HomeMy WebLinkAboutItem 8.1 Study Session for SCS Dublin (PLPA-2022-00005)STAFF REPORT
Planning Commission
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Agenda Item 8.1
DATE:September 27,2022
TO:Planning Commission
SUBJECT:Study Session for SCS Dublin (PLPA-2022-00005)Prepared by:Amy Million,Principal Planner
EXECUTIVE SUMMARY:The Planning Commission will hold a study session and receive a presentation on the proposed SCS Dublin project. The proposed project implements the Preferred Vision for the SCS Property approved by City Council on February 15, 2022, and would allow development of up to 265,000 square feet of commercial uses and up to 650 residential units on a 76.2-acre parcel. TheApplicant, SCS Development,proposes amendments to the General Plan and Eastern Dublin Specific Plan, a Planned Development Rezone with Stage 1 and Stage 2 Development Plan and a Development Agreement. No action will be taken,or approvals granted for the project at this meeting. A future public hearing will be scheduled for the Planning Commission to formally consider the project and a public notice will be provided.
STAFF RECOMMENDATION:Receive presentations from Staff and the Applicant.
DESCRIPTION:BackgroundThe subject 76.2-acre property, known as the SCS Property, is located north of I-580 betweenTassajara Road and Brannigan Street and extends to the north of Gleason Drive (refer to Figure 1).On February 15, 2022,City Council approved the Preferred Plan for the SCS Property, which stemmed from an extensive City-led Community Outreach process to engage the community on appropriate land uses for the property.
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The Preferred Plan,as shown in Figure 2, focuses on the following concepts:
Integrate Paseo and Town Square ConceptsA town square concept is included in the PreferredPlan to anchor the shops and restaurants on FinnianWay. The town square is located on the grand paseoopening views to Mt. Diablo. In order to accommodatea variety of activities (e.g., recreation, public gardening, and native plan/pollinator meadows) and compliment adjacent land uses, the width of the grand paseo varies from 25 feet to 110 feet.
Improve Visibility and Access to the PaseoA new north/south street located between BranniganStreet and Tassajara Road is provided in the PreferredPlan along the east side of the grand paseo creatinggreater access and activity to the public open space.The paseo widens towards Tassajara Road invitingpedestrians and bikes off the major arterial onto thepaseo. Generous bike and pedestrian paths connectGleason Drive to Dublin Boulevard.
Diversify Housing TypesHousing throughout the site is varied with entry-levelhousing, affordable housing, and family housing, all ofwhich may accommodate senior residents. Types range from traditional single-family homes, courtyard homes, townhomes, and affordable apartments. The Preferred Plan envisions a range of 500 to 550 market rate units and a 2.5-acre site for affordable housing (70 to 150 units) for a total of 570 to 650 units.
Dedicated Affordable Housing SiteThe Preferred Plan includes a parcel to be dedicated for construction of affordable housing. The site location, at the prominent corner of Tassajara Road and Dublin Boulevard, will serve as a gateway to the larger neighborhood. The site is large enough to permit a variety of affordable housing solutions, allowing the design and amount of affordable housing to be tailored to the community’s needs. The number of units could vary substantially to respond to those needs and available funding sources. For example, units in a senior affordable housing project are typically smaller than units in a family affordable housing project and,thus,a senior project may have greater density than a family project.
