,489 30,000 135,152 1,182,526 9.75 36.15 0.69 3.10 27.15 13% 47% 1% 4% 35% Total Land Area 3,346,884 76.83 100% Source: Economic & Planning Systems, Inc. ? Economic & Planning Systems, Inc. 3/28/00 H:~9310dubl~datalDublin2.xls Table 4 Summary of Existing Land Uses: Core Area Downtown Core Specific Plan Area Downtown Dublin Market Study Building Area Lot Size Use Type Sqft % of Total Acres Sqft % of Total FAR Existing Land Uses (1) Autodealership 41,883 7.8% 7.88 343,421 14.6% 0.12 Office 13,120 2.5% 1.40 61,200 2.6% 0.21 Retail (2) 480~447 89.7% 42.48 1,850,568 78.9% 0.26 Subtotal 535,450 100.0% 51.77 2,255,189 96.1% 0.24 Public - 0.0% 2.08 90,545 3.9% 0.00 Total 535,450 100.0% 53.85 2,345,734 100.0%' 0.23 (1) Parcels with buildings with more than one use have been separated into the appropriate categories, If a lot contained more than one use type, EP=S used the dominate land use to estimate the acres and sqft of the lots, thus FAR estimates by land use are slightly misleading. (2) Includes 44,174 sqff of restaurant space. Sources: City of Dublin; Rosenow Spevacek Group, Inc.; Economic & Planning Systems, Inc. ~ H:t9310dubl~datatDublin2.xls Economic & Planning Systems, Inc. Eddie Peabody, Jr. City of Dublin 107 / March 29, 200~0 located across from these larger uses. There is also an older six-plex movie theater and miscellaneous retail uses. The floor-area-ratio (FAR) in the Downtown Core plan area ranges from a low of 0.12 to a high of 0.26 FAR.2 Across from the Dublin Place Shopping Center are other retailers including Circuit City, a furniture store, a golf and tennis store, Chuck E. Cheese restaurant, a small older shopping center, and the two auto dealers (Shamrock Ford and Dublin Honda Automobiles). Immediately to the west of the area is a community shopping center with a Ralph's supermarket, Mervyn's, large fabric and arts supply stores, and several in-line shops. This shopping center appears to be part of the larger retail shopping area, although it is excluded from the Study Area. Table 2 summarizes the number of business establishments in the area by the same land uses categories mentioned previously. As shown, there are about 35 businesses in the Core Area that had taxable sales in 1999, of which 17 are retail, 10 are restaurants, and the remainder is either service commercial or auto related. Businesses in the Core Area represent 21 percent of the total businesses in the Study Areas. As shown in Table 5, 67 percent of this area is considered ready for redevelopment. The Ford dealer site represents a key opportunity site in the immediate future for a new office building with some ground floor retail. If the two adjacent parcels could be assembled, this would represent a key catalyst site for new development. VILLAGE PARKWAY AREA Table 6 summarizes existing land uses for the Village Parkway plan area. Total building space equals a little over 300,000 square feet and total acreage is about 31 acres. The FAR in this area is about 0.24, excluding vacant or public land. The businesses are generally small, independently owned businesses, although several major fast food chain restaurants are present, mostly at the southern entrance of Dublin Blvd. Other type of businesses include a number of auto-related businesses such as repair shops, oil and tire changes facilities, and a car wash. Village Parkway contains two gas stations, one of which is closed and for sale, and several older, two-story multi-tenant buildings. Table 2 summarizes the number of business establishments in the area by the same land uses categories. As shown, there are about 88 businesses in the Village Parkway Area that had taxable sales in 1999, of which 44 are retail, 17 are restaurants, and the reminder are service commercial. Businesses in the Village Parkway Area represent 52 percent of total businesses in the three study areas. The Village Parkway Area has the highest percentage of businesses but the lowest percentage of building space, at 17 percent, which indicates the area is dominated by small businesses. Suburban areas generally have a retail FAR of .26. 9 Table 5 Redevelopment Potential Downtown Core Specific Plan Area Downtown Dublin Market Study Ranking: Definition Square Feet Acres Percent 1. Vacant and developable 2. Underutilized and redevelop 3. Major rehabilitation/reuse and intensification 4. Modest upgrade and rehabilitation 5. Currently viable use - no redevelopment potential Total Land Area 338,912 1,253,617 487,532 265,673 2,345,734 7.78 28.78 11.19 0.00 6,10 53.85 14% 53% 21% O% 11% 100% Source: Economic & Planning Systems, Inc. ~ 0 H:t9310dublldatalDublin2,xls Economic & Planning Systems, Inc. 3/27/00 Table 6 Summary of Existing Land Uses: Village Parkway Area Downtown Village Parkway Specific Plan Area Downtown Dublin Market Study Building Area Lot Size Use Type Sqft % of Total Acres Sqft % of Total FAR Existing Land Uses (1) Retail 132,484 43% 12.31 536,348 40% Restaurant 63,662 21% 6.29 273,978 20% Service Commercial 96,155 31% 5.62 244,609 18% Office 14,593 5% 4.72 205,802 15% Medical/Dental 1,581 1% 0.50 21,644 2% 0.25 0.23 0.39 0.07 0.07 Subtotal 308,474 100% 29.44 1,282,381 95% 0.24 Public 53 0% 0,00 54 0% 0.98 Vacant Land 0% 1.52 66,310 5% Total 308,527 100% 30.96 1,348,745 100% 0.00 0,23 (1) Parcels with buildings with more than one use have been separated into the appropriate categories. If a lot contained more than one use type, EPS used the dominate land use to estimate the acres and sqft of the lots, thus FAR estimates by land use are slightly misleading. Sources: City of Dublin; Rosenow Spevacek Group, Inc.; Economic & Planning Systems, Inc. Economic & Planning Systems, Inc. 3/28/00 ~ H:t9310dublldataIDublin2,xls Eddie Peabody, Jr. City of Dublin ! 2000~ March 29, Most of this area is deemed ripe for reuse, rehabilitation, or intensification. The current uses are low intensity in Iow-quality construction, and many businesses seem to be marginal. Of the total 31 acres, about 5 acres could be redeveloped with higher density development, as shown in Table 7. An estimated 20 acres are suggested for major rehabilitation and intensification. MARKET CONDITIONS CURRENT AND PROIECTED DEMOGRAPHICS The Tri-Valley region is experiencing a substantial amount of growth.' Population is forecast from about 290,600 currently to 413,900 by year 2020, an average growth rate of about 1.8 percent as shown in Table 8. Tri-Valley employment, currently at about 166,340, is projected to increase to 261,670 by year 2020, an average growth rate of 2.3 percent as shown in Table 9. The rate of employment growth in the Tri-Valley will continually surpass the rate of population growth. Employment growth is due to a combination of factors, including growth of existing businesses, relocation of businesses from the more costly San Francisco and Silicon Valley areas, availability of housing and skilled workers in the region, and quality of life factors. Dublin has a current population of 31,500 and will double to 66,600 by the year 2020, which is a net increase of 35,100. In relation to other cities in the Tri-Valley, the population of Dublin will grow the fastest at 3.8 percent annually, followed by San Ramon at 2.9 percent. Household growth between 2000 and 2020, as projected by ABAG, is expected to equal 12,060 additional households, or a growth rate of 4.3 percent annually (see Table 10). Table 11 displays the total number of jobs by sector from 2000 to 2020 in Dublin, and as shown, most jobs will be in the service sectOr, followed by retail, manufacturing, and wholesale. Total employment in Dublin would increase 3.1 percent annually from the current employment of 27,050 to 49,370 by 2020. The average household income in Dublin is $92,000 and is projected to be $116,000 by year 2010.4 However, household income in Dublin is relatively high compared to the average in the County, which is currently $76,600. Compared to the rest of the cities in the Tri-Valley, the average household income in Dublin is the lowest with the exception of Livermore (see Table 12). s Tri-Valley consists of the cities of Dublin, Danville, San Ramon, Alamo-Blackhawk, Pleasanton, and Livermore. 4 In 2000 constant dollars. 12 Table 7 Redevelopment Potential Downtown Village Parkway Specific Plan Area Downtown Dublin Market Study Ranking: Definition Lot Size Square Feet Lot Acres Percent 1. Vacant and developable 2. Underutilized and redevelop 3. Major rehabilitation/reuse and intensification 4. Modest upgrade and rehabilitation 5. Currently viable use - no redevelopment potential Total Land Area 66,364 193,627 883,468 129,821 75,465 1,348,745 1.52 4.45 20.28 2.98 1.73 30.96 5% 14% 66% 10% 6% 100% S~urces: Economic & Planning Systems, Inc. Economic & Planning Systems, Inc, 3/2~/00 ]3 H:[9310dublldatatDublin2.xls C'OOC'~O',r- ,s.'-- °° 00000 ooooo~ 0 ooo000 o 0o0o00 O~ oooo00 0o ~.- 1.00'~ (.00,J (iD oooooo O~ 0 0 0 0 0 0 0 0 CD C~ O~ CD I~ 0 ~ 0'~ I~ 0 0 0 0 0 17 Eddie Peabody, Jr. City of Dublin //? March 29, 2000 NEW MIXED USE DEVELOPMENT Located in both Dublin and Pleasanton, the proposed West Dublin/Pleasanton BART Station would be constructed by Jones Lang La Salle and would contain a number of adjacent developments. In the City of Dublin jurisdiction, a 240-room hotel and a 160- unit apartment building will be developed. The hotel will be located closest to the freeway with the 240 parking spaces. The residential portion of the development would include 320 parking spaces located one-half level under the three-story apartment building. In addition, a 600-stall parking garage for BART patrons would be constructed. Hotel guests would be able to use up to 90 of the BART designated parking stall spaces during non-peak hours. A pedestrian overcrossing would connect the hotel and residential projects to the BART station. On the Pleasanton side, a 74,100-square foot, four-story office building and a 92,625- square foot, five-story office building would be constructed. The office building will contain some retail. Parking would be provided on site at a parking ratio of 3.3 stalls per 1,000 rentable square feet. 