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HomeMy WebLinkAbout8.1 PH: PA 06-060, Avalon Bay Communities, Transit Ctr Site CSTAFF REPORT PLANNING COMMISSION DATE: March 22, 2011 TO: Planning Commission SUBJECT: PUBLIC HEARING: PA 06-060, Avalon Bay Communities, Dublin Station (Transit Center Site C) Stage 1 Development Plan Amendment and Stage 2 Development Plan, Site Development Review, Vesting Tentative Map 7929, and Development Agreement Report Prepared by Mike Porto, Consulting Planner EXECUTIVE SUMMARY: The proposed project, Avalon Transit Center Site C, is a residential project comprised of 505 apartment units, a 4,223 square foot fitness center, 733 spaces of structured parking within two buildings, 25 private, on-street parking spaces, and 40 public on-street parking spaces on a combined 7.2-acre site located within the Transit Center Village planning area. 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; and 5) Adopt the following Resolutions: a) Resolution recommending that the City Council adopt an Ordinance approving a Stage 1 Development Plan Amendment and Stage 2 Development Plan for the Avalon Bay Communities Dublin Station project on Site C of the Dublin Transit Center: and b) Resolution approving Site Development Review and Vesting Tentative Tract Map 7929 for Avalon Bay Communities, Site C, Dublin Transit Center; and c) Resolution recommending that the City Council adopt an Ordinance approving a Development Agreement for Dublin Station, Site C, Dublin Transit Center, Avalon Bay Communities. Submitted By: Consulting Planner COPIES TO Applicant File R vi wed By Planning Manager Page 1 of 11 G:1PA#12006106-060 Dublin Transit Center Site C1PC Mtg 3.22.11 (2)IPCSR 3 22 11 (2). doc ITEM NO.: PROJECT DESCRIPTION: Location & Existing Use Site C is a 5-sided site located immediately north of the BART station underpass entry. The site is located within the loop area at the intersecting terminus of the two streets providing access to the BART station. These streets are Iron Horse Parkway to the east and Demarcus Boulevard to the west. Site C is comprised of two legal parcels (Sites C1 & C2) of approximately 3.6 acres each divided by a north-south spine or corridor shown on the plan as Hamlet Lane. C-1 is to the west and C-2 is to the east (see Map 2 below). The site currently is used as a surface parking lot of approximately 1,086 spaces for the BART station. These spaces will be eliminated as the 1,528-space BART station parking structure was built to free Site C for development. Additionally, there are 295 BART surface parking stalls located adjacent to the BART garage and in an open lot west of DeMarcus Blvd. Once this project is constructed, there will be 1,528 parking structure spaces and 295 surface parking stalls to serve BART. Y H id@ ? C Avalon at Dublin Station Metropolitan Future Office Future Hotel PROJECT Surrounding Uses Map 1 - Aerial Photo Project Site Uses surrounding and adjacent to the project site are described as: a) To the north: High density residential and mixed use projects (Elan and Avalon Bay) located across from the project site by a village green/community greenbelt, known as Campbell Green; b) To the southeast: Recently completed BART Station parking structure and bus parking along the opposite side of Iron Horse Parkway; c) To the east: Planned for hotel and/or office use but currently vacant; d) To the south: BART Station and underpass beneath the 1-580 right-of-way to the BART station platform; and e) To the west: Open-air bus terminal, surface parking, and a Pacific Gas & Electric power substation. 2 of11 Background The Planning Commission, at a Study Session on December 9, 2008 reviewed the project and referenced various concerns. (See Attachment No. 1, Planning Commission Study Session Minutes and Attachment 2, Planning Commission Staff Report of September 14, 2010, pages 9 and 10 which describe items discussed at the Study Session). The Planning Commission, at their meeting of September 14, 2010 reviewed and recommended that the City Council approve a Stage 1 Development Plan Amendment, a Stage 2 Development Plan, and a Development Agreement and also approved a Site Development Review and a Vesting Tentative Tract Map for a residential project. Attachment 2 is the Staff Report from the September 14, 2010 Planning Commission meeting and Attachment 3 are the Planning Commission minutes of that meeting. However, prior to Council taking action the Applicant requested that the project be held in order to consider