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fiNet � STAFF REPORT
PLANNING COMMISSION
DATE: August 23, 2016
TO: Planning Commission
SUBJECT: PUBLIC HEARING: Kaiser Dublin Medical Center (PLPA-
2016-00007)
Report prepared by Kristi Bascom, Consulting Planner
EXECUTIVE SUMMARY:
The Planning Commission will consider and make a recommendation to the City
Council regarding the Kaiser Dublin Medical Center project, which is comprised of
950,000 square feet of medical campus uses in three main buildings, 250,000 square
feet of commercial uses, a parking structure, and associated site, roadway frontage,
and landscape improvements. Requested land use approvals include a General Plan
Amendment and Eastern Dublin Specific Plan to create new land use districts, Planned
Development Rezoning (Stage 1 and Stage 2), and Site Development Review Permit
for the first phase of development (a 220,000 square foot medical office
building). Certification of a Final Environmental Impact Report (FEIR) and approval of a
project-specific Development Agreement is also being considered.
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) Recommending City Council certification of a Final Environmental Impact Report
and Adoption of Environmental Findings under CEQA for the Kaiser Dublin Medical
Center project;
b) Recommending that the City Council adopt a Resolution amending the General Plan
and the Eastern Dublin Specific Plan related to the Kaiser Dublin Medical Center
project;
c) Recommending that the City Council Adopt an Ordinance amending the Zoning Map
and approving a Planned Development Zoning District with a related Stage 1
Development Plan for the whole project site and a Stage 2 Development Plan for
Phase 1A;
COPIES TO: Applicant
File
ITEM #: 5.1
Page 1 of 11
d) Recommending that the City Council adopt an Ordinance approving a Development
Agreement between the City of Dublin and Kaiser Foundation Hospitals related to
the Kaiser Dublin Medical Center project; and
e) Recommending that the City Council adopt a Resolution approving Site
Development Review Permit for Phase 1A of the Kaiser Dublin Medical Center
project.
Submitted By: Reviewed By:
. )?-
Submitted by Reviewed by
Consulting Planner Assistant Community Development Director
Page 2 of 11
DESCRIPTION
Kaiser Foundation Health Plan, Inc. has submitted an application to build a medical
campus and associated commercial center on approximately 58 acres of land south of
Dublin Boulevard between Tassajara Road and Fallon Road. The property currently
has a General Plan land use designation of Campus Office, which allows for the
development of a "campus-like setting for office and other non-retail commercial uses."
Typical uses include professional and administrative offices (including medical),
research and development, business and commercial services, and limited light
manufacturing.
The project site is shown in the Vicinity Map below:
Figure 1: Project Vicinity
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Kaiser Foundation Health Plan acquired the property several years ago with the intent
of eventually constructing a medical campus to serve the greater Tri-Valley area. If
approved, the project will be developed in three phases over the course of up to 25
years, consisting of approximately 1.2 million square feet of medical campus and
commercial uses on the project site, as follows:
Page 3 of 11
Building/Use Size Building Estimated
(in square Size Construction
feet)
Phase 1A "The Hub" medical office building 220,000 3 stories 2016-2020
with advanced facilities including an < 60 feet tall
urgent care clinic, medical office
space, and a radiation/oncology
center
Phase 1B Commercial uses including retail, 250,000 Up to 4 2016-2020
office, ancillary health-related stories
facilities, and business park 60 feet tall
Phase 2 High-Acuity Medical Services 400,000 5 stories 2025-2035
building (possibly a hospital) 85 feet tall
Phase 2 Energy Center 50,000 2 stories 2025-2035
40 feet tall
Phase 3 Medical Office Building 2 280,000 6 stories 2035-2040
90 feet tall
Phase 3 Parking Structure 6 stories 2035-2040
< 70 feet tall
Total Project 1,200,000
The site plan (at full build out) is included as Attachment 1 to this Staff Report.
Planning Commission Study Session
On May 10, 2016, a Study Session was held with the Planning Commission
(Attachment 2) to receive a report on the project status and provide feedback on the
project design. The meeting minutes are included as Attachment 3 to this Staff Report.
ANALYSIS
Project Applications
Kaiser has applied for the following land use entitlements:
1. General Plan and Eastern Dublin Specific Plan Amendment.
2. Planned Development Rezone (with a related Stage 1 Development Plan for the
whole site and Stage 2 Development Plan for Phase 1A).
3. Site Development Review Permit for the Phase 1A Medical Office Building and
related site improvements.
