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HomeMy WebLinkAbout03-061 DublnTrnstCtr 03-23-2004 AGENDA STATEMENT PLANNING COMMISSION MEETING DATE: March 23, 2004 SUBJECT: PUBLIC HEARING: PA 03-061 Dublin Transit Center Site A-2 (EAH, Inc) Stage 2 Planned Development Zoning, Site Development Review, and Development Agreement Report Prepared by: Marnie R. Waffle, Assistant Planner ~ ATTACHMENTS: 1. Resolution recommending City Council approval of PA 03-061 Dublin Transit Center Site A-2 (EAH, Inc) Stage 2 Planned Development Zoning Development Plan (with the Development Plan attached as Exhibit A). 2. Resolution approving PA 03-061 Dublin Transit Center Site A-2 (EAH, Inc) Site Development Review (with Project Plans attached as Exhibit A and Written Statement as Exhibit B). 3. Resolution recommending City Council approval of PA 03-061 Dublin Transit Center Site A-2 (EAH, Inc) Development Agreement (with the Development Agreement attached as Exhibit A). 4. Transit Center Location Map. 5. Focused Internal Traffic Circulation Analysis by Omni Means. 6. Letter from Dublin resident Bruce Fielder in support of the proposed project. RECOMMENDATION: 1. Open Public Hearing and receive Staff presentation. 2. Take testimony from the Applicant and Public. 3. Question Staff, Applicant, and Public. 4. Close Public Hearing and deliberate. 5. Adopt Resolution (Attachment 1) recommending City Council approval of a Stage 2 Planned Development Zoning Development Plan (with the Development Plan attached as Exhibit A). 6. Adopt Resolution (Attachment 2) approving PA 03-061 Dublin Transit Center Site A-2 (EAH, Inc) Site Development Review (with Project Plans attached as Exhibit A and Written Statement as Exhibit B). 7. Adopt Resolution (Attachment 3) recommending City Council approval of a Development Agreement (with the Development Agreement attached as Exhibit A). BACKGROUND: In December 2002 the City Council adopted Resolution 216-02 approving a General Plan/Eastern Dublin Specific Plan Amendment; Ordinance 21-02 approving a Stage ! Planned Development Zoning; and, Resolution 02-40 approving Tentative Parcel Map 7892, for the Dublin Transit Center, located generally between the Iron Horse Trail to the West, Dublin Boulevard to the North, Arnold Road to the East, and COPIES TO: Applicant In house distribution ITEM NO. 8.3 the Dublin/Pleasanton BART Station to the South. A Master Development Agreement for the Dublin Transit Center was adopted by Ordinance 5-03 in May 2003 and together with the approved General Plan/Eastern Dublin Specific Plan Amendment, Stage 1 Planned Development Zoning, and Tentative Parcel Map established the land use approvals for the future development of the site. The Dublin Transit Center project area includes the future development of 1,500 residential units on Sites A, B and C; 2-million square feet of campus office on Sites D and E; and 70,000 square feet of ancillary retail uses to be dispersed between Sites B-E. Open space will be provided in the form of a 12.20 gross acre park, located on Site F and a 1-acre Village Green located between Sites B and C. The Transit Center project area also includes 8.65 gross acres of public/semi-public uses including the future BART parking garage, PG & E substation, and surface BART parking. (See Attachment 4) The project, Dublin Transit Center Site A-2, includes Stage 2 Planned Development Zoning, Site Development Review, and a Development Agreement, for the construction of a 112-unit affordable apartment community within a portion of Dublin Transit Center Site A. The Stage 1 Planned Development Zoning for Site A allows for a maximum of 530 residential units to be constructed on the site. Land uses surrounding the project site include, future high density residential to the east, west, and south; Dublin Boulevard lies to the north of the project site. Dublin Transit Center Site A-2, as proposed, would require the subdivision of +10.92 gross acres of land within Dublin Transit Center Site A for the creation of Parcels A-l, A-2 and A-3. The Tentative Parcel Map that will record the subdivision has been submitted under a separate planning application and is not part of the Site A-2 application. According to the Subdivision regulations of the Dublin Municipal Code, parcel maps involving the subdivision of 4 or fewer lots are reviewed and approved by the Community Development Director. Staff is currently reviewing the Tentative Parcel Map submitted for the subdivision of Dublin Transit Center Site A. Site A-2 is proposed to be developed as a 112-unit affordable apartment community with 67 very low income units affordable to households earning below 50% of the area median income and 45 Iow income units affordable to households earning between 50% and 60% of area median income. All of the affordable units provided would satisfy the requirements of the Inclusionary Zoning Ordinance as well as the terms of the Master Development Agreement for the provision of very low and low income units within Dublin Transit Center. ANALYSIS: The project, Dublin Transit Center Site A-2, requires the approval of Stage 2 Planned Development Zoning, Site Development Review and a Development Agreement. Both the Stage 2 Planned Development and Development Agreement are Ordinances that require two public hearings before the City Council. Staff is