HomeMy WebLinkAboutItem 8.1 GP & East Dublin SP Amend Study
CITY CLERK
File # Dffi~lm-~[(2]
1f/0-55
AGENDA STATEMENT
CITY COUNCIL MEETING DATE: October 2, 2007
SUBJECT:
ATTACHMENTS:
RECOMMENDATION: 1)
~ 2)
3)
/7 ."
r [::::...?} C... 4)
5)
FINANCIAL STATEMENT:
PROJECT DESCRIPTION:
Site Context:
Initiation of a General Plan and Eastern Dublin Specific Plan Amendment
Study for 14 acres at the Southwest comer of Hacienda Drive and Dublin
Boulevard also known as Site 16A
Report Prepared by Jeri Ram, Community Development Director
1)
2)
3)
4)
5)
Resolution denying initiation of a General Plan and Eastern Dublin
Specific Plan Amendment Study.
Resolution approving initiation of a General Plan and Eastern
Dublin Specific Plan Amendment Study.
Letter from Applicant dated August 8, 2007.
Current General Plan Land Use Map.
General Plan Land Use Map from 1994 showing flex zoning with
Asterisks.
Receive Staff presentation;
Receive presentation from Applicant;
Receive public comment; and
Adopt Resolution denying the General Plan and Eastern Dublin
Specific Plan Amendment Study request; or
Adopt Resolution approving the General Plan and Eastern Dublin
Specific Plan Amendment Study request with the requirement that
the approval include a PD Stage 1 and 2 rezone and voluntary
Development Agreement as part of the application.
The costs of preparing the General Plan and Specific Plan
Amendment shall be borne by the affected property owner who has
requested this amendment.
The 14 acre project site is located at the south west comer of Dublin Boulevard and Hacienda Drive.
Directly across Dublin Boulevard to the north is the Sybase Building and directly to the south of the site is
------------------------------------------------------------------------------------------------------------
G:\Agendas\2007\CCSR9-18Rowland.doc
COPIES TO: Applicant
Property OWner
Page 1 of5
~.I
ITEM NO.
the future Life Style Center currently going through the Site Development Review Process with the City.
The site directly to the west is designated Campus Office and directly to the east is Hacienda Crossings.
In context, the original intent of the plan was to have campus office uses line Dublin Boulevard in this
location. While the area south of this site was originally designated campus office, amendments to the
General Plan and Specific Plan were made in 2001 to reduce the amount of campus office acreage
following changes in the economy that caused several prominent software companies to cancel expansion
plans (Attachment 3, Figure 2).
The land use concept approved in 2001 was that commercial use would extend across Hacienda Drive
only along the freeway. Campus Office would be mirrored along Dublin Boulevard going west towards
the transit center, which would then transition into residential.
The current General Plan and Eastern Dublin Specific Plan designation for this site is Campus Office
which allows for the development of a campus office type of development and ancillary uses which would
serve the office use. This designation does not allow for the development of a retail center.
The Applicant is requesting that the subject site be designated with an asterisk indicating the site could be
developed either as Campus Office or General Commercial. The Applicant notes that there are several
areas in the Eastern Dublin Specific Plan that are designated Campus Office but are also allowed to
develop as General Commercial. These sites are designated with a single asterisk on the land use map.
The Plan notes that these areas were key sites that could develop as General Commercial if traffic levels
identified in the Plan were not exceeded. These key sites were originally shown in the Eastern Dublin
Specific Plan in two locations at the southwest comer of Tassajara and Dubin Boulevard (the Koll
Project) and at the south side of Dublin Boulevard below Keegan Street (Dublin Ranch Area C/H)
(Attachment 5).
ANALYSIS:
Staff does not support the Applicant's request for a General Plan and Eastern Dublin Specific Plan
Amendment request for several reasons which are discussed below.
Reduction of Campus Office Acreage:
The intent of the Eastern Dublin Specific Plan is to provide a balanced mix of uses that will create a
community that has a mix of jobs for all income levels as well as a diversified tax base.
