HomeMy WebLinkAbout6.1 East Ranch Staff ReportSTAFF REPORT
Planning Commission
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Agenda Item 6.1
DATE:November 9, 2021
TO:Planning Commission
SUBJECT:East Ranch (PLPA-2020-00028)Prepared by: Amy Million, Principal Planner
EXECUTIVE SUMMARY:The Applicant, Trumark Homes, LLC, proposes to develop a 165.5-acre site with a 573-unit residential project consisting of six neighborhoods, two neighborhood parks totaling 11.5 acres, and a two-acre Public/Semi-Public site reserved for affordable housing located on Croak Road east of Fallon Road. The project site straddles existing Croak Road with Jordan Ranch to the west, Positano to the north and undeveloped land to the east and south with the Interstate 580 beyond. Requested approvals include a Planned Development Rezoning with a Stage 2 Development Plan, Vesting Tentative Tract Map No. 8563 and a Heritage Tree Removal Permit. The Planning Commission will consider and make a recommendation to the City Council regarding the East Ranch project, including an exemption from the California Environmental Quality Act (CEQA).
STAFF RECOMMENDATION:Disclose ex-parte contacts, conduct the public hearing, deliberate and adopt a Resolutionrecommending that the City Council: a) find the project exempt from CEQA pursuant to Government Code Section 65457 and adopt an Ordinance approving a Planned Development Zoning District with a Stage 2 Development Plan; and b) adopt a Resolution approving Vesting Tentative Tract Map No. 8563 and a Heritage Tree Removal Permit related to the East Ranch project.
DESCRIPTION:The 165.5-acre East Ranch project site (formerly referred to as the Croak Property) is an undeveloped parcel located within the Fallon Village area of the Eastern Dublin Specific Plan (EDSP). The subject property is located north of Interstate 580, east of Fallon Road and the Jordan Ranch development, south of the Positano development, and adjacent to the City’s eastern city limit as shown in Figure 1 below. The undeveloped site generally increases in elevation from south to north with large background hills in the northeast portion of the property.
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Figure 1.Vicinity Map
BackgroundOn January 7, 1994, the City Council adopted a General Plan Amendment and the Eastern Dublin Specific Plan (EDSP), which provides a comprehensive land use program for the planning area of roughly 3,300 acres, along with goals and policies to guide future public and private actions relating to the area’s development.On December 20, 2005, the City Council adopted a General Plan Amendment and EDSP Amendment for the Fallon Village area, which includes the East Ranch property. Related actions included adopting a Planned Development (PD) zoning district with a Stage 1 Development Plan(Ordinance No. 32-05) to establish regulations for the allowed land uses associated with development, improvement, and maintenance of the project area. The General Plan and EDSPassigned land use designations, as amended, for the East Ranch site are shown in Table 1 below. Development was generally assumed at the mid-point density for a total of 573 residential units.Table 1. Existing Land Use DesignationsLand Use Designation Acres Allowed Density Range Allowed Unit Range Assumed Density Assumed # of UnitsSingle-Family Residential 115.4 0.9-6.0 10-692 units 4 du/acre 469Medium Density Residential 10.4 6.1-14 62-146 units 10 du/acre 104
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Land Use Designation Acres Allowed Density Range Allowed Unit Range Assumed Density Assumed # of UnitsRural Residential/Agricultural 19.4 0.01-0.8 ------Neighborhood Park 11.5 --------Public/Semi-Public 2 --------Open Space 6.8 --------Total 165.5 ------573On December 2, 2008, the City Council amended the Stage 1 Development Plan (Ordinance No. 45-08) to establish development standards for private yards within the Medium Density Residential land use designation of the Fallon Village area. Standards require that at least 50% of the Medium Density units include private yards that meet the following minimum standards: a) minimum 400 square feet of contiguous private, flat yard area; b) minimum dimension of 18 feet by 18 feet; and c) include privacy fencing. Additionally, common areas shall be provided for units that do not have a private yard meeting the minimum standards.On October 15, 2019, City Council held a Study Session and received a presentation on a Pre-Application submitted by Trumark Homes for the East Ranch project. The proposal includeddevelopment of 573 residential units, including approximately 261 age-qualified units, two parks totaling 11.5 acres, and a two-acre Semi-Public site on 165.5 acres. The age restricted portion of the project was proposed for individuals of 55 years or older. Three home types were proposed, including 96 triplexes, 100 park court style single-family homes, and 65 single-family homes on