HomeMy WebLinkAbout8.1 PA 07-006-Grafton Plaza GPamendOF
STAFF REPORT
1 i PLANNING COMMISSION
IFOR
DATE: April 13, 2010
TO: Planning Commission
SUBJECT: PUBLIC HEARING - PA 07-006 Grafton Plaza, General Plan
Amendment, Specific Plan Amendment, Planned Development Rezone
with a related Stage 1 Development Plan, and Mitigated Negative
Declaration (Legislative Act).
J
Report prepared by Mike Porto, Consulting Planner and Martha Aja;`
Environmental Specialist
EXECUTIVE SUMMARY:
Grafton Plaza is 25.33 acres located within the Eastern Dublin Specific Plan Area. The
proposed Project includes a request to amend the General Plan and Eastern Dublin Specific
Plan. The proposed General Plan and Eastern Dublin Specific Plan amendments would modify
the existing land use designations from Campus Office to a new Mixed Use 2/Campus Office
flexible land use designation. Approval of a Planned Development Rezone with a related Stage
1 Development Plan would expand the allowable uses on the site and permit up to 50% of the
development area be comprised of residential uses. Development of the site could include one
of two options: Option 1 would allow a Mixed Use development and Option 2 would allow a
Campus Office development. The southern portion of the site (approximately 11 acres) is
improved with an existing Water Quality Control Basin and no further development or
modifications are proposed to this portion of the project site.
RECOMMENDATION:
Staff recommends that the Planning Commission: 1) Receive Staff presentation; 2) Open the
Public Hearing; 3) Take testimony from the Applicant and the public; 4) Close the public hearing
and deliberate; 5) Adopt the following Resolutions: a) Resolution recommending that the City
Council adopt a Mitigated Negative Declaration; b) Resolution recommending that the City
Council adopt a Resolution approving amendments to the General Plan and Eastern Dublin
Specific Plan for Grafton Plaza; c) Resolution recommending that the City Council adopt an
Ordinance rezoning the Grafton Plaza project site to the Planned Development Zoning District
and approvinq a related Stage 1 Development Plan.
Submittd By
Mike Porto, Consulting Planner &
Martha Aja, Environmental Specialist
COPIES TO: Applicant
File
v e d By
Planni Manager
ITEM NO.: Be I
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G:1PA#12007107-006 The PlazalPlanning Commission 4.13.101Grafton Plaza Staff Report.doc
DESCRIPTION:
Background:
The proposed Grafton Plaza project has been significantly altered and reduced from the original
project proposal (21-story "Towe," project proposed in 2007). The current project proposal
includes a request to create a new land use designation to allow the project to develop as either
a mixed use project or a campus office project. Under the current project proposal, the
development on the site would not exceed 496,519 square feet of development, as approved in
2000.
The project site is bounded on the north by Dublin Boulevard, on the west by Grafton Street, on
the east by a planned local street and on the south by 1-580. Surrounding land uses include high
density residential to the north (thE) Terraces complex) and an approved but not yet constructed
commercial project (the Promenade, which includes a Club Sport fitness facility), the 1-580
freeway to the south, vacant land to the east (owned by Kaiser Permanente and anticipated to
be developed with a hospital and medical offices) and the Grafton Station commercial center to
the west, which contains a Lowe's home improvement store and smaller retail commercial pads.
Please refer to the Vicinity Map below.
The southern portion of the site (approximately 11 acres) has been graded and landscaped for
the water quality treatment basin, which provides treatment for a substantial portion of the run-
off from Dublin Ranch. The northern portion of the site, where development is proposed, has
been mass graded. The site is flat and consists of non-native grass and other low vegetation.
VICINITY MAP
The project site is located within Area H of Eastern Dublin (parcels highlighted in red on the map
above). Area H is 70.8 gross acres (including the Dublin Boulevard right-of-way). Area, H has
two land use designations, General Commercial (Lowes/Grafton Station) and Campus Office
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(Project Site and Kaiser Hospital Parcel). The Grafton Plaza Project site is currently designated
as Campus Office.
Entitlement History:
In February 2000, the City Council approved a General Plan and Eastern Dublin Specific Plan
Amendment for Area H. The Grafton Plaza project site, which includes the Water Quality Basin,
is located within Area H as illustrated in the vicinity map on the previous page.
