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HomeMy WebLinkAbout8.3, Attch 1 March 1, 2011 CCrpt w/o AttchmentsG~~~ OF pp~`~ti i9~~~~ez STAFF REPORT ~ CITY C L E R K ``~~.1~~ DUBLlN CITY COUNCIL File # ^©®®-[~© GIFOR~ DATE: March 1, 2011 TO: Honorable Mayor and City Councilmembers FROM: Joni Pattillo, City Manager SUBJ Sustainable Neighborhood Design Strategy Prepared By: Kristi Bascom, Principal Planne~~ EXECUTIVE SUMMARY: The City of Dublin .has taken an active role in promoting environmental sustainability with initiatives such as the Green Building Ordinance and the City's recent adoption of a Climate Action Plan. In this report, Staff is presenting: the City Council with various options for implementing a "Sustainable Neighborhood Design Strategy," which would enable and promote sustainable site design and planning for the street, land use, and open space patterns for neighborhoods in Dublin. FINANCIAL IMPACT: None at this time. RECOMMENDATION: Staff recommends that the City Council: 1) Confirm Staff's recommendations on the elements of the Draft Sustainable Neighborhood Design Strategy, the applicability of the Sustainable Neighborhood Design Strategy; the methods of implementing, and adopting the Sustainable Neighborhood Design Strategy; or 2) Provide other direction. , S bmitted By: Community Development Director Revi By: Assistant City Manager Page 1 of 10 ITEM NO. ~ ~ 2 ATTACHMENT 1 DESCRIPTION: Background sustainability, green design, and improving public health are some of the key topics being discussed by cities and developers today. A City's land use, street, and neighborhood design patterns create a particular physical reality and compel behaviors that have a significant effect on the environmental performance of any given place. When a neighborhood has~a robust network ~ of internal streets and good connections to surrounding neighborhoods and communities, pedestrians, bicyclists, and drivers can move efficiently and safely. Vehicles are driven less, air quality improves, human health improves, and the overall sustainability of a community improves too. On December 21, 2010 City Staff presented a report to the City Council on developing a "Sustainable Neighborhood Design Strategy" (Attachment 1). Staff described the Sustainable Neighborhood Design Strategy (SNDS) as a policy document that would outline the desired components of a sustainable neighborhood, such as a connected street pattern and land use plan, green infrastructure and buildings, and a {inked open space network. A SNDS could also include a set of performance standards designed to measure the sustainability of .a proposed neighborhood, much like the City currently uses the GreenPoint Rated Checklist for measuring the environmental efficiency of new residential buildings. Staff also presented the City Council ' with information on one of the predominant rating systems to measure the sustainability level of new' neighborhoods: the U.S. Green Building Council's Leadership in Energy and Environmental Design for Neighborhood Development (LEED-ND). The City Council directed Staff to further develop a Sustainable Neighborhood Design Strategy and to return to a future meeting with a report on policy alternatives to consider (Attachment 2).. The City Council directed Staff to return with a report that includes the following information: 1. Recommendation on how a Sustainable Neighborhood Design Strategy could work and how LEED-ND standards, or other sustainable neighborhood programs, could be integrated into the policy; 2. Recommendation on how a policy could be implemented; 3. Recommendations on which types of development could be subject to compliance with a policy; 4. Recommendations for public outreach to review the concepts being considered; 5: Provide examples of Sustainable Neighborhood/LEED-ND projects in other communities and showcase best practices; and 6. Provide options for incentivizing compliance with a policy. ' ANALYSIS: "Sustainable Neighborhood" Programs Several certification programs have emerged to rate the sustainability of mixed-use, neighborhood and community-scale developments-addressing a wider range of issues than previous rating systems for individual buildings. These broader-scale certification programs include LEED-ND, One Planet Communities, and the Living Building Challenge. Both One Planet Communities and the Living Building Challenge are international programs that focus heavily on reducing the ecological footprint of new development and minimizing carbon output. LEED-ND is specific to development in the U.S. and is the most relevant standardized rating system for our purposes because it covers the five topic areas noted below. Page 2 of 10 LEED for Neighborhood Development ' The LEED-ND framework identifies those components of a sustainable neighborhood that are most critical and awards points to those project components that meet the standards. The LEED-ND rating system awards points in five main categories: 1. Smart Location and Linkage encourages communities to consider location, transportation alternatives, and preservation of sensitive lands. . 2. Neighborhood Pattern and Design emphasizes vibrant, equitable communities that are healthy, walkable, and contain a mixture of land uses. 3. Green Infrastructure and Buildings promotes the design and construction of buildings and infrastructure that reduce energy and water use, while promoting more sustainable use of materials, reuse of existing and historic structures, and other sustainable best practices. 