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Downtown [conomic
Vitality Plan 1 990
Recommendations by
The Oowntown Study Task force
for Improved Oowntown fconomic Vitality
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City of Dublin
Downtown Economic Vitality Plan
1998
Evaluations of Present and Anticipated Future
Conditions
Recommendations by
The Downtown Study Task Force
For Improved Downtown Economic Vitality
ATTACHMENT A
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TABLE OF CONTENTS
1. Downtown Study Task Force
2. Downtown Profile
3. Competition to Dublin's Downtown
4. Dublin's 1987 Downtown Specific Plan
5. Physical Improvement Ideas for the Downtown Area
6. Downtown land Use Policy Review
7. Evaluation of Downtown Events and Activities
8. Economic Development Tools to Aid Downtown Commerce
9. Downtown Study Task Force Recommendations
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DOWNTOWN STUDY TASK FORCE
The Downtown Study Task Force (DSTF) was established by the City Council in October of 1997 to
analyze current market conditions affecting the City and Tri-Valley area in relationship to Downtown
Dublin commercial activities. With new commercial construction beginning in eastern Dublin coupled
with aggressive development of new commercial projects in adjacent cities, the need to revisit the
issue of maintaining and improving the economic vitality of Dublin's Downtown became the focus of
the Downtown Study Task Force.
The Downtown Study Task Force was asked to meet and discuss' pertinent issues relative to
improving the long term economic vitality of the Downtown and bring back to the City Council a list of
recommendation to be reviewed and if appropriate, acted on by the Council. The report that follows is
the combined efforts of a very dedicated group of citizens, landlords, and Dublin business owners that
have met monthly during the last year in helping to prepare this report.
It is the hope of the Downtown Study Task Force that the ideas and recommendations of this report
evolve through the leadership of the City Council into projects that improve business opportunities for
those companies that have been the historical strength of Dublin's commerce.
The Task Force recommends that the City Council implement the recommendations that are
contained in this report.
Sincerely,
Mary Beth Acuff
Patricia Benavidez
Michael Bischoff
Bernice Bywater
Rick Camacho
Craig Caldwll
James Chapin
Bridget Craig
Sylvia D'Angelo
Robert Enea
Nancy Feeley
Bruce Fiedler
Nancy Finley-King
Christina Foxx
Garay Harper
Brett Jensen
Jenet Livergood
Janet Lockhart
Connie Mack
Michael S. Mikulich
Julie Nielsen
Tony Oravetz
Michael Perkins
Dan Straface
Manjit Sidhu
Paul Wasserman
Sawsan Wolski
George Zika
G:\GREG\TASKFORC\DOWNTOWN\signature page.doc
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DOWNTOWN STUDY TASK FORCE
Introduction & Back~round
Established by the City Council in October 1997, twenty- seven members were appointed
to the Downtown Study Task Force (DSTF) with the commission to meet and discuss
conditions affecting the economic vitality of Dublin's downtown area. The DSTF was
asked to prepare a report with the help of City Staff outlining its findings and
recommendations on how to improve and enhance business opportunities in Downtown
Dublin.
Appointments to the DSTF included a well balanced group of citizens, landlords and
business owners along with representatives of the City Council, Planning Commission
and the Chamber of Commerce. The diversity of the Task Force allowed for a number of
different perspectives to surface on issues brought to the DSTF. It was the responsibility
of City Staff to be the moderators of the 15 meetings held by the DSTF and to research
information asked for by Task Force members. Paramount in the process was group
participation in an environment that encouraged visionary thinking.
