Title
Hold a Public Hearing to Consider a Development Plan, Design Review and Use Permit (PLN16-0468) for Building 8 on Alameda Point located at 2350 Saratoga Street
Body
To: President and
Members of the Planning Board
From: Andrew Thomas, Assistant Community Development Director
Re: Hold a Public Hearing to Consider a Development Plan, Design Review and Use Permit (PLN16-0468) for Building 8 on Alameda Point located at 2350 Saratoga Street
BACKGROUND
On April 5, 2016, the Alameda City Council approved a lease with purchase option with Alameda Point Redevelopers, LLC, the project applicant, for 4.07 acres of property at Alameda Point. The property includes the 270,000-square-foot, four-story Building 8 at 2350 Saratoga Street at Alameda Point. Building 8 is a contributor to the Naval Air Station Alameda (NAS Alameda) Historic District (Historic District), and it has been vacant since the Navy’s departure in 1996. The applicant is proposing to invest approximately $26.5 million to restore the building. The applicant’s project description, building and site plans and proposed uses are shown in Exhibit 1.
The project applicant is proposing to rehabilitate and adaptively reuse the building for approximately 83,420 square feet of commercial and light industrial maker uses on the ground floor and up to 88 Work/Live units on the second and third floors and a small 4,000-square-foot penthouse, and a 36,000-square-foot outdoor deck on the fourth floor.
The site is zoned AP-AR (Alameda Point, Adaptive Reuse). The AR Zoning District allows a variety of residential, commercial, retail, restaurants, industrial and other uses by right and also allows Work/Live spaces and bar/taverns subject to a Conditional Use Permit.
The applicant is requesting approval of a Development Plan, Design Review, and Use Permit from the Planning Board. On October 6, 2016, the Historical Advisory Board (HAB) approved a Certificate of Approval for the proposed changes to the building and found that the proposed changes were consistent with the Secretary of Interior Standards for the rehabilitation of historic structures.
DISCUSSION
Development Plan
The proposed project does not alter the existing footprint of the building and would result in only minor changes to the existing building façades, landscaping, and roof.
At a future date, the City of Alameda will be reconstructing the Saratoga frontage as part of the Alameda Point Master Infrastructure Plan (MIP) for Alameda Point. As shown on Exhibit 1, the reconstruction of Saratoga will have minimal impact on the physical design of the project. The 56-foot Saratoga Street right-of-way is proposed to extend about 12 feet to the east of the existing face of curb along the frontage of Building 8, leaving intact the existing landscaping, including a row of five existing Black Acacia street trees.
In contrast, West Ranger Avenue on the north side of the project is a short four-block street that is not included in the MIP. Therefore, the projects on each side of West Ranger Avenue must be responsible for the improvement of the public frontages for their individual projects up to the center line of the street. A condition of approval requires that the applicant build the new sidewalk, curb, gutter, parking lane, and travel lane on their side of West Ranger Avenue along their northern property line.
Since West Ranger Avenue is a short four-block street, staff is proposing that the City of Alameda utilize the “Local Streets” section in the Master Infrastructure Plan shown below.
With the 56-foot West Ranger Avenue right-of-way improvements and the location and size of the existing building, the renovated parking areas and street frontages, the site will include 104 on-site parking spaces and 25 on-street public parking spaces.
The proposed parking plan complies with the parking requirements of the AP-AR Zoning and Work/Live Ordinance Section 30-15. Consistent with the AP-AR Zoning requirements, a condition of approval requires that all of the parking spaces shall be leased separately from the rental of commercial or residential space within the building.
Staff has also added conditions of approval that require:
• Modification of the truck loading plan to remove the semi-truck loading from the West Ranger frontage where it will conflict with the future West Ranger sidewalk.
• Modification of the trash enclosure plan to remove the trash enclosure from its current location abutting the future West Ranger sidewalk.
• Compliance with the Alameda Point Transportation Demand Management (TDM) Plan, which requires the project to fund approximately $140,000 annually toward Alameda Point transportation services.
Design Review
To ensure that the proposed changes to the exterior of the building and landscaping are consistent with the Secretary of Interior Standards for the rehabilitation of historic structures, the project team includes Christopher VerPlanck, of VerPlanck Historic Preservation Consulting and the project was submitted to the Alameda Historical Advisory Board for a Certificate of Approval. Mr. VerPlanck’s evaluation of the design is attached as Exhibit 2. On October 6, 2016, the HAB approved the Certificate of Approval for the project and made a number of recommendations to the Planning Board.
The proposed project would make several modifications to the exterior of the building, including a new rooftop pavilion and roof deck, new second floor balconies, the replacement of two railings at the front entry stair, upward-acting loading doors, loading dock equipment, and the conveyor bridge. The project also would remove a window and alter a wall for a new loading door, remove and alter a series of windows, add window vents, and alter exterior lighting, as well as add signage.
The roof top addition would extend the height of the existing building by about 4.5 feet. The top of the existing elevator tower is about 59.5 feet and the top of the new enclosed rooftop common area would be about 64 feet. Alameda Municipal Code (AMC) Section 30-5.8 specially provides an exception to building height limits in cases, such as this, where the vertical addition is a penthouse that is not used for sleeping or eating quarters. The building renovation will include a partial 9,000 square foot “Green Roof” to filter storm water. This section of green roof will include a thin layer of soil and will be planted with sedum (a large flowering plant) and a variety of grasses that do not allow for walking. The building structural system is not strong enough to support an “Intensive Green Roof” that would provide a thicker layer of soil, include shrubs and trees as well as grasses, and would allow pedestrians to walk on its surface. Reuse of existing buildings and preservation of existing cultural landscape features and materials will work to create a unique and interesting adaptive reuse environment.