4. Innovation and Design Process recognizes exemplary and innovative performance reaching beyond the existing credits in the rating system, as well as the value of including an.accredited professional on the design team. 5. Regional Priority encourages projects to focus on earning credits of significance to the project's local. environment. The. LEED .for. Neighborhood Development rating system was introduced asp a pilot project in 2009. There are ~~several projects in the Bay Area that are in one of the three stages of certification for LEED-ND. A sampling of these projects include the 14 acre high=density ".Emeryville Marketplace" mixed-use community with 674 multi-family residential units, 180,000 sq. ft.. of retail, 120;000 sq.. ft. of office, parking garages, and open space .in Emeryville, California and the 42-acre "Hercules Bayfront", which will transform a former dynamite manufacturing site into a transit-oriented, .mixed-use waterfront community with. 1,400 residentia{ units, 115,000 square feet of retail and restaurant space, 224,000 square feet of office/commercial flex space. Another example of a LEED-ND certified neighborhood is the 200-acre Sonoma Mountain Village, which is a mixed-use residential and commercial, solar- powered, zero-waste community under development in Rohnert Park. Applicability to Dublin The LEED-ND framework encompasses a wide range of subject areas. Several of the sustainable neighborhood concepts outlined in the LEED-ND rating system are already in place in the City of Dublin: ''Concepts such as prioritizing higher density development near transit (LEED-ND's Smart Location and Linkage category) and promoting the design of buildings and infrastructure that reduce energy and water use (LEED-ND's Green Infrastructure and Buildings category) are already priorities in Dubin. The one LEED-ND category where the City does not currently have specific standards is Neighborhood Pattern and Design, which focuses on the physical layout of development sites. There are other cities and counties throughout the country that have developed their own sustainable rating systems and policies through which they can assess new development in lieu of using a standardized system such as LEED-ND. These programs were developed to be specific to the geographic region as well as the community's specific concerns and interests. A sample of these programs include: The City and County of San Francisco instituted a set of sustainability standards and a "Healthy Development Measurement Tool" to gauge new development; Page 3 of 10 • The City of Greensburg, Kansas has developed a full set of Sustainable Development Code Standards that implement the policies contained in their Sustainable Comprehensive Plan; and • The City of Richmond, California adopted a set of 15 Community Principles related to development in their community that focus on how to plan neighborhoods that will more successfully serve the needs of. those who live and work within them. Instead of adopting the full LEED-ND rating system and standards in Dublin, Staff recommends that the City focus on developing a Sustainable Neighborhood Design Strategy that is specific to this City. Dublin's Sustainable Neighborhood Design Strategy would contain only those policy categories where we do not already have existing guidance. Staff is proposing a Sustainable Neighborhood Design Strategy specifically to guide the development of neighborhood street patterns, land use patterns, and use of open spaces to create opportunities for residents and workers to walk, cycle, and use alternative modes of transportation in the community. Best Practices in Sustainable Neighborhood Design Dublin already has examples of residential~•and commercial neighborhoods that have good neighborhood street patterns, land use patterns, and good use of open spaces, including: 1. Emerald Glen Park/Dougherty Elementary neighborhood ,This roughly 275- acre neighborhood ~ ~. is well-served with . an interconnected street pattern and a combination of land uses that are well- located. The streets serving the area are sufficiently sized for vehicular traffic yet also safe and comfortable for pedestrians and cyclists. There are wide, separated sidewalks and off- street trails. Many of the cul-de-sacs ~+ . '. . in the area are open and passable for kids walking to school or to the park. Waterford Shopping Center is accessible to pedestrians from all sides and has wide sidewalks and pathways for strolling and dining. Page 4 of 10 2 Sorrento in Dublin Ranch ~ + : ~~ ~ • ~ 4=~ ~ y ` ~ "-~ ` ~~.1 `K This approximately 110-acre _~ j.~ ~ _ neighborhood is still under -~0 ; '~< . :. '~~, _- ' ; ; ~ r , ~ ~~ development but is partially i ~~,, f ~ ' __ - '_ ~- „i ~. occupied by new residents. The ~ =~~'"" Gleason Road " ~ ± ,~ ~'' ~:~~ ~' ' ~ ~ ~ ~~ eastern ortion of Sorrento with ~ '~~ ~ ; the future park and Kolb School, ~ : ~~ }; ~~~ ~_ f. ~~~, ~~F.Y, t , ~.~ will be built next (the western half ~, ,.,.: ~,~,~. is shown to the ri ht . The whole ~ °' - ~ ~ ~`~~ neighborhood is interconnected ~ ~.