'A 400-stall parking garage would be constructed for the exclusive use of BART patrons. This project represents a key catalyst site that will impact new development in both the rest of the West BART area and the Downtown Core. Its density will represent the type of new development envisioned in the Specific Plans. RETAIL MARKET Existing Supply The Study Areas consist of neighborhood-serving retail, service commercial, and several big box retailers serving residents in Dublin and other nearby cities. The Study Areas have a total of about 873,000 square feet of retail and restaurant space, which equals about 29 percent of the City's total. The City of Dublin has about 95 square feet of retail per capita, which is almost five times the national average.5 The current retail vacancy rate citywide is at 3.5 percent and is considered normal-to-excellent for a city with a large amount of retail space. Based on our field survey of the Study Areas, the majority of retail space appears to be occupied, thus retail vacancy is estimated at slightly less than the City's overall average, at about 2.0 percent. The majority of available retail space has an asking rent ranging from $1.00 to $2.00 per square foot triple net.* This is typical for the age and quality of most retail space in the Study Areas. ~ Nationally, the average retail space per person is 20 square feet and many economists consider this number as "over retailed." Estimated total retail sqft in Dublin is 2.995 million sqft based on City's current vacancy listing. 6 Asking rents are as of January 2000, according to the City of Dublin's inventory of available retail space. 19 Eddie Peabody, Jr. City of Dublin I1~0~ March 29, 2000 Within the broader region there is at least another 4.2 million square feet of retail, including the Stoneridge Mall in nearby Pleasanton with 1.3 million square feet as shown in Table 13. Every major national credit retailer is probably r~p...rese...n.ted in, Dublin or in one of the surrounding ad!acent cities; thus, we do not envision attracting a significant amount of net new retail to the Study Areas. This is not to say that existing retailers could not be repackaged in new, more urban formats. Taxable Sales Table 14 summarizes total taxable sales in the Study Areas for 1998 and 1999, which equal $273 million and $287 million, respectively.7 Total taxable sales in the Study Areas comprised 38 percent of total sales in the City in 1998 and decreased to 31 percent in 1999. The Downtown Core provided sales of $163 million (1998) and $170 million (1999), which equals 60 percent of the total sales in the Study Areas. The BART area generated the next highest sales at $82 million and $86 million for the last two years, respectively. Lastly, the Village Parkway area had the lowest sales within the Study Areas at about $30 million in the last two years given its dominance by small, independent businesses. On a taxable sales per square foot basis, the Study Areas are doing relatively well as illustrated in Table 15. Taxable sales per square foot of building space is shown for retail, restaurant, and services businesses and is compared to Urban Land Institute (ULI) averages. In most cases retailers in the Study Areas are either close to or exceed the national averages, with the exception of the retail in Village Parkway. It should be noted, however, that the sales per square foot for service commercial uses exceed the national averages in the Village Parkway area. Most retail in the three Study Areas is doing well, although some is below national averages. Given that there are many types of retail with a wide variety of sales per square foot, these types of measures are general indicators of economic performance in an area. For instance, the Downtown Core retail sales per square foot is lower than the national averages. This is most likely because this area has a smaller number of inqine shops than are typical for large shopping centers. Smaller shops tend to have much higher sales per square foot, which pushes the overall average up. The Downtown Core is made up primarily of large retail users. Table 16 summarizes per capita retail taxable sales for the City of Dublin and other cities in the Tri-Valley.8 As shown in 1998, the City of Dublin has per capita sales of about $26,000, which is about $2,000 lower than Pleasanton and $4,300 higher than San Ramon. The California State average sales per capita is $10,800. Dublin is clearly a regional retail center and captures a significant amount of retail sales relative to its neighbors and the State averages. Dublin's per capita retail sales are about 2.5 times that of the State average. The City has long been a regional retail center for the Tri- Valley, as these figures suggeSt. About 33 percent of the City's sales are from auto and 7 Fourth quarter 1999 taxable sales were not provided in time for this analysis; thus, they were estimated using the proportion fourth quarter 1998 taxable sales. Fourth quarter sales are expected to be higher for most businesses. B Excludes all non-retail and business-related taxable sales. 20 .-- ~ 0 (.3 ~U 21 22 Table 14 Summary of Total Taxable Sales Dublin Downtown Market Study Business Type/ 1999 Area Estimates % of City (1) Retail Downtown Core $75,790,080 8% BART $32,518,562 3% Village $8,207,585 1% Subtotal $116,516,226 13% Restaurant Downtown Corn $5,404,419 1% BART $4,716,893 1% Village ~ 1% Subtotal $19,489,266 2% Services Downtown Core $530,126 0% BART $5,090,318 1% Village $13,253,484 1% Subtotal $18,873,928 2% All Other Uses (2) Downtown Core $88,690,885 10% BART $43,894,701 5% Village $0 0% Subtotal $132,585,586 14% Total Downtown Core $170,415,509 18% BART $86,220,474 9% Village $30,829,023 3% Subtotal $287,465,006 31% Citywide Dublin $930,730,258 100% 1998 Actuals % of City $77,460,320 11% $31,270,040 4% ~ 1% $117,096,911 16% $5,416,965 1% $5,354,189 1% $8,783,266 ~1% $19,554,420 3% $338,971 0% $5,268,507 1% ~ 2% $17,421,439 2% $79,426,539 11% $40,025,691 6% $13,036 0% $119,465,266 17% $162,642,795 22% $81,918,427 11% ~ 4% $273,538,036 38% $723,233,100 100% (1) First three quarters are actuals while fourth quarter is an estimate based on 1998 fourth quarter percentages. (2) Includes industrial, offices, autodealem, and other miscellaneous uses. Sources: City of Dublin; Economic & Planning Systems, Inc. Economic & Planning Systems, Inc. 3/28/00 2~ H:~310dubl~data~sales,xls Table 15 Taxable Sales per Square Foot Dublin Downtown Market Study Business Type/ 1999 1998 ULI Area Estimates Actuals Averages (1.) Retail Downtown Core $174 $178 $280 BART $184 $177 $280 Village $62 $63 $150 Restaurant Downtown Core $122 $123 $230 BART $242 $274 $230 Village $147 $138 $180 Services Downtown Corn $40 $26 $100 BART $76 $79 $100 Village $138 $123 $90 (1) ULI provides a national average sales per square foot by retail type, Sources: Urban Land Institute (ULI); Economic & Planning Systems, Inc. Economlc&PlanningSystems, lnc. 3228/00 24 H:t9310dubtldatatsales.xls Table 16 Taxable Sales Per Capita 1998 Dublin Downtown Market Study ~(in, 19985) Taxable Taxable Retail Sales City Population Retail Sales Per Capita % of State Average Dublin 27,837 $723,233,100 Danville 39,425 $315,407,000 San Ramon 43,794 $949,401,000 Pleasanton 62,824 $1,765,669,000 Livermore ...71. ,135 $987~920~0...00. Total/Wtd. Avg. 245,015 California 33,251,809 $1,042,171,731 $358,858,378,000 $25,981 $8,OOO $21,679 $28,105 $13,888 $19,352 $10,792 241% 74% 201% 26O% 129% 179% 100% Soumes: California State Board of Equalization; California Department of Finance, Report E-5, 1999; Economic & Planning Systems, Inc. Economic & Planning Systems, Inc, 3/28/00 25 H:Lq310dublldatatsales.x/s Eddie Peabody, Jr. City of Dublin March 29, 2000 other vehicle sales in 1998, according to the State Board of Equalization. With the opening of the new Auto Nation, Shamrock Ford, and GM Superstore, the City's dominance in auto sales should continue. Broker Interviews Several local brokers were contacted to provide their assessment of the retail conditions in the Study Areas. Downtown Dublin provides restaurants, commercial services, and neighborhood-serving retail predominantly with some regional serving retail such as Target and Montgomery Wards. The type of businesses inquiring about retail spaces in the Study Areas are nail, beauty, and hair salons, restaurants, hobby stores, and antique shops. National credit stores such as big box retailers are locating in East Dublin. The typical size of retail space sought by businesses in the Study Areas is less than 1,000 square feet. Average lease term is three to five years, while other lease terms are up to ten years if major improvements are made (e.g., a dry cleaning shop). One broker believes that the type of development required to create a "do ~wntown' would not work in the Study Areas. He believes that customers using local-serving retail prefer to park in front of the stores. Moreover, the possibility of new retail locating to downtown may not occur since the remaining areas of Dublin have a large number of existing retailers, plus a large amount of planned supplY. Another broker suggested the Montgomery Ward block as a better location to create a downtown and to build high density housing, since small retailers/office users historically have not functioned well at the site. Any high intensity development should occur closer to the proposed BART Station with second story offices above retail. Proposed Retail Projects There are currently about 13 proposed, approved, or under-construction retail projects in the City as shown in Table 17. Some of these projects consist of retail only while other projects include other uses such as office or residential units. Most of the projects are in or near East Dublin. In total, there is about 1.8 million square feet of retail development in various stages of the entitlement or construction process. This includes the Hacienda Crossings, which is about 95 percent complete. Thus, minus this project there is 1.3 million square feet of proposed retail development in the City. If all of these projects are constructed, the City's supply of retail would increase significantly or by about 40 percent assuming a base supply of about 3.0 million square feet. OFFICE MARKET Existing Supply Currently, the City has about 1.0 million square feet of office space, some of which