4. Certification of an Environmental Impact Report.
+ When the future phases of the project are ready to move forward, Planning applications
at that time will include:
1 . Planned Development Rezoning (with a related Stage 2 Development Plan) and
Site Development Review for each future development phase:
Page 4 of 11 - - - - - - _ --
a. Phase 1B — Commercial Center
b. Phase 2 — High Acuity Medical Center and Energy Center
c. Phase 3 — Medical Office Building and parking garage
2. Conditional Use Permit(s) to establish any use that is required by the Planned
Development Zoning District to have one.
3. Vesting Tentative Parcel Map to subdivide the property, dedicate right of way,
and formalize easements.
General Plan and Eastern Dublin Specific Plan Amendment
In order to accommodate the project as proposed, two new land use categories are
proposed to be created for inclusion in both the General Plan and the Eastern Dublin
Specific Plan. The existing land use designation is Campus Office, which allows a
variety of office uses (including medical), but which does not explicitly identify the
proposed medical-related uses to the extent desired by Kaiser. Therefore, two new
land use categories are proposed: "Medical Campus", which applies to the Kaiser
Medical Center portion of the site, and "Medical Campus/Commercial", which applies to
the commercially-designated portion of the site. The General Plan and Eastern Dublin
Specific Plan land use exhibit is included in Attachment 4.
The proposed description for the Medical Campus land use category identifies the
range of outpatient, primary and specialty care services that Kaiser intends to provide at
the future medical center (Phases 1A, 2, and 3). The proposed description for the
Medical Campus/Commercial land use category identifies the range of commercial uses
that are expected for the commercial parcel (Phase 1B) including retail, office, hotel,
and restaurants.
The language for both land use categories is provided in Attachment 4 to the Staff
Report.
Planned Development Rezoning
The Planned Development Rezoning for the property will establish the detailed
Development Plan (site plan) for the site, the specific uses that are permitted by right,
conditionally permitted, and prohibited, the overall development density and intensity
(e.g. FAR, building heights) for the site, and design guidelines for the future medical
center and commercial buildings. Kaiser is proposing that the Planned Development
Zoning District allow hospitals as a permitted use, whereas citywide, hospitals are
allowed with a Conditional Use Permit. The Planned Development Zoning District
contains development standards to address issues typically addressed through a
Conditional Use Permit that are related to hospitals such as noise and compatibility with
surrounding uses.
If approved, the Planned Development Zoning District will have a related Stage 1
Development Plan for the entire 58-acre project area and a Stage 2 Development Plan
for Phase 1A. The Planned Development Zoning District recognizes the phased
Page 5 of 11
development of the Kaiser project and includes a Stage 1 Development Plan for Phase
1A only, Phases 1A and 2 combined, and the full campus with Phases 1A, 2, and 3
completed, which is the final buildout condition. The details of the Planned Development
Zoning District are provided in Exhibit A to Attachment 5 to the Staff Report.
Phase 1A Site Development Review
The first phase of the Kaiser Dublin Medical Center is the 220,000 square foot medical
office building. This facility — referred to as "The Hub" — will contain advanced medical
facilities, urgent care clinics, medical office spaces, and a connected radiation/oncology
center, along with surface parking for nearly 1,000 vehicles and associated site
improvements. The detailed Project Plans for Phase 1A are included as Exhibit A to
Attachment 6. Additional details on the key project components are provided below.
Site Plan
The site plan for Phase 1A includes the construction of the two main entry driveways
into the project site that align with Keegan Street and Lockhart Street, the 220,000
square foot medical office building, the associated parking field, perimeter landscaping
along the length of Dublin Boulevard and the medical campus portion of Interstate 580,
photovoltaic panels in the southern parking lot, and landscaping throughout the middle
portion of the site. Sheet A1.1 of the Project Plans (Exhibit A to Attachment 6) identifies
the physical limits of Phase 1A and those improvements that will be installed with the
first building in the medical campus.
Access, Circulation, and Parking
Vehicular access to the medical office building will be provided by both the Keegan and
Lockhart Street entry driveways. Parking lots exist on both the north and south sides of
the building, the patient drop-off point is on the north side of the building, the shuttle
drop off is on the north side of the building, and the loading dock/service area is on the
west side. There are clear, accessible pedestrian pathways from every parking area,
the bus stop on Dublin Boulevard, and from the public sidewalk to all building entry
points. Sheet A1.4 of the Project Plans (Exhibit A to Attachment 6) illustrates the
pedestrian pathways through and around the project site.
