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Home My WebLink About8.1 PCSR Iron Horse Nature Park & Open Sp PH 1``�CIS 82 STAFF REPORT I PLANNING COMMISSION DATE: September 10, 2013 TO: Planning Commission SUBJECT: PUBLIC HEARING: PLPA-2013-00044 Iron Horse Nature Park and Open Space. General Plan Amendment and Planned Development Rezoning with a related Stage 1 and 2 Development Plan for a new public park Report prepared by Kristi Bascom, Principal Planner EXECUTIVE SUMMARY: The Planning Commission will review and make a recommendation to the City Council regarding a General Plan Amendment and Planned Development Rezone in order to facilitate the future development of the Iron Horse Nature Park and Open Space on approximately 35 acres of land north and south of Amador Valley Boulevard along the former Union Pacific railroad right-of-way. RECOMMENDATION: Staff recommends that the Planning Commission: 1) Receive Staff presentation; 2) Open the public hearing 3) Take testimony from the public; 4) Close the public hearing and deliberate; and 5) Adopt a Resolution recommending City Council Adoption of a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program for a General Plan Amendment and Planned Development Rezone with a related Stage 1 and 2 Development Plan for the future Iron Horse Nature Park and Open Space Project; 6) Adopt a Resolution recommending City Council Approval of a General Plan Amendment for the future Iron Horse Nature Park and Open Space Project; and 7) Adopt a Resolution recommending that the City Council adopt an Ordinance rezoning 12.13 acres of former Union Pacific Railroad right-of-way adjacent to the Iron Horse Regional Trail to a Planned Development Zoning District and approve the related Stage 1 and 2 Development Plan for the Iron Horse Nature Park and Open Space Project. V-o- S) 1 Submitted By eviewed By Principal Planner Assistant Community Development Director COPIES TO: File ITEM NO.: Page 1 of 9 G:IPA#120131PLPA-2013-00044 Iron Horse Park GPAIPC Mtg 09.10.20131PCSR.docx DESCRIPTION: Background The Parks and Recreation Master Plan outlines the City's standards for meeting the parks and recreation facilities needs for Dublin residents at the build-out of the General Plan. Based on the population projections, Staff believes that the City will have a citywide parkland deficit at build-out of approximately 12 acres. Therefore, City Staff have been examining ways to acquire additional parkland to continue to meet the standard of providing five acres of parkland for every 1,000 residents. The City Council entered into a Purchase and Sale Agreement to acquire two parcels of abandoned railroad right of way (ROW) from Union Pacific and developing 12-acres into a nature park and open space. The future park site is located north and south of Amador Valley Boulevard, adjacent to the Iron Horse Regional Trail and extends to the northern city limits and south to the Alamo Canal Trail. The proposed park site is vacant and was formerly a Union Pacific railroad track and, as such, is approximately 5,900 feet in length with a width ranging from approximately 100 to 150 feet. The tracks were located on a small berm in the approximate center of the site with embankments on either side leading to small depressions. A railroad trestle remains on the site from the previous railroad use. The site is bounded to the east by land owned by Alameda County, which has an easement for the Kinder Morgan pipeline. To the west of the proposed park site are several linear parcels of land owned by the Alameda County Flood Control District/Zone 7 Water Agency (Zone 7). This property is occupied by South San Ramon Creek, which is a flood control facility owned and operated by Zone 7, and the Iron Horse Regional Trail, which is operated by the East Bay Regional Park District. Surrounding land uses include single and multi-family residential dwellings and the City's Stagecoach Park to the east, with residential uses and Dublin High School further to the west. Residential uses lie to the north within San Ramon. Residential uses have been constructed south of the proposed park site as well. The total size of the land owned by Zone 7 is 22.82 acres. Parks and Community Services Staff have prepared a Conceptual Park Master Plan with community input, which is described later in this staff report. Part of the Conceptual Park Master Plan (Attachment 1) for the 12-acre park site contemplates the restoration of watershed areas that would include the potential re-alignment of both South San Ramon Creek and the Iron Horse Trail to allow a more natural meandering of both facilities through the proposed park site. Although the property surrounding the creek is under ownership of Zone 7, the proposed creek restoration is integral with the Conceptual Park Master Plan as it would expand the amount of parkland available, beyond the 12-acre Union