At one of the early meetings of the DSTF, general issues affecting the Downtown were
discussed and a survey of the Task Force members was conducted to pinpoint issues of
greatest concern. Each member was asked to vote for three issues that they felt were the
most important issues facing the economic vitality of Dublin's Downtown. Results of
this survey revealed the following results:
RESUL TS OF MAJOR CONCERNSIISSUES SURVEY
FOR THE DOWNTOWN STUDY TASK FORCE
Images of Dublin (create an atmosphere, pedestrian friendly) 16
Eastern Dublin Competition 14
People Gathering Place "Dublin alive after 5" 13
Old Downtown vs. Traditional Downtown 11
Need for Western BART Station 3
"Shop Dublin" 3
Create walking areas (pedestrian walkways) 3
What impact the Flyover will have 1
Other uses besides Retail (other interests) 1
680/Split of Village Parkway 0
Access to the Downtown Community 0
Transportation (move people around) 0
Convenient Parking (Village Parkway) 0
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Staff took direction from the DSTF and prepared future meetings around the following
topics:
I. Economic profiles of Dublin's Downtown
2. Competition to Dublin's Downtown commerce
3. Review of Dublin's 1987 Downtown Specific Plan
4. Physical improvement ideas for the Downtown area
5. Evaluation of Downtown events and activities
6. Ideas on how to increase Downtown commerce
7. Review of Downtown land use policies
8. Economic development tools to aid Downtown commerce
The remainder of this report is intended to help Councilmembers understand, in more
detail, the issues discussed by the DSTF and then to present a list of ideas and
recommendations that the Council can act upon, if deemed appropriate.
Downtown Profile
Boundary Description
One of the first issues discussed by the DSTF was the review and analysis of "what" and
"where" th~ downtown of Dublin is located. The consensus of the DSTF is that the
Downtown area for Dublin is basically the same area that was delineated in the 1987
Downtown Specific Plan (see Exhibit 1) with minor differences. One difference being
the feeling of the DSTF that all businesses along San Ramon Road from Dublin
Boulevard to Amador Valley Boulevard were part of the Downtown and not just those on
the east side as delineated in the 1987 Downtown Specific Plan. Also, the Village Square
Shopping Center on Village Parkway and Amador Valley Boulevard was not considered
by the DSTF as part of the Downtown Study Area.
It was decided by the DSTF that all businesses within the established borders of the
Downtown Study Area are considered part of the Downtown and party to the issues
facing downtown revitalization. There are 90 office businesses, 258 retail business and
7 industrial businesses that fall within the Downtown Study Area. These companies
comprised almost half of the companies with business licenses in Dublin that are not
home occupations.
The issue was brought up whether this was to be a Downtown Study Task Force or a
City-wide retail task force. The conclusion was that the DSTF was asked by the City
Council to focus their attention on the defined downtown area and not general issues
regarding retail commerce in Dublin. It was hoped that by strengthening the activity of
commerce in Dublin's Downtown, all other retail and commercial outlets in Dublin
would benefit as a whole.
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Old Downtown vs. Traditional Downtown
Although the mix of Dublin's Downtown businesses is similar to many cities, the
physical layout and appearance of Dublin's Downtown is not a typical main street
downtown. Dublin's Downtown is not set apart by one main street, it is not differentiated
by older historical buildings with character, and it is not positioned around a quaint
setting. Instead, Dublin's Downtown is the evolution of successful retailing that started
in the spring of 1961 with the building of Safeway at the Shamrock Village Shopping
Center. Additional commercial space filled in the Downtown area to meet the growing
market demand for goods and services creating the Central Business District that exists
today. The sprawling physical nature of Dublin's Downtown commerce area has kept the
individual entrepreneur usually separate and independent in their business dealing.
Dublin has not had a Downtown Merchant Association to help bring together the
diversity of independent merchants in the Downtown area to discuss business strategies.
Business networking has been championed by the members of the Chamber of Commerce
over the years. Unfortunately, not all Downtown businesses are members of the Chamber
of Commerce which weakens the ability to strategically plan for events and promotions
that involve all Downtown businesses.
PropertY Ownership Matrix
Ownership of property in the Downtown area was a concern of the DSTF because it was
perceived that the majority of Downtown property was owned by absentee landlords who
might not share the same values nor see the same vision as the DSTF for the future of the
Downtown. Staff was able to find the following land ownership records of Downtown
properties in 1997:
COMMERCIAL LAND OWNERSHIP
WITHIN DUBLIN, CALIFORNIA
October 1997
Vacant Land 4 10 0 0
Commercial 1 story 5 20 9 6
Commercial 3 4 2 0
Miscellaneous
Discount Department 0 5
Store
Restaurant 2 14 0 3
Shopping Centers 1 0 1 1
TOTAL 15 49 13 15
The perception of the DSTF was correct that ownership of Downtown properties was
primarily held by landlords that resided outside of Dublin. Staff found the majority of
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these absentee owners are accessible and willing to discuss economic development issues.