While retail development does create jobs, the jobs are different than what is found in a Campus Office
environment. In addition, as noted above, Campus Office uses allow for the continued development of a
diversified tax base. Campus Office uses provides the ability for business to business sales, which can
benefit the City by providing diversity in the type of sales tax generated.
Asnoted above, a reduction in Campus Office acreage has already occurred for 27.5 acres which equates
to 780,000 square feet of Campus Office development, directly south of this location. The previous
approval for the Campus Office Project would have provided for business to business sales and
approximately 3,100 office-type jobs from the software industry. In addition, at the Dublin Transit
Center, Alameda County Surplus Property Authority took advantage of the flex zoning on one of the sites
to increase the residential units by 300, thereby reducing the Campus Office square footage by 300,000
square feet. Assuming the same number of jobs per square feet as the other Campus Office site, there
would be a potential loss of over 1,200 office-type jobs. The loss of Campus Office acreage/square
footage in this location could be up to an additional 14 acres or 518,364 square feet. Again, using the
same jobs assumption, this would eql:ate to approximately 2,070 jobs. See the Chart be1cw reflects
cumulative totals:
Page 2 of5
CAMPUS OFFICE CONVERSION STATUS
LOCATION ACREAGE SQUARE FEET OFFICE
JOBS*
Lifestyle Center Site (south 27.5 acres 780,000 sq.ft. 3,120
of proposed project)
Dublin Transit Center, Site 4.10 acres 300,000 sq.ft. 1,200
E-1 at Iron Horse Parkway
PREVIOUSLY
APPROVED
General Plan
Amendment
A roved
Approved by
Development
Agreement
Current Proposal
* 4 jobs per 1,000 square-feet
The Eastern Dublin Specific Plan contains the following goals and policies that are relevant to this
request:
Goal: "Establish an attractive and vital community that provides a balanced and fully integrated range of
residential, commercial, employment, recreational, and social opportunities" (page 33).
The policy in the plan which implements this goal is:
"Policy 4-1: Maintain a reasonable balance in residential and employment-generating land uses by
adhering to the distribution ofland uses depicted in Figure 4-1, Land Use Map" (page 33).
Goal: "Provide a stable and economically sound employment base for the City of Dublin which is diverse
in character and responsive to the needs of the community" (page 40).
The policies in the plan which implement this goal are:
"Policy 4-20: Encourage employment-generating uses which provide a broad range of job types and
wage/salary scales" (page 40).
"Policy 4-22: Encourage high-intensity office and other employment-generating uses near the future
BART station, and at freeway interchanges where the development can take advantage of convenient
access, and the high visibility will make a distinctive, high quality statement at these important entry
points into eastern Dublin (page 41)."
. The continued reduction in Campus Office designated land as shown in the Chart below is not consistent
with the Eastern Dublin Specific Plan's Goals and Polices as noted above.
Page 3 of5
Change in the Look and Feel of Dublin Boulevard:
In the Eastern Dublin Specific Plan (EDSP) two sites were identified that could be developed as either
Campus Office or General Commercial (retail): at the southwest comer of Tassajara and Dubin Boulevard
(the Koll Project) and at the south side of Dublin Boulevard below Keegan Street (Dublin Ranch Area
C/H) (Attachment 5). The Land Use Map of the EDSP indicated those sites by using a single asterisk.
Both of these sites were locations where the land use concept for the area was for a mix of uses in close
proximity to each other (Commercial/Office on one side of Dublin Boulevard and residential on the other
side).
Site 16A is located at a major gateway into the City. The site is at the south west comer of Hacienda
Drive and Dublin Boulevard. The intent of this area was to have an attractive gateway that would have
Campus Office land uses that mirror each other on each side of Dublin Boulevard. Part of this concept
has already been developed by the approval and construction of Sybase on the opposite side of Dublin
Boulevard from Site 16A. Staff is concerned that with a change to General Commercial (retail) in this
location, the look and feel of Dublin Boulevard will not be as envisioned in the Plan.