Pacific parcel, through a partnership and easement. The City has worked collaboratively with Zone 7 throughout the process of developing the Conceptual Park Master Plan. Zone 7 is simultaneously completing a master plan for restoration of the watershed, including the South San Ramon channel. The Planning Commission's role in this process is to review and make a recommendation on the General Plan Amendment and Planned Development Rezone for the project area. The Planning Commission does not review and/or approve the park design itself. Approval of the Conceptual Park Master Plan, eventual Final Preferred Iron Horse Nature Park and Open Space Master Plan, and amendments to the citywide Parks and Recreation Master Plan will be vetted through the Parks and Community Services Commission and authorized by the City Council. 2of9 After the property is acquired by the City, it is envisioned the City and Zone 7 would work in partnership to seek project funding and develop the site in phases over time. The City's primary funding source for development of the site would be Public Facility Fees collected in the area covered by the Downtown Specific Plan, and other in-fill development outside of the area covered by the Eastern Dublin Specific Plan. The timing of the improvements is unknown at this time and will depend on available funding. Figure 1: Proposed Project Area with Parcel Boundaries Project Area a + I f s The City proposes to assign a Parks/Public Recreation General Plan land use designation to 12.13 acres that currently have no land use designation. Additionally, undesignated portions of several parcels owned by Zone 7 Water Agency will be assigned an Open Space land use designation. Portions of the Zone 7 parcels that have a land use designation of "Stream Corridor" will remain. Rezoning to a Planned Development (PD) Zoning District is also proposed for the future park site to ensure consistency between the amended General Plan and site zoning. The General Plan Amendment and Rezone are being completed with the intent to build a future public park as well as potentially realign the Iron Horse Regional Trail and South San Ramon Creek. The future development of the linear park, potential South San Ramon Creek realignment, and potential Iron Horse Regional Trail realignment will take place on a total of approximately 35 acres of land (12 acres to be owned by the City of Dublin as a public park and 23 acres owned by Zone 7 Water Agency that will continue to be used for the South San Ramon channel and Iron Horse Regional Trail). ANALYSIS: The table below is a summary of the size, ownership, and General Plan/Zoning designations for the subject parcels. 3 of 9 Size _ - • - _ • 941-2768-006-02 ®® Parks/Public Recreation • -• -• - 941-0190-001-01 Open Space an Stream Corridor 941-0190-001-05 1! Open Space and 94 1 • 19 11 •• ® •- • : -:• • Stream Space• •• • • •- • ••• -• 0 1 is Open Space and Stream Corridor M led. Open Space and 12M. NO 11�� Stream Corridor ow i I 61 !M • . - am am" spa* 4ft—oft- -,OCW- wood, —110,M40 vX "� ;��ttt�ttt ,.• g WE WAR Zone 7 VW!1A APN 941-0190-001-01 .� ry ►*� �i �M�� All �►Ir'�t � L ��► ! ♦1` ' 'fir MAW NOW116 Ism Zone 7 s MW low ■/ APN 941-0205-001-12 MOW Figure 3: Parcel Boundaries (south of Amador Valley Boulevard) Union Pacific parcel APN 941-2768-006-02 Zone 7 APN 941-0205-001-63 General Plan Amendment: Future Park Site The future park site (parcel currently owned by Union Pacific) is one of the few parcels in Dublin that does not have a General Plan land use designation. When the General Plan was originally adopted in 1985, the full length of the former railroad right of way from one end of the City to the other was designated "Transportation Corridor," although no land use designation was ascribed. Over time, General Plan Amendments were approved for residential projects on either side of Dougherty Road along the former right of way, which eliminated the use of the corridor for transportation purposes. Today, in order to acquire the site and utilize it as a public park, it should be designated Parks/Public Recreation in the General Plan. Zone 7 parcels The parcels owned by Zone 7 that are part of the project area either have a General Plan land use designation of Stream Corridor or have no General Plan land use designation. In order to allow the potential realignment of South San Ramon Creek and the Iron Horse Regional Trail, the portion of the parcels without a land use designation shall be designated Open Space. The portion of the parcels that have the Stream Corridor land use designation shall remain as is. The 5 of 9 proposed General Plan land use designations of Open Space and Stream Corridor will be consistent should the realignment of the two facilities take place. Zoning: Future Park Site The future park site is currently in an "Unclassified" Zoning District. In order to acquire the site