is in East Dublin. There is a significant amount of vacant office space because of the new office buildings coming on line in East Dublin. Total office space in the Study Areas equals about 26 percent of the City's current inventory, or about 284,000 square feet. Most of this space is located in the BART area while the rest is in the Village Parkway 26 d CD t'O 0 0 0 ~0 0 ~ o 27 "0 C: C 0 Eddie Peabody, Jr. City of Dublin March 29, 2000 area; there is one office building in the Downtown Core area. Office rents in the Village Parkway are in the $1.60 to $2.00 per square foot range (FS), while office rents in East Dublin are higher at around $2.35 per square foot (FS). The Tri-Valley office market increasingly has become a focus of call centers, software, internet related, back office banking and insurance, and telecommunication firms, reflecting spillover from Silicon Valley and San Francisco due to the broader selection of space and lower land and rental rates in the Tri-Valley.9 A number of new office buildings have been in construction in recent years, which has increased the total inventory of office space. PeopleSoft and Shaklee are building office campuses in Pleasanton. Opus West recently completed its first 200,000-square foot office building at Dublin's Emerald Point Business Park.TM According to CB Richard Ellis, fourth quarter 1999 net absorption of office space in the Tri-Valley totaled 258,000 square feet. The larger Tri-Valley-Walnut Creek market area has about 28.4 million square feet of office space, of which 15.7 million square feet is Class A space, according to Cushman & Wakefield data for year ending 1999.~ Dublin is reported to have about 1.3 million square feet .of office space or five percent of the market. Overall net absorption in the market for 1999 was 1.8 million square feet of space. For the City of Dublin, net absorption was reported at 116,000 square feet or a very small percentage of the total. This is likely to change as more Class A office space is constructed in East Dublin. The average lease rate for the entire market area is $2.32 per square foot and $2.30 per square foot for Dublin. Thus, the City is commanding lease rates comparable to the average in the market. The overall vacancy rate for office space in the market is 6.6 percent but is reported at 21.5 percent in Dublin due to the large amount of recently completed office space on the market. Only Livermore has a higher vacancy rate at 25.4 percent. The rest of the market area cities have vacancy rates in the 3.0 to 10 percent range, which is typical. Broker Interviews Office brokers representing properties in the Study Areas were contacted and asked questions regarding the following: (1) general assessment of the area; (2) typical tenants; and (3) the likelihood of higher intensification in the downtown. The general consensus by brokers is that the office market in the Study Areas and Citywide continues to be strong. The Study Areas are occupied mainly by small, professional service firms (e.g., insurance companies) or independent, small businesses (e.g., CPAs) occupied in office space ranging from 200 to 1,000 square feet. These type of firms continue to seek small, rectangular office space of these sizes in downtown Dublin because the rents are lower than in other areas. Typical lease term of office space is a minimum of three years. The fact that current businesses are looking for small office space in downtown is partly a function of the currently available supply. 9 East Bay Business Times, "I-680 Office Market Still Hopping" May 24, 1999 and the 1998 San Francisco Bay Area Real Estate Forecast by Grubb and Ellis. ~0 Ibid. ~ Cushman & Wakefield, "Marketbeat Series, Walnut Creek/Tri-Valley, CA" Year-End 1999. 29 Eddie Peabody, Jr. City of Dublin March 29, 2000 A few brokers do not believe one of the Study Areas, Village Parkway, could be converted into a pedestrian-friendly area because it will become a major thoroughfare for the 1-680 freeway northbound ramp scheduled to open this year. As for the likelihood of high density housing, brokers also do not believe high density housing development would be possible given the large amount of residential developments in East Dublin. Moreover, Village Parkway and the BART areas contain a large amount of auto-related services and dealerships that may not blend within a "downtown." As demand for office space continues to increase in the Bay Area, the Tri-Valley will capture some demand as shown by the current 2.0 million square feet under construction.~2 Typical floor plate designs requested by these firms range from 20,000 to 50,000 square feet.~ Rental rates are in the $2.00 to $2.50 square foot range.~4 Proposed Office Projects Table 18 summarizes proposed, approved, and under-construction office projects in the City of Dublin. As shown, there is a little over 6.9 million square feet of office development in the pipeline comprising six projects. Five of these projects are in or near East Dublin. The Koll Dublin Corporate Center includes about 358,000 square feet of new office space, and the Dublin Ranch Town Center includes 1.0 million square feet of office space. The largest project is proposed by the County of Alameda. The County recently released information concerning the East Dublin Transit Center, which is either in or adjacent to the East Dublin Specific Plan. The County envisions about 4.0 million square feet of campus style office space combined with 1,700 new multi-family housing units and about 70,000 square feet of local-serving retail. This project, in combination with all other existing projects in the pipeline, represents a significant expansion and intensification of Eastern Dublin and the City as a whole. MULTI-FAMILY RESIDENTIAL MARKET EPS reviewed the multi-family housing market in the Cities of Dublin, Pleasanton, and San Ramon. This information was taken from another EPS study completed in May 1999.*~ This data provide a general indication of the multi-family market in Dublin and the surrounding areas and is useful for this study. For this analysis, planning departments in each respective city were contacted for a list of multi-family projects that were under construction, planned, and proposed. Projects under construction and selected existing apartments were contacted for rental rates, total units, availability, and amenities. ~2 CB Richard Ellis, "I-680/Contra Costa County Market Index Brief, Fourth Quarter 1999." ~ Jeffrey S. Weft of Colliers International, "1999 and Beyond: An Analysis and Forecast of the East Bay Corporate Real Estate Market" February 24, 1999. ~4 Jeffrey S. Weil of Colliers International-rental rates are as of winter 1999. ~ "Pleasanton/Dublin BART Site Market Overview," May 7, 1999. 30 Eddie Peabody, Jr. City of Dublin M~rch 29, 2000 "'" Existing Supply The market area consists of Pleasanton, Dublin, and San Ramon and contains about 11,400 multi-family units, which represents about 22 to 26 percent of the total residential supply, depending on the City..The majority of multi-family units are located in Pleasanton with 4,900 units and'San Ramon with 4,200 units, as shown in Table 19. Historically, from 1990 to 1999 multi-family development increased at a rate of 2.4 percent annually for the market area. However, multi-family development in Dublin increased at a faster pace at 5.8 percent average annual growth compared to the rest of the area. A number of existing, larger apartment complexes in the market area were interviewed for rent, apartment size, available units, and amenities. These apartments were built within the last ten years and contain from about 250 to 500 of mostly one- and two- bedroom units. Amenities such as covered parking, swimming pools, and gym are offered at most of the locations; one has a putting green. One apa~hnent complex in Pleasanton has 500-square foot studios for $1,050 a month. One-bedroom monthly rents range from $1,020 to $1,195 while two-bedroom rents are $1,200 to $1,525. Three bedroom apartments rent for as high as $2,500 per month. Few units were available at time of interview, suggesting that vacancy rates are low, at less than two percent. Current and Proposed Projects A significant number of new, high-end apartment developments are currently under construction, signifying demand for one-, two-, and some three-bedroom apartments in the region. Pipeline projects total 3,463 multi-family units. The cities of Pleasanton, Dublin, and San Ramon have about 1,833 multi-family units in five projects currently under construction, and three apartment projects in the proposed stage. The completion of the under-construction and proposed units will increase total multi-family units in the market area to about 13,100 and will represent 13 percent of total multi-family units. Almost 2,600 units or 74 percent of new multi-family units will be built in Dublin (see Table 20). There is a new planned project in Dublin, discussed above, with 1,700 multi- family units at the East Dublin BART Station. Pleasanton has only one apartment complex under construction, called Archstone Hacienda Apartments, with 540 units, making this project the largest apartment complex out of all the new apartments currently under construction. This project is almost cOmpleted. Developer Interviews Developers of multi-family projects in the Tri-Valley area were interviewed regarding multi-family market conditions. Below is a summary of the information gathered through these interviews.~ interviewed May 3, 1999. Developers interviewed include Braddock & Logan, Shea Homes, Shappell Industries, and JPI. 32 Table 19 Market Area Recent Housing Growth Downtown Dublin Market Study Year City/Unit Type 1990 1995 1999 1990-1999 Total % Ann. Avg. Increase Increase Growth Pleasanton Multi-family (2 - 4 Units) 943 1,064 1,064 Multi-family (5+ Units) ~ 3,754, 3,849 Total, Multi-family 4,419 4,818 4,913 Single Family Attached 1,990 2,350 2,397 Single Family Detached ~ ~ ~ Total 18,939 20,758 22,738 3,799 Absorption -- 1,737 441 -- % Vacant 4.50% 4.50% 4.51% -- 121 13% 1.4% 373 11% 1.1% 494 11% 1.2% 407 20% 2.1% 2,898 23% 2,3o/o 20% 2,1% Dublin Multi-family (2 - 4 Units) 130 166 206 76 Multi-family (5+ Units) 1.208 1,906 2,020 812 Total, Multi-family 1,338 2,072 2,226 888 Single Family Attached 662 662 756 94 Single Family Detached 4.989 5,075 5.354 365 Total 6,989 7,809 8,336 1,347 Absorption -- 796 177 -- % Vacant 2.72% 2.74% 2.80% -- 58% 5.2% 67% 5.9% 66% 5.8% 14% 1.5% 7% 0.8% 19% 2.0% San Ramon Multi-family (2 - 4 Units) 553 553 557 4 1% 0.1% Multi-family (5+ Units) 2,914 3,605 3.686 772 2._.