Cohesive Plan for Site:
The Applicant is asking the City Council to consider that this 14 acre site be designated with an asterisk
that would allow for development as either Campus Office or General Commercial. In addition, as part
of the request, the Applicant has indicated that there is a retail proposal from Rowland Development for a
140,000 square foot retail center on 7 acres of the site. On the remaining ~ of the site, the Applicant
would seek another developer to develop retail, campus office, or possibly a hotel.
In the past ten years the City's policy has been that prior to amending the General Plan or Eastern Dublin
Specific Plan, the entire area that is part of the application (or affected by the application) should include
a fully delineated development proposal. On June 15, 1999 the City Council heard a request from K&B
Homes for an amendment to the Eastern Dublin Specific Plan and City of Dublin General Plan for a
change to a portion of the Dublin Land Company holdings. At that time Staff indicated a concern about
changing the land use designation for only a portion of the property without knowing what the entire
project would look like and how the change would affect the remainder of the site. Staff noted that it is
difficult to analyze how changes will impact surrounding properties and it is difficult to plan how this
project will coordinate with the next project that is brought forward. One of the benefits of having a
specific plan with large holdings of property is to be able to do coordinated planning. It was also noted
that changing land use designations to address current economic considerations may not be the best way
to plan the City. Additionally, minutes from the meeting noted that the City Council thought that the
approach requested by K&B Homes was piecemeal planning and did not ensure that the balance of land
uses anticipated by the Eastern Dublin Specific Plan would happen. It was also noted that the City
Council didn't want to set a precedent by approving this type of change.
Based on this direction, Staffhas required other developers to come forward with coordinated projects for
the entire site. A most recent example is the Ikea Project. During the project review for that project, Staff
required that the Planned Development Zoning for the site include the development plan for a lifestyle
center. The ability to look at the whole parcel enabled Staff to plan for relationships and transitions on
the entire site.
Staff, therefore recommends, should the City Council authorize the General Plan and Eastern Dublin
Specific Plan Amendment Study, that the Applicant be directed to plan the entire parcel at the same time.
This would require that another development proposal be brought forward at the same time as the
rtowland Group proposal prior to Staff proceeding with the General Plan Amendment Study analysis.
Page 4 of5
CONCLUSION:
City policy requires that the City Council approve the initiation of any General Plan and/or Specific Plan
Amendment Study prior to Staff accepting a development application that would include a General Plan
and Specific Plan Amendment for a project.
Staff is recommending that the City Council deny the initiation of the General Plan Amendment Study for
three reasons.
1. The reduction in Campus Office acreage would result in a reduction in the plan of a
diversified tax base, the loss of higher paying jobs and will not work towards meeting the
goals in the Eastern Dublin Specific Plan to create a balanced community;
2. The proposal would change the look and feel of Dublin Boulevard at this location where it
was planned to mirror Campus Office uses on each side of Dublin Boulevard and provide
for day time activity to help create users for the retail areas to the south and east along
Dublin Boulevard; and
3. The proposed Study does not include an application or information for 50% of the
property. Without a full plan it is difficult to plan a cohesive project or development. In
the past the City Council has chosen to require an application for the entire site.
Staff has prepared a resolution for denial that sets forth the foregoing reasons (Attachment 1). However,
in the event that the City Council desires to initiate a General Plan and Eastern Dublin Specific Plan
Amendment Study, Staff has included a resolution that would approve the initiation with the proviso that
the Amendment Study include a PD Stage 1 and 2 rezone for the entire site. This would ensure a
cohesively planned development (Attachment 2). Should the City Council approve the commencement of
the Study, no work would begin until the Applicant brought in an application for the entire site. At that
point, Staff would begin to study the requested amendment, prepare the appropriate environmental
document and other documents.
Staff suggests that since this is a request for a General Plan Amendment and should the City Council go
forward with the initiation, Staff would work with the Applicant on a voluntary development agreement
that would look at the community benefit of such a General Plan Amendment.
Initiating or not initiating a General Plan Amendment Study is totally within the discretion of the City
Council. If the City Council initiates the General Plan and Specific Plan Amendment Study, the project
will come before the Planning Commission and the City Council for a General Plan and Specific Plan
Amendment, PD - Planned Development Rezone with Stage 1 and Stage 2 Development Plan, voluntary
Development Agreement as noted above and other entitlements as needed.