and utilize it as a public park, the site is proposed to be rezoned as a Planned Development Zoning District. A Development Plan accompanies all properties with Planned Development Zoning. The Development Plan provides greater detail on the project proposal and outlines the specific proposed uses and development standards for the site. According to Chapter 8.32 (Planned Development) of the Dublin Zoning Ordinance, a Development Plan is intended to: A. Establish a Planned Development Zoning District through which one or more properties are planned as a unit with development standards tailored to the site. B. Provide maximum flexibility and diversification in the development of property. C. Maintain consistency with, and implement the provisions of, the Dublin General Plan and applicable specific plans. D. Protect the integrity and character of both residential and non-residential areas of the City. E. Encourage efficient use of land for preservation of sensitive environmental areas such as open space areas and topographic features. F. Provide for effective development of public facilities and services for the site. G. Encourage use of design features to achieve development that is compatible with the area. H. Allow for creative and imaginative design that will promote amenities beyond those expected in conventional developments. Development Plans are typically split into two stages that can be adopted at different times in the development approval process. Chapter 8.32 outlines the requirements for the two stages of a Development Plan. Because the proposed Planned Development Rezoning for the Iron Horse Nature Park and Open Space is being completed at one time, the Planned Development Rezoning will have a single Development Plan that will include the required items from both Stage 1 and Stage 2 together. The following section briefly describes each item of the Iron Horse Nature Park and Open Space Stage 1 and 2 Development Plan. 1. Zoning. The Zoning for the subject property is PD-Planned Development (PLPA-2013- 00044). 2. Statement of Permitted Uses. The permitted uses include a public park, public open space, stream corridor, and a regional multi-use trail. 3. Stage 1 and 2 Site Plan. The Conceptual Park Master Plan (serving as the Stage 1 and 2 Site Plan) is a schematic depiction of the location of the proposed uses on the site. Minor adjustments and refinements to the Conceptual Park Master Plan are permitted once the project moves forward to a final park design, site improvement plans, and construction drawings, but the final design must be in substantial conformance with the Stage 1 and 2 Site Plan. 6of9 4. Site area, proposed densities, and development regulations. The total site area for the Planned Development Zoning District is 12.13 acres. Development of buildings that are appropriate to a public park are allowed in accordance with the citywide Parks and Recreation Master Plan and the Park Master Plan for this site. 5. Phasing Plan. The future 12.13 acre park site is expected to be graded, improved, and constructed as a whole, but the proposed project is not currently in the five-year Capital Improvement Program budget. Improvements completed on the Zone 7 parcels adjacent to the future public park may be completed at a later date as funding permits. 6. Master Neighborhood Landscaping Plan. Not applicable. 7. Consistency with General Plan and any applicable Specific Plan. The proposed project is consistent with the General Plan (as amended). 8. Inclusionary Zoning Regulations. The Inclusionary Zoning Regulations do not regulate non-residential projects, so therefore this is not applicable. 9. Aerial Photo. An aerial photo is on file. 10.Architectural Standards. Any future building shall be designed to be compatible with the main use of the project area as a public park and shall be designed in accordance with the Conceptual Park Master Plan for this site. 11.Preliminary Landscape Plan. Because this is a future park site, the Site Plan and Preliminary Landscape Plan are the same exhibit. Zone 7 parcels The parcels owned by Zone 7 already have existing zoning designations that are not proposed to change. The zoning for the Zone 7 parcels is residential — either R-1 (Single-Family Residential) or R-M (Multi-Family Residential). It is very typical for parks, stream corridors, and open space areas to have the same zoning as the surrounding properties, which is the case with these, and those zoning districts permit the future potential realignment of the South San Ramon Creek and Iron Horse Regional Trail. CONSISTENCY AND CONFORMITY WITH THE GENERAL PLAN AND ZONING ORDINANCE The proposed Planned Development Rezoning and related Stage 1 and 2 Development Plans are consistent with the General Plan (as amended) and Zoning Ordinance in that the proposed project will meet the City's goals of providing adequate parkland to serve