~6% 2.._~6% Total, Multi-family 3,467 4,158 4,243 776 22% 2.3% Single Family Attached 1,394 1,723 1,723 329 24% Single Family Detached 8,662. 9,422 ~ 2,144 25% Total 13,523 15,303 16,772 3,249 24% Absorption -- 1,679 384 % Vacant 5.70% 5.70% 5.07% Total Multi-family (2 - 4 Units) 1,626 1,783 1,827 201 12% Multi-family (5+ Units) 7,598 9,265 9.555 __~ 26% 9,224 11,048 11,382 2,158 23% 2.4% 2.5% 2.4% 1.3% 2.6% 2.4% Single Family Attached 4,046 4,735 4,876 830 21% 2.1% Single Family Detached ~26,181 28,087 31,588 .. 5,407 21% ~ Total 39,451 43,870 47,846 8,395 21% 2.2% Absorption .- 4,212 3,887 % Vacant 4.60% 4.61% 4.41% Sources: California Department of Finance, Report E-5 1999; Economic & Planning Systems, Inc. 33 Economic & Planning Systems, Inc. 3/2/00 H:tgO77dubl~data~ffunlt$,xls Table 20 Approved and Under Construction Multi-Family Apartments Downtown Dublin Market Study City/Project Name Units Status (1) Pleasanton Amhstone Hacienda Apartments Dublin (2) Park Sierra Apartments Trumark Companies Townhomes Alameda Surplus Property Townhomes Archstone Community Apartments Emerald Glen - Area 3 E. Dublin Transit Center Subtotal San Ramon Bollinger Crest Canyon Point Villa San Ramon Senior Housing (3) Old Mills Apartment Subtotal Subtotal Under Construction Subtotal Proposed Subtotal Planned Total 54O 74 71 152 177 39O 1,700 2,564 65 .114 40 140 359 833 859 1,771 3~463 Construction Construction Planned Proposed Proposed Proposed Planned Construction Construction Construction Proposed (1) As of February 2000; proposed is defined as projects approved by the city while planned is defined as projects under review by the city. (2) For Park Sierra, only unconstructed units are listed. The Dublin Ranch Town Center at the east of Tassajara Rd., north of Dublin Boulevard will have a total of 2,180 residentials units, of which a portion will be apartments and townhomeS, however the exact amount is unknown as the project is currently in planning review; A portion of the 200 residential units at Central and Tassajara will be multi-family units, but the exact amount is unknown since the project is in the preapplication process. (3) The 40 units will be occupied by seniors. Soumes: Respective Planning Departments; individual apartment Economic & Planning Systems, Inc. 3/2/00 H:LqO77dubl~dataWffunits.xls Ea ie Peaboay, Ir. City of Dublin March 29, 2000 Market Densities The densities of multi-family projects in the market area vary; however, traditional apartments in the Tri-Valley typically have densities in the range of 18 to 23 units per .acre. Developers stated it should be possible to build up to three story multi,family apartments of between 30 to 35 units per acre on sites near a BART station. Market acceptance of this level of density would not be a significant obstacle. As an example, Shea Homes recently constructed a project in San Jose next to the transit corridor that was 40 units per acre. in addition, some deVelopers stated that they were seeing higher density projects in the area, specifically in the area of Hacienda Business Park, with podium style parking. One developer indicated that they would be willing to construct projects with 40 to 60 units per acre near the new BART station. Proximity to BART The value of access to BART as well as other public transportation would be beneficial to multi-family development in the area, according to some of the developers interviewed. However, it was suggested that most tenants would look at the overall location of the project, and also the level of amenities provided. Some of the developers interviewed had looked at sites in the area of the existing BART station and thought the general location had good potential for multi-family development. Market Supply and Demand Characteristics There is some concern in the market that a significant number of new projects are coming on line. Some developers felt that the multi-family market may have problems if the economy slows down in 2000-2001. Moreover, there is also a significant amount of land in the market area that is entitled for multi-family use. Representatives from Shea Homes believed that the market is getting over built and that conditions will be difficult for the next 12 to 18 months while current and proposed projects get absorbed. Others interviewed were more optimistic about the market overall. Specifically, developers from Shapell Industries and Legacy Partners felt that although there is a lot of new activity in the market, there is still strong demand. Increasingly, households are getting priced out of the single-family market and are choosing to rent instead of owning in San Joaquin County (e.g., Tracy) and commuting. The long-term view is that there will be strong demand for multi-family housing in Dublin and the Tri-Valley, particular, housing near transit. Table 21 summarizes the current supply of multi-family housing in the market area compared to proposed development. As shown, the amount of new multi-family in Pleasanton and San Ramon represent a modest increase in supply of from 11 and 8 percent, respectively. However, for Dublin proposed or under-construction projects represent a 115 percent increase in the supply of multi-family housing. This includes the 1,700 units at the proposed County Transit Center. Table 22 presents a forecast of demand for housing in Dublin based on ABAG Projections 2000. From 2005 to 2020 a total of about 12,000 new households are expected to require housing in Dublin based on ABAG Projections 2000. Assuming a five percent 35 Table 21 Existing and New Multi-Family Units in Market Area Downtown Dublin Market Study No. of Units City Existing New/Proposed Total (1) (2) Pleasanton 4,913 540 Dublin 2,226 2,564 San Ramon 4,243 359 Total 11,382 3,463 5,453 4,79O 4,602 14,845 New MF as % of Existing 11% 115% 8% 3O% (1) Two or more units; California Department of Finance as of January 1, 1999. (2). All currently approved projects are under construction; San Ramon has one 140 unit apartment project that is being proposed. Sources: California Department of Finance Report E-5 1999; Respective Planning Departments; Economic & Planning Systems, Inc, Economic & Planning Systems, Inc, 3/2/00 36 H:lgO77dubl~dataWtfunlts,xls Table 22 Project Demand for High Density Housing in Dublin Downtown Dublin Market Study Growth in Five Year Increments 2000to 2020 2000to 2005to 2010to 2015to Total Annual Item 2005 2010 2015 2020 Growth Growth Net New Household Growth Demand for Housing Units (1) 3,290 2,990 2,650 3,130 12,060 804 3,455 3,140 2,783 3,287 12,663 844 Demand by Type of Unit (2) Multi-family (2 - 4 Units) 2% 85 235 347 574 1,241 83 Multi-family (5+ Units) 24% 837 918 953 1,289 3,997 266 Single Family Attached 9% 313 442 631 791 2,077 138 Single Family Detached 64% 2,219 .1,545. .9.,52 632 5~349 357 Total 100% 3,455 3,140 2,783 3,287 12,663 844 (1) (2) · Assumes 5% vacancy rate Represents 1999 distribution of housing supply by type of unit; assumes demand In next five years will be a similar distribution but will change over time at the following rates by five year periods as more households are priced out of the single family market and as land becomes more and. more constrained and unavailable for single family development. Multi-family (2 - 4 Units) 7% 12% 17% Multi-family (5+ Units) 29% 34% 39% Single Family Attached 14% 19% 24% Single Family Detached 49% 34% 19% Total 1 O0% 100% 100% Assumes an increase of 5 pement per five years in each of the higher density categories and a corresponding decrease in single family demand. Sources: ABAG Projections 2000; Economic & Planning Systems, Inc. 37 Economic & Planning SyStems, Inc. 3/3,/00 H:t9077dubltdatatMfunlts.xls Eddie Peabody, Jr. City of Dublin ~a~¢~ 2~, 2000 vacancy rate, this would suggest demand for an additional 12,663 dwelling units. If the current ratio of multi- to single-family housing holds constant, about 5,200 of these should be households requiting multi-family units in buildings with over five units. If rental prices keep increasing, the demand for multi-family could be higher as households are priced out of the owner-occupied market. This projection assumes that during 2005 to 2020, the demand for high density housing will increase and demand for single family will decrease due to limited supply of land and affordability issues. This projection of demand represents about 2,700 more units of multi-family housing than is currently proposed. Findings for Multi-Family · Multi-family units represent about 25 percent of the housing market in the market area. In Pleasanton, this figure is about 22 percent and in Dublin it is 27 percent. There are about 3,500 multi-family units planned or under construction in the three cities surveyed, of which about 2,600 are in Dublin. The current density of recent and new apartment complexes averages about 23 units per acre in the market area, but developers believe densities of 35 to 40 units per acre are supportable near BART Stations. Vacancies are very low (less than one percent) at current large apartment complexes of the scale and quality envisioned for Downtown Dublin. The new supply of apartments coming on the market will dilute the market in the next 12 to 18 months, and vacancies are sure to increase. About 25 percent of the over 10,000 units proposed at the Gale and Windemere projects in Doughtery Valley will be in the affordable price range based on City requirements. These units will be provided in a variety of product types, but mostly apartments and townhomes. This will also increase the supply of multi-family housing in the coming years. These units, however, will not be close to a BART station. Dublin has the advantage over other cities of being adjacent to the BART station, which may appeal to certain households. The new BART project will be changing the nature of the area to a true mixed use area, which should stimulate demand for additional apartment projects in the Study Areas. OTHER USES Entertainment Retail EPS gathered information on the trends and site requirements of entertainment-related retail uses which may be developed as a component of the City's downtown strategy. Entertainment retail refers to businesses that offer a mix of merchandising and recreational activities in a retail environment. In contrast to the regional character and 38 Eddie Peabody, Jr. City of Dublin March 29, 2000,0 extensive space requirements of more conventional theme parks, entertainment retail can provide theme park-like attractions on a smaller scale and in accessible community locations. Although entertainment retail generally consists of single-theme entertainment venues located as stand-alone facilities, they can also feature a mixture of attractions under one roof. The facilities are often complemented by a food and beverage area, such as a cafe, bar, or restaurant, as well as an equipment or souvenir shop. Some type of entertainment uses, such as Club Disney,~would be ideal for either the BART or Downtown Core areas given the proximity to the Stoneridge Mall and BART. Movie Theater Market The Dublin-Pleasanton movie theater market area, which also includes the cities of Livermore, San Ramon, and Danville, will have a surplus of between 10 and 15 theater screens after the completion of two planned projects based on the ratio of population to screens.