Title
PLN17-0600 - 1051 Harbor Bay Parkway - Design Review, Planned Development Amendment, and General Plan Amendment - Applicant: Arris Studio Architects for Shriji Hospitality, Inc. The Planning Board will hold a public hearing to consider Design Review and Development Plan Amendment to allow a 211-room five-story hotel located at the corner of Harbor Bay Parkway and Ron Cowan Parkway. The proposed project includes a General Plan Text Amendment to clarify the floor area ratio requirements of the Harbor Bay Business Park. The property is located within the C-M-PD, Commercial Manufacturing - Planned Development zoning district.
Body
To: Honorable President and Members of the Planning Board
From: Henry Dong, Planner II
BACKGROUND
The proposed hotel is located on a vacant 3.72-acre portion of the existing 11-acre Plaza One office development originally approved by Development Plan FDP-82-2. The site is located in Harbor Bay Business Park on the northwest corner of the intersection of Harbor Bay Parkway and Ron Cowan Parkway. The proposed 131,000-square-foot, five story building includes 211 guest rooms, a restaurant and bar, meeting rooms, a pool and gym, outdoor gathering space, and other guest amenities. Surrounding properties include office buildings to the west, a commercial storage facility to the north, the Oakland Airport to the east, and the Oakland Raiders facility to the south. The applicants proposed plans are included as Exhibit 1.
ANALYSIS
Zoning and Hotel Uses: The site is located in the C-M-PD, Commercial Manufacturing, and Planned Development Zoning District. Hotels are a permitted use in this zoning district and have been approved by the City of Alameda at other locations in the Business Park with the C-M-PD Zoning and Business Park General Plan designation. The C-M-PD Zoning for the subject site does not include the special BCDC Settlement Agreement restrictions on hotel use that govern the zoning for the 1.2 acre property at 2350 Harbor Bay Parkway on the waterfront.
Airport Safety & Height: The project is located within the Airport Safety Zone of the Oakland Airport and triggers the review of both the Airport Land Use Commission (ALUC) and the Federal Aviation Administration (FAA). The ALUC deemed the project consistent with airport land use regulations. The building is designed as a five-story building that steps down to three stories to meet the airport height restrictions of the Federal Aviation Administration (FAA). The FAA has determined in its letter dated October 14, 2016, that the project will not pose a hazard to air navigation at the Oakland International Airport or in Bay Area airspace. The project, as conditioned, will comply with all regulatory requirements pertaining to airport safety. The draft Planning Board conditions of approval require final approval by the FAA, prior to issuance of Building Permits.
Architectural Design:
A statement of design intent has been provided by the applicant. (Exhibit 2)
The proposed building is located on a highly visible intersection at the gateway to the Harbor Bay Business Park and City of Alameda. The architectural design of the building is a contemporary architectural style designed to complement the contemporary Business Park buildings that face Harbor Bay Parkway and the site. The proposal emphasizes a horizontal proportions within articulating facades utilizing high quality textures and materials that are harmonious with the existing buildings in the office development. The design includes flat roof forms of variating heights and a decorative parapet cornice with deep overhangs. The sculpted massing of the building, the composition of simple building elements, and the color palette are designed to provide a simple, visually pleasing composition of materials and architectural elements that acknowledges the site's prominent location at the gateway of the Business Park. The proposed building materials includes a stone face ground floor level with large glass windows consistent with the existing office buildings in the development. Exterior materials combine smoother fiber cement panels and smooth stucco siding with generous expanses of glass, incorporating large punch windows, and deep sunscreen elements that mitigate heat gain from the sun, and add dimension and detail to the facades. The building’s architectural design is well-suited to its location and context and will enhance the visual interest of the streetscape.
The project design was reviewed and approved by the Harbor Bay Business Park Architectural Review Committee.
Site Design:
The proposed site plan provides a “V” shaped building configuration with a covered passenger drop off at the main entrance. A large outdoor open space area is located at the center of the “V”. The outdoor area will be used for recreation and special events for guests and customers. Vehicle access is provided by a shared entrance to the development from Harbor Bay Parkway located at the southwest corner of the site. An emergency vehicle access route is provided by connecting with existing vehicle circulation on the western side of the site. Landscaping buffers and existing flag poles distinguish the corner of Harbor Bay Parkway and Ron Cowan while also providing screening for the proposed parking lot. Bicycle storage and an indoor swimming pool are located in the southeast corner of the hotel. The site also provides a number of patio and outdoor seating areas along with a large outdoor event space for guest to enjoy. The landscaping plan includes a mix of trees, shrubs, grasses, and other low-lying ground cover vegetation that is consistent with Bay Friendly Landscaping Guidelines, which promote native, drought-tolerant species. Tree canopies outline the parking lot area to provide shade around the site.
Development Standards:
The proposed project meets all of the development requirements of Planning Board Resolution No. 1203, approved in 1981 for the Harbor Bay Business Park and this property. As shown in Table 1 and the following sections of this analysis, the project does require a parking waiver and a clarifying amendment to the General Plan Land Use classification regarding floor area ration (FAR).
Table 1 summarizes project compliance with the applicable development standards.