Pedestrian-Focused Entertainment DistrictThe entertainment district south of Dublin Boulevard is set around a large pedestrian plaza
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(roughly 120 feet by 300 feet) creating a regional dining and family entertainmentdestination. Proposed ProjectThe proposed project takes the first step in implementing the Preferred Plan for the SCS Property. To accommodate the project, the Applicant proposes amendments to the General Plan and Eastern Dublin Specific Plan (EDSP), a Planned Development Rezone with a Stage 1 and 2 Development Plan and a Development Agreement with a combination of commercial/retail and residential uses, including two types of retail experiences. The first is a more neighborhood main street experience. This area can accommodate up to 40,000 square feet of small retail shops along an extended Finnan Way, which would then connect to the Shops at Waterford. The second is envisioned to be a more regional retail experience, focused on entertainment uses, south of Dublin Boulevard. This area is proposed for up to 225,000 square feet of uses. In total, the proposed project includes development of up to 265,000 square feet of commercial/retail uses.A variety of housing types are proposed by the Applicant, including affordable housing, and housing for entry level buyers, with up to 550 market rate units plus up to 100 affordable units.As part of the first steps in implementing the Preferred Plan, the Applicant is seeking the following entitlements:
General Plan and EDSP Amendments
Planned Development Rezone with Stage 1 and Stage 2 Development Plan
Development AgreementAdditional discretionary approvals are required to implement the project; however, they are not requested at this time. Those include approval of: 1) Vesting Tentative Tract Maps by the Planning Commission to create the individual development parcels and identify those areas that would be reserved as open and/or common space, easements to provide access through the project site, preliminary grading, drainage, stormwater management and utilities, and adjacent right-of-way improvements; 2) Site Development Review Permits by the Planning Commission for the architectural and site plan details; and 3) a Master Sign Program/Site Development Review Permit by the Community Development Director for the commercial signage. AnalysisGeneralPlan/EasternDublin Specific Plan AmendmentsThe project site has several existing General Plan and EDSP land use designations as shown in Figure 3 and Table 1 below. Most of the site is currently designated General Commercial with varying densities of residential along Brannigan Street and Gleason Drive. The General Plan and EDSP allow a density range of 565,627-1,672,704 square feet of commercial development and 151-464 residential units on the subject property, excluding the Public/Semi-Public parcel. As summarized in Table 1 below, the EDSP assumed mid-density for residential development of 261 units and 902,563 square feet of commercial uses.
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Figure 3. Existing Land Use Designations
Table 1. Eastern Dublin Specific Plan Anticipated DevelopmentLandUseDesignationsAcresRes.Units Commercial sq.ft.General Commercial 60.3 --846,153Neighborhood Commercial 3.7 --56,410Medium Density Residential 4.3 43 --Medium High Density Residential 5.3 106 --High-Density Residential 3.2 112 --Public/Semi-Public 3.3 ----Total 80.11 261 902,5631Theactualprojectacreageis76.2 acres.
To accommodate the proposed project and implement the Preferred Plan, the Applicant proposes to modify the existing land use designations. The proposed new General Plan and EDSP land use designations are organized into four primary Planning Areas (PAs) and include the following: General Commercial, Medium Density Residential, Medium-High Density Residential, Parks/Public Recreation and Public/Semi-Public. The location of the proposed land uses and the PAs is shown in Figure 4 and Table 2 below.
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Figure 4. SCS Dublin Proposed Land Uses and Planning Areas
Table 2. SCS Dublin Proposed Land UsesLandUseDesignationsGrossAcres Res.Units Du/Acre Floor AreaRatio Commercial sq.ft.General Commercial 29.4 40 --0.19 -0.38 265,000Medium Density Residential 17 150 8.8 --Medium High Density Residential 21.1 360 17.1 --Parks/Public Recreation 2.5 ------Public/Semi-Public 3.8 100 26.3 --Total 73.81 650 265,0001Theactualprojectacreageis76.2 acres which includes the proposed public streets (Finnian Way,AvianoWayandDiabloViewDrive).In addition to the changes to the land use designations, other minor amendments to the General Plan and EDSP are necessary for consistency. The amendments include modifications to the public rights-of-way, such as the vacation of Northside Drive, extension of Brannigan Street south of Dublin Boulevard, extensions to Finnian Way and Aviano Way through the project site, and the addition of a new public street along the Park/Public Recreation land use (e.g.,the grand paseo). Planned Development Rezone with Stage 1 and Stage 2 Development PlanDublin Municipal Code (DMC) Chapter 8.32 establishes the intent, purpose and requirements of the Planned Development District. The Planned Development Ordinance contains requirements that ensure the project components will be developed as a cohesive and complementary project. The Development Plan establishes the following regulations for use of the subject property: permitted and conditionally permitted uses;development regulations, including setbacks, FAR, height limits, and parking requirements;standards and design guidelines;development plan;and other requirements to regulate the improvement and maintenance of the property. An overview of the Planned Development zoning district for SCS Dublin is provided below. As previously noted, Vesting Tentative Tract Maps and Site Development Review Permits will be required prior to development of each residential neighborhood and commercial area and would be subject to