The Phase 1A site plan identifies 978 parking spaces for the medical office building,
including 100 accessible spaces, 50 spaces for fuel-efficient vehicles, and 29 spaces for
car/vanpools. The remainder of the parking stalls are regular and compact sizes as well
as motorcycle parking. All of the parking sizes and other requirements are in
conformance with the Dublin Zoning Ordinance. The Zoning Ordinance requires a total
of 880 parking spaces for a 220,000 square foot health clinic/medical office building (1
space per 250 square feet), so the project has 98 more vehicular spaces than is
required. The project also provides 28 long-term and 28 short term bicycle parking
spaces in both lockers and racks. The southern parking field is expected to be covered
with photovoltaics that will provide shade for parked cars, but included in the Project
Plans is an alternate plan that includes the tree planting plan in the event that the
photovoltaics are not feasible. Either the photovoltaics or the trees will be required to
Page 6 of 11
be installed prior to occupancy of the building (Condition of Approval #49 noted in
Exhibit A to Attachment 6)
Building Design/Architecture
Kaiser Permanente has opened a number of new medical office buildings and hospitals
in the Bay Area in recent years. With each new facility, lessons are learned and design
techniques are improved. The design concept for the Dublin medical campus is to
incorporate materials, features, and an architectural statement that is compatible with
the other buildings in the vicinity while allowing for creative and imaginative design that
will provide amenities beyond those expected in conventional developments.
The building is primarily oriented along an east-west axis with the medical offices and
urgent care at the western-most portion of the building and the cancer center on the
eastern side. The building is four stories and stands 58'6" tall to the peak of the roof
parapet. The building (and the rest of the future campus) has a contemporary aesthetic
with the main building materials being an aluminum and glass curtain wall system
blended with concrete panels in white and grey, accent metal panels with a horizontal
wood effect, corrugated metal panels for the roof screen, and perforated silver/grey
panels on the south side of the building serving as sunshades. Sheet A3.1 of the
Project Plans demonstrates the exterior material palette, and Sheet A7.1 illustrates the
location of the various colors and materials on the building elevations.
Sustainability
Kaiser serves a key role in developing nationally recognized health-based green
building strategies for the health care sector, and they intend to incorporate Kaiser's
leading sustainable building standards and green initiatives into the Dublin Medical
Center Project. As part of its commitment to green building, Kaiser will pursue LEED
Gold certification or equivalent for the buildings that it develops on the Project Site. To
attain this goal, Kaiser anticipates implementing many of the following less-typical green
strategies:
• PVC-free materials (such as resilient flooring, carpet and roofs)
• Low or VOC-free paints
• CFC-free refrigerants
• Formaldehyde-free casework
• Cogeneration electricity production and heat recovery
• Permeable paving to reduce stormwater runoff in parking areas
• Thermal fluid heaters as a high-efficient water heating source
Landscape Concept
The landscape concept for Phase 1A is a "building within a garden". Sheet L.1.2 most
clearly illustrates the various landscape and hardscape amenities that surround the
building — focused primarily on the southern and eastern sides of the building. There
are a variety of sitting areas ("rooms") that are connected by pedestrian pathways
surrounded by generous amounts of landscaped spaces. The various materials and
finishings that will be employed in the outdoor rooms and pathways are shown on Sheet
L.3.0 of the Project Plans and the tree and plant palettes are shown on Sheets L.5.0,
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5.1 , and 5.2. Sheet L.6.0 of the Project Plans shows several precedent images that
demonstrate the design goals for the medical office building landscape concepts.
The Resolution recommending Site Development Review approval for Phase 1A of the
Kaiser Dublin Medical Center is included as Attachment 6 to the Staff Report.
DEVELOPMENT AGREEMENT
The Applicant requested a Development Agreement for the Kaiser Dublin Medical
Center project. The Development Agreement outlines the obligations of the Applicant
as it relates to different phases of the development of the medical campus and the
associated commercial parcel, including an obligation for Kaiser to allocated sales and
use tax revenue generated by the construction and development of the project to the
City of Dublin. A second component of the Development Agreement is Kaiser's
obligation to actively market and seek development for the commercial parcel in order to
provide ongoing tax revenue to fund the costs of providing public services to the
Medical Center portion of the project. The term of the Development Agreement is
twenty five years.
The specifics of the Development Agreement were agreed to by both parties. The
Resolution recommending City Council approval of the Development Agreement is
included as Attachment 7 with the draft City Council Ordinance included as Exhibit A
and the Development Agreement included as Exhibit B to the Staff Report.