The City Council approved an Initial Study/Mitigated Negative Declaration (MND) for the
General Plan Amendment, Eastern Dublin Specific Plan Amendment and Stage 1 Planned
Development Rezone for Area H. The Initial Study analyzed all of the environmental topics
required by the California Environmental Quality Act (CEQA). Based on additional site-specific
analysis of light and glare, biological resources, cultural recourse, hydrology and water quality,
traffic and circulation, supplemental Mitigation Measures were adopted by the City. These
Mitigation Measures continue to apply to the project.
Water Quality Pond
}
In October 2005, the City Council adopted an
Ordinance approving a Stage 2 Development
Plan that rezoned the southern portion of the
Grafton Plaza site (approximately 11 acres)
to allow the construction of a wa-:er quality
pond. The pond was subsequently
constructed and is now operational.
Project Proposal:
In 2007, the City received a request for the
Grafton Plaza development project, which
consisted of a multi-story mixed use
development that included 4 IOW to mid-
rise podium buildings, 3 residential towers
combined with office uses, shopkeeper and
live/work units, luxury condominiums, a
boutique hotel, day spa and associated
open space recreational areas.
The 2007 proposal included three
residential towers, which ranged from 19 to
21 stories. The low to mid-rise podium
buildings ranged from 6 to 8 stories.
On August 14, 2007, a joint City Council/Planning Commission Study Session was held to
discuss the 2007 project proposal. Topics discussed at the joint Study Session included the
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appropriate location for a mixed use project, height/massing, density/intensity, affordable
housing and parks/open space.
The Applicant subsequently modified the project proposal to include the development of four low
to mid-rise building ranging from 6 to 10 stories in height. The proposed uses included a
boutique hotel, spa, retail, office and up to 470 residential dwelling units consisting of live/work
units, shopkeeper units and condominiums. The project included 1,128,000 square feet of
development, of which 50% were residential uses and 50% were non-residential uses.
The City determined that a Supplemental Environmental Impact Report (SEIR) was required to
analyze the potential environmental impacts associated with the revised project. On April 23,
2008, the City of Dublin held a Scoping Meeting to gain input from interested agencies and
individuals.
In 2009, the Applicant further revised the Grafton Plaza project. This revised proposal is what is
currently before the Planning Commission.
Current Proposal:
The Applicant requests approval of General Plan and Eastern Dublin Specific Plan Amendments
to re-designate the site from Campus Office to a new flex land use designation, Mixed Use
2/Campus Office. Additionally, the Applicant requests approval to amend the PD - Planned
Development zoning. The proposed PD zoning would allow for two development options, which
include a mixed-use project or a carnpus office project.
ANALYSIS:
The proposed General Plan Amendment, Eastern Dublin Specific Plan Amendment and PD
rezoning are discussed below. Staff's analysis is broken up into several sections which describe
each component of the project.
General Plan & Eastern Dublin Specific Plan Amendment
The Applicant is requesting approval of a General Plan Amendment and Eastern Dublin Specific
Plan Amendment to modify the land use designation on the site from Campus Office to a new
Mixed Use 2/Campus Office designation, and to create a new Specific Plan subarea (Grafton
Plaza). The proposed Mixed Use 2/Campus Office land use designation is proposed as follows:
This designation provides for a mix of uses including residential, live-work and
shopkeeper units, and non-residential uses such as office, retail, restaurants,
hotel and entertainment facilities or Campus Office uses consistent with the
Campus Office land use designation. The floor area ratio applies to both
development options (Mixed Use and Campus Office) and is for the combined
commercial and residential uses, if residential uses are incorporated, or for
commercial uses if commercial is used exclusively. The residential component
shall not exceed 50% of the development square footage. Gas stations are not
permitted.
The combined Mixed Use 2/Campus Office designation does not currently exist and would be
added to the General Plan and Eastern Dublin Specific Plan. The Mixed Use 2/Campus Office
flex land use designation gives the Applicant the opportunity to develop the 25.33 acre site with
a project that includes uses that are consistent with the either a Mixed-Use 2 land designation or
the Campus Office land use designation. In both instances, the maximum amount of
development on the site would not exceed 496,519 square feet, as approved in 2000.