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Planning Commission review and approval. Detailed design and elevation drawings would be provided at that time.Figure 5 below shows a conceptual site plan. Figure 5. Conceptual Site Plan
The maximum amount of development allowed by the proposed Planned Development zoning district is 265,000 square feet of commercial uses and 650 residential units. The 265,000 square feet includes the following:
40,000 square feet of retail uses along Finnian Way
225,000 square feet of commercial uses south of Dublin Boulevard
o 30,000 square feet of family/entertainment uses
o 40,000 square feet of retail shops/restaurants
o 75,000-square-foot hotel(s) with 140 rooms
o 80,000 square feet of recreational facilityThe residential units are separated into 100 affordable units and a maximum of 550 market rate units. Site Plan and Development StandardsPlanning Area 1: The Development Plan envisions PA-1 as an entertainment district with a combination of regional-and community-serving retail, service, and office uses, restaurants, family entertainment uses, and outdoor plazas for a total of 225,000 square feet of commercial uses.Of this, an approximately 80,000-square-foot entertainment driving range is envisioned (based on the Applicant’s preliminary discussions with Topgolf, a private sports entertainment company). PA-1 may also include a 140-room hotel.Access to PA-1 would be provided directly from Tassajara Road and Brannigan Street. Brannigan Street, which is currently a private road south of Dublin Boulevard that serves the Grafton Station shopping center, would become a public street to accommodate this access as part of the project. Northside Drive, which currently extends east from Tassajara Road to the stormwater detention
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basin on the south side of Grafton Plaza is proposed to be vacated; however, access to the project site where Northside Drive intersects with Tassajara Road would be maintained as a projectentrance. Buildings along Dublin Boulevard would be built around an outdoor plaza to promote outdoor dining and community gathering. A large entertainment use (potentially Topgolf) is envisioned to occupy the southern half of PA-1. The maximum height for the buildings in PA-1 would be 74 feet, which is intended to accommodate the potential hotel. The typical commercial tenant surrounding the outdoor plaza would likely be under 40 feet in height. The poles and netting associated with the Topgolf facility would be up to 190 feet in height. The parking requirement for the mix of uses would default to the requirements for each land use as stated in the Zoning Ordinance. The parking in PA-1 is intended to be shared by all commercial users. Planning Area 2: The commercial area of PA-2 focuses on the neighborhood main street experience anchored by a town square. This area would accommodate up to 40,000 square feet of small retail shops, small office spaces, and specialty restaurants along the extension of Finnan Way, which would then connect to the Shops at Waterford. Up to 40 residential units would be located above or behind the retail shops along Finnian Way.The town square is located at the end of the grand paseo, which runs through PA-2 and PA-3 to the north. The grand paseo is envisioned to accommodate a variety of activities and complement adjacent land uses. A midblock pedestrian crossing on Central Parkway is proposed to provide direct pedestrian access linking the grand paseo in PA-2 and PA-3.Vehicular access to PA-2 would be from Tassajara Road, Central Parkway, Branigan Street, and Finnian Way. No vehicular access from Dublin Boulevard is proposed. The residential area of PA-2 consists of 290 attached townhomes, 40 shophouse units along Finnian Way and 100 multi-family affordable housing units. A shophouse is a building type serving both as a residence and ground floor commercial business and the proposed shophouse units have been incorporated to support activation of the commercial area along Finnian Way. As outlined by the City Council in their approval of the Preferred Plan, the minimum size of the commercial spaces associated with the shophouses are 400 square feet. Planning Area 3 and 4: PA-3 and PA-4 are designed to support residential and the northern portion of the grand paseo. Collectively they consist of up to 150 single family residences and 70 townhomes. Access to PA-3 would be provided off Brannigan Street, Central Parkway and Tassajara Road. Aviano Way would extend through PA-3 from Brannigan Street to Tassajara Road and intersect with the new north/south street along the grand paseo. Access to PA-4 would be from a single driveway on Gleason Drive. Permitted, Conditional, and Temporary Land UsesThe permitted and conditionally permitted uses would vary between the different Planning Areas. An overview of the types of uses for each Planning Area is provided in Table 3 below.