~8 Thus, a new theater in the three Study Areas would be competing in a saturated market. The completion of the 21-screert Regal Cinema in East Dublin along 1- 580 just west of the 1-680 interchange poses a particularly strong competitive threat to a potential theater at the three Specific Plan areas giVen Regal Cinema's size and proximity. Moreover, the Downtown Core area contains an existing six-screen movie theater. DEVELOPMENT POTENTIAL This section discusses new development potential in each Study Area and estimates the increase in density envisioned in each area. This analysis includes existing proposed projects in terms of their size but not necessarily their proposed configuration. While there is some amount of redevelopment envisioned in each area, the analysis does not estimate which parcels would be redeveloped. Rather, the focus is on gross Floor Area Ratios (FAR) for each area, both existing and new targets for each area. WEST BART As shown in Table 23, there is currently about 942,000 square feet of development in the West BART Study Area. About 130,000 square feet of existing space is assumed to be redeveloped with higher intensity uses. Thus, the remaining existing development equals about 631,000 square feet. ~7 Club Disney is a family-oriented retail/entertainment venue recently developed by Disney and includes both retail goods and entertainment in a 20,000-square foot building. ~8 In general, the market can support one screen per 8,000 residents in the Bay Area. 39 Table 23 Net New Development Potential Downtown BART Specific Plan Area Downtown Dublin Market Study Item Assumptions or Units/ Rooms/Spaces Building Area In Sqff Total of Space Acres FAR Existing Development Estimated Demolition/Redeveloped Remaining Existing Development Prol~osed Prolects Corrie Office Expansion BART Project Residential (1) Hotel (2) Subtotal 160/units 240/rooms 941,654 59.7 0.36 3. 9 631,335 59.7 0.24 Percent Increase over Existing + BART 46,000 0.8 1.36 184,000 120,00__.~0 1.! .3 0.62 350,000 12.0 0.67 Existing Development and Proposed Projects Scenario After Redevelopment 981,335 Target Development 1,547,089 Net New Building Space Scenario 565,754 Mix of New Uses Residential 50.0% 282,877 Office 25.0% 141,438 Retail/Restaurant 15.0% 84,863 Other 10.0%. 56,575 Total 100.0% 565,754 58% (3) 71.8 0.31 71.8 0.50 (1) Assumes 1,150 sqft per unit on average. (2) Assumes 500 sqft per room on average. (3) Equals about 246 new apartment units, assuming above average sqft per unit. Total new units 406 in plan area. Sources: EDAW, Inc.; City of Dublin; Economic & Planning Systems, Inc. 4O Economic & Planning Systems, Inc. 3/28/00 H:t9310dubltdata~Dublln2.xls Eddie Peabody, Jr. City of Dublin March 29, 2000 Currently, the overall FAR for the area, excluding vacant and public land, is 0.36. A target FAR for the area has been 0.50. With the envisioned demolition discussed above, and the current proposed projects including the BART Transit Village and the Corrie office expansion, the overall FAR would be about 0.31. Thus, an increase of about 50 percent in FAR is envisioned from existing conditions today. Using the 0.50 FAR, there would be additional development potential for about 566,000 square feet of new development. Fifty percent of this is assumed to be residential, which would comprise about 250 new multi-family units. Another 141,000 square feet of office, 85,000 square feet of retail/restaurant, and 57,000 square feet of other uses such as entertainment are envisioned. Combined with the BART project, there would be a total of 406 new high-density residential units. DOWNTOWN CORE Table 24 summarizes existing, proposed, and new development for the Downtown Core Study Area. As shown, there is currently about 535,000 square feet of space in the area with a FAR of 0.24. With the proposed Home Depot Expo project the FAR would increase to 0.26. A target FAR has been set at 0.50, which would allow for an additional 532,000 square feet of development in the area or almost double the amount of development currently in the area. Less residential development is envisioned in this area, with about 236 new units, some of which could be senior housing. About 133,000 square feet of office is envisioned, combined with an additional 133,000 square feet of retail and 53,000 square feet of either service commercial such as banks or entertainment type uses. VILLAGE PARKWAY In the Village Parkway, less new development is envisioned overall because of the multiple number of property owners, the small average parcel size, the number of independent businesses in the area, and the low vacancy rates. However, the area has a very low overall FAR at 0.24 and some new development is expected, as shown in Table 25. A'target FAR of 0.35 has been chosen, which would result in an additional 140,000 square feet of development. Of this amount, 40 percent would be residential, 25 percent would be retail, 15 percent office, and the remainder would be more service commercial, which dominants the area now. About 40 live/work units of new housing are estimated and these units are assumed to average about 1,400 square feet per unit. This type of residential development would be more compatible with the service commercial uses in the area than traditional apartments or town_homes. 41 Table 24 Net New Development Potential Downtown Core Specific Plan Area Downtown Dublin Market Study Item Assumptions Building Area in Sqft of Space Total Acres FAR Existing Development Redevelopement Remaining Existing Development Proposed Home Depot Expo Project (1) 535,450 32,949 502,501 93,130 51.8 0.24 Total Existing With Expo Target Development Net New Building Space Scenario Mix of New Uses Residential 40% Office 25% Retail/Restaurant 25% Other 10% Total 100% Percent Increase over Existing + Expo 595,631 1,127,595 531,964 212,785 132,991 132,991 53,196 531,964 89% (2) 51.8 51.8 0.26 0.50 (1) Acres for Home Depot Expo are included in the existing development acres. (2) Equals about. 236 new apartment units, assuming 900 sqft per unit. Sources: EDAW, Inc.; City of Dublin; Economic & Planning Systems, Inc. Economic & Planning Systems, Inc. 3/28/00 H:t9310dubltdata~Dublin2.xls Table 25 Net New Development Potential Downtown Village Parkway Specific Plan Area Downtown Dublin Market Study Assumptions Building Area in Sqff of Space Total Acres FAR Existing Development Proposed Project (1) 308,474 5,000 29.4 0.3 0.24 0.34 Total Existing With Proposed Project Target Development Net New Building Space Scenario Mix of New Uses Residential 40% Office 15% Retail/Restau rant 25% Service Commercia~l 20% Total 100% Percent Increase over Existing + Expo 313,474 453,946 140,472 56,189 (2) 21,071 35,118 28,094 140,472 45% 29.8 29.8 0.24 0.35 (1) New mini retail center at 7375 Amador Valley Blvd. (2) Equals about 40 new apartment units, assuming 1,400 sqft per unit. Sources: EDAW, Inc.; City of Dublin; Economic & Planning Systems, Inc. 43 Economic & Planning Systems, Inc. 3/28/00 H:19310dubl~dataIDublin2.xls Eddie Peabody, Jr. City of Dublin March 29, 2000~,..a TOTAL STUDY AREAS Table 26 summarizes the proposed and suggested new development in each area and the total by land use category. As shown, a total of 683 units are envisioned, about 342,000 square feet of office, 253,000 square feet of retail/restaurants, 28,000 square feet of service commercial (Village Parkway only), and 230,000 square feet of other types of uses such as entertainment. Table 27 compares this total new development by land use to the existing supply of development in the City, combined with existing approved and proposed pipeline projects. Total new development in this table excludes the proposed projects in the three Study Areas, which are included in the Total Pipeline Projects column (thus, the. totals between Table 26 and 27 are different). As shown, the amount of new development in the pipeline exceeds the City's current supply of office. For retail, there is almost as much proposed retail as existing retail. New multi-family units in the pipeline represent a 31 percent increase in the current housing stock for high-density housing. The amount of development envisioned for downtown represents a relatively small increase in the City's existing and proposed development base. Whether downtown can compete with the development that is proposed in East Dublin and elsewhere in the City is discussed in the next section. MARKET ASSESSMENT The market for new development and redevelopment in the downtown represents many opportunities as well as challenges. As discussed above, there is a tremendous amount of new development approved, proposed, or planned in Dublin, most of which is in East Dublin. The County of Alameda's recently released a proposal for a new Transit