potential amendments to the overall project. The Applicant subsequently modified the proposed project. The Applicant made substantive changes to the project which requires review by the Planning Commission. The following table illustrates a comparison of the original project and the currently proposed project. Comparison Table PC Approved 9-14-10 Proposed # of Units 486 505 Retail 4,192 s ft 0 Amenity Space 7,390 s ft 4,223 s ft Fitness center Parkin Structure 751 Stalls 733 Stalls Private On-Street Parkin 25 Stalls 25 Stalls Public On-Street Parkin 40 Stalls 40 Stalls Storage (Group) 27,865 s ft 10,917 s ft ANALYSIS: The changes to the proposed project involve the Site Development Review, the Vesting Tentative Tract Map, the Stage 1 Development Plan Amendment, the Stage 2 Development Plan and the Development Agreement which were previously reviewed by the Planning Commission. The following is a discussion of the proposed changes to the previously requested entitlements. Please refer to the Planning Commission Staff Report dated September 14, 2010 (Attachment 2) for a complete discussion of the project. Stage 1 Development Plan The Applicant is proposing an amendment to the Stage 1 Development Plan, approved in 2002 through Ordinance 21-02 for the entire Dublin Transit Center. The Amendment would increase the number of units allowable on Site C from 405 to 505. In order to not increase the allowable number of units in the overall Transit Center, Alameda County Surplus Property Authority has agreed to reduce the number of allowable units on Site A from 530 to 430 (Attachment 4). The "Dublin Transit Center: Proposed Land Uses" chart found on page 1.13 of the Stage 1 Development Plan would be amended as follows to shift 100 units from Site A to Site C. The chart shows a strike out for the item to be changed and the revised number highlighted: 3of11 Dublin Transit Center: Proposed Land Uses Site Area Area GP/EDSP Max. Max. FAR Density FAR Density Ancillary Additional (gr.ac.) (net Land Use Sq. Ft. Units (gross) (gross) (net) (net) Retail Units ac.) Sq. Ft. A 10.92 8.29 High Density 530 49 64 Res 430 39 52 B 12.00 8.10 High Density 565 47 70 15,000 Res C 8.58 5.80 High Density _ 495 47 70 25,000 Res 505 59 87 D-1 3.50 2.50 Campus 190,000 1.25 1.74 7,500 150 Office D-2 17.32 12.10 Campus 950,000 1.26 1.80 Office E-1 6.28 4.10 Campus 300,000 1.10 1.68 15,000 150 Office E-2 11.20 7.70 Campus 560,000 1.15 1.67 Office F 12.20 8.73 Neighborhood Park P/SP 8.65 7.93 Public/Semi- 7,500 Public Total 90.65 65.25 2,000,000 1,500 70,000 300 Summa 90.65 65.25 a/b/c 31.50 22.19 High Density 1,500 48 68 40,000 Res We 38.30 26.40 Campus 2,000,000 1.20 1.74 22,500 300 Office F 12.20 8.73 Neighborhood N/A N/A Park p/sp 8.65 7.93 Public/Semi- N/A 7,500 Public Stage 2 Development Plan Most of the standards and requirements of a Stage 2 Development Plan required by Chapter 8.32.030 B. of the Zoning Ordinance were adopted in 2002 with the Stage 1 Planned Development Zoning for all of Dublin Transit Center. The Stage 1 Planned Development zoning established the permitted, conditionally permitted, and accessory land uses; site areas and proposed densities; maximum number of residential units and non-residential square footages; and a Master Landscaping Plan. The approved development standards contained in the Stage 1 Development Plan provide for development standards such as building height, number of stories, building setbacks and a parking ratio of 1.5 parking stalls per unit and suggested high-density residential development in 4 or 5 stories either over podium parking or with the units "wrapped" around the parking structures as is the case with this project and Avalon's first project. The adopted Planned Development zoning also limits ancillary retail and services to the ground floor frontage along Iron Horse Parkway. The proposed development of Site C complies with the Stage 1 Planned Development Zoning for the Dublin Transit Center as it is compatible with the Dublin Transit Center land use concept to maximize transit opportunities presented by the adjacent Dublin/Pleasanton Bay Area Rapid Transit (BART) Station and will contribute to an accessible and pedestrian-friendly environment in proximity to the BART Station. The Stage 2 Development Plan for Avalon Transit Center, Site C has been designed to be consistent with the Stage 1 standards as proposed to be amended. The proposed Site Development Plan is reflective of the Stage 2 standards in terms of lot area, lot dimensions, lot coverage, type and number of units, location and number of parking spaces, setbacks, architecture, and affordable housing. 