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Table 3. Overview of Allowed UsesPlanningArea (PA)
Permitted Uses ConditionalUses Temporary UsesPA-1 OfficesRestaurantsPersonal ServicesIndoor/Outdoor RecreationPlant NurseryLaboratoryHealth Services/ClinicComedy ClubHotel/MotelService StationGeneral RetailTheater
Animal HospitalCar Wash/DetailNightclubRepair Shop
Arts and Craft FairChristmas Tree LotFarmer’s MarketFestival/Street FairOutdoor Skating RinkPumpkin Sales Lot
PA-2 Single Family ResidentialMulti-Family Residential Accessory Dwelling UnitsRestaurantsPersonal ServicesGeneral RetailOfficeIndoor RecreationOutdoor RecreationPlant NurseryLaboratory
Animal Day CareNight ClubComedy Club Arts and Craft FairChristmas Tree LotFarmer’s MarketFestival/Street FairOutdoor Skating RinkPumpkin Sales Lot
PA-3 andPA-4 Single Family ResidentialMulti-Family ResidentialAccessory Dwelling UnitsHome OccupationsCommunity Facility
Bed and Breakfast Model Home Complex
Architectural StandardsThe proposed architectural standards provide the framework for future Site Development Review Permits. The architecture for the project is characterized by clean, simple lines using natural materials and a classic color palette. The architectural criteria highlights the nuances of each Planning Area, but also requires that the development as a whole reflect the following standards:
Employ high quality materials to provide visual interest in the project and to complement its surroundings.
Use diversity of textures in the building finishes providing a varied and interesting base
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form for the buildings.
Incorporate features such as different wall planes, heights, wall textures, roof elements, roof forms, light fixtures and landscaping to contribute layers of detail at the pedestrian level.
Architectural details that extend around all sides of buildings, including rear elevations when visible to perimeter public streets.Conceptual architecture for the residential and commercial areas will be included in the Planned Development and is provided in Figures 6 and 7 below. Figure 6. Residential Conceptual Architecture
Figure 7.Commercial Conceptual Architecture
Inclusionary Zoning RegulationsPursuant to the City’s Inclusionary Zoning Regulations (Chapter 8.68 of the Dublin Municipal Code), developments of more than 20 residential units are required to set aside 12.5 percent of the units in the project as affordable units. The Inclusionary Zoning Regulations allow the payment of fees in-lieu of constructing 40% of the inclusionary units and provides additional alternative methods of compliance with these requirements.The proposed project includes up to 550 market rate units,which generates an inclusionary housing requirement of 69 units. The Applicant is preparing a proposal to address the inclusionary requirements and it is anticipated they will be addressed in a Development Agreement to be considered by the Planning Commission at a future meeting.Development AgreementThe Applicant has requested a Development Agreement for the project. The Development
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Agreement would provide security to the developer that the City will not change its zoning and other laws applicable to the project for a stated period of time. Additionally, it is a mechanism for the City to obtain commitments from the Applicant that the City might not otherwise be able to obtain. The Development Agreement is currently being prepared. Details regarding the terms ofthe proposed Development Agreement will be provided when the Planning Commission considers it at a future meeting.