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Residential uses, including shopkeeper and live-work are only allowed under the Mixed Use 2
designation and could comprise up to 50% of the FAR for the project site (248,259 square feet).
The Applicant also proposes to redefine the Eastern Dublin Specific Plan subarea from
Tassajara Gateway to a new "Grafton Plaza" subarea for the project site. The goal of the
Grafton Plaza subarea is to develop a circulation pattern that promotes and accommodates the
pedestrian while maintaining adequate vehicular circulation, promotes a lively and vital retail
venue, and provides an inviting sense to place. The subarea builds off the adjacent
Promendade and Grafton Station projects to establish a residential, commercial and hospitality
destination. The proposed Grafton Plaza Subarea is shown below.
Proposed
Figure 4.2
Planning Subareas
A Tmsajara GalewAy
B Tvwn Cenw • 0ornrnerr,al
C Town C.efe rater - Residential
D F ation Gmeway
F VZJt04 V111,3go ;7r-Iller
F Tinr..-N.ara Vi lla?,? tL, tl-
G rot>v, I Res?o?, .gal
ki County Certter
I fWdenda Gateway
J lrarrsls centcv
K Grafton Roza
The request includes amendments to various figures, texts and tables in the General Plan and
Eastern Dublin Specific Plan to ensure consistency throughout the documents. The following is
a summary of the proposed amendments. Please refer to Exhibit A of Attachment 1 for a
complete list of the proposed amendments to the General Plan and Eastern Dublin Specific
Plan.
Table 2.1 of the General Plan in addition to Table 4.1 of the Eastern Dublin Specific Plan would
be amended as follows:
o Add 25.33 acres of Mixed Use 2/Campus Office;
o Add 496,519 SF and 260 SF/employee;
o Remove 25.33 acres & 496,519 SF of Campus Office & adjust jobs
column accordingly; and
o Add footnote regarding how the chart will be amended if the project
develops as a mixed use project with residential units.
Table 4.2 of the Eastern Dublin Specific Plan would be amended as follows:
o Add 25.33 acres of Mixed Use 2/Campus Office;
o Add 496,519 SF and 260 SF/employee;
o Remove 25.33 acres & 496,519 SF of Campus Office & adjust jobs
column accordingly; and
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o Add a footnote regarding how the chart will be amended if the project
develops as a mixed use project with residential units.
Table 4.3 of the Eastern Dublin Specific Plan would be amended as follows:
o Add a footnote regarding how the chart will be amended if the project
develops as a mixed use project with residential units.
Table 4.4 of the Eastern Dublin Specific Plan would be amended as follows:
o Remove 25.33 acres and square footage (0.96 msf) from Campus
Office.
Add new text and Table (Table 4.14) to the Eastern Dublin Specific Plan to identify the new
Grafton Plaza subarea.
Appendix 2 of the Eastern Dublin Specific Plan would be amended to include the Mixed Use
2/Campus Office land use designation, which includes a list of anticipated uses.
Appendix 3 of the Eastern Dublin Specific Plan would be amended as follows:
o Remove 25.33 acres & 496,519 SF of Campus Office from the
Tassajara Gateway; and
o Add new subarea (Grafton Plaza) to the table.
Appendix 4 of the Eastern Dublin Specific Plan would be amended as follows:
o Revise #19 (Pao Lin Areas F, G & H) land use summary by removing
25.3 acres & 496,519 SF of Campus Office.
o Add 25.33 acres to Mixed Use 2/Campus Office with 496,519 SF.
o Add a footnote regarding how the chart will be amended if the project
develops as a mixed use project with residential units.
A Resolution recommending the City Council approve a General Plan Amendment and an
Eastern Dublin Specific Plan Amendment for the Grafton Plaza project is included as
Attachment 1.
Stage 1 Planned Development Rezoning
A Stage 1 Development Plan is proposed in accordance with Section 8.32.140 of the Dublin
Zoning Ordinance. The Stage 1 Development Plan includes the following: (1) permitted,
conditionally permitted and accessory uses; (2) Stage 1 site plan; (3) site area and proposed
densities; (4) maximum residential square footage; (5) phasing plan; (6) master landscaping
plan; (7) General Plan & Eastern Dublin Specific Plan consistency statements; and (8) aerial
photo.