Center, mixed use development at the East Dublin BART Station that could significantly add to the City's pipeline projects. East Dublin also includes plans for a new town center, which will add about 230,000 square feet of retail and 1.1 million square feet of office space. The development in East Dublin is very competitive because it is in a new developing area with Specific Plan design guidelines for continuity, new infrastructure improvements, and street landscaping, and it is near a significant amount of new office and residential development. Downtown Dublin has developed over a number of years into a variety of commercial shopping centers of various ages and designs but is mostly auto-oriented. Downtown includes a small amount of office development, but this is scattered throughout the area. There are relatively few large development parcels available in downtown, and most new development will need to occur as redevelopment and intensification of existing buildings and uses. This will add to the development cost of new projects envisioned in the downtown, which will make them less competitive with land in East Dublin, which is undeveloped. Table 26 Summary of New Development Potential, Including Proposed Projects Downtown Dublin Market Study Unit of BART Downtown Village Parkway Land Uses Measure Area Core Area Area Total, All Areas Multi-Family Residential Units 406 236 40 683 Office Sqft 187,438 132,991 21,071 Retail/Restaurant Sqft 84,863 132,991 35,118 Service Commemial Sqff 0 0 28,094 Other (1) Sqft 176,575 53,196 0 Totals 448,877 319,178 84,283 New Overall FAR 0.50 0.50 0.35 341,500 252,972 28,094 229,772 852,338 0.48 (1) Includes hotels. Soumes: Department of Finance; City of Dublin; Economic & Planning Systems, Inc. 45 Economic & Planning Systems, Inc. 3/28/00 H:19310dubl~datatDublin2.xls Eddie Peabody, Jr. city of Dublin March 29, 2000 As shown in Table 11, the City of Dublin is forecast to add about 5,300 retail jobs, 9,000 service jobs, 3,600 "other" jobs, which include professional, financial, etc, and 4,400 manufacturing and wholesale jobs over the next 20 years. If average employee per square feet assumptions were applied to these projections, there would be an implied demand for the following development. In reality some of these jobs will utilize existing space and, thus, every new job will not require new space. Sqft B .uild.i_ng' S'q uar'~ 'F'~ ~'~ .... ,~ ,, per 2000 to 2005 to 2010 to 2015 to 2000 to Job Type Job 2005 2010 2015 2020 2020 Retail 400 148,000 .... 504,000 488,000 972,000 .... 2,112,000. R&D/Office Space Services 400 900,000 1,id0~(~00 568,000 980,000 .' ~i~8,000"' Other 275 242,000 324t5.00 140,250 275,000 981,750 Mfg/ 600 960,000 960,000 198,000 540,000 ~ ..... Wholesale Total R&D/Office 2,102,000 2,464,500 906,250 1,795,000 7,267,750 As shown above, over the next twenty years there will be demand for about 2.1 million square feet of retail space. As shown in Table 17, there is about 2.4 million square feet of retail space in the pipeline, including the 450,000-square foot Hacienda Crossings, which is almost fully occupied. Excluding this project there is 2.0 million square feet in the pipeline that could accommodate this .projected demand for retail space. If we assume 2.0 million in the pipeline there would be demand for an additional 112,000 square feet of retail space. Some of the pipeline retail space is expected to be hotels and other types of commercial space. This amount of net additional demand is roughly equal to the amount of new retail space envisioned in the downtown. For office and R&D space, there would be demand for about 7.3 million square feet of space, which is slightly more than the amount of office and R&D space in the pipeline as shown in Table 18, or 6.9 million square feet. Thus, there is the potential for an additional demand for another 400,000 square feet of office space over the next 20 years. Some of this demand could be captured the downtown if the right sites are available. CONCLUSIONS The following represents some overall conclusions from this analysis, followed by a more focused discussion of each Study Area. RETAIL Retail vacancies are very low in Dublin, and in the downtown most available Space is in the form of in-line. Rents are $1.50 to $2.00 depending on the size and location of the space. Rents tend to be lower in the Village Parkway area due to the older nature of the space available and the more service commercial orientation of that street. 47 Eddie Peabody, jr. City of Dublin March 29, 2000 There are very few national credit retailers that are not already present in Dublin or one of its neighboring cities such as Pleasanton. Attracting a significant amount of new retail to downtown is unlikely unless a major new redevelopment project were to take place. The amount of retail development proposed in East Dublin will provide stiff competition to downtown Dublin for larger regional tenants and auto dealers. Major existing retailers in downtown should be retained but repackaged in a newer, more pedestrian-oriented environment. If a new street grid is created in the Downtown Core and West BART Study Areas, higher density mixed use projects, i.e., either office or residential over retail, could be created that may create the opportunity for more smaller specialty retailers to be attracted to downtown. Entertainment or leisure retail, which includes restaurants, cafes, specialty food stores, gift shops, video/music store, and home accessories, are potential uses that might be attracted downtown, if the fight projects are constructed. A significant amount of new residential development will need to occur downtown if more local-serving retail is to be attracted. RESIDENTIAL While there is a tremendous amount of planned multi-family development in the pipeline, at about 2,600 units, there is also strong demand. Over the next 20 years there is a potential demand for about 4,000 multi-family units in Dublin or about 1,400 more than is currently planned)~ This type of new development is expected to occur primarily in the West BART Area with some in the Downtown Core area. A modest amount of live/work units are envisioned in the Village Parkway Area. The proximity to the new West BART Station is a key catalyst for new, higher density housing downtown; it would also provide needed support for smaller scale, pedestrian-oriented retail, which is typical of downtowns. Residential development in the downtown should be a key priority of the City in the first few years of implementation of the Specific Plans. OFFICE The office market is experiencing tremendous demand and growth; however, there is also a tremendous amount of supply planned in Dublin alone, i.e., about 6.9 million square feet of space. This is seven times the existing amount of office space in the City. Most of this planned office supply is in East Dublin and is campus-style development for larger tenants and users. There is some potential demand for more office space in the downtown, but it would be in much smaller buildings and floor plates than planned for in East Dublin. See Table 22, includes buildings with four or more units. 48 Eddie Peabody, Jr. Ci~ of Dublin March 29, 2000 ~ A major constraint right now is the lack of a more urban, downtown fabric, including a cluster of restaurants and specialty shops that would attract more smaller office tenants, such as start-up businesses and small professional firms. As with residential uses the new BART Station will help the area to overcome this constraint and may stimulate demand for new office development in the West BART Specific Plan area sooner than in the other areas. WEST BART The area is envisioned as the most dense of the three Study Areas, given its proximity to the BART Station. Housing and office are the key new land uses envisioned for this area, with industrial uses being redeveloped over time. Some new retail development can be supported along with other types of uses such as family entertainment. DOWNTOWN CORE This area will retain its retail theme but should include more public uses, along with smaller scale retail and some new housing such as senior housing. A small amount of office is expected in this area, particularly on the east side of the area along the 1-680. The Shamrock Ford site will be available soon and represents a key opportunity to develop a mixed use office and retail project that is more urban in design. Parking should be placed behind the buildings. IntensificatiOn of this area will probably require City assistance in assembling parcels and the use of public/private partnerships to achieve the type of new development needed to create a "downtown" in this location. Existing tenants could be incorporated into the new development, but the format of these uses will need to be different from the current format. A new grid system of streets is also key to creating a more pedestrian-oriented environment. VILLAGE PARKWAY Village Parkway presents the most challenges to new development, as the parcels are very small and there are many owners and even more small businesses in the area. Some new development, primarily more service commercial, office and live/work uses, are envisioned. The live/work uses would probably be in new construction, given there are no existing industrial buildings that would lend themselves to conversion. The new on-ramp to the 1-680 that will be on the other side of Dublin Blvd. will make Village Parkway a major thoroughfare and will make it difficult to make the street more pedestrian oriented. The types of changes envisioned in this area are more design oriented than use and development oriented. 49 Planning Systems Public Finance Real Esta~:e Economics Regional Econum~c.