asking the Planning Commission to make a recommendation to the City Council who will then take action on these items. The Site Development Review request is heard by the Planning Commission and, if approved, is contingent upon approval of the Stage 2 Planned Development Zoning by the City Council. Stage 2 Planned Development Zoning A Stage 1 Planned Development Zoning was adopted by the City Council for all of Dublin Transit Center in December 2002 and established the permitted, conditionally permitted, and accessory uses; site areas and proposed densities; maximum number of residential units and non-residential square footages; and, a Master Landscaping Plan. For Transit Center Site A, the Stage 1 Planned Development allows for a maximum of 530 high density residential units on approximately 10.92 gross acres of land with an average gross density of 49 units per acre. The Stage 1 Planned Development Zoning also includes maximum building heights for high density residential of 5 stories over parking and a minimum parking standard of 1.5 spaces per unit for residential uses. The Dublin Transit Center Site A-2 project proposes to develop + 2 acres of Site A for the construction of 112 residential apartment units at a gross density of 56 units per acre. While this density is greater than the average density for Site A as a whole, the build out of Site A will not exceed the maximum 530 units planned for the site and the average density of Site A will remain 49 units per acre in accordance with the Stage I Planned Development zoning. The proposed residential apartment building is 3 stories over parking and meets the parking requirement of 1.5 spaces per unit as it proposes to provide 169 on-site parking spaces. (See Exhibit A to Attachment 1) The development of Site A-2 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 a vibrant, pedestrian friendly environment within easy walking distance of the BART Station. Site Development Review Access and Circulation The Dublin Transit Center Site A-2 project site would be bound by Dublin Boulevard to the north; a proposed one-way private access drive to the south, separating the site from the remainder of Site A southward; DeMarcus Boulevard to the east; and a proposed Street "A" to the west, separating the site from the remainder of Site A westward. Access to the site would be from the westbound, one-way private access drive off of DeMarcus Boulevard. Entry into the ground floor parking garage would be from the proposed Street "A". Unit pavers are proposed at the entrance to the private access road and at pedestrian crossing areas. The unit pavers would be designed as speed tables as a traffic calming measure. (See Exhibit A to Attachment 2) Site Plan The project includes a 4-story podium building with parking located in a secured garage on the ground floor. Residential units wrap a portion of the parking garage on the east and south sides of the building with the remainder of the units located on three floors above the ground level. A grand staircase and entry plaza are located at the comer of DeMarcus Boulevard and the private access road creating a significant focal point to the project. A fountain element is located in the center of the entry plaza as well as a trellis. Potted plants line the dual staircase entry up to the podium level of the project. At the podium level access can be obtained to the leasing office. Disabled access to the podium level can be obtained from a ground floor elevator accessed through a door located under the grand staircase at the entry plaza. Adjacent to the leasing office is a community center with a multi-purpose room, kitchen, computer training room, restrooms, and vending machines. The community center opens up to the community open space on the podium level where there are opportunities for passive recreational activities. (See Exhibit A to Attachment 2) Floor/Unit Plans The Applicant is proposing four different unit plans to be used throughout the project that vary in size and layout. Three of the unit plans would be flats and the fourth a townhouse unit. The units would range in size from 600 to 1,165 square feet. Access to the units would be from interior corridors. Eleven ground floor units would also have access from stoops along DeMarcus Boulevard and the one-way private access drive. There would be four stairwells and two elevators located on every floor. Laundry facilities will be provided at the southwest comers of the second and third floors. Two trash chutes are proposed on each floor near the stairwells and elevators for trash and recyclable materials. Two collection areas are located on the first floor in the parking garage next to the stairwells and elevators. (See Exhibit A to Attachment 2) Table 2 provides a brief description of the basic elements of each unit type. Unit plans are distributed fairly evenly throughout the project with slightly more 3-bedroom units. Table 2 Plan No. of Units Square Feet Bedr°oms: BathroOms WaSher/D~er in the Unit Unit Plan 1 27 600 1 1 No Unit Plan 2 24 894 2 1 No Unit Plan 3 26 985 2 1.5 No Unit Plan 4 35 1,165 3 2 No Total 112 - - - Plan 1 Plan 1 is the smallest floor plan at 600 square feet. It is a 1 bedroom 1 bath unit with separate living and dining rooms. Two windows, side by side, would be provided in the bedroom and access to the patio