ENVIRONMENTAL IMPACT REPORT
A Draft Environmental Impact Report (DEIR) was prepared for the Kaiser project and
was circulated for a 45-day public review period that closed on March 21, 2016.
Comments were received from seven public agencies, one comment letter from the
Project Applicant, and one comment letter from a Dublin resident that does not support
the project. The EIR examined potential environmental impacts resulting from the
project at full build out in the following topic areas:
• Aesthetics, Light, and Glare
• Air Quality/Greenhouse Gas Emissions
• Biological Resources
• Cultural Resources
• Geology, Soils, and Seismicity
• Hazards and Hazardous Materials
• Hydrology and Water Quality
• Land Use
• Noise
• Public Services and Utilities
• Transportation
Page 8 of 11
In summary, the EIR concludes that the project will have significant impacts in several
topic areas and mitigation measures have been written to reduce the impacts to a level
that is less than significant. These impacts are primarily related to aesthetics, air
quality, biology, cultural resources, geology, hydrology, noise, and transportation.
As is typical for other projects of this size, several other impacts were identified where,
even with the implementation of mitigation measures, the effects to the environment are
still expected to be significant. There are impacts to vehicular delays at certain street
intersections in the future, notable greenhouse gas emissions, and air pollution impacts
that cannot be mitigated. If the project receives support from the City Council after the
Planning Commission review, a Statement of Overriding Considerations (SOC) would
need to be adopted that identifies all environmental impacts that cannot be mitigated
and explain why the project is being approved. The SOC is required in order to certify
the EIR and, if desired by a majority of the City Council, ultimately approve the project.
The DEIR and FEIR are included as Exhibits A and B to Attachment 8 to the Staff
Report.
NOTICING REQUIREMENTS/PUBLIC OUTREACH:
A notice of this public hearing was published in the East Bay Times. All persons who
have expressed an interest in being notified of actions related to this project were
notified via email. Notices were mailed to all property owners and tenants within 300
' feet of the Kaiser site and also to an expanded area beyond 300 feet, as shown below:
• Figure 2: Public Noticing
Intim Lien
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Page 9 of 11
The total mailing list was over 2,000 addresses. The Staff Report for this public hearing
was also available on the City's website. A copy of this Staff Report was provided to the
Project Applicant.
ATTACHMENTS: 1 . Site Plan at project buildout
2. Planning Commission Report, dated May 10, 2016 (without
attachments)
3. Planning Commission Meeting Minutes dated May 10, 2016
4. Resolution recommending that the City Council adopt a
Resolution amending the General Plan and the Eastern
Dublin Specific Plan related to the Kaiser Dublin Medical
Center project with the draft City Council Resolution included
as Exhibit A.
5. Resolution recommending that the City Council adopt an
Ordinance amending the Zoning Map and approving a
Planned Development Zoning District with a related Stage 1
Development Plan for the whole project site and a Stage 2
Development Plan for Phase 1A, with the draft City Council
Ordinance included as Exhibit A.
6. Resolution recommending that the City Council adopt a
Resolution approving a Site Development Review Permit for
Phase 1A of the Kaiser Dublin Medical Center project, with
the draft City Council Resolution included as Exhibit A and
the Project Plans included as Exhibit B.
7. Resolution recommending that the City Council adopt an
Ordinance approving a Development Agreement between
the City of Dublin and Kaiser Foundation Hospitals related to
the Kaiser Dublin Medical Center project, with the draft City
Council Ordinance included as Exhibit A and the
Development Agreement included as Exhibit B.
8. Resolution recommending that the City Council adopt a
Resolution certifying the Final Environmental Impact Report
and Adoption of Environmental Findings under CEQA for the
Kaiser Dublin Medical Center project, with the Final EIR
included as Exhibit A.
Page 10 of 11
GENERAL INFORMATION:
APPLICANT: Kaiser Foundation Health Plan
PROPERTY OWNERS: Kaiser Foundation Health Plan
LOCATION: The 58 acre site lies south of Dublin Blvd.
between Grafton Station and Fallon Gateway.
Interstate 580 forms the southern boundary of
the site. (Assessor Parcel Numbers 985-0061-
005-00 and 985-0027-009-02)
ZONING: Planned Development
GENERAL PLAN: Campus Office
SURROUNDING USES:
LOCATION ZONING GENERAL PLAN LAND USE CURRENT USE OF
PROPERTY
North PD Residential Condominiums and
Townhomes
South None None Interstate 580
East PD General Commercial Retail commercial
shopping center
Dublin Ranch Water Quality
West PD Mixed Use pond and future mixed use
(residential/commercial)
development
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