A number of the landlords and tenants were making improvements to their properties
such as Crown Chevrolet, the Monarch Hotel and Pasta Primavera, while others were
constructing new facilities such as PetsMart, Outback Steak House and The Good Guys.
Staff also spoke with a number of landlords who saw no incentive to investing in physical
improvements to entice new tenants.
One of the assignments of Staff was to convey development information to the DSTF
members in order to keep them informed of current events affecting Downtown
commerce. At each meeting of the DSTF, Staff answered questions and gave a short
update on new Downtown Development projects.
Tracking property ownership during the term of the DSTF revealed a number of property
sales that occurred in the Downtown area. This information was conveyed to the DSTF
to help evaluate local economic trends. Some of the data and trends that were discussed
with Staff included 1) increase in sales and property tax from Downtown merchants, 2)
lowering of commercial vacancy rates during the last four years, 3) increase in
Downtown rental rates of office space and smaller retail space, 4) decrease in rental rates
of larger retail space of 10,000 sf to 40,000 sf, and 5) City's dependency on sales and
property tax as a means of providing services to the community.
Although Downtown Dublin seemed to be experiencing favorable economic prosperity,
numerous members of the DSTF continued to express their concern about future values in
the Downtown area due to internal and external competition.
Competition to Dublin's Downtown
High on the list of concerns of the DSTF was the "competition factor" derived from
projects being developed in neighboring cities and eastern Dublin. The concern was
voiced by many DSTF members that new commercial developments in eastern Dublin,
Pleasanton, Livermore and San Ramon would have a negative impact on the continued
viability of Dublin's Downtown commerce. Would the new Albertson's in San Ramon,
or the new CompUSA in Pleasanton, or the new Regal Cinema in eastern Dublin start
changing the buying habits that use to draw customers to Downtown Dublin? Would any
or all of the new development outside of the Downtown area draw companies away from
the Downtown? Would the proliferation of increased retail outlets put some Downtown
Dublin retailers out of business?
Staffwas asked to make presentations to the DSTF on the new commercial developments
in eastern Dublin. Task members wanted to know if any Downtown merchants were
leaving Downtown to become tenants at the Hacienda Crossings Shopping Center in
eastern Dublin or other area developments. The only company leaving the Downtown to
become one of the retailers in the Hacienda Crossings development is TJ Maxx..
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Copelands, Home Express, Red Lobster and Sizzlers all closed their Downtown Dublin
locations for business reasons, not relocation reasons Some of the Task Force members
felt that if the Hacienda Crossings project had been built to a smaller scale or not at all,
that the same merchants going into the Hacienda Crossing project might have chosen
Downtown space instead. Over a period of four years, Best Buy, Old Navy, and Barnes
& Noble had looked at downtown sites but decided to locate in the Hacienda Crossing
project. Task Force members wanted the City to encourage the development of a new
grocery store in Downtown Dublin before a new grocery store is built in eastern Dublin.
At build-out, the Hacienda Crossings project will add an additional 540,769 square feet to
Dublin's existing retail inventory of 2,644,814 square feet. DSTF members had different
opinions as to the effect that the new Hacienda Crossings project would have on
Downtown businesses. In comparison, Pleasanton with a population of 50,000 has
approximately 4,324,000 sq. ft. of retail inventory and plans to develop an additional
574,000 sq. ft. of commercial space at the proposed Bernal project.
Although considerable retail and commercial projects have been added to adjacent cities
over the last few years, the actual vacancy rate of retail and office space in Dublin has
gone down (see Exhibit 2). The strong local and national economy coupled with
Dublin's excellent location helped in keeping the majority of Dublin's Downtown
buildings occupied and producing.
Dublin's 1987 Downtown Specific Plan
An overview of the 1987 Downtown Specific Plan was presented to the DSTF for their
review. Revisiting this documents provided many ideas for the DSTP that paralleled
much of their thinking and recommendations. Some of the ideas that were not
implemented - in the 1987 Downtown Specific Plan are worthy of reconsideration by the
City Council.