4of11 A Resolution recommending the City Council adopt an Ordinance approving a Stage 1 Planned Development Amendment and a Stage 2 Development Plan is included as Attachment 5. Site Development Review The Site Development Review includes: site plan, architectural design, landscape plan, and streetscape improvements. The site layout and design is intended to create an image consistent with an urban lifestyle and encourage pedestrian circulation. Site Plan The overall site plan for the project will not change from the 2010 project. Please refer to the September 14, 2010 Staff Report (Attachment 2) for a discussion of the site plan. The additional units are all integrated within the existing structure by minor modifications to the building and tucking units up under roof elements in the previously approved building facades. (See Attachment 6, pages A-00.07, A- 10.01, A-20.01 L-2 and L-3) Architecture/Design Standards Lr-L ?. CAMPBELL GREEN i' L?_ -- -,J - I I 1 I I \ BUBAING CI `• '? BUILDING LY '/ ; Man 3: Proposed Site Plan WT PARKING! The Stage 1 Planned Development zoning adopted for the Transit Center Village addressed design standards for building heights, number of stories, building setbacks and parking ratio. The proposed architecture of the two structures is consistent with the Avalon and Horton projects constructed to date on Sites B-1 and B-2. Building exteriors have exterior articulation and variable color palette to minimize visual mass and scale. The proposed revisions from the 2010 project are revealed in the building elevations described below. For a detailed description of the architectural elements previously approved please see the Staff Report from the September 14, 2010 Planning Commission meeting (Attachment 2). Building Elevations The building elevations are mostly unchanged with the notable exceptions of the parking structure. Due to a redesign and the reduction of garage parking spaces, a large portion of the parking structures were able to be lowered for a portion of the elevation (Attachment 6 pages A- 01.01 and A-01.02). Where once there had been 5 bays of four-story architecture on the Iron Horse elevation, there are now 4 bays of four-story architecture and one bay of 5 story architecture. This adds to the roof articulation and provides additional undulation in the structure mass. A similar look is achieved on the DeMarcus elevation. The remaining changes to the architectural elevations as a result of accommodating the additional 19 units consist of varying the roof planes and making minor modifications to the building elevations (Attachment 6 pages A-30.03 thru 30.06). Refer to page 6 of the previous Staff Report for architecture discussion. ? LL?N CPMPBELL LANE TS` RT LA , . PG6E LARE4 Ng5TAT10 . AVALON DUBLIN STATION- SITE C YPFibh?Fii3 FMH M[fYVHnS `\ HORSE/ ??• TOF BW1 ` 1159g1N101F ?A9E GJCE?11M1NO WILL BENCCf40 A9 \? i ?ancoro.urcx?cwsBU.m . // ? ? - ?iPSEY:FiFtA44Ftl1VWl?] -- ? -- - BART STATION ENTRY moacr roeem?sw.crtow W,rs`sWnx?vrM nxmrc Bml rtr . 5of11 Floor/Unit Plans The proposed project continues to offers studio, one-bedroom, two-bedroom, and three-bedroom floor plans in different floor plan configurations that vary in size and layout depending on the placement of the units within each building. All plans are single level with the exception of the one two bedroom 2 story unit and one three bedroom 2 story unit in Building C-1 and 4 three bedroom 2 story units in Building C-2. The units would range in size from approximately 593 square feet for the smallest studio apartment to 1,558 square feet for the largest 3-bedroom unit excluding private decks, balconies, or patio areas. Decks occur on the 1, 2 and 3 bedroom plans. (See Attachment 6, pages A-22.01 through A-22.04) The Applicant has proposed to revise the floor plan in the plaza area facing the BART station. Previously this area was to house the Leasing Office and Fitness Center. The Applicant now proposes to reconfigure this area to living units, however, the overall look of the exterior of the units will continue to maintain the "commercial" look (Attachment 6 pages A-30.05). There is no change in the architecture. Additionally the area previously designated for the retail component at the northeast corner of the project at the intersection of Iron Horse Parkway and Campbell Green is proposed to be converted to the fitness center (Attachment 6 page 20.01). The architecture