The proposed Stage 1 Development Plan allows for two options of development. Option 1 would
allow a Mixed Use development and Option 2 would allow a Campus Office development. The
project proposes an FAR of 0.45 for a maximum of 496,519 square feet of development within
the project area (which includes the adjacent water quality basin), which is consistent with the
maximum amount of development approved by the City of Dublin in 2000. The FAR of 0.45
applies to both development options.
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The current proposal expands the commercial and residential land uses for the site, such as but
not limited to meeting/function rooms, spa, out patient health facilities, indoor recreation, live-
work units and shopkeeper units. If the project develops as a mixed use project, it is anticipated
that there will be approximately 235 residential units. The number of units may increase or
decrease, as long as the overall residential square footage does not exceed 248,259 square
feet (50% of the allowable development).
Option 2 represents the currently approved land use for the Project site and would allow a
project with all Campus Office uses. A maximum of 496,519 square feet would be permitted for
uses such as office, and ancillary supporting uses including retail, food establishments and
similar uses (residential uses would not be allowed under the Campus Office development
scenario).
The General Plan and Eastern Dublin Specific Plan Campus Office land use designation
currently allows for mixed-use developments with up to 50% residential under special
circumstances (e.g. where a mixed-use development would decrease potential peak-hour traffic
generation, meet a specific housing need, encourage pedestrian access to employment and
shopping or create an attractive, socially-interactive neighborhood environment).
On October 4, 2005, the City Council adopted Ordinance 26-05 approving a Stage 2
Development Plan for the water quality basin. The existing water quality pond is permitted
pursuant to Ordinance 26-05. No changes are proposed to the existing water quality basin
within the project site.
Table 1 below summarizes the amount of Campus Office development permitted on the
Grafton Plaza site under the existing Stage 1 Planned Development zoning.
Table 1: Existina Staae 1 Development Plan
Land Use Gross Net FAR
Residential Units
Designation Acres Acres S.F.
0.45 avg. Up to 50% of development,
Campus Office 25.33 23.4 65 max
0 subject to meeting conditions
.
. outlined in the General Plan
Table 2 below summarizes the potential development program on the site under both options.
Table 2: Pronosed Staae 1 Planned Develonment
Land Use Gross Net FAR
Designation Acres Acres (0.45 average)
Option 1 Non-Residential Residential
(Mixed-Use
Residential
Development) 25.33 23.4
248,260 S.F.
248,259 sq. ft. max.
(+/-235 Residential Units)
Option 2 Non-Residential Residential
us Office
(Cam 25
33 23
4
p . .
Development) 496,519 S.F. NA
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A Resolution recommending the City Council approve a Planned Development (PD) Rezone
with a related Stage 1 Development Plan and for the Grafton Plaza project is included as
Attachment 2.
Semi-Public Facilities Policy
In 2004, the City Council adopted a Semi-Public Facilities Policy. (See Attachment 3). The
policy applies to "residential amendments involving 150 or more Single-Family Density Housing
units and/or 250 or more Medium Density or greater density housing units, or increments and
combinations thereof." The purpose of the policy is to increase the opportunities for semi-public
facilities by designating lands for such purposes on the City's general plan map. The policy
requires that Applicants for applicable general plan amendments identify semi-public facility
sites at the ratio of 1 acre net per 1000 residents. The Applicant has not identified any semi-
public facility sites within the project area. The Applicant believes that the policy does not
apply to its project because the general plan amendment proposed does not increase the
number of residential units authorized for the site. The Applicant believes that the policy should
not apply unless a particular general plan amendment proposes additional units. Staff agrees
with the Applicant that the policy should only apply to general plan amendments that authorize
additional residential units. Accordingly, staff recommends that no additional semi-public
facilities be required on the site.
CONSISTENCY WITH GENERAL PLAN, SPECIFIC PLAN & ZONING ORDINANCE
The proposed Grafton Plaza project includes a request to amend the General Plan and Eastern
Dublin Specific Plan from the existing Campus Office land use designation to a new Mixed Use
2/Campus Office flexible land use designation. The project proposal includes related
amendments to the various figures, texts and tables in the City's General Plan and Eastern
Dublin Specific Plan to ensure consistency throughout the document.