would be through the living room. There will be 27 of these unit plans. Plan 2 Unit Plan 2 is an 894 square foot floor plan with 2 bedrooms and 1 bathroom. Separate living and dining rooms are provided with access to the patio through the living room. Two side-by-side windows are provided in the master bedroom and one window in the second bedroom. There will be 24 of these unit plans. Plan 3 Unit Plan 3 is a town home unit at 985 square feet. There will be 26 townhouses provided of which nine will be located on the ground floor with stoops facing DeMarcus Boulevard and the one-way private access road. Separate living and dining rooms are provided on the lower level with access to the patio off of the dining room. A half bathroom is provided in the entryway. Two bedrooms and one bathroom are provided on the second floor with one window in each bedroom. 4 Plan 4 Plan 4 is a 3 bedroom, 2 bathrooms flat at 1,165 square feet. Separate living and dining rooms are provided with access to the patio through the living room. Two side-by-side windows are provided in the master bedroom and one window in each of the other two bedrooms. There will be 35 of these unit plans. Parking The project is proposed as a four-story podium building with 112 units and ground floor parking within a secured garage. Parking would be provided as follows: 161 structured parking stalls, 8 on-site surface stalls, and 12 on-street stalls, for a total of 181 stalls. The 8 on-site surface stalls would be located along the one-way private access drive and the 12 on-street parking stalls would be located along Street "A" and DeMarcus Boulevard. Five disabled accessible stalls would be provided within the parking structure, one of which would be van accessible; a sixth disabled accessible stall would be located adjacent to the entry plaza along the one-way private access drive. (See Exhibit A to Attachment 2) Of the 161 structured parking stalls, 85 are standard size stalls, 6 are compact stalls, and 70 are tandem stalls. 147 stalls are reserved for residents and 22 are delineated as guest parking. The Dublin Zoning Ordinance regulates tandem parking for single family dwellings and commercial and industrial uses, but falls silent regarding multi-family apartment projects. Similarly, the Stage 1 Planned Development zoning did not discuss the use of tandem parking within the Dublin Transit Center project area. The project proposes to use tandem parking stalls to concentrate parking within a single level garage and still meet the required 1.5 stalls per unit parking ratio. The Focused Internal Traffic Circulation Analysis (Attachment 5) conducted by Omni Means analyzed the tandem parking arrangement and concluded that tandem spaces should be reserved for the larger apartment units. Furthermore, to ensure the functionality of the tandem parking stalls, both stalls will be assigned to the same apartment unit. Additional guest parking (12 stalls) will be provided on Street "A" and DeMarcus Boulevard. According to the Focused Internal Traffic Circulation Analysis conducted by Omni Means, 15% of the total parking (25 stalls) is needed for residential visitors. The project proposes to provide 22 on-site guest parking stalls and 12 off-site guest parking stalls. All parking stalls meet the required stall dimensions of 9-feet by 20- feet for a standard stall and 8-feet by 17-feet for a compact stall, as set forth in the Dublin Zoning Ordinance. The amount of parking proposed, 169 on-site stalls and 12 on-street stalls, meets the parking requirement of 1.5 stalls per unit established in the Stage 1 Planned Development Zoning for the Dublin Transit Center and the 15% guest parking ratio recommended by the Omni Means traffic study. The amount of guest parking provided is less than the Zoning Ordinance requirement of one guest stall per unit however the Stage 1 Planned Development Zoning for the Dublin Transit Center supports lower parking ratios consistent with transit oriented developments to encourage greater use of public transit. Architecture The general design theme and concept for the building exterior reflects elements of the traditional style. These elements include full hip roofs; roof dormers; standing seam metal accents and composite roof shingles; stucco and siding; stucco covered foam trim; and metal railings and grates. Given the mass and scale of the four-story structure, materials and color schemes are used to enhance articulation and undulation of the building. Particular attention has been paid to the articulation of exterior facades, rooflines, window openings, and balconies. With the building height in mind, exterior facade planes have been varied in terms of depth, color, and materials to provide visual interest and reduce mass. The ground level is defined along the south and east sides of the building with stoops providing an exterior entrance for those units located on the ground level. The north and west sides of the buildings are enhanced with varying exterior finishes to break up the building mass and create visual interest. Two tower elements create significant focal points to the project and are located at the northwest (Dublin Boulevard and Street "A") and southeast (DeMarcus Boulevard and the private access road) comers of the building. A full hip, standing seam metal roof tops off the tower