RECOMMENDATION:
Staff recommends that the City Council: 1) Receive Staff presentation; 2) Receive presentation from
Applicant; 3) Receive public comment; and 4) Adopt Resolution denying the General Plan and Eastern
Dublin Specific Plan Amendment Study request; or 5) Adopt Resolution approving the General Plan and
Eastern Dublin Specific Plan Amendment Study request with the requirement that the approval include a
PD Stage 1 and 2 rezone as part of the application.
Page 5 of5
't~
RESOLUTION NO. XX - 07
A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF DUBLIN
****************************************
DENYING THE INITIATION OF A GENERAL PLAN AMENDMENT AND EASTERN
DUBLIN SPECIFIC PLAN AMENDMENT STUDY FOR THE PROPERTY
KNOWN AS SITE 16A
WHEREAS, Alameda County Surplus Property Authority has submitted a request to consider an
amendment to the City of Dublin General Plan and Eastern Dublin Specific Plan to allow for Campus
Office and Commercial flex on the 14 acre parcel located at the south west corner of Hacienda Drive and
Dublin Boulevard (APN 986-0033-001); and
WHEREAS, the City Council reviewed the Staff Report and public testimony at the City Council
meeting of October 2, 2007 and was concerned with the loss of Campus Office designated acreage, the
change in the look and feel along Dublin Boulevard at this location and the lack of a cohesive plan for the
entire 14 acres; and
WHEREAS, a staff report was submitted outlining the issues surrounding the request; and
WHEREAS, the City Council did hear and consider all such reports, recommendations, and
testimony hereinabove set forth.
NOW, THEREFORE, BE IT RESOLVED THAT the City Council of the City of Dublin does
hereby deny the initiation of a General Plan and Eastern Dublin Specific Plan Amendment Study.
PASSED, APPROVED AND ADOPTED BY the City Council ofthe City of Dublin on this 2nd
day of October 2007, by the following votes:
AYES:
NOES:
ABSENT:
ABSTAIN:
Mayor
ATTEST:
City Clerk
lO,'2.-o1 zs.l
ATTACHMENT 1
G:\Agendas\2007\CCRESDenialRowland.doc
RESOLUTION NO. XX - 07
:< 4fJ ~
A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF DUBLIN
****************************************
APPROVING THE INITIATION OF A GENERAL PLAN AMENDMENT AND EASTERN
DUBLIN SPECIFIC PLAN AMENDMENT STUDY FOR THE PROPERTY
KNOWN AS SITE 16A
WHEREAS, Alameda County Surplus Property Authority has submitted a request to consider an
amendment to the City of Dublin General Plan and Eastern Dublin Specific Plan to allow for Campus
Office and Commercial flex on the 14 acre parcel located at the south west corner of Hacienda Drive and
Dublin Boulevard (APN 986-0033-001); and
WHEREAS, in order to consider the proposed request the City Council has indicated that a
comprehensive and cohesive plan with Stage 1 and 2 Zoning for the entire site would need to be proposed
in concert with the General Plan and Specific Plan Amendment Study; and
WHEREAS, the City Council desires to explore what community benefit this project would
include and therefore has requested that a voluntary Development Agreement be part of the application;
and
WHEREAS, the initiation request has been reviewed in accordance with the provisions of the
California Environmental Quality Act (CEQA) and was found to be Categorically Exempt under Section
15306, Class 6 of the State CEQA Guidelines for basic data collection, research, and resource evaluation
activities; and
WHEREAS, a staff report was submitted outlining the issues surrounding the request; and
WHEREAS, the City Council did hear and consider all such reports, recommendations, and
testimony hereinabove set forth, and supports the initiation of a General Plan Amendment and Eastern
Dublin Specific Plan Amendment Study.
NOW, THEREFORE, BE IT RESOLVED THAT the City Council of the City of Dublin does
hereby approve the initiation of a General Plan and Eastern Dublin Specific Plan Amendment Study for
the site as long as the project includes an application for the entire site along with a Stage 1 and 2 Rezone
and Voluntary Development Agreement.