Dublin residents. In accordance with Government Code section 65402, when property is acquired for a public purpose, the Planning Commission is required to report on whether the proposed public use is in conformance with the City's General Plan. With the proposed amendments to the General Plan land use designations for the subject parcels, the proposed use as a public park and open space will be in conformance with the General Plan. A finding of General Plan conformance has been included in the recommended Resolution for City Council consideration. ENVIRONMENTAL REVIEW Pursuant to the California Environmental Quality Act (CEQA), a Mitigated Negative Declaration (MND) was prepared and circulated for public review from August 5, 2013 to September 4, 2013. Two comment letters were received during the public review period: one from resident John Whitehead and one from the Dublin San Ramon Services District (DSRSD). 7of9 The comment letter from DSRSD confirms the agency's support of the proposed project. The comment letter from Mr. Whitehead identified several concerns about proposed park operations and potential future uses at the site and are addressed in a written response. Minor staff- initiated clarifications and modifications were also made to the MND that are noted in the Response to Environmental Comments. The MND and responses together comprise the Final MND (Exhibits A-1 and A-2 to Attachment 2). The City will also adopt a Mitigation Monitoring and Reporting Program (Exhibit A-3 to Attachment 2). Staff is recommending that the Planning Commission recommend City Council adoption of the Mitigated Negative Declaration (Attachment 2). NOTICING REQUIREMENTS/PUBLIC OUTREACH: In consideration of the site's location along an existing regional trail and residential corridor, the public input process has been integral in the development of the preferred conceptual design. Two public workshops were held to solicit input and discuss components of the Conceptual Park Master Plan (Saturday, April 27, 2013 and Tuesday, June 11, 2013). The Parks and Community Services Commission also held a public meeting on August 19, 2013. Notices were sent out to all property owners and tenants within 500 feet of the future park site for all three meetings in an effort to include as many community members as possible. In accordance with State law, public notices were sent to property owners and tenants as required by law when the Mitigated Negative Declaration was circulated for public review on August 5, 2013. A public notice was mailed to all property owners and occupants as required by law to advertise the project and the Planning Commission public hearing. A public notice also was published in the Valley Times and posted at several locations throughout the City. In accordance with California Government Code Section 65352.3, the City requested a contact list of local Native American tribes from the Native American Heritage Commission (NAHC) and notified each tribal representative of the proposed project. As of the date of this Staff Report, the City had not received any communications from tribal representatives requesting consultation on the matter. ATTACHMENTS: 1. Iron Horse Nature Park and Open Space Conceptual Park Master Plan 2. Resolution recommending City Council Adoption of a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program for a General Plan Amendment and Planned Development Rezone with a related Stage 1 and 2 Development Plan for the future Iron Horse Nature Park and Open Space Project, with the City Council Resolution attached as Exhibit A. 3. Resolution recommending City Council Approval of a General Plan Amendment for the future Iron Horse Nature Park and Open Space Project, with the City Council Resolution attached as Exhibit A. 4. Resolution recommending that the City Council adopt an Ordinance rezoning 12.13 acres of former Union Pacific Railroad right-of-way adjacent to the Iron Horse Regional Trail to a Planned Development Zoning District and approve the related Stage 1 and 2 Development Plan for the Iron Horse Nature Park and Open Space Project, with the Ordinance attached as Exhibit A. 8of9 GENERAL INFORMATION: APPLICANT: City of Dublin PROPERTY OWNERS: Union Pacific and Zone 7 Water Agency LOCATION: Approximately 35 acres of land comprising South San Ramon Creek, the Iron Horse Regional Trail, and former Union Pacific railroad right of way located both north of Amador Valley Boulevard to the City Limits and south of Amador Valley Boulevard to the Alamo Creek. ASSESSORS PARCEL NUMBER: 941-2768-006-02, 941-0190-001-01, 941-0190-001-05, 941- 0191-095-00, 941-0205-001-12, 941-0205-001-63 (partial). GENERALPLAN LAND USE DESIGNATION: Existing: Undesignated and Stream Corridor Proposed: Parks/Public Recreation, Open Space, and Stream Corridor SPECIFIC PLAN LAND USE DESIGNATION: Not applicable SURROUNDING USES: Residential 9 of 9