standard lots. On May 4, 2021, City Council held a second Study Session on the East Ranch project. The Study Session included a presentation on the proposed project, which had been refined, and feedback on the overall project, location of proposed parks, and the applicant’s proposal to satisfy the requirements of the Inclusionary Zoning Regulations. On July 20, 2021, the City Council approved a General Plan Amendment and EDSP Amendment to change the land use designation of a portion of the GH PacVest and East Ranch properties from Semi-Public to Public/Semi-Public to allow a broader range of uses, including the potential for affordable housing developed by a non-profit entity. In addition, the City Council adopted Ordinance No. 05-21, amending the Stage 1 Development Plan pertaining to the Public/Semi-Public sites on the GH PacVest and East Ranch properties.Current ProjectThe proposed project includes 573 residential units in six neighborhoods, two public parks withone 5.5-acre park at the northwest corner of the site and one 6.0-acre park near the project’s main entry east of Croak Road and north of Central Parkway, a two-acre Public/Semi-Public site that would be reserved for affordable housing, and 6.8 acres of open space (refer to Figure 2). The requested approvals include a Planned Development Rezoning with a Stage 2 Development Plan, a Vesting Tentative Tract Map to subdivide the property, and a Heritage Tree Removal Permit. Figure 2. Proposed Illustrative Site Plan
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Planned Development RezoningThe application includes a Planned Development Rezoning with a Stage 2 Development Plan. The Stage 2 Development Plan builds off the exiting Stage 1 Development Plan (Ordinance No. 32-05),which established the specific uses that are permitted by right, conditionally permitted, and prohibited as well as the overall development density and intensity. The Stage 2 Development Plan focuses on the details and establishes the development standardsand guidelines for East Ranch. The proposed Stage 2 Development Plan includes development regulations (including density, setbacks, height, parking, etc.), architectural and landscape standards, a phasing plan, inclusionary housing requirements and a site plan for 573 residential units in six distinct neighborhoods. An overview of the Stage 2 Development Plan is provided below.A Site Development Review Permit will be required prior to development of each neighborhood and would be subject to Planning Commission approval. Detailed design and elevation drawings would be provided at that time.DensityProject density would range from 3.4 to 9.6 dwelling units per acre. Single-family residential units are proposed within five neighborhoods totaling 473 residential units. Although the specific design of these homes is not proposed at this time, the Stage 2 Development Plan conceptual
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architecture includes a combination of one- and two-story homes, a variety of colors and materials, and a minimum two-car garage. With the single-family neighborhoods, the affordable housing units are proposed to be dispersed through Neighborhoods 1, 2, 3 and 5. These units are proposed as zero lot line single-family homes and would be detached on three sides and share a side lot line on one side. Table 2 provides a summary of the unit breakdown and minimum lot size in each of the five single-family neighborhoods.Table 2. Summary of Single-Family NeighborhoodsNeighborhoodNo. of ConventionalSingle-Family Units
No. of Zero Lot Line Single-Family Affordable Units
Total No. of Units Minimum Lot Size1
1 99 2 101 6,500 SF2962985,225 SF3856915,500 SF4850853,960 SF5944983,360 SFTOTAL459144731 Minimum lot size does not include the 14 zero lot line affordable unitsFor the sixth neighborhood, the Applicant proposes to develop 100 Medium-Density residential units. There are two options for development of this neighborhood: 1) Rowhomes; and 2) Rowhomes with a private yard. For either option, the neighborhood would be composed of a combination of two- and three-story townhomes. Similar to the single-family neighborhoods, the affordable housing units would be dispersed through the neighborhood. Site and Development StandardsDevelopment standards are proposed to create six distinct neighborhoods supporting homes of various sizes and styles. The size of the single-family lots would range from 2,500 to 6,500 square feet. Building off the existing Stage 1 Development Plan, the single-family homes would be a mix of one- and two-story buildings with a maximum height of 35 feet. The townhomes would be a combination of two- and three-story buildings with a maximum height of 45 feet. A minimum of two covered parking spaces and one guest parking space are required for everyunit in the project area. A complete list of all development standards is included in the proposed Planned Development Ordinance (Attachment 2).