previously approved will not change in the Applicant's current proposal. The distribution of units by floor plan generally is shown in the following table: Table 1: Unit Total by Floor Plan Unit Size/# of bedrooms No. of Units % of Total Units ft Decks . ft. Studio 41 units 8.1 593-685 n/a One-bedroom 226 units 44.6 764-991 55 Two-bedroom 204 units 40.4 1066-1198 60 Three-bedroom 25 units 5.0 1331-1418 n/a 1 bedroom Loft 1 unit <1.0 1278 n/a 2 bedroom 2-story 1 unit <1.0 1388 55 3 bedroom 2-story 7 units 1.4 1558 60 Total 505 units 100% A total 438 units (or 87%) have some private open space in the form of decks, balconies, or patios ranging in size from approximately 55 square feet to 60 square feet. The overall massing of the structure has changed very little. In order to add the additional 19 units space was utilized that was from previous retail use and grouped storage. The group storage is now 10,917 square feet where the previous square footage was 27,865. Ancillary Retail/Commercial Space The Stage 1 Development Plan for the Dublin Transit Center notes that "ancillary ground floor retail and service uses are strongly encouraged" and "Up to 70,000 square feet of ground floor retail and service uses could be incorporated into the residential .... fronting on Iron Horse Parkway as long as the overall densities are not exceeded." The Stage 1 PD allows a maximum of 25,000 square feet of commercial space in the project site. The Site C project that was previously reviewed by the Planning Commission included 4,192 square feet of commercial space. However, the inability to lease the existing retail/commercial space (12,750 sq ft) in Avalon's existing project has prompted the Applicant to eliminate the ancillary commercial space from the proposed project on Site C. The Applicant has not altered the architectural character significantly of the buildings facing the central plaza or Iron Horse Parkway where the retail 6 of11 space was originally located. At the intersection of Campbell Green and Iron Horse the project incorporates a 4,223 square foot Fitness Center which gives the visual impression of commercial space. Additionally, the conversion of the retail space to residential uses facing Iron Horse Parkway and the central plaza will maintain the commercial architectural look (Attachment 6 pages A-0.1.01, A-01.03, A-01.04 and A-01.05.). Access and Circulation Access and circulation has not changed from the previous approval. See Attachment 2, Page 7, for a complete description of the access and circulation for this site. Parking The Planned Development zoning for the Transit Center Village established a standard of 1.5 spaces per unit and 1 space per 1,000 square feet of commercial space. Based on this standard, a total of 758 parking spaces are required (Please refer to Table below). The Fitness Center has not been assigned a parking standard because the Fitness Center will be used by residents or their guests. The project provides 758 spaces which include: 733 spaces in the two 4 and 5-level parking structures, and 25 spaces on private streets along Campbell Lane and Hamlet Lane. Over all, available parking within the structures and along the perimeter of the project will satisfy the parking requirements of 1.5 spaces per unit adopted as part of the Transit Center Village master plan. Therefore, the project meets the requirements of the Planned Development. In addition, there are 40 public streetside parking spaces adjacent to the project on Iron Horse Parkway and DeMarcus Blvd. PARKING Ratio Units/S Ft Required Provided +/- Residential (garage) 1.5 Sp/Unit 505 758 733 1.45 -25 Private On-Street n/a 25 +25 Public On-Street n/a 40 +40 TOTAL PARKING 758 798" +40 'The proposed project meets the parking requirement established by the Planned Development Zoning even though the overall number of parking spaces has been reduced from the original project as identified in the comparison table on page 3 of this Staff Report. Most of the resident parking will be behind automatic gates. Open unrestricted parking will be available for guests in the parking structures as well as parking along the public and private streets. Parking restrictions as to allowable hours the stall can be used will be imposed on the public and private streets in the same manner now incorporated adjacent to the existing Avalon and Elan project. Streetscape, Landscaping and Fencing Minor modifications are being proposed to the Landscape Plan, primarily at the central plaza facing BART. The Applicant has