element. The color scheme selected for the building is reflective of natural earth tones with contrasting accents and trims creating a harmonious palette for roof materials, exterior stucco, wood siding and stucco covered foam trim, trellises and balcony rails. In general, the exterior design and color schemes provide an interesting and attractive image given the scale and density of this project. Landscaping and Fencing In accordance with the Site Development Review Ordinance, the Applicant has provided a conceptual landscape plan. The proposed plant palette has been reviewed by the City's landscape architect for consistency with plant materials compatible with the climatic conditions in Dublin. The most significant features of the landscape plan are the designs for the podium level courtyard and entry plaza. The podium level courtyard has been designed to provide formal open space accessible from the entry plaza and internal corridor on the second floor. The development pattern proposed incorporates paved areas and walkways, seating areas and a series of canopy tress and trellises for shade. The individual plant palette for the shrubs and bushes will accent the structure and provide softening of the lower floor plane. The trees themselves will soften the building architecture while providing visual backdrops for the courtyards themselves. The one-way private access road off of DeMarcus Boulevard has been embellished with unit pavers and landscaped bulb-outs for traffic calming and a pedestrian friendly environment. The landscape features on the podium level include a formalized landscaped courtyard surrounded by individual units. The podium level incorporates separate play structures for children 3 and under and 4-10 years of age, a formal seating area with table and chairs, formal planting rows and trellises to create canopied seating areas, and a community center with kitchen facilities, a computer room, a conference room, restrooms, and the manager's office. A trellis is featured in three comers of the courtyard as well as a central focal point in the center of the podium. Outdoor barbeque facilities will be provided in addition to tables and chairs for outdoor picnics. Lawn area is also provided for passive recreation, which may include ball playing or lounging. The streetscapes along the perimeters of Dublin Boulevard and DeMarcus Boulevard will be in accordance with the streetscape approved for the Dublin Transit Center and include a combination of trees, low shrubs and ground cover. The overall landscape program for Transit Center Site A-2 will serve to visually enhance the buildings, provide the residents with landscaped open space and amenities and will be consistent and in keeping with the high quality landscape environments created on similar projects in Dublin. 6 Sound Attenu~ion A mitigation measure contained in the Environmental Impact Report for the Dublin Transit Center requires site specific acoustic reports to be prepared by qualified acoustical consultants. The report must include detailed identification of noise exposure levels on the individual project site and a listing of specific measures to reduce both interior and exterior noise levels to normally acceptable levels including but not limited to glazing and ventilation systems, construction of noise barriers and use of buildings to shield noise. As this project abuts Dublin Boulevard, a sound study will be required for compliance with the mitigation measure and the project has been conditioned to reflect this requirement. Generally, normal residential construction with upgraded windows can adequately attenuate vehicular noise for the interior structures. However, exterior open space areas require special considerations when attenuation is necessary. It is anticipated that several of the balconies facing Dublin Boulevard will require attenuation. The normal method of accomplishing this is with the use of Plexiglas or tempered glass panels. The architect has allowed for this eventuality in the design for the project. The Plexiglas or tempered glass panels allow for the residents views to be uninterrupted and provides for an uninterrupted view of the project from off site. Affordability The purpose of Inclusionary Zoning is to increase the number of residential units affordable to households of very-low, low, and moderate incomes. In order to accomplish this goal, the City has adopted an Inclusionary Zoning Ordinance that requires all new residential developments of 20 units or more to provide 12.5% of total number of units as affordable. Of those 12.5% affordable units, the Ordinance further requires that 30% be affordable to very-low incomes, 20% to low incomes, and 50% to moderate incomes. The Ordinance defines the levels of affordability for very-low, low, and moderate incomes as follows: 1. Very-low: incomes that do not exceed 50% of the area median income; 2. Low: incomes that are between 50% and 80% of the area median income; and 3. Moderate: incomes that are between 80% and 120% of the area median income. The Site A-2 project consists of 112 residential apartment units of which all units would be affordable to very-low and low-income households. The unit affordability is proposed as follows: I bedroom 2 bedrooms 3 bedrooms Total Very Low 19 (79%) 30 (57%) 18 (51%) 67 (60%) (50% or below) Low 