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Hold a Public Hearing to Consider Site A: 1) Street Names, 2) Waterfront Park Final Design Review Materials and Details, 3) Preliminary Ferry Terminal Canopy Design, and 4) Preliminary Block 9 Design. The Alameda Point Final EIR evaluated the environmental impacts of redevelopment and reuse of the lands at Alameda Point consistent with the Town Center Plan, which included Site A. No further review is required for this review of the project designs.
Body
CITY OF ALAMEDA
Memorandum
To: President and
Members of the Planning Board
From: Andrew Thomas, Assistant Community Development Director
Jennifer Ott, Base Reuse Director
Date: September 26, 2016
Re: Hold a Public Hearing to Consider Site A: 1) Street Names, 2) Waterfront Park Final Design Review Materials and Details, 3) Preliminary Ferry Terminal Canopy Design, and 4) Preliminary Block 9 Design. The Alameda Point Final EIR evaluated the environmental impacts of redevelopment and reuse of the lands at Alameda Point consistent with the Town Center Plan, which included Site A. No further review is required for this review of the project designs.
EXECUTIVE SUMMARY
In June 2015, the City Council unanimously approved the Site A Development Plan for a 68-acre area within Alameda Point that extends generally from the Main Street entrance to Alameda Point to the Seaplane Lagoon and the eastern edge of the Naval Air Station Alameda Historic District (Historic District).
Since the City Council action on the Development Plan, the Planning Board and the project proponent, Alameda Point Partners (APP), and its team of architects and design professionals have completed the Tentative Map for Site A and the Design Review applications for Blocks 11, 10, 8, 7, and 6, the Phase 1 Waterfront Park, and West Atlantic Avenue. In October, APP will begin demolition activities in preparation for the construction of the infrastructure to support the development of Site A and the associated public improvements.
At this time, staff is recommending:
1. Approval of the street names for the side streets in Site A; and
2. Approval of the final paving materials, railing design, lighting design, and plant materials.
Staff is requesting comments and feedback on:
3. The preliminary designs for the Ferry Terminal canopy; and
4. The preliminary design for Block 9.
BACKGROUND
Community Planning Process
The plans for mixed-use, transit oriented development at Alameda Point are the result of a community planning process that is over 20 years long. The major milestones during this extensive community effort include:
• Reuse Plan: The adoption of the 1996 Alameda Naval Air Station Community Reuse Plan (Community Reuse Plan) and Environmental Impact Report (EIR), which envisioned reuse and redevelopment of Alameda Point with 5.5 million square feet of employment uses and 1,425 residential units, including public parks and retail services.
• Alameda Point Element: The adoption of the Alameda General Plan Alameda Point Element and EIR in 2003, which placed the Community Reuse Plan vision, goals, and policies into the Alameda General Plan.
• Vision Guide: The July 2013 endorsement of the Alameda Point Vision Guide reconfirming the community’s support for the vision and goals presented in the Community Reuse Plan and General Plan.
• Zoning and Master Infrastructure Plan: The 2014 adoption of the Alameda Point Zoning Ordinance, Master Infrastructure Plan (MIP) and third EIR consistent with the Community Reuse Plan, which established the zoning and development regulations and the MIP necessary to support 5.5 million square feet of employment uses and 1,425 residential units, after over 30 public hearings and community meetings between 2012 and 2014.
• Transportation Plan: The May 2014 adoption of the Alameda Point Transportation Demand Management Plan (TDM Plan) consistent with the General Plan and the Alameda Point EIR, which creates a comprehensive program of strategies, measures, and transit services that supports a transit-oriented development at Alameda Point, achieves the City of Alameda’s General Plan goals to reduce automobile trips, and mitigates potential traffic impacts.
• Town Center Plan: The July 2014 adoption of the Alameda Point Waterfront and Town Center Precise Plan (Town Center Plan), which established the form-based development standards, height limits and pedestrian oriented development standards for the lands at the gateway and surrounding the Seaplane Lagoon Waterfront Park at the heart of Alameda Point. The Town Center Plan included the most detailed plans prepared to date for a mixed-use district at the heart of Alameda Point.