replaced the commercial square footage with residential units. In order to provide separation between the residential units and pedestrians using the plaza, the landscape architect has designed low walls and landscape buffers adding to the landscape feel of the plaza (Attachment 6 page A-00.07, A-00.08 and L-4). The additional landscape is consistent with the previously approved landscape pallet which in turn mirrors the landscape 7of11 pallet for the existing Elan and Avalon projects in the Transit Center as well as conforming to the Stage 1 Development Plan. The preliminary landscape plan for Site C was prepared by The Guzzardo Partnership, Inc. in accordance with the Dublin Zoning Ordinance and the Dublin Transit Center, Stage 1 Development Plan. Please refer to Attachment 2, for a detailed description of the landscaping for this site. Since the previous project approval, the Applicant has agreed to name the central plaza facing BART for Peter W. Snyder. Peter W. Snyder was on the City Council from 1982 to 1994. He was Mayor from 1982-1986, and again from 1991 to 1994 (first directly elected Mayor in 1992). Mr. Snyder was a BART Director from December 1996 through December 2004. A specific Condition of approval has been added memorializing this agreement with specifics regarding construction and timing. (See Attachment 7, Condition 34). Conditions of Approval Attachment 7 contains the Conditions of Approval for the Site Development Review and Vesting Tentative Tract Map for this project. Condition 15 has been slightly modified pertaining to the provision of inclusionary housing. Condition 34 has been added regarding the naming of Peter W. Snyder Plaza. All other Conditions of Approval contained in Attachment 7 remain the same except where more current dates and references to new drawings are needed as well as statements acknowledging that this approval supersedes the Planning Commission approval of September 14, 2010. Affordable Housing The affordable units provided would be in conformance with requirements of the Inclusionary Zoning Ordinance, as well as the terms of the Master Development Agreement as it pertains to the provision of moderate income units within the Dublin Transit Center. In accordance with the Master Development Agreement, the Applicant would provide 10% of the 505 units proposed as affordable to moderate level income households. Additionally, the obligation to provide affordable units has been incorporated in the Development Agreement (Attachment 8, Exhibit B) Vesting Tentative Tract Map 7929 Although the project is proposed for occupancy as apartments, a Vesting Tentative Tract Map is being processed to provide for condominium development. The project will be constructed to condominium standards (Attachment 6 pages 1 through 7). Please see Attachment 7 (Pages 16-24) for Conditions of Approval specific to the Vesting Tentative Tract Map. Development Agreement Projects within the Eastern Dublin Specific Plan (EDSP) require a Development Agreement between the City and the Developer. California Government Code §§ 65864 et seq. and Chapter 8.56 of the Dublin Municipal Code (hereafter "Chapter 8.56") authorize the City to enter into an agreement for the development of real property with any person having a legal or equitable interest in such property in order to obtain certain commitments and establish certain development rights for the property. The Development Agreement must be approved prior to recordation of the final Tract Map and issuance of building permits for the development of the property. The previously approved Development Agreement has been modified to provide minor revisions regarding inclusionary housing and is included herein for Planning Commission review (Attachment 8, Exhibit B). 8ofII A Planning Commission Resolution recommending the City Council adopt an Ordinance approving the Development Agreement between the City of Dublin and Avalon Bay Communities, Inc. is included as Attachment 8 with the draft Ordinance attached as Exhibit A and the Development Agreement attached as Exhibit B. CONSISTENCY WITH THE GENERAL PLAN, SPECIFIC PLAN AND ZONING ORDINANCE: The area within the proposed project is designated High Density Residential in the General Plan and the Eastern Dublin Specific Plan. The site is zoned PD High Density Residential. Ordinance 21-02 (PA 00-013) approved in 2003 established the Stage I Planned Development zoning and Development Standards. The current Stage 1 Development Plan Amendment, Stage 2 Development Plan, SDR and