PASSED, APPROVED AND ADOPTED BY the City Council of the City of Dublin on this 2nd
day of October 2007, by the following votes:
AYES:
NOES:
ABSENT:
ABSTAIN:
Mayor
ATTEST:
City Clerk
ATTACHMENT 2
G:\Agendas\2007\CCRESApprovalRowland.doc
'\
3~3
ALAMEDA COUNTY COMMUNITY DEVELOPMENT AGENCY
James E. Sorensen
Agency Director
Patrick Cashman
Project Director
224
West Winton Avenue
Room 110
Hayward
California
94544-1215
phone
510.6705333
fax
510.670.6374
www
co.alameda.ca.us/cda
SURPLUS PROPERTY AUTHORITY
August 8, 2007
Jeri Ram
City of Dublin Planning Department
100 Civic Center Plaza
Dublin, CA 94568
RE: Site 16A GPA/SPA Amendment Consideration
Dear Jeri:
The Alameda County Surplus Property Authority respectfully requests that the City
of Dublin consider amending the General Plan and Eastern Dublin Specific Plan for
Site 16A, bounded by Dublin Boulevard, Hacienda Drive, Martinelli Drive and
Arnold Road, to permit General Commercial uses as well as the present designation
of Campus Office, as permitted in the Specific Plan. This flexible designation would
permit Rowland Development Co. to go forward with a proposed retail center on
approximately half the Site while retaining flexibility for a variety of uses on the
remaining half
Section 4.8.2 of the Eastern Dublin Specific Plan states that certain areas (marked
by asterisks on the land use map) can develop as either General Commercial or
Campus Office uses, permitting flexibility to respond to changing market conditions.
The shift from Campus Office (the underlying land use designation) to General
Commercial is only permitted if the established traffic levels are not exceeded.
We believe that the flexible CO/GC designation to permit both general commercial
uses as well as the underlying campus office uses on Site 16A would be of benefit
to the City of Dublin. The 14 acre site forms a natural transition between the
Blake/Hunt retail project to the south on Site 16B and existing and planned campus
office uses to the north on 15A and 15B (Sybase) and between Hacienda Cr()ssings
to the east and planned Transit Center office development to the west. By allowing
more flexibility of uses on the Site, the City will promote a mix of uses that will
create a natural transition between the existing and planned Campus Office and
General Commercial uses in the area. The attached Figure 1 illustrates the existing
land use designations for Site 16A and the surrounding area and Figure 2 illustrates
the proposed flexible Co/GC designation for 16A.
The current permitted density on Site 16A is up to 480,000 square feet of Campus
Office. Based on previous experience with development of CO/GC sites (such as
the Koll Development on Site 5B) and the conversion of sites from Campus Offi. ce
'RFr'cn/l:."n
M !G 1 I ?nn7
ATTACHMENT 3
" 1
L{D{)~
Jeri Ram
August 8, 2007
Page 2
to General Commercial (such as Site 16B), we have found that a ratio of 1.6: 1 Campus Office to
General Commercial will generally result in retail traffic levels not exceeding the anticipated traffic
from solely Campus Office use. Using this ratio, a flexible CO/GC designation for Site 16A could
result in up to 480,000 square feet of Campus Office or up to 300,000 square feet of General
Commercial use.
The flexible CO/GC designation for Site 16A would permit the consideration by the City of
Rowland Development Co.' s proposal to construct a 140,000 square foot retail development on
approximately 7 acres of the Site that would feature a Korean grocery store, a conference center
and a health club. It would also permit the future development of the remaining 7 acres with
additional retail development, campus office uses, or possibly a hotel, all of which would
complement existing and planned uses on adjacent properties.
Therefore, we request that the City initiate the process for considering an amendment to the
General Plan and Eastern Dublin Specific Plan to permit the flexible Campus Office/General
Commercial designation for Site 16A.
Sincerely,
~ / .-------.
/;$//~
Patrick Cashman
Director
Attachments
Cc: James Sorensen, Manager
Rich Ambrose, Dublin City Manager
Shawn Kim, Rowland Development
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