ENVIRONMENTAL DETERMINATION:A Draft Environmental Impact Report (EIR) was prepared for the proposed project and circulated to the public for 45 days. The comment period was open from July 22, 2022, to September 6, 2022, and remains available for review on the City’s Development Activity webpage at https://dublin-development.icitywork.com/. The City received eight comment letters during the public review and comment period. Responses are being prepared for each of the comments received by the City. The Draft EIR as well as comments and associated responses together willconstitute the Final EIR. The Draft EIR examined potential environmental impacts resulting from the project in the following topic areas:
Aesthetics *
Biological Resources *
Cultural and Tribal Resources *
Geology and Soils *
Noise & Vibration *
Hazards and Hazardous Materials *
Energy
Greenhouse Gas Emissions
Hydrology and Water Quality
Land Use & Planning
Population and Housing
Public Services and Utilities
Air Quality
TransportationThe Draft EIR classifies the environmental impacts as follows:
Class I are significant and unavoidable
Class II can be reduced to less than significant with mitigation
Class III are less than significant and do not require mitigationThe Draft EIR excluded two topics, Agricultural and Forestry Resources and Mineral Resources,from detailed analysis as the project site does not support agricultural and forestry resources or mineral resources. In summary, the Draft EIR concludes that the project will have potentially significant impact in six of the 16 topic areas (note above with “*”) and mitigation measures have
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been prepared to reduce the impacts in these areas to a level that is less than significant (Class II). There were no potentially significant impacts identified for the six topics areas (underlined above) and, therefore, no mitigation is required (Class III). Similar to other infill projects of this size, impacts were identified where, even with the implementation of mitigation measures, the effects to the environment would still be expected to be significant (Class I). The identified impacts, noted in italics above, include air quality and transportation. Although mitigation measures were prepared to reduce the level of the impact, the impacts could not be fully reduced to less than significant in all instances. The project would exceed the air quality thresholds established by the Bay Area Air Quality Management District for nitrogen oxide (NOx) emissions and reactive organic gases (ROG). The predominant source of NOx emissions would be mobile sources (i.e., project generate vehicle trips). Starting on July 1, 2020, agencies analyzing the transportation impacts of new projects must now look at a metric known as vehicle miles traveled (VMT) instead of level of service (LOS). VMT measures how much actual auto travel (additional miles driven) a proposed project would create on California roads. If the project adds excessive car travel onto area roads, the project may cause a significant transportation impact.The project includes a mix of residential, local-serving retail and regional retail/recreation. The market-rate residential component of the project is anticipated to be below the established VMT threshold and, therefore, considered to be a less than significant impact. In addition, per the City of Dublin Transportation Impact Analysis (TIA) Guidelines, the portion of a project that is affordable housing should be screened out of needing a detailed VMT analysis. Therefore, the impact on VMT from the affordable housing component of the project is less than significant. Local-serving retail primarily serves preexisting needs (i.e., it does not generate new trips because it meets existing demand). Essentially, the assumption is that someone would travel to a newly constructed local-serving store because of its proximity and, therefore, this trip on the roadway network becomes shorter. As a result, local serving retail would provide shorter trip options to pre-existing and on-site project induced needs for these goods and services. The Togolf component of the project is categorized as regional retail/recreation and would result in an increase in VMT to the planning area. To address the impacts a Transportation Demand Management (TDM) plan is required for the Topgolf facility. Although mitigation measures were prepared to reduce the level of the impact, the impacts could not be fully reduced to less than significant in all instances. Should the project be approved, a Statement of Overriding Considerations (SOC) would need to be adopted that identifies all environmental impacts that cannot be mitigated and explain why the benefits of the project outweigh its unavoidable environmental impacts. The SOC is required in order to certify the Final EIR, if desired by a majority of the City Council.
NOTICING REQUIREMENTS/PUBLIC OUTREACH:
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Public noticing is not required for agenda items when no action will be taken or approvals granted. Although a public notice is not required, notices were sent to property owners and residents within 300 feet of the project site and the list of potentially interested parties. A public notice was published in the East Bay Times and posted in the designated posting places. A copy of this Staff Report was provided to the Applicant and was made available on the City’s website.
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