The HAB recommended that the Planning Board carefully consider the following building elements before approving the Design Review application:
• Roof top Pavilion Addition. The HAB expressed concerns that the rooftop pavilion addition would be fairly visible from the public right-of-way and that this new vertical element will conflict with the character-defining vertical elements that currently define the roof line of the building. Specifically, the HAB recommended that the Planning Board consider reducing the height of the pavilion. The Planning Board resolution includes a condition requiring that the applicant work with staff to reduce the height and visibility of the roof top pavilion.
• Second Floor Decks. The HAB expressed concerns about the second floor balconies that are being proposed on top of the existing concrete canopy over the loading docks. Specifically, the HAB raised two concerns: 1) the balconies will become outdoor storage for barbeques, bicycles, and other personal belongings, which will disrupt the strong horizontal bands that define the architecture of the building, and 2) the new doors that are being added to access the new balconies should be designed with a solid bottom half to re-inforce the original horizontal band that will be broken by the introduction of doors along the length of the building along the second floor. The Planning Board resolution includes a condition requiring that the applicant revises the door design as recommended by the HAB. The draft resolution does not require removal of the balconies.
Consistent with Mr. VerPlank’s assessment, staff believes that the proposed design changes to the building and landscaping as modified by the conditions of approval are consistent with the Secretary of Interior Standards and appropriate given the historic character of the building and the proposed new uses. Staff is able to make the findings for Design Review approval. Those findings are included in the attached resolution.
Use Permit
Building 8 is designed to support a variety of commercial and work/live uses. The applicants envision a hub for creative entrepreneurs, makers, builders and a variety of commercial uses on the ground floor which may include cafes, restaurants, and outdoor seating on the former loading docks as well as light industrial uses which might include a winery, brewery or a distillery. The industrial uses may include a tasting room for on-site consumption and sale for off-site consumption.
The AP-AR District permits the full range of uses envisioned by the applicant for the building with a few exceptions. Therefore, the applicant is requesting use permit approval for the:
• Work/live units,
• Outdoor seating, and
• Extended hours of operation to allow commercial users to operate between the hours of 6:00 AM to 10:00 PM Monday through Thursday, 6:00 AM to 12:00 PM Friday and 7:00 AM to 12:00 PM Saturday and 7:00 AM to 11:00 PM Sunday.
Pursuant to the AP-AR District and the City’s Work/Live Ordinance Section 30-15, work/live units require a conditional use permit. The AMC contains numerous provisions to ensure that the work/live studios operate as a commercial/industrial use in which the proprietor is allowed to reside as a secondary use activity. The purposes of these provisions are:
a. To provide for and make feasible the reuse of existing commercial or industrial buildings and related sites at Alameda Point and other specified commercial, manufacturing, and industrial zoning districts as proposed in the Alameda General Plan;
b. To provide cost-efficient alternative work space that will provide an incentive for entrepreneurs, business owners, artists, artisans, and other individuals to continue to work in Alameda and contribute to the City's economy;
c. To reduce traffic and associated adverse impacts on air quality, energy resources, and the quality of life in the City by reducing the number and length of work-related trips by employed Alameda residents;
d. To promote the preservation and reuse of commercial or industrial buildings that contribute to the historic character of the community in a manner that is consistent with other community goals and policies;
e. To allow activities that are compatible with and will not compromise or interfere with existing and potential industrial or commercial uses in the districts where such work/live studios are established;
f. To ensure that work/live studios will function predominantly as work spaces with incidental residential accommodations that meet basic habitability requirements in compliance with applicable regulations. No portion of any work/live studio shall be considered a "dwelling" as that term is defined in Sections 30-2 and 30-51.1;
g. To ensure that the exterior design of structures converted to work/live use reflects the predominant industrial or commercial character of such buildings and will be compatible with adjacent commercial or industrial uses; and
The draft resolution (Exhibit 3) includes a variety of conditions which are required by the Work/Live Ordinance to ensure that the proposed work/live studios remain primarily commercial uses and are consistent with the purpose and intent of the Work/Live Ordinance. In addition, Exhibit 3 includes findings and conditions to approve the extended hours and the outdoor seating.
Conclusion: In conclusion, staff finds that the plans with the recommended conditions of approval for Building 8 are consistent with:
• The General Plan and Alameda Point Zoning District.
• The findings for Development Plan approval.
• The findings for Design Review approval.
• The findings for Use Permit approval for work/live units required by Section 30-15 and 30-21 of the AMC.
ENVIRONMENTAL REVIEW
On February 4, 2014, the City of Alameda certified the Alameda Point Final EIR in compliance with the California Environmental Quality Act (CEQA). The Final EIR evaluated the environmental impacts of redevelopment and reuse of the lands at Alameda Point, which included Building 8. No further review is required for this project.
RECOMMENDATION
Hold a Public Hearing and Approve the Development Plan, Design Review and Use Permit and Draft Resolution of approval including findings and conditions for Building 8 (Exhibit 3).
Respectfully submitted,
Andrew Thomas, Assistant Community Development Director
Exhibits:
1. Building 8 Development Plan, Design Review Plans and Use Permit Statement of Intent
2. Historic Preservation Memorandum from Christopher VerPlanck
3. Draft Resolution of Approval and Conditions for Building 8