~ _ ~*,/ ~ ~~-f ~° « ~ ~ ~ ~- Piazza ~--x~. with an open space spine that .a i . ~=- ' „~~,~ ; ~-' _- Sorrento aid ~-~~~`, runs east to west connecting the ~ ;~ N•c , ~?~" '' ~ ~ Community ': ~ ~- -°~ neighborhood square, °0 ~_ a' ~' ~~ Building ~ ~'°a~, r r t .. community center, community '~ " ,h.-, ' ~ = ' ~°=~.~. ~ r pool, future neighborhood park, ~x ~ ' ' ~~_ . ~-;"~'~ , „ and Kolb School. A grade- £~ . ,~...~,;,, ~. ~ .~ separated pedestrian bridge - _ ~~' `' v'~'~ " - ~ .~ ,. ~ ~ connects the east and west ; C~ntrat Parkway. i_ _ ,,~ ,~ lt~., neighborhoods together, and the _ r!~'~,, '' ~~ _ _ -~, street network allows ~-:.~~ ~` ~"~, '~ ~~ ~; ~ ' '~ t ~ pedestrians and cyclists to move ~ - '~ ~ ''~ = - ~ ' ~" through and around the community with less vehicular interaction. The neighborhood within walking distance of the future Promenade / Grafton Street commercial area. is also In the above examples, good street patterns, land use patterns, and use of open spaces in these neighborhoods were achieved. Staff proposes establishing standards to ensure that future development meets this baseline standard for successful neighborhood pattern and design. Staff's recommended Sustainable Neighborhood Design Strategy is described in the following section. Sustainable Neighborhood Design Strategy (SNDS) Instead of relying on an existing rating system with broad standards that cover many categories (such as LEED-ND), Staff proposes to create a program of standards for new development that is tailored to address only those categories where Dublin does not already have guiding policies. Staff recommends developing a Sustainable Neighborhood Design Strategy specific to the needs of the Dublin community that is divided into three categories: Street Patterns and Design, Land Use Patterns and Design, and Access to Schools. The goals of the proposed Sustainable Neighborhood Design Strategy are to: • Create neighborhoods with a robust network of internal streets and good connections to surrounding neighborhoods where pedestrians, bicyclists, and drivers can move efficiently and safely. • Promote walking and cycling by providing safe, appealing, and comfortable street environments that support public health by reducing pedestrian injuries and encouraging daily physical activity. • Improve physical and mental health and social capital by providing a variety of open spaces (public and private) close to work and home to facilitate neighborhood Page 5 of 10 connectivity, social networking, civic engagement, physical activity, and time spent outdoors. Staff has prepared a Draft Strategy, which is included as Attachment 3 to this Staff Report. The Draft Strategy includes a menu of goals, policies, and standards to address sustainability in neighborhood pattern and design. The Draft SNDS includes policies that provide a baseline standard for future neighborhood development in Dublin. By setting expectations, standards, and a means by which to achieve these goals and assess sustainable site design, the City will encourage early cooperation and involvement .between the City and the property owner/developer in the site planning process. Identifying sustainable standards outlines the City's expectations and also demonstrates a commitment to sustainable neighborhoods that could open up opportunities for future grant funding to implement plans as well as the potential for local, regional, or national recognition of the proposed project. Staff is seeking feedback from the City Council on the goals, policies, and standards included in the Draft Strategy (Attachment 3). Applicability of a Sustainable Neighborhood Design Strategy Staff recommends that a Draft Sustainable Neighborhood Design Strategy be applied to the. following types of projects: ~ ~ ~ ` ;~ :. .~ ' 1. General Plan and Specific PIan.Amendments, new Specific Plans; 2. Annexations; 3. New Stage 1 and/or Stage 2 Planned Development Rezones. Minor amendments to an existing Stage 2 Development Plan would be exempt from compliance with the Draft Strategy; 4. Rezoning applications; and ~ ' 5. Any subdivision of property or other new development that creates new streets without changing the applicable land use designation would need to comply with all policies and standards contained in Policy Section One (Street Patterns and Design) of the Strategy. Developers typically spend large sums of money. to obtain entitlements to develop their property. For example, a Stage 1 Development Plan outlines the basic development parameters including maximum densities.. and. permitted. uses, but does not contain .detailed land use plans. A Stage 2 Development Plan requires design work, detailed land plans with street networks, and drawings that illustrate the proposed development. A developer invests a considerable amount of time and money to obtain this level of entitlements. Therefore, projects with this level of entitlements and projects which are close to achieving this level of entitlement are not recommended to be subject to compliance with the Draft Strategy. Projects that would be subject to compliance with the Draft Strategy include those project types listed above for properties that do not have a current Planning Application on file. These future projects include Area B in Dublin Ranch, several properties in Fallon Village (Croak, Chen, and Anderson -commercial portion) and properties near Dublin's northern border