Additionally, the project includes a proposal for a Planned Development Rezone with a related
Stage 1 Development Plan to expand the allowable uses on the site and permit up to 50% of the
development area be comprised of residential uses. The proposed project allows for two options
of development, which include either a mixed use development (Option 1 - Mixed Use) or a
campus office development consistent with the current land use designation of the (Option 2 -
Campus Office). A Stage 1 Development Plan as defined by Section 8.32.030 of the Dublin
Zoning Ordinance will establish the land use pattern for the Grafton Plaza project.
REVIEW BY APPLICABLE DEPARTMENT AND AGENCIES:
The Building Division, Fire Prevention Bureau, Public Works Department, Dublin Police Services
and Dublin San Ramon Services District have reviewed the project. Additional land use
entitlements, including a Stage 2 Development Plan, Site Development Review and possibly a
tentative map, will be required prior to future development of the project site. It will be at this
time that Conditions of Approval will be placed on the project. The various applicable
departments and agencies will review subsequent planning applications for Grafton Plaza.
NOTICING REQUIREMENTS/PUBLIC OUTREACH:
In accordance with State law, a Public Notice was mailed to all property owners and occupants
within 300 feet of the proposed Proiect in addition to an extended area and an interested parties
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list. A Public Notice was also published in the Valley Times and posted at several locations
throughout the City.
ENVIRONMENTAL REVIEW:
On May 10, 1993, the Dublin City Council adopted Resolution No. 51-93, certifying an
Environmental Impact Report (EIR) for the Eastern Dublin General Plan Amendment and
Eastern Dublin Specific Plan (Eastern Dublin EIR, SCH #91103064). The certified EIR consisted
of a Draft EIR and Responses to Comments bound volumes, as well as an Addendum dated
May 4, 1993, assessing a reduced development alternative. The City Council adopted
Resolution No. 53-93 approving a General Plan Amendment and a Specific Plan for the reduced
area alternative on May 10, 1993. On August 22, 1994, the City Council adopted a second
Addendum updating wastewater disposal plans for Eastern Dublin. For identified impacts that
could not be mitigated to a less than significant level, the City Council adopted a Statement of
Overriding Considerations for cumulative traffic, extension of certain community facilities
(natural gas, electric and telephone service), regional air quality, noise, and other impacts.
The Eastern Dublin Specific Plan was adopted by the City to encourage orderly growth of the
Eastern Dublin area. Because the Eastern Dublin project proposed urbanization of the almost
completely undeveloped Eastern Dublin area, the Eastern Dublin EIR also analyzed conversion
of agricultural and open space lands to urban uses. These impacts together with visual and
other impacts from urbanization were also determined to be significant and unavoidable. Where
the Eastern Dublin EIR identified impacts that could be mitigated, the previously adopted
mitigation measures continue to apply to implementing projects such as Grafton Plaza, as
appropriate.
The Eastern Dublin EIR was a Program EIR and evaluated the potential environmental effects
of urbanizing Eastern Dublin over a 20 to 30 year period. As such, the Eastern Dublin EIR
addressed the cumulative effects of developing in agricultural and open space areas and the
basic policy considerations accompanying the change in character from undeveloped to
developed lands. Since certification of the EIR, many implementing projects such as Wallis
Ranch (Dublin Ranch West), Fallon Crossing, Vargas, and Pinn Brothers/Silvera Ranch, Dublin
Ranch and Fallon Village have been approved, relying on the Program EIR.
In February 2000, the City Council approved an Initial Study/Mitigated Negative Declaration
(MND) for a General Plan Amendment, Eastern Dublin Specific Plan Amendment and Stage 1
Planned Development Rezone for Area H.
The City, as the Lead Agency, prepared an Initial Study to determine whether there would be
significant environmental impacts occurring as a result of the current project beyond or different
from those already addressed in the Eastern Dublin EIR and 2000 MND. Based on the project
description, the Initial Study determined that the project could result in additional significant but
mitigatable site-specific impacts. Therefore, a Mitigated Negative Declaration (MND) was
prepared in accordance with CEQA laws and regulations. The project assessed in this MND
includes, amendments to the General Plan and Eastern Dublin Specific Plan (including revised
land uses), and rezoning to Planned Development (PD), with the related Stage 1 Development
Plan.