Exhibit 3 outlines a number of the strategies and programs of the Downtown Specific
Plan that the City has been able to accomplish which include: 1) Improving Circulation,
2) Urban Design Improvements, 3) Special Programs, 4) Land Use Revisions, and 5)
Parking Standards. In implementing the recommendations of the 1987 Downtown
Specific Plan, the City has spent over $12 million for public improvements in Dublin's
Downtown.
Physical Improvement Ideas for the Downtown Area
One of the Task Force members made this statement, " Because Dublin does not have a
historical element in the Downtown, we need to figure out how to achieve that feeling.
We can't change the underlying infrastructure, and so we need to figure out a way to
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soften what we have". Others expressed a need to change the image of the Downtown via
physical improvements such as signs, streetscape, project entries, landscape, street and
sidewalk medallions, light standards and coordinated colors. As indicated on the initial
survey of the DSTF, the image of Dublin's Downtown was their highest concern. Ideas
presented in the 1987 Downtown Specific Plan are worth a second look (see Exhibits 4,5
& 6). There was a consensus of DSTF members that dollars invested by the City in
changing the "image" of the Downtown area through a professionally coordinated effort
of physical improvements would be money well spent.
The DSTF also felt that different areas within Dublin's Downtown could be molded via
physical improvements into different theme areas. Village Parkway was discussed at
length as to the types of improvements that might be able to set that section of Downtown
off in a special way. Improving the pedestrian walkways, facade improvements, median
enhancements, banners, light standards, flags, color coordination for the buildings and
diagonal parking were all ideas of the DSTF for just this one area. Other Downtown
areas that the DSTF felt merited this kind of study by a professional design firm included
the Downtown core area that is anchored by the Mervyn's and Target Shopping Centers
and the West BART Station development.
Downtown Land Use Policy Review
The DSTF concluded that the vitality of Dublin's Downtown could be improved with the
establishment and implementation of certain land use policies and programs. Planning
Staff made a couple of presentations to the Task Force regarding potential land use issues
for the Downtown and possible solutions. The DSTF supports the ideas presented under
the following three land use topic areas:
1) Modification of General Plan in the Downtown Area
The DSTF suggests that Planning Staff assess the existing General Plan land use
designations for the Downtown to determine whether any land use changes should be
made that would encourage uses that would improve the vitality of the Downtown. For
example, some of the property within the Downtown have a "Retail/Office and
Automotive" land use designation (i.e., along the western portion of Village Parkway)
and "Public/Semi-Public Facility" land use designation (Le., along Golden Gate Drive).
The DSTF suggests that these land uses be changed to allow more retail commercial-type
uses, which includes eating and entertainment uses, and office-type uses that are typically
found within downtown areas.
Changes that are made to the General Plan would require changes to the Zoning
Ordinance. The City's Zoning Ordinance must be consistent with the General Plan. The
parcels within the Downtown that have the "Public/Semi-Public Facility" General Plan
land use designation have an M-l, Light Industrial Zoning District zoning designation. A
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portion of this area includes the BART property, which would be the future site of the
West Dublin BART Station parking lot and the other portion is currently occupied by a
warehouse-type building, formerly the Unisource Building. The DSTF concluded these
parcels are currently under-utilized and that the M-l zoning designation is inappropriate
for Dublin's Downtown because it limits the land use potential for these properties. In
consideration of the close proximity of these parcels to the freeways, their central location
within the Downtown, and future development of the BART Station; the Task Force
believes these parcels can attract a higher level of use. The DSTF also suggests assessing
other parcels within the Downtown which may be under-utilized and which may require
rezomng.
2) Create New Flexible Zoning to Accommodate Multiple Downtown Uses
Members of the Task Force suggest incorporating flexible zoning in order to
accommodate a variety of uses on any given parcel or combination of parcels within the
Downtown. For example, a mixed-use development could include retail, restaurant,
entertainment, office and residential type uses. A mixed-use development could also be
buildings with retail and office uses on the bottom level, and residential land uses on the
upper levels.