• Site A Development Plan: The June 2015 unanimous City Council action to adopt the Site A Development Plan, which provides a detailed plan for 68 acres at the heart of the Town Center planning area. The approval process included recommendations from the Planning Board, Recreation and Parks Commission, Historical Advisory Board, and Transportation Commission.
The Site A Development Plan requires:
• Approximately 14.8 acres of publicly accessible open space, parks and plazas representing approximately 22% of the 68-acre property, and approximately 16.3 acres of public streets and sidewalks representing an additional 24% of the property.
• Eight hundred of the 1,425 total residential units programmed for Alameda Point and up to 400,000 square feet of commercial development in existing buildings, approximately 200,000 square feet of retail and hotel space in new buildings. Residential units are provided in transit oriented, multifamily building types on eight blocks located immediately adjacent to the primary transit corridor along the West Atlantic Avenue that links a future ferry terminal at the Seaplane Lagoon with the planned Bus Rapid Transit (BRT) service between Site A and downtown Oakland. All residential units on Site A will be within a one-block walk or less of the BRT line, protected bicycle lanes along West Atlantic and public open space to facilitate a pedestrian oriented environment.
• Two hundred of the 800 units (25%) are restricted to very low-, low- and moderate-income households, and 128 of the 200 affordable units are permanently restricted for very low- and low- income households. These units are proposed to be constructed by Eden Housing, a nonprofit affordable housing developer, in two buildings on Block 8 in the first phase of the development. The 70 moderate-income units will be dispersed throughout the remaining residential buildings.
• Dedicated annual funding for transit services and transportation programs. In addition, the project is providing $10 million for construction of the new Ferry Terminal at the Seaplane Lagoon to support expanded ferry services to San Francisco and the region and over $8.5 million to construct complete streets in and around Alameda Point, including key transit improvements, such as dedicated bus lanes on West Atlantic to support expanded transit services from Alameda Point to downtown Oakland and BART.
DISCUSSION
Street Names (Exhibit 1, 2, and 3)
APP is requesting approval of its proposed street names for the side streets within Site A. The names were selected off of the City of Alameda list of pre-approved Street Names, and all the names have a relationship to the history of the former Naval Air Station Alameda (NAS Alameda). Exhibits 1 and 2 describe the selected names for the selected streets. The selected names complement the names of the other streets at Alameda Point that honor former navy vessels such as: West Hornet Avenue, Lexington Street, and Saratoga Street. The proposed names include:
• Coronado Avenue
• Marilyn York Way
• Firebirds Street
• Buckthorn Street
• Ardent Way
• Corsair Street, and
• Skylark Street.
Exhibit 3 includes a draft resolution of approval for the street names and Exhibit 4 is a public comment received regarding the street names.
Waterfront Park Design Details (Exhibit 5 and 6)
In March, the Planning Board approved the Design Review application for the first phase of the Waterfront Park. Since the March action, staff and APP have been working with the Bay Conservation and Development Commission (BCDC) staff and the BCDC Design Review Board to prepare the plan for BCDC approval. With the help of BCDC, the Waterfront Park Design details and sea level rise strategies have continued to improve and evolve.
Furthermore, the Planning Board resolution Condition #6 required that the applicant return for Planning Board review and approve of the:
• Final design details for park lighting, directional and Bay Trail signs, tree selections, plant materials, fixtures, and furnishings, including water fountains and trash enclosures consistent with the MMRP. The submittal must be consistent with Alameda Municipal Power and Recreation and Park Department standards, and demonstrate how the lighting, plant palette, fixtures, and furnishings will be resilient to flooding and sea-level rise, and skateboards.
• Final design details for the “Pavilion” and the “Sunset Platform” proposed within the “Overlook” area.