A Mitigated Negative Declaration was prepared for the project and circulated for public review
from January 8, 2010 to February 8, 2010 (Exhibit A to Attachment 4). During the public review
period, the City received 11 comment letters, which include the following:
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• Office of Planning & Research, dated January 12, 2010
• California Department of Transportation, dated February 8, 2010
• City of Dublin Police Services, January 8, 2010
• City of Dublin Parks & Community Services Department, dated January 14, 2010
• Dublin San Ramon Services District, dated January 20, 2010
• Alameda County Flood Control & Water Conservation District - Zone 7, dated January
28, 2010
• Alameda County Flood Control & Water Conservation District - Zone 7, dated January
29, 2010
• Alameda County Public Works Agency, dated February 5, 2010
• Chris Didato, January 18, 2010
• Gabrielle Blackman, dated February 8, 2010
• Jon Brattebo, dated February 8, 2010
Although not required by CEQA, the City prepared responses to the various comment letters,
providing the City's good faith reasoned analysis as to the environmental issues raised in the
comments (Exhibit B to Attachment 4).
NEXT STEPS:
Additional entitlements are required prior to development occurring on the project site. A
comprehensive site plan, development program and design and development standards for
Grafton Plaza would be submitted with future planning applications, which would include a
Stage 2 Development Plan and a Site Development Review Application. Project details would
be submitted to the City as part of future applications, including but not limited to building
footprints, pedestrian and vehicular access, site and architectural design guidelines, parking
ratios, building height/stories, architecture and more detailed landscaping as required by City
Standards.
CONCLUSION:
The Applicant's submittal package is included as Attachment 5 of the Staff Report. The
proposed General Plan and Eastern Dublin Specific Plan amendments would modify the existing
land use designation from Campus Office to a new Mixed Use 2/Campus Office flexible land use
designation. Approval of a Planned Development Rezone with a related Stage 1 Development
Plan would expand the allowable uses on the site. The proposed entitlements would allow
development of the site under one of two options including either a mixed use development with
up to 50% of the development consisting of residential uses, or a campus office development.
A Mitigated Negative Declaration was prepared for the Grafton Plaza project. This document
includes mitigation measures to reduce environmental impacts of the projects to a less than
significant level.
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ATTACHMENTS: 1) Resolution recommending that the City Council adopt a
Resolution amending the General Plan and the Eastern
Dublin Specific Plan to change Grafton Plaza from Campus
Office to a new Mixed Use 2/Campus Office flex land use,
with the draft Resolution attached as Exhibit A.
2) Resolution recommending that the City Council adopt an
Ordinance approving a Planned Development Rezone with a
related Stage 1 Development Plan for Grafton Plaza, with the
draft City Council Ordinance included as Exhibit A.
3) Semi Public Facilities Policy
4) Resolution recommending that the City Council adopt a
Mitigated Negative Declaration for Grafton Plaza, with the
MND included as Exhibit A, the Response to Comments
included as Exhibit B and the Mitigation Monitoring &
Reporting Program as Exhibit C.
5) Grafton Plaza booklet.
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GENERAL INFORMATION:
APPLICANT/PROPERTY:
OWNER
LOCATION:
ASSESSORS PARCEL
NUMBERS:
GENERAL PLAN
LAND USE DESIGNATION:
SPECIFIC PLAN
LAND USE DESIGNATION:
SURROUNDING USES:
Jim Tong
Charter Properties
4690 Chabot Drive, Ste. 100
Pleasanton, CA 94588
South of Dublin Blvd., east of Grafton Street & north of 1-580
985-0061-010 & 985-0061-004
Campus Office (existing)
Mixed Use 2/Campus Office (proposed)
Eastern Dublin Specific Plan
LOCATION ZONING GENERAL PLAN LAND USE CURRENT USE OF
PROPERTY
North PD High Density Residential High Density Residential
Terraces
South N/A N/A Interstate 580
East PD Campus Office Vacant (owned by Kaiser)
West PD General Commercial Grafton Station Commercial
Center
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