The DSTF believes that a mixed-use development would achieve a "pedestrian-oriented"
downtown with successful, thriving businesses. Mixed-use developments would bring
more people and activities to the Downtown area, especially if the development includes
uses such as theaters, restaurants and specialty food stores. Also, a thriving mixed-use
development would successfully attract new businesses that desire to remain viable and
profitable.
The DSTF is advocating for a more "pedestrian-oriented" downtown. A mixed-use
development - could emphasize pedestrian-oriented designs, such as incorporating
"paseos" (or pathways), human-scale architecture, compact building spaces, increased
landscaping and stores with street frontage orientation.
The DSTF envisions the area around the future West Dublin BART Station as a potential
site for a mixed-use development with retail, office, hotel and high density residential
uses. The DSTF supports the idea of establishing a Transit Village Development District
for this area. In compliance with the State Government Code, a city can establish such a
district by preparing a land use plan for the area. The current M-l zoning designation
would be replaced with zoning that is in compliance with the land use plan.
3) Restrictive Zoning Policies
The Committee recommends that the City conduct a further analysis of the Zoning
Ordinance to determine whether the Ordinance contains certain provisions that would be
too restrictive for developers of new projects within the Downtown and which may serve
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as obstacles to good commercial development. For example, the City may want to
incorporate more flexible sign regulations and parking standards. The City could be more
flexible with sign regulations, especially for commercial centers with minimal tenant
visibility. In addition, the City could allow increased development in the Downtown
without requiring additional parking in those areas where parking ratios are currently
excessive.
The DSTF also recommends that Staff review the existing Dublin Downtown Specific
Plan which includes development standards that the City may want to adopt as Zoning
Ordinance regulations.
Evaluation of Downtown Events and Activities
Special events that encourage residents and non-residents to gather and shop in the
Downtown area of Dublin were highly favored by the Task Force. The idea of starting a
Dublin Farmers' Market was championed by the DSTF and considered a worthy event for
the City to sponsor each year. Bringing the Pasta and Jazz Festival to Dublin was
encouraged by the DSTF. The idea of having a second major event, such as the Dublin
Pasta and Jazz Festival, to compliment the St. Patrick's Day Celebration helps to bring
more people Downtown. It is the desire of the DSTF that a second major event continue
to be held in Downtown Dublin.
The Chamber of Commerce made a presentation to the DSTF outlining its objectives and
the programs that it sponsors to help promote business in Dublin. As mentioned, the
Chamber is the primary source of business networking. In the past, the Chamber has
sponsored special business promotion events such as the Sidewalk Sales Days, Moonlight
Sales and Hawaiian Days promotion. The objective of these events was to help
coordinate marketing among the many independent Dublin merchants.
The DSTF would like to see a joint effort of the City participating with the Chamber in
promoting a "Shop Dublin" campaign. New street banners would be used to promote the
"Shop Dublin" program that could be coordinated with the individual marketing
campaigns of Downtown businesses.
Economic Development Tools to Aid Downtown Commerce
Members of the DSTF were given an overview of programs that are being used by other
cities to strengthen their downtowns. One program that has been highly successful is the
adoption and implementation of redevelopment plans by different cities. The DSTF
identified certain areas of the City and Downtown that might be able to be incorporated
into a redevelopment project area which could use redevelopment funds for
improvements. It was suggested by the DSTF that the City fund an initial feasibility
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study to determine whether the creation of a redevelopment agency and the adoption of a
redevelopment plan is legally, politically and financially practicable.
The use of a fa~ade improvement program was also looked upon favorable by the DSTF.
This program would offer an incentive to Dublin merchants to improve the image of
Dublin by fixing and enhancing business storefronts. Effective in many California cities,
Dublin's Downtown could become more decorative and stylish through this type of a
program.
The idea of creating Business Improvement Districts was discussed as a way to raise
funds for improvements. The DSTF also discussed the idea of forming a City Business
Commission, but felt that a Task Force could be formed by the City in the future when
the need arose instead of form a new permanent commission.
Downtown Study Task Force Recommendations
It was suggested by members of the DSTF that the recommendation of this Downtown
Economic Vitality Plan be separated into "Short-Term" and "Long- Term"
recommendations. Knowing that some of the recommendations included in this report
will require funding and additional analysis by different City Departments in order to be
implemented, further study by City Staff may be necessary to estimate costs of
implementation before the City Council would be able to act on a specific DSTF
recommendation.