along Tassajara Road (Tipper, Fredrick, and Vargas). In addition, as noted above, the approved projects that request a General Plan Amendment or rezone, would be subject to compliance with the SNDS. Page 6 of 10 There are several other properties in Dublin that are in different stages of project review, organized into three categories below: First, there are two projects that have Pre-Applications on file with the City, but where there is no current activity on the application, as described below: Pro'ect Name Current Entitlements A lication Status Righetti Approved Planned Pre-Application on file since 2006 for a Tentative Development Zoning Parcel Map and Planned Development Rezoning with with a Stage 1 a Stage 2 Development Plan. Tentative Parcel Map Development Plan. approved in 2007. No plans have been submitted for the Sta e 2 Develo meat Plan. Dublin Land Approved Planned General Plan. Amendment Study initiated in 2004. Company Development Zoning Various Pre-Applications have been submitted and with a Stage 1 withdrawn over the years for different project Develo ment Plan. conce ts. No current tans on-file. Staff recommends that both of the above projects be subject to compliance with the Draft Strategy. Second, there.. are two projects that have existing applications for General Plan Amendment studies that are at the very beginning of the entitlement. process. Both.The Preserve (Doolan Canyon) and Dublin Crossings (Camp Parks) have initiated General Plan Amendment studies, - but the environmental analysis for the projects have not yet begun, detailed land plans have not been submitted, and therefore the detailed analysis ~of potential land plans, street networks, and open space networks are not yet underway: Neither of these projects has vested entitlements and is in'the very early stages of the City process, as described below: Pro'ect Name Current Entitlements A lication Status Dublin Crossing None General Plan Amendment Study initiated in 2003. A (Camp Parks) Planning Application has been received, but no detailed plans for evaluation. Future applications will include a General Plan land use plan, New Specific Plan, Proposed Rezoning plans, Tentative Subdivision Map(s), Development Agreement(s), and applications for annexation to local utility/service roviders. The Preserve None General Plan Amendment Study initiated in 2010. (Doolan Canyon) The current application includes a General Plan Amendment for a Sphere of Influence adjustment. Future applications could include an annexation, a Specific Plan Amendment or New Specific Plan, Zoning, Tentative Subdivision Map(s), and Develo ment A reement s . Staff recommends that both of the above projects be subject to compliance with the Draft Strategy. Third, there are two other projects that have existing applications for General Plan Amendment studies and/or Planned Development Rezones, and are much further along in the entitlement Page 7 of 10 process. Jordan Ranch (Phase 2) and Positano have current development applications underway for General Plan and Specific Plan Amendments and Stage 1 and Stage 2 Planned Development Rezonings. Both of the current applications include modifications to a previously- approved project, as described below: Pro'ect Name Current Entitlements A lication Status Jordan Ranch Approved Planned General Plan Amendment Study initiated in 2011 (Phase 2) Development Zoning to change the land use designations for a portion with a Stage 2 of the project site. Future approvals include a Development Plan, General Plan Amendment, Specific Plan Tentative Subdivision Amendment, Planned Development Rezoning, Map, and Development Site Development Review, and possible Tentative Agreement that vests Subdivision Map amendments. the existin entitlements. Positano Approved Planned General Plan Amendment Study initiated in 2011 Development Zoning to change the land use designations fora 2.5- with aStage 2 acre portion of the project site. Future approvals Development Plan, include a General Plan Amendment, Specific Plan Tentative Subdivision Amendment, Planned Development Rezoning, Map, and Development Site Development Review, and possible Tentative Agreement that~.vests Subdivision Map amendments ~ '' the. existin entitlements. Compliance with the Draft Strategy for these two projects, and any others at a similar stage of planning approval, is not proposed. Options for Implementation and Incentives For those projects to which the Strategy is applicable, the City could require compliance with the Sustainable Neighborhood Design Strategy in its entirety or in part. The City Council could consider using a "scorecard" method that would require compliance with a minimum percentage of the Strategy, which would allow a greater degree 'of developer discretion, and could offer incentives for full compliance. If the City Council directs Staff to pursue a "scorecard" method of implementation, Staff will examine if there are feasible incentives that can be offered to achieve full compliance with the Strategy. However, because the Sustainable Neighborhood Design `'Strategy, as proposed, contains the basic requirements to create a sustainable neighborhood, it is Staff's recommendation to require compliance with the Strategy in its entirety for those projects to which the Strategy is applicable. Options for Adopting the Strategy The following are three possible methods in which a Sustainable Neighborhood Design Strategy could be adopted by the City Council. Each of these options would require follow-up General Plan Amendments to the Circulation and Scenic Highways Element (for changes to the adopted standards for roadway configurations). 