~ Land Use Policy APPENDIX A: DOWNTOWN/MAiN STREET DEVELOPMENT REQUIREMENTS APPENDIX A: DOWNTOWN/MAIN STREET DEVELOPMENT REQUIREMENTS The following describes what it takes to conduct a substantial reconfiguration of an urban area into a downtown and create a new "Main Street.' This appendix outlines a number of key components to the creation of a successful new Main Street. This discussion is qualitative in nature and is based on the following: (1) Economic & Planning System's (EPS) involvement in a number of downtown and corridor revitalization studies throughout the United States; and (2) recent discussions with prominent Main Street designers and developers, including Abrams/Millikan Associates, designers and developers of "Fourth Street" in Berkeley, California, and ROMA Design Group, designers of "Third Street Promenade" in Santa Monica, California. The creation of a new Main Street is a complex process, rich with risks andchallenges. The sections below outline a series of design, tenant programming, and public investment suggestions and requirements that will increase the likelihood of success and provide a sense of the efforts required to create a Main Street from scratch. DESIGNING MAIN STREET Main Street should be pedestrian oriented, with a two-way, two-lane, island-less street, preferably with parallel parking on either side. This configuration permits a flow of traffic, including shoppers, workers, and deliveries, but prevents the domination of the automobile over pedestrians. Cross streets of a similar nature could also be used to make up a downtown core. The length of the pedestrian- oriented section of the street should not be so long as to diminish chances of full development and sense of place. The importance of the pedestrian should be emphasized, not only in terms of street lanes and width, but also in terms of sidewalk design. For example, slightly elevating the pedestrian above the street using elevated promenades provides a secure buffer against the street and a sign of pedestrian importance. Beyond parallel or diagonal parking, other parking should be located behind buildings, which should face onto the street. Buildings should also be contiguous and be close to the street. Small parcel, small-scale, pedestrian-oriented development patterns are essential. Building form and structure should be flexible, permitting uses to change over time as demographics.and market economics change. Buildings should also vary in terms of scale, texture, and design. A-1 appA.doc PROGRAMMING MAIN STREET AND ITS ENVIRONS Main Street will take time to develop, possibly twenty years. Development must be phased and opportunistic. Phases should build on each other, but be flexible enough to take advantage of opportunities as they arise. Tenant selection and mix is vital, as is tenant placement on the street. To ensure that the right tenants are selected, some type of organizational structure is required given that there are multiple property owners in each area. "Centralized Retail Malnagement" (CRM) is a term that refers to various methods to establish more control of tenancy in a multi-owner situation that is common to downtown areas. Many cities throughout the United States over the past 30 years or more have sought ways to make their downtown more competitive with regional shopping centers and other outlying businesses: A wide range of private, public, and public/private partnership techniques that achieve higher levels of cooperation and control are grouped under this general term. In all cases, the objective is coordination of retail tenancy needed to create "critical mass" and the right (most attractive mix) of retail tenants and other businesses. Examples of downtowns where some form of CRM is being used include the Third Street Mall in Santa Monica, Old Town Pasadena, the Gas Lamp District in San Diego, and Pine Street in Long Beach. Given the city's goals, some form of CRM is worth considering and perhaps testing. Examples of methods used include: Assembly of contiguous parcels and buildings by a single private company. Formation of a partnership between existing landowners and the City. Assembly and syndication of contiguous parcels and buildings. Formation of a non-profit management corporation. Use of Business Improvement Districts and other assessment districts. The key to CRM is the demonstration that, through cooperation, the financial interests of individual owners can be maximized while city goals are also achieved. While this can be demonstrated, it is often difficult to convince individual owners to yield their autonomy toward any common objective. Success depends upon realization of benefits, along with a specific institutional arrangement that meets the needs and concerns of the private participants and the City. CRM can also be used as a tool to deal with windfalls and wipeouts that occur with larger redevelopment projects. NEW DEVELOPMENT AND DESIGN ISSUES High-end restaurants should be sought as "street pioneers.' Worthy of a visit in their own right, they will catalyze retail development in close proximity. Businesses that generate a pedestrian atmosphere, such as coffee shops/cafes, should also be sought for prominent locations. A-2 appA.do¢ Small spaces for retail stores should be provided between the cafes and restaurants. As the restaurants draw in clientele, stores will demand space nearby, capitalizing on the foot traffic and the synergy between the uses. Higher end and specialty retail stores, which will attract new shoppers and encourage window browsing, should be sought out where possible. Possible early buildings for construction inclUde a specialty grocery store. This could serve new and existing local residents and, in the process, attract activity to the street. The store should be located at one end of the street to allow for easy automobile access and minimize use of Main Street for grocery trips. The impact o£ major chains requiring large spaces on the street should be evaluated critically. Giving up key sites to chain stores and/or changing the parcel configuration to accommodate their size and parking requirements may damage the chances of creating a pedestrian-scale Main Street. The proposed Home Depot Expo Center could have a major impact on creating a new Main Street/downtown in the Downtown Core area if it moves forward as proposed. Entertainment venues, such as movie theaters, can be catalysts for visitor attraction to the street. It is important, however, that these venues do not conflict with other uses and conform to the overall vision of the street in terms of urban form. The Downtown Core has a six-plex movie theater that could act as an anchor in a new Main Street, although it would need some facade improvements. The advantages of additional amenities, such as lakes, parks, and other large public amenities, should be considered carefully. They have the potential to take attention away from the street and its businesses and therefore reduce the street's economic viability. A well-crafted main street will provide sufficient attractions of its own in the form of architecture, window and store browsing, and eating and entertainment options. Public plazas, outdoor seating, small fountains, gazebos, rotaries, and other public spaces are important to provide people a place to sit, eat, watch, and talk. in the early stages of development, vacant lots should be used innovatively. Fruit stands adjacent to a grocery store or' flea markets could attract shoppers and also add visual variety and interest to the street. Residential and office development is preferable adjacent uses to main street, with high-density office uses also being desirable on the street. These uses will provide a primary source of demand for eating, shopping, and spending time on the street. Residential units above retail development on Main Street could create parking shortages in addition to use conflicts if adjacent to entertainment venues. New high- density residential development should be in close proximity and surround the new Main Street. A-3 appA.doc INVESTING PUBLIC MONEY IN MAIN STREET The primary public investment required will be the construction of infrastructure and design improvements. These infrastructure improvements will likely be too costly to be borne in full by new development~ Adequate public parking either through a series of small in-fill lots or new parking garages is a key component to making a downtown viable. Many cities subsidize parking in some fashion, whether it is in the form of providing either "free parking" (i.e., no meters or charges at garages) or public financing, land, or writing down land costs. Some dries set up parking districts and allow new development to buy into the district through in-lieu fees, which allows higher-density development, as parking is provided off-site. Subsidies in the form of below-market rate rents may also be required to attract certain unique and interesting businesses, such as specialty bookstores, as well as important community stores, such as groceries. The CRM structure can allow for such subsidies when required. Strategies of this nature may require City ownership of space or strong collaboration between the City and developers. Business Improvement Districts (BIDs) and other special assessment districts can be useful tools to create funding for public improvements, marketing, and new special services such as additional security in downtowns. BIDs, however, are voluntary and need substantial business or property owner support, depending on the structure of the district. A-4 appA.doc Economic e~ Planning Systems Public Finance Real Estate Economics Regional Economics Land Use Po[ic,, APPENDIX B: PROFILES OF RETAIL PROJECTS AND DOWNTOWNS APPENDIX B: PROFILES OF RETAIL PROJECTS AND DOWNTOWNS This appendix presents profiles of new and existing retail projects that contain development concepts that are intended to a more pedestrian-oriented retail environment. While Downtown Dublin may differ from these other retail projects, such as freeway accessibility and site configuration, the development concepts and planned tenant mixes may be appropriate for Downtown Dublin. PROFILES OF NEW RETAIL PROJECTS DOWNTOWN PLEASANT HILL Downtown Pleasant Hill represents a major development effort of Burnham Pacific and is being leased by Main Street Services, Inc. Like Dublin~, this project serves to create a place local residents can refer to as a downtown. This project includes over 340,000 square feet of retail space now under construction and is scheduled to open in the fall of 1999~ (see Figure B-I). The development also includes approximately 1,700 parking spaces, which are dispersed throughout the project as small lots near