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Architectural and Landscape StandardsThe architectural and landscape standards provided in the Stage 2 Development Plan provide the framework for the future Site Development Review Permits. The architecture of the development within East Ranch is characterized by high-quality design that promote both visual compatibility and variety. The architectural standards are organized into two sections: Architectural Components and Architectural Styles. These standards express desired design character, which in combination with the Preliminary Landscape Plan, conveys the overall East Ranch agrarian character and provides a pedestrian friendly community of neighborhoods. The architectural styles of East Ranch draw from the project site’s agrarian setting of the rolling hills and its relationship to the surrounding area and existing residential neighborhoods. There are four architectural styles proposed and include a mixture of traditional and contemporary styles offering variation, under the Agrarian and California style umbrella, to create interesting streetscapes. According the Applicant, the four architectural styles are described as follows:1. Traditional Farmhouse.This is the rootstock for many East Ranch neighborhoods, giving itself over to a range of interpretations, hybrids and variations. At its simplest, it is defined by understated detail, utilitarian functionality and practical charm that reflect a back-to-nature lifestyle. Traditional Farmhouse homes are typically simple in massing, often with covered porches and gabled roofs, wood columns and posts.2. Modern Farmhouse. An evolutionary iteration of the traditional farmhouse, this style builds on the cornerstones of comfort and practicality with a modern lifestyle twist. Massing and forms are more asymmetrical. Contemporary and traditional materials invent new harmonies and corrugated roofing, stone veneer and vertical board and batten siding, giving distinction and variety to the neighborhood.3. California Revival.Like pages in California history, California Revival homes are a compilation of Ranch and Prairie styles that create a connection between interiors and exteriors. These homes are meant to blend with the landscape, with natural colors, simple, subtle design and elegant relationships between indoor and outdoor living areas. California Revival uses elements such as overhanging eaves, wide front porches framed by tapered columns and pop-up second floors. Stone, wood and stucco eclecticism, set in organic surroundings, deepen individual character.4. Contemporary.Contemporary architecture shook-up the California style scene for decades in the mid-1900s and is returning with the high desire for single-story living with a strong connection to nature. As the need for large homes is replaced with the need for sunlight and breeze, New-Century Modern architecture will reintroduce clerestory windows, open-beam ceilings, and indoor/outdoor courtyards and atriums.The landscape standards are proposed to complement and enhance the architecture through the development. The emphasis for East Ranch is getting outdoors and connecting with nature through the incorporation of neighborhood parks, pocket parks, multi-use trails, restful overlooks and meandering footpaths that weave together the neighborhoods which culminate in a series of public and semi-public outdoor spaces. The landscape character defines the sense of place as refined yet rustic arcadian California. Materials and elements such as Mediterranean planting, low stone walls, a variety of fencing (good neighbor, split rail, view and open space), and rhythmic
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planting patterns would embellish an agrarian tone.Examples of the architectural styles and the preliminary landscape plan are included in the proposed Planned Development Ordinance (Attachment 2).Neighborhood ParksEast Ranch includes two neighborhood parks. The Northern and Southern Parks would be the recreation hubs for the East Ranch community and greater neighborhood. They anchor would each end of the main spine along Croak Road and complete a central green corridor.The following provides an overview of the conceptual designs for the Stage 2 Development Plan. The final designs are subject to the City’s park planning and community input process. Northern Park:Natural in its look and feel sitting just south of the riparian corridor, the Northern Park’s proximity to the existing open space trail system is one of its most important features. The park completes the connection to Jordan Ranch and Positano neighborhoods and allows