Short Term Recommendations for Downtown Economic Vitality
1. Continue the promotion of the Dublin Farmers' Market with the market being moved,
if possible, to a location more central to Dublin's Downtown.
2. Purchase new festive banners that would promote a "Shop Dublin" campaign.
3. Continue City sponsorship of the annual St. Patrick's Day Celebration and support of
a 2nd major festival in the summer, such as the Dublin Pasta & Jazz Festival.
4. Commission design study for integrated approach to improving the physical
appearance to the Downtown area. This study would bring back to the Council
specific design ideas and estimated costs for new signs, flags, banners, streetscape,
monuments, project entries, street and sidewalk medallions, light standards, benches
and any other physical improvements ideas deemed appropriate for the Downtown.
5. Commission a Redevelopment Feasibility Study in order to determine whether the
adoption of a redevelopment plan is legally, politically and financially practicable.
6. Appropriate additional funds to help market Downtown properties. These funds
might include the creation of a new brochure highlighting the Downtown,
participation in area trade shows, such as the International Council of Shopping
Center Conventions, etc.
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Lone: term recommendations:
1. Initiate specific land use studies for designated areas of Dublin's Downtown that
would include the following areas:
a) Village Parkway commercial area,
b) West BART Station area,
c) Downtown core shopping area that would include both the Mervyn's and Target
anchored shopping centers.
2. Promote the creation of Downtown gathering places to enhance the image of Dublin's
Downtown. This might include the creation of a location with public art or a
fountain; the development of a performing arts building; or private developments that
bring people Downtown to gather and enjoy their surrounding.
3. Promote public/private development of the West Dublin BART Station for a mixed-
use development.
4. Implement a Facade Improvement Program that provides incentives for individuals
wanting to improve the condition and appearance of Downtown storefronts.
5. Modify the General Plan in the Downtown area to encourage uses that would improve
the vitality of the Downtown.
6. Create new flexible zoning to accommodate multiple downtown uses.
7. Review and change, where appropriate, restrictive zoning policies.
8. Encourage the development of a new downtown supermarket before one is built in
eastern Dublin.
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DUBLIN DOWNTOWN SPECIFIC PLAN
STRATEGIES/PROGRAMS ALREADY ACCOMPLISHED
Widening of San Ramon Rd. to 6 lanes up to Amador Valley Blvd.
Widening of Dublin Blvd. to 6 lanes between San Ramon Rd. and Village Prky., including 3 left turn lanes at San
Ramon Rd. (still need to widen Dublin Blvd. to 6 lanes between Village Parkway and Dougherty Rd.)
Road between Amador Plaza Rd. and Golden Gate Dr. (Parallel Rd.) is being done with the 1-58011-680 f1yover
project.
1-580 and 1-680 Freeway Interchange Improvements
New traffic signals at Amador Valley Blvd.lArnador Plaza Rd., and Village Prky./Lewis Ave. intersections
Urban Designlmvrovement
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Center Median Theme Program - City attaches seasonal banners to street lights
Street Furniture Program - City has installed benches and waste receptacles. All median planters are individually
designed.
San Ramon Rd. Frontage Enhancement Program - City has landscaped eastern portion of San Ramon Rd. and
encouraged adjacent property owners to remove fencing, increase landscaping and generally improve their
properties' orientation to San Ramon Rd.
Good example: Almond Plaza Shopping Center
Four underground utility districts
Additional downtown street lights
New street medians with landscaping (all those within the downtown area are done)
New city entrance signs
I SDecial ProI.'Tams
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Business License Program
Downtown Promotion Program - "Dublin Auto Dealers Deliver"
I Land Use
I . Increase design review
Parking
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Revise parking standards that would prevent an oversupply of parking spaces
Approve new development without increased parking (Petsmart)
Exhibit # 3
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Project Entries
DUBLIN DOWNTOWN PLAN
DUBLIN, CALIFORNIA
Exhibit # 4
-4
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DUBLIN DOWNTOWN PLAN .
I DUBLIN, CALIFORNIA
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Exhibit # 6