major tenants and as diagonal spaces along Crescent Drive to serve the smaller retail tenants. The project's focal point is the downtown streetscape of Crescent Drive that features forty-five shops and six major tenants with individualized storefronts within a "main street" atmosphere. According to the City Planning Department, this 1991 Vision (Downtown Specific Plan) was designed and planned to create a downtown presence that appeals to a broad income spectrum. The major tenants include Bed, Bath & Beyond, Borders Books & Music, Ross Dress for Less, MANN 14-screen Cineplex, and a full-service Lucky/Savon combination store. The smaller stores range from 875 square feet to 8,600 square feet and includes such tenants as Peet's Coffee & Tea, Jamba Juice, World Wrapps, La Salsa, Valley Dry Cleaners, Sun Valley Travel, Totally Wireless, Mail Boxes Etc., and Hallmark. The eateries are primarily located near the movie Cineplex while the other retailers are located near the other major tenants. The combination of these shopping and entertainment elements is believed to bring heavy consumer traffic seven days a week from early morning to late evening. The downtown Pleasant Hill project is located off of 1-680 at Contra Costa and Monument Boulevards. The primary market area includes densely populated and affluent neighborhoods of Pleasant Hill, Walnut Creek, Martinez, Concord, Clayton, and the Lamorinda Community. According to the Main Street Services, Inc., the population within ten miles is over 450,000 people with an average household income of $72,400. The daytime population for this local-serving retail project is over 66,800 people who are employed by over 5,700 businesses within a three-mile radius. Most of the site is now open. B-1 aFpB.DOC L&..FIESTA SQUARE, LAFAYETTE La Fiesta Square is a 70,000-square foot specialty retail project located within the six- block business neighborhood of downtown Lafayette (see Figures B-2 and B-3). La Fiesta Square was built in the 1930s and 1940s and was later expanded in the 1960s and early 1970s. This project is currently undergoing renovation to'become a 70,000-square foot specialty center of the East Bay that will include upscale fashion retailers, high-end restaurants, and specialty food uses. The City of Lafayette wants to attract different local-serving, specialty tenants, and the new La Fiesta Square will include tenants that range from approximately 500 square feet to about 6,000 square feet such as Salon & Day Spa, Kinko's, AG Ferrari Foods, Whole Grain Bread Company, Open Sesame, Cotton & Company, Sharp Bicycle, Beyond Flowers, and numerous other specialty shops. The Downtown Lafayette project is located off of Highway 24 with two major exits at Oak Hill Road and First Street. The primary market area will include the Cities of Lafayette, Orinda, and Moraga (Lamorinda). According to the Main Street Services, Inc., the population within the Lamorinda community is over 60,000 people with an average household income of approximately $100,000 annually. In addition, Lafayette has more than one million square feet of office space and a daytime population for this local-serving retail project of over 19,800 people, all within a five-minute drive from La Fiesta Square. THE SHOPS AT BISHOP RANCH, SAN RAMON The planned Shops at Bishop Ranch project is located off of Sunset Drive in San Ramon, near the Bollinger Canyon Road freeway ramp. This main street-like shopping center includes about 18 shops, with a tenant mix that ranges from upscale shops to discount stores to meet different shoppers needs. The tenants include an organic and natural food store (Whole Foods), along with other popular retailers such as a 24,000-square foot Borders Books & Music and an existing Target store. In addition to the neighboring communities along the 1-680 corridor, this project will be supported by the current City population of approximately 44,700 with and average household income of about $101,100.2 PLAZA ES~ .U.E~LA.,~W.~.ALNUT CREEK The planned Plaza Escuela shopping center is located off of California Boulevard in Walnut Creek. The neighborhood-serving center will include over 422,500 square feet of retail space and will encompass over five and a half acres. This pedestrian-oriented retail center will include a small grocery store, Andronico's, along with kitchen and home furnishing shops. : Population data is based on 1999 California Department of Finance and average household income data based on ABAG Projections '98. B-2 appB.DOC According to the developer, Western Investment Real Estate Trust (based on its "trade- void analysis" for the different use categories) the project will cater to national credit retailers that are demanded by consumers. The developer anticipates approximately lease rates of $26 per square foot annually for the large tenants, an estimated $36 per square foot annually for mid-size tenants (24,000 square feet), and about $44 to $48 per square foot annually for small tenants (1,000 to 2,000 square feet). The City took advantage of the opportunity to extend its increasingly popular downtown and further meld its burgeoning restaurant row with this shopping center. Since the new 1-680/Highway 24 interchange makes Olympic Boulevard a major access road into downtown, the site is a potential "gateway" to Walnut Creek's major business district. In addition to the 120,000 square feet of small retail shops and restaurants, the project also includes a multi-level parking garage located above the ground-level retail space, so as to meet the parking requirement of one space per 300 square feet of rentable floor area. This project will receive market support from the local communities along the 1-680 and Highway 24 corridors. Specifically, the City of Walnut Creek has a current population of approximately 63,900 and an average household income of about $79,600.3 The projected is anticipated to open in 2001. PIEDMONT AVENUE, OAKLAND The Piedmont Avenue Business District has various local-serving neighborhood commercial uses along this corridor that spans several blocks between MacArthur Boulevard and Pleasant Valley Road, including a Kaiser Permanente hospital at the MacArthur Boulevard and Piedmont Avenue intersection. At the center of the corridor is a City block along Piedmont Avenue that has been redeveloped between 40th and 41st approximately six years ago. The parcel includes a new Longs Drug store (moved from its previous location on the other side of the block) with an unusually small floor plate size due to the site constraints (e.g., lot size). New retail facing the street was added, which includes several small tenants such as an Italian restaurant, bakery, deli, and bagel store. Instead of private parking, the City purchased an adjacent piece of property and created shared metered public parking behind the small retail center and in front of the Longs Drug Store main entrance so as to accommodate the high demand for parking for all of the retail tenants in the area throughout the day. According to a Piedmont Business Association Executive Board member, the Longs Drug Store is doing well as a neighborhood-serving store, despite new competitors at nearby shopping centers. TEMESCAL, OAKLAND The Temescal Business District has four new local-serving neighborhood commercial projects in North Oakland located between Telegraph and Shattuck Avenues. Temescal Plaza, Temescal Triangle, 4920 Temescal, and Temescal Square provide over 25,000 square feet of retail space in well-designed buildings with on and off-street parking.. The addition of new public improvements planned for this area will further enhance this pedestrian-friendly neighborhood which has wide sidewalks, large trees, and Ibid. B-3 apFB.DOC traditional glass storefronts. The tenants include new expanded Genova's Delicatessen, Walgreens, a deli/bistro, a Mediterranean Cafe, and a fitness center. The Temescal Square Farmers' Market draws customers every Sunday and operates from spring through fall. Local residents had significant input into the design and density of the project. One of the new projects has apartments on the Second floor. The Temescal Business District draws customers from the entire East Bay. According to the City of Oakland Community Development Department, the daytime population includes over 2,000 employees from nearby Alta Bates Medical Center, Children's Hospital and the California DMV. IRON HORSE PLAZA, DANVILLE The Iron Horse Plaza located off of Railroad Avenue in Danville is a small shopping center with a "Main Street" ambiance. This upscale plaza is located off of the 1-680 corridor, targeting the surrounding affluent communities. The City is attempting to enhance its downtown by attracting new businesses and remodeling old buildings. The City is approving as much new construction in downtown than it has in the past ten years. This new shopping area, referred to as a "lifestyle" or "entertainment center," attempts to maintain the rural character of Danville with parking kept in the back, away from the street. Based on the conceptual site plan, the dimension of the site and tenant pads is as follows: Item Amount Unit Site Area (Net of Trail) Building Area On-Site Parking Off-Site Parking Parking Ra.~io Andronico's (Anchor Pad) 164,876 61,970 141 107 4 41,120 In-Line Food Pads 9,750 In-Line Retail Pads 11,100 Square Feet Square Feet Spaces Spaces Per 1,000 Square Feet Square Feet Square Feet Squa,,r.,e F.e. et Each store has a unique faqade (e.g., bricks with awnings and wooden with a peaked roof) and includes such tenants as Andronico's, Blockbuster Video, Imaginarium, and a cafe. As an incentive to attract Andronico's Market to Danville, the City negotiated potential rent subsidies with the company if the sales volume did not meet a particular minimum dollar amount each year for the first five years. This new retail project is supported by the local communities along the 1-680 corridor, which includes a Danville population of approximately 39,900 and an estimated average household income of about $126,700.4 Ibid. B-4 appB.DOC I ,, u u II %~o Off Ramp ~'.4~';..'.-Montunent Blvd, "" LA FIESTA Patio World 2080 8q, Ft. 4814 Sq, Ft, ? 4 Mount Diablo STREET RETAIL sERviCES, INc'