pedestrians from East Ranch a safe and easy way to access the greater Dublin trail network. The northern edge of the park has a fair amount of topography. The area wouldremain natural and provide a gentle transition to the existing adjacent area. The more active areas of the park would include restrooms, tot lot and toddler play areas, BBQ area with shade structures and a fenced dog park with two separate areas for small and large dogs with their own respective entries. The overall park theming will take cues from the surrounding architecture of the community and is geared toward smaller groups, kids, and families. Figure 3 provides aconceptual image of the Northern Park. Southern ParkThe Southern Park serves as a gateway into East Ranch. Being centrally located and the
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open space anchor to the community, the programming for this park would include elements that appeal to a wide range of ages and mobilities. Those elements include a large central green space, perimeter trail system, basketball court, pickleball courts, tennis courts, bocce courts, tot lot and toddler play areas, picnic areas with shade structures and restrooms. The overall look of this open space area would work to solidify that rural agrarian character the community is built upon. Figure 4 provides a conceptual image of the Southern Park. Permitted,Conditional and Temporary LandUsesThe Stage 1 Planned Development Plan(Ordinance No. 32-05 as amended by Ordinance No. 05-21)established the permitted, conditional and temporary land uses allowed within Fallon Village, including the East Ranch site. The permitted and conditionally permitted uses vary between the different land use designations. Temporary uses are allowed as stated in the Zoning Ordinance. An overview of the types of uses for each land use designation is provided in Table 3 below. This is not an exhaustive list but provides context as to the types of uses envisioned for Fallon Village. No changes to the existing allowable uses are proposed as part of the East Ranch project. Table 3. Overview of Allowed UsesLand Use Designation Permitted Land Uses Conditionally Permitted Land Uses
Single-Family Residential
Single Family DwellingAccessory Dwelling Unit Accessory Structures/UsesHome OccupationCommunity Care Facility (small)Small/Large Day Care Home
Ambulance ServiceBed and Breakfast InnBoarding HouseCommunity FacilityDay Care CenterPlant NurserySemi-Public Facilities
Medium Density Residential
Single Family DwellingAccessory Dwelling UnitAccessory Structures/UsesMulti-Family DwellingHome OccupationSmall/Large Day Care Home
Bed and Breakfast InnBoarding HouseCommunity Care Facility Day Care CenterSemi-Public Facilities
Rural Residential/Agricultural Agricultural Accessory Use –OfficeAnimal Keeping –ResidentialDrainage and Water Quality Pools Agricultural HousingAgricultural ProcessingAnimal Keeping Agricultural
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Land Use Designation Permitted Land Uses Conditionally Permitted Land UsesSingle Family DwellingSmall/Large Day Care HomeStormwater Detention Ponds Animal Keeping CommercialHorse KeepingPlan NurseryRecreational Facility-Outdoor
Neighborhood Park
Community ParkNeighborhood ParkRecreational and Educational FacilityTrail Staging Area
Public/Semi-Public
Public SchoolsLibrariesFire StationsSpecial Needs Program FacilitiesCommunity CentersHospitalsHousing developed by a non-profit entity (affordable housing)
Open Space
Conservation AreasDrainage and Water Quality PoolsPrivate or Public InfrastructureResource Management Stormwater Detention PondsTrails and Maintenance RoadsInclusionary ZoningThe City’s Inclusionary Zoning Regulations (DMC Chapter 8.68) require all new residential projects of 20 units or more to construct 12.5% of the total number of units as affordable units or satisfy the requirement through exceptions or alternatives approved by the City Council. The units must reflect the range of numbers of bedrooms provided in the project as a whole but may be smaller in size. The exceptions and alternatives allowed by the Inclusionary Zoning Regulations include the following: a) payment of fees in-lieu of constructing up to 40% of the units; b) off-site projects; c) land dedications; d) credit transfers; and e) waiver of requirements or alternative methods of compliance as approved by the City Council. As part of the Housing Element Update, the City recently approved a General Plan Amendment (Resolution No. 85-21) to change the existing land use designation of two sites, including the two-acre site on the East Ranch property, from Semi-Public to Public/Semi-Public to allow a broader range of uses, including the potential for affordable housing developed by a non-profit entity. The new General Plan land use designation of the two sites increases the availability of land for affordable housing, contributing to the City’s ability to meet its Regional Housing Needs Allocation (RHNA). The proposed East Ranch project generates a requirement to provide 72 affordable units.The Applicant is proposing an alternative method of meeting this requirement as follows:
Construction of 18 moderate income units reasonably dispersed throughout the various neighborhoods (to satisfy 25% of affordable requirement);
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Payment of in-lieu fees for 25 units (to satisfy 35% of the affordable requirement). Based on the current in-lieu fee of $217.696/unit (the in-lieu fee is calculated at the timing of building permit issuance and adjusted annually on July 1 for CPI) this payment would currently be $5,442,400;
Dedication of the two-acre Public/Semi-Public site for a future affordable housing project.Preliminarily, this site would provide 77 units of low/very low affordable rental housing (to satisfy 40% of the affordable requirement); and
Construction of 50 deed restricted accessory dwelling units affordable to low-income households.Project PhasingThe initial mass grading for the site is planned to occur in one phase. The project would be developed in two phases for the backbone streets and infrastructure and two phases for the development. Figure 5 below shows the phasing plan. Figure 5. Phasing Plan
Vesting Tentative Tract MapThe application includes a request for Vesting Tentative Tract Map (VTTM) No. 8563 to create the individual development parcels, identify those areas that would be reserved as parks (such as the two neighborhood parks), open and/or common space, easements to provide access through the project site, preliminary grading, drainage, stormwater management and utilities. In addition, the map defines the right-of-way improvements for Croak Road and all the internal streets including Central Parkway. The VTTM is included as Attachment 4 to this report. Heritage Tree Removal PermitThe City encourages the preservation of heritage trees through its development review and permit approval process.DMC Chapter 5.60 “Heritage Trees” defines a heritage tree as any oak, bay, cypress, maple, redwood, buckeye and sycamore tree having a trunk or main stem of twenty-four (24) inches or more in diameter at four (4) feet six (6) inches above natural grade. The project includes a request for a Heritage Tree Removal Permit to remove four heritage trees (two coast live oaks, one river she-oak,and one cypress).The Applicant submitted an arborist
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report prepared by Live Oak Associates, attached to this report as Attachment 5. The location of these four trees (designated as #222, #477, #488 and #516) are located near Croak Road and are highlighted in Figure 2a of the report. Consistency with General Plan, Eastern Dublin Specific Plan and Zoning OrdinanceThe project is consistent with the General Plan and EDSP land use designations of Single-Family Residential, Medium Density Residential, Rural Residential/Agricultural, Neighborhood Park, Public/Semi-Public, and Open Space, and consistent the existing Planned Development Zoning. Section 1.8 of the General Plan states: “the Dublin General Plan Land Use Map identifies the location of land uses…Minor deviations in roadway alignments or open space configurations should not be considered inconsistent with the General Plan.” Section 4.2 of the EDSP states that: “Due to the scale of the map, the location of road alignments and land use boundaries in Figure 4.1 are approximate. This generalized depiction of the planning area will require some flexibility when interpreting the plan. Minor adjustments to road alignments and boundaries may be necessary when individual applications for development are submitted.” As shown in Figure 6, the project’s proposed land use configurations include minor adjustments to roadway alignments, open space configurations, and boundaries, consistent with the General Plan and EDSP. Specifically, the location of the Medium Density Residential site has been shifted east, the two Neighborhood Parks have been shifted adjacent to Croak Road to the northern and southern areasof the property, a portion of the Open Space designation shifted east of Croak Road and the location of the Public/Semi-Public parcel is designated. However, as shown in Table 1 above, the gross acres for each designation remains the same.