5 (21%) 23* (43%) 17 (49%) 45 (40%) (60%-50%) Total 24 53 35 112 *Includes Manager Unit The Dublin Transit Center Master Development Agreement between the City and the Alameda County Surplus Property Authority was approved by the City Council in May of 2003 and allows for the clustering of all very low and low income units on Site A-2 of Transit Center with the moderate income units constructed on other sites. After reviewing the terms of the Master Development Agreement, the Planning Commission expressed concern to the City Council regarding the clustering of the very low and low income units in one project rather than spread out among all of the proposed housing in Transit Center. The City Council proceeded to approve the Master Development Agreement allowing for the clustering of very low and low income units on Site A-2 in exchange for the provision of 15% Inclusionary Units which is 2 ½ % above the current requirement of 12 ½ %. In accordance with the terms of the Master Development Agreement, the Applicant is proposing to cluster all very low and low incomes units on Site A-2. In addition, the Applicant is proposing to provide deeper affordability of the low-income units by restricting them to households earning between 50% and 60% of the area median income rather than the Inclusionary Zoning requirement of between 50% and 80% of the area median income. Management There will be at least two (2) fulltime employees to manage and operate the residential apartment community once it is constructed and fully leased. The property manager's office would be open for regular business hours Monday through Friday from 9:00 am to 5:00 pm and a 24-hour standby emergency call would be available during nights and weekends. Development Agreement One of the implementing measures of the Eastern Dublin Specific Plan is the requirement that the City enter into a Development Agreement with developers in the plan area. The Development Agreement provides security to the developer that the City will not change its zoning and other laws applicable to the project for a specified period of time. The Development Agreement is one means the City has to ensure that the goals of the Eastern Dublin Specific Plan are met. Development Agreements are reviewed by the Planning Commission and recommended to the City Council for action. The proposed Development Agreement between the City of Dublin and EAH, Inc for the Dublin Transit Center Site A-2 project is attached as Exhibit A of Attachment 3 to this Staff Report. The Development Agreement (the "Dublin Transit Center Site A-2") labeled Exhibit A, is based on the standard Development Agreement developed by the City Attorney and adopted by the City Council for Eastern Dublin Projects and covers future Parcel A-2, including provisions related to infrastructure sequencing, financing, fees and dedications, credits, and street lighting maintenance. The term of the Development Agreement would be five (5) years from the date of approval. State law requires that there be three public hearings on Development Agreements. The purpose for the hearing before the Planning Commission is to recommend approval of the Development Agreement to the City Council. ENVIRONMENTAL ANALYSIS: Pursuant to the California Environmental Quality Act, Staff has recommended that the project be found exempt from CEQA pursuant to Government Code section 65457 for residential projects that are consistent with a specific plan. 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. This recommendation is based on a determination that them are no supplemental impacts that would require preparation of a Supplemental Environmental Impact Report. CONCLUSION: This application has been reviewed by applicable City departments and agencies and their comments have been incorporated into the Stage 2 Planned Development Zoning and Site Development Review. The proposed project is consistent with the Dublin General Plan and Eastern Dublin Specific Plan, and the Stage 1 Planned Development Zoning for the Dublin Transit Center and represents an appropriate project for the site. RECOMMENDATION: Staff recommends that the Planning Commission open the Public Heating and receive Staff's presentation; take testimony from the Applicant and the Public; question Staff, the Applicant, and the Public; close the Public Heating and deliberate; and, adopt the following: 1. Adopt Resolution (Attachment 1) recommending City Council approval of a Stage 2 Planned Development Zoning Development Plan (with the Development Plan attached as Exhibit A). Adopt Resolution (Attachment 2) approving PA 03-061 Dublin Transit Center Site A-2 (EAH, Inc) Site Development Review (with Project Plans attached as Exhibit A and Written Statement as Exhibit B). 3. Adopt Resolution (Attachment 3) recommending City Council approval of a Development Agreement (with the Development Agreement attached as Exhibit A). 9 GENERAL INFORMATION: APPLICANT: PROPERTY OWNER: LOCATION: ASSESSORS PARCEL NUMBER: EXISTING ZONING: GENERAL PLAN DESIGNATION: SPECIFIC PLAN DESIGNATION: EAH, Inc Benny Kwong 2169 E. Francisco Boulevard San Rafael, CA 94901 same Southwest comer of Dublin Boulevard and DeMarcus Boulevard 986-0001-010 in part PD, Planning Development High Density Residemial (25.0+ dwelling units per acre) High Density (25.0+ dwelling units per acre) 10