• Final design details for the bulkhead edge adjacent to the water. The submittal will provide a variety of alternative designs and a recommended design to ensure a safe environment along the promenade for children and site impaired visitors. At least one alternative shall include an attractive railing design with examples of different potential railing designs.
• Final plans for the sea level rise adaptive management strategy or changes to the plans that may have arisen as the result of any final conditions imposed by the Bay Conservation and Development Commission permit for the improvements. The plans shall be included in the Building Permit plans and shall show how the Phase 1 Waterfront Park sea level rise protection zone will be constructed at a minimum elevation of 24 inches above the 100-year tidal flood plan elevation (currently at 3.6) consistent with the design review approval and how the plan may be adapted at a future date to address increases in sea level rise above 24 inches, and any modifications required to the park design as a result of the future adaptive management strategies.
Exhibit 4 includes the design details required by Condition #6 with the exception of all the final furnishing designs. Staff and the applicant are still evaluating materials and various maintenance issues associated with different materials. In addition, staff is still evaluating the trash can design for conformance with the biological restrictions at Alameda Point. A final recommended furnishing detail (bench and chair design and trash can design) will be brought to the Planning Board at a later date.
Exhibit 4 includes two alternative railing designs for the Planning Board’s consideration. After meeting with BCDC staff and the BCDC Design Review Board and in response to comments from the Planning Board in March, the APP/City staff team believe that a railing is needed along the edge of the Seaplane Lagoon. City staff has a slight preference for design option 2, but all agree that both designs are attractive. As described in a prior staff report, all of the lighting designs have been pre-screened to ensure compliance with the Biological restrictions at Alameda Point. In addition, all the lighting poles include high quality finishes that are resistant to vandalism and corrosion from sea water and are designed to address flood events.
Similarly, the landscape materials were chosen to create a “Bay Friendly”, low water landscape and to thrive in a maritime environment adjacent to the San Francisco Bay.
Staff is requesting that the Planning Board select a preferred option for the railing, and approve the final paving materials, landscape materials, “Sunset Platform” design, and railing design shown in Exhibit 4. Exhibit 5 includes a draft resolution of approval for the selected materials.
Ferry Terminal Canopy Design (Exhibit 7)
On April 5, 2016, the City Council approved the Seaplane Lagoon (SPL) Ferry Terminal Plan, adopted a CEQA Addendum and approved a Memorandum of Understanding with WETA for future ferry service at SPL Ferry Terminal.
For the City, a new ferry service creates a transit hub at the heart of Alameda Point, which maximizes opportunities for Alameda Point residents and employers/employees to be transit users. This minimizes potential traffic impacts and significantly increases the possibility of attracting major commercial users to Alameda Point. Both developer finalists interested in the Site B “commercial only” Request for Qualifications mentioned the new ferry terminal as a crucial component of marketing and attracting a major business user to Alameda Point. The new ferry service is also an important component of APP’s marketing and business plan for the successful implementation of the Site A development.
For WETA, the new ferry terminal locates service within walking distance of a major development, which will maximize demand for its services from the residents and employees located at Alameda Point. It also allows WETA to easily coordinate the Main Street and Seaplane Lagoon services as one West End service (i.e., boats can be moved in and out of both terminals) to meet shifting demands from each terminal and from Oakland, creating long-term flexibility for WETA, without compromising the viability of the Oakland service. A SPL terminal also positions WETA for an increase in service in the Transbay corridor, where the ferry is one of the best options given capacity limitations on the bridge and BART.
On May 9, 2016, the Planning Board held a study session to review the preliminary designs for the landside improvements. At a future date, staff will return with a final design and request that the Planning Board review and approve the final design for the SPL ferry terminal. On June 7th, staff presented the preliminary designs to the BCDC Design Review Board, which provided comments and approved the project to submit a BCDC project application for final approval by the Commission. One of the comments was to include a canopy design. The ferry terminal project will need BCDC approval of the final terminal and landside designs.
At this time, staff is considering a variety of canopy designs and working with WETA staff, BCDC staff and Design Review Board and the City of Alameda Historical Advisory Board on the final design details for the facility.