Vesting Tentative Tract Map request would be consistent with the General Plan land use designation and Planned Development zoning as amended. The proposed project has been reviewed for conformance with the Community Design and Sustainability Element of the General Plan and correlations to several salient points in the Community Design and Sustainability Element were referenced in the previous Staff Report (Attachment 2). The project itself is a portion of the larger Transit Center project already approved that has implemented pathways, gathering spaces, open spaces, and a village concept which is further defined and accentuated by this development. Avalon Bay Communities is furthering the goals of the Community Design and Sustainability Element of the General Plan by providing a high quality of life, interesting and unique urban open spaces and gathering places and preserving resources and opportunities for future generations. REVIEW BY APPLICABLE DEPARTMENT AND AGENCIES: The Building Division, Fire Prevention Bureau, Public Works Department, Dublin Police Services and Dublin San Ramon Services District reviewed the project and provided Conditions of Approval where appropriate to ensure that the Project is established in compliance with all local Ordinances and Regulations. Conditions of Approval from these departments and agencies have been included in the attached Resolution (Attachment 7). 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 project to advertise the project and the upcoming public hearing. A public notice was also published in the Valley Times and posted at several locations throughout the City. ENVIRONMENTAL REVIEW: The project proposes to amend the existing Dublin Transit Center Stage 1 Development Plan by transferring 100 units from Site A to Site C. Both sites are designated for high density residential and the total number of residential units across the Dublin Transit Center would not increase. The Project is within the scope of the Final Environmental Impact Report for the Dublin Transit Center General Plan Amendment, Eastern Dublin Specific Plan Amendment, Stage 1 Planned Development Zoning, Tentative Parcel Map, and Development Agreement (SCH 2001120395) which was certified by City Council Resolution No. 215-02 dated November 19, 2002. The proposed Stage 1 Development Plan Amendment, Stage 2 Development Plan, Site Development Review, Vesting Tentative Map and Development Agreement are not a substantial change in the project or project circumstances, and do not constitute new information of substantial importance requiring subsequent or supplemental review under CEQA 90f 11 section 21166 and related Guidelines sections 15162 and 15163. Therefore, pursuant to the California Environmental Quality Act, the proposed project may be found to be exempt from CEQA pursuant to Government Code section 65457 for residential projects that are consistent with a Specific Plan for which an EIR was certified. No further environmental review is required. ATTACHMENTS: 1) Minutes from Planning Commission Study Session on December 9, 2008. 2) Planning Commission Staff Report - September 14, 2010. 3) Planning Commission Minutes - September 14, 2010. 4) Letter from Alameda County Surplus Property Authority. 5) Resolution recommending that the City Council adopt a Stage 1 Development Plan Amendment and Stage 2 Development Plan for the Avalon Bay Communities Dublin Station project on Site C of the Dublin Transit Center with the Draft Ordinance included as Exhibit A. 6) Project Plans, Avalon Dublin Station, Site C Stage 2/SDR Revisions, March 22, 2011. 7) Resolution approving Site Development Review and Vesting Tentative Tract Map 7929 for Avalon Bay Communities, Site C, Dublin Transit Center. 8) Resolution recommending that the City Council adopt an Ordinance approving a Development Agreement for Dublin Station, Site C, Dublin Transit Center, Avalon Bay Communities with the Draft Ordinance attached as Exhibit A and the Development Agreement attached as Exhibit B. 10 of 11 GENERAL INFORMATION: PROPERTY OWNER/APPLICANT LOCATION: EXISTING ZONING: GENERAL PLAN DESIGNATION & EASTERN DUBLIN SPECIFIC PLAN: Avalon Bay Communities, Inc. 400 Race Street, Suite 200 San Jose, CA 95126 Northeast of Demarcus Boulevard, northwest of Iron Horse Parkway, and south of Campbell Green (village greenbelt) and the extension of Campbell Lane [the extension of Martinelli Way] APN: 986-0034-005-02 Parcels 2 & 3 of Parcel Map 7893 PD-High Density Residential High Density Residential 11 of 11