1. Adopt as a stand-alone policy document (similar to the Public/Semi-Public Policy adopted in 2004); 2. Adopt as a new Ordinance/Municipal Code chapter (similar to the Green Building Ordinance); or Page 8 of 10 3. Amend the Community Design and Sustainability Element of the General Plan to include the additional goals and policies. A stand-alone policy document is easier to adopt and modify if the City Council so desires. However, astand-alone policy does not have the same strength as an ordinance or a General Plan-level policy. This policy-level approach provides the City Council with the most flexibility in implementing the policy as well as making exceptions to the policy as desired. An ordinance would become part of the Municipal Code, and any deviation from compliance with the ordinance would require official action by the City to grant exceptions from the ordinance on a case-by-case basis. If changes were proposed to the Strategy, a Zoning Ordinance Amendment would be required. The Community Design and Sustainability Element of the General Plan includes policy-level guidance for new development in' Dublin, and all projects are subject to consistency with the General Plan. The Community Design and Sustainability Element of the General Plan already contains Section 10.7, Design of the Built Form, and• the specific standards of the Draft Strategy naturally fit as an extension to this section. If changes were proposed to the Strategy, a General Plan Amendment would be required. Staff .recommends that the .Sustainable Neighborhood; Design Strategy be adopted as an amendment to the Community Design and. Sustainability.Element of the General Plan. Public Outreach Once the City Council provides direction on the goals, policies, and standards proposed in the Strategy, Staff proposes to meet with the development community to present the Draft SNDS and. receive their feedback. Feedback from the development community will be presented to the City Council along with Staffs recommendation on the final Strategy language at a future. City Council meeting. • RECOMMENDATION: Staff is making the following recommendations on the Sustainable Neighborhood Design Strategy, as discussed in this Staff Report. ' ~ 1. Draft Sustainable Neighborhood Design ~Strategy.' Staff recommends that the Draft . Sustainable Neighborhood Design Strategy contain the goals, policies, and standards as outlined in Attachment 3. 2. Applicability of a Sustainable Neighborhood Design Strategy based on project type. Staff recommends that the Draft Strategy apply to: • New General Plan and Specific Plan Amendments, new Specific Plans; • Annexations; • New Stage 1 and/or Stage 2 Planned Development Rezones; • Rezoning applications; and • Any subdivision of property or other new development that creates new streets without changing the applicable land use designation would need to comply with all policies and standards contained in Policy Section One (Street Patterns and Design) of the Strategy Page 9 of 10 3. Applicability of a Sustainable Neighborhood Design Strategy to actual protects. Staff recommends that the Draft Strategy apply to: Projects that have Pre-Applications on file with the City, but where there is no current activity on the application (e.g. Righetti, Dublin Land Company); and Projects that have existing applications for General Plan Amendment studies that do not have land plans on file and are at the very beginning of the entitlement process (e.g. Dublin Crossing, The Preserve). 4. Implementation and Incentives. Staff recommends that the Draft Strategy apply in its entirety, not partial compliance. 5. Adopting a Draft Strategy. Staff recommends that the Draft Strategy is adopted as an amendment to the Community Design and Sustainability Element of the General Plan. NEXT STEPS: Once direction is provided by the City Council on the recommendations above, Staff will: 1. Refine the Draft Sustainable Neighborhood Design Strategy to incorporate direction from the City Council; ~,; 2. Meet with the.development community to present Draft Sustainable Neighborhood Design Strategy and receive their feedback; . 3. Prepare amendments to existing Planning Documents as necessary; and 4. Conduct.the appropriate level of environmental review; 5: Present the Draft Sustainable Neighborhood Design Strategy to the Planning ~~ Commission for recommendation to the City Council and then to' the City Council adoption/approval. NOTICING REQUIREMENTS/PUBLIC OUTREACH: A public notice is not required to seek direction from the City Council on proposed policy direction. Future reports that request the City Council to take action on policy recommendations will be _ .noticed as required by law and sent to members of Dublin's development community. . ATTACHMENTS: 1. City Council Staff Report dated December 21, 2010 2. City Council meeting minutes dated December 21, 2010 3. Draft Sustainable Neighborhood Design Strategy G:1PA#120101sustainable Neighborhoods Strategy\CC 3.1.2011\CCSR 03.01.2611.doc Page 10 of 10