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Figure 6. Existing Land Use Designations Proposed Land Use Designations
ENVIRONMENTAL REVIEW:Government Code Section 65457 and California Environmental Quality Act (CEQA) Guidelines Section 15182(c) exempts certain residential projects that are consistent with a specific plan for which an environmental impact report (EIR) has been certified from further environmental review. Prior CEQA analysis for the project area includes: 1) the Eastern Dublin General Plan Amendment and Specific Plan EIR (1993); 2) the East Dublin Properties Stage 1 Development Plan and Annexation Supplemental EIR (2002); and 3) the Fallon Village Supplemental EIR (2005). Collectively, these three documents are referred to as the “EDSP EIRs.”Pursuant to the requirements of the CEQA, the City has determined that the proposed project qualifies for an exemption under Government Code Section 65457 and CEQA Guidelines Section 15182(c). The proposed project is consistent with the EDSP EIRs and the General Plan and EDSP land use designations for the project site. There is no part of the proposed project that triggers the need to prepare a subsequent EIR or negative declaration pursuant to CEQA Guidelines Section 15162 or Public Resources Code section 21166. Therefore, the project qualifies for a specific plan exemption and does not require subsequent environmental review or the preparation of an additional CEQA document (EIR or MND). The CEQA Analysis in Support of Specific Plan Exemption is included as Attachment 6 to this staff report with all appendices included as Attachments 7-14.
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NOTICING REQUIREMENTS/PUBLIC OUTREACH:Two City-led Community Meetings were held on September 8 and 9, 2021, to provide Dublin residents with information about the proposed East Ranch project. No residents attended the meeting on September 8. Six residents attended the meeting on September 9 along with members of the applicant team. Staff provided a presentation that included an overview of the new Community Meeting concept, the City’s development review process, and the proposed project. Questions were asked about the affordable housing proposal and support for providing all the affordable housing units within project area. In accordance with State law, a public notice was mailed to all property owners and occupants within 300 feet of the proposed project to advertise the project and the upcoming public hearing. A public notice also was published in the East Bay Times and posted at several locations throughout the City. A Planning Application sign was posted on the project site and the project was also included on the City’s development projects webpage. A copy of this Staff Report has been provided to the Applicant.All written public comments received on the project prior to the publication of this staff report are included as Attachment 15. ATTACHMENTS:1) Planning Commission Resolution Recommending Approval 2) Exhibit A Draft Planned Development Ordinance 3) Exhibit B City Council Resolution Approving Vesting Tentative Map and Heritage Tree Removal Permit4) Exhibit A to Attachment 3 Vesting Tentative Map5) Arborist Report6) CEQA Analysis in Support of Specific Plan Exemption7) Appendix A to CEQA Analysis – Biological Resources Assessment8) Appendix B to CEQA Analysis – Preliminary Aquatic Resources Delineation Report 9) Appendix C to CEQA Analysis – Archeological and Historical Resources Survey Report10)Appendix D-1 to CEQA Analysis – Due Diligence Level Geographical Investigation11)Appendix D-2 to CEQA Analysis – Geotechnical and Geologic Review12)Appendix E to CEQA Analysis – Phase 1 Environmental Site Assessment13)Appendix F to CEQA Analysis – Stormwater Quality and Hydromodification14)Appendix G to CEQA Analysis – Transportation Impact Analysis15)Public Comment
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