The primary function of the canopy is weather protection for ferry riders. The proposed design provides a canopy that covers the pier, gangway and float, as preferred by the WETA and BCDC staff. Along the pier, a 48” clear glass panel is provided for additional wind and rain protection. The pier is where most riders will line up to wait for the ferry. The glass would be “bird-safe” and follow the guidelines as recommended by entities such as the American Bird Conservancy, but also transparent to allow passengers to enjoy the waterfront views of the Bay from the pier. Still, the birds, especially the endangered Lease Tern, may not perceive their flight path as unobstructed with the glass alone, so staff is also proposing a steel mesh screen over the glass to provide additional protection for the birds (see exhibit 6 for an example).
Exhibit 6 also includes two alternative color schemes for the canopy. Staff believes the blue color is most appropriate given the location of the facility within the NAS Historic District and the use of the blue color throughout NAS Alameda by the US Navy. However, staff also agrees that the orange color would be attractive. On October 6, 2016, the Historical Advisory Board will express its opinions on the design.
At this time, staff is requesting Planning Board comments on the canopy design. Staff will return at a future meeting for final Planning Board review and action on the Ferry Terminal Design Review application.
Block 9 Architectural Design (Exhibit 8)
Exhibit 7 includes the current working drawings for the design of Block 9. Staff has been providing design advice to the APP Design Team. At this time, staff would like to invite the Planning Board and community to review and comment on the attached drawings, which should be considered a “work in progress”.
Block 9 will include 182 housing units, 13,145 square feet of ground floor retail space facing West Atlantic Avenue, and 243 on-site parking spaces.
The 182 housing units are designed to provide housing opportunities for a wide range of household types. For example, the building includes units as small as 510 square foot studios and units as large as 1,290 square foot three-bedroom units. The range of unit sizes is a much needed contrast to the types of units that have been constructed in recent years in Alameda and that are under construction at Marina Shores and at Alameda Landing. The Marina Shores and Alameda Landing market-rate units are all, with a few exceptions, much larger units. As a result, the larger units are also priced at a point that makes it more difficult for many Alameda households to afford.
From a design perspective, the proposed architectural design for Block 9 is both interesting and challenging. MBH Architects, describes its challenge as follows:
“One of the challenges in designing Block 9 at Alameda Point is neither to look too far back to the point of being imitative nor to look too far forward so as to feel out of place. This building draws inspiration from local and regional sources ranging from the deep vertical openings on the City Hall West building at the Alameda Naval Air Station to the porte cochere at the Bellevue-Staten Apartments in Oakland. The building elevations and proposed uses transition from vibrant and energetic along West Atlantic to calm and tranquil on G Street.
Another design challenge is breaking down the massing of a 6-story building occupying an entire city block to a more pedestrian scale. This is achieved through the use of modular façade forms, varied parapet lines and wall planes that add visual movement and shadows throughout the day. Together with a limited palette of accent materials and colors, the building provides enough repetition without being static and enough variety to keep the pedestrian interested as they encounter it from different vantage points.”
At this stage in the design process, staff would like the Planning Board to review and comment on the initial design plans include in Exhibit 7. No final action is requested on this application at this time.
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 consistent with the Town Center Plan, which included Site A. No further review is required for this review of the project designs.
RECOMMENDATION
Hold a Public Hearing and:
Approve draft Resolution approving Street Names.
Approve draft Resolution approving Waterfront Design Details.
Review and comment on preferred Ferry Terminal Canopy Design.
Review and comment on preliminary Block 9 Plans.
Respectfully submitted,
Andrew Thomas, Assistant Community Development Director
Jennifer Ott, Base Reuse Director
Exhibits:
1. Street Names Map
2. Street Names Explanation
3. Street Names Resolution
4. Street Names Public Comment
5. Waterfront Plans
6. Waterfront Park Resolution
7. Ferry Terminal Canopy Options
8. Block 9 Plans.