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Table 1: Project Complies with C-M/PD District Development Standards. |
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Requirement: |
Proposed: |
Compliance: |
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Maximum Building Height |
100 ft. |
59 ft. |
Complies |
|
Maximum FAR (0.5) |
0.5. |
0.8. |
See below |
|
Lot coverage |
40% |
13.6% |
Complies |
|
Landscaping coverage |
30% |
30.2% |
Complies |
|
Front Yard Setback (Harbor Bay Parkway) |
50 ft. |
110 ft. |
Complies |
|
Side Yard Setback (Harbor Bay Parkway) |
50 ft. |
84 ft. |
Complies |
|
Minimum Side Yard Setback |
20 ft. |
49 ft. (west) |
Complies |
|
Minimum Rear Yard Setback |
20 ft. |
42 ft. |
Complies |
|
Vehicle Parking |
264 spaces |
162 spaces |
See discussion below |
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Maximum FAR (0.5) |
0.5. |
0.8. |
See discussion below |
Parking: The Alameda Municipal Code (AMC) Section 30-7 Parking Requirements requires 1.25 parking spaces per hotel room (264 parking spaces for 211 rooms). Pursuant to AMC Section 30-7.13, the Planning Board may reduce the required amount of parking to reflect the expected parking demand for the project. Since it is very unusual for the need for two cars for one hotel room, the Planning Board has previously granted parking reductions for hotels in the Harbor Bay Business Park and on Webster Street.
The applicant is requesting a parking reduction to 0.72 spaces per room (152 spaces for 211 rooms). The request is supported by the following project characteristics and studies:
• The reduction allows for a larger open space area at the center of the site for outdoor recreation, special events, and weddings. This type of outdoor gathering space is a unique amenity for hotels within the City, and will be a valuable outdoor space for special gatherings.
• The subject property has an existing reciprocal parking agreement with the adjacent office buildings that allows utilization of the additional 443 existing parking spaces in the adjacent office park that are underutilized during the evening and weekends which corresponds with the busier hours of the hotel.
• The project will provide an on-demand free shuttle service from the hotel to the Oakland International Airport, Airport BART Extension, Harbor Bay Ferry Terminal, Park Street restaurants and entertainment, and all Harbor Bay Business Park occupants. The on-demand shuttle services will be available from 4:00 am to 1:00 am daily (21 hours per day).
• The project site is served by the commute hour Harbor Bay Business Park free shuttle that provides service between the Ferry Terminal and Coliseum BART.
• The hotel will provide bicycles free of charge for visitor use.
• Abrams & Associates, Transportation Planners and Engineers prepared a traffic and parking demand study for the project that determined that with the free shuttle service, and convenient location near the airport and nearby businesses, the demand for parking would be approximately 0.60 spaces per room, or 127 spaces for the proposed 211 rooms. Prior studies conducted for the hotels in the business park determined that approximately 60% of hotel patronage is generated by visitors doing business with the nearby businesses in Harbor Bay Business Park.
Based upon the project location, project services, and the recommended conditions of approval requiring the shuttle and the bicycle parking, staff believes the findings can be made to support a 0.72 per
Floor Area Ratio (FAR): Floor Area Ratio is the ratio of the total floor area enclosed within the structure to the size of the lot. The proposed project provides a FAR of 0.8.
The Harbor Bay Industrial Park Development Plan, approved by Planning Board Resolution No. 1203 in 1981, and amended by Resolution No. 1533 in 1985, establishes the development standards for the Harbor Bay Business Park and this property. These development standards and entitlements were then vested by the City Council-approved 1989 Development Agreement, which specifically references Resolutions No. 1203 and No. 1533.
Planned Development No. PD-81-2, and as amended in 1985 established a maximum FAR of 0.5 for the portion of the business park located between the ferry terminal and the western intersection of Harbor Bay Parkway and North Loop Road. PD-81-2 and PDA-85-4 contain the following language:
46. Special criteria for the area between the lagoon and bay shall be as follows:
b. Floor area ratio (FAR) shall not exceed a ratio of 0.5:1 with increases in gross floor area permitted proportional to the amount of required parking provided within a structure or structure(s) up to a maximum FAR of 2:1 where all required parking is enclosed in a structure.
The subject site at 1051 Harbor Bay Parkway is not located between the lagoon and bay.
In 1991, the City Council adopted a General Plan that included language that implies that the 0.5 FAR limit of applies to the entire Harbor Bay Business Park and Marina Village Business Park. The description for the Business Park land use classification in the 1991 Land Use Element states:
Harbor Bay Business Park and portions of Marina Village consist primarily of offices, but also may include research and development space, manufacturing, and distribution. Harbor Bay plans include a small amount of retail space and a conference-oriented hotel. Maximum FAR is .5, with increases up to a maximum of 2 permitted, proportional to the amount of required parking enclosed in a structure.
In 2017, the City Council considered a tentative map and stated their concerns about the unclear language and conflicting statements in the General Plan and Harbor Bay Development Plans and Agreements.
For this reason, staff is recommending a General Plan Text Amendment that clarifies the floor area ratio standards for business parks and maintains consistency with existing and Harbor Bay Business Park development plans.
Business Park: Harbor Bay Business Park and portions of Marina Village consist primarily of offices, but also may include research and development space, manufacturing, and distribution. Harbor Bay plans include a small amount of retail space and a conference-oriented hotel. Maximum FAR is .5, Within the Harbor Bay Business Park, the maximum FAR for new development between the lagoon and the bay is limited to an FAR of 0.5, with increases up to a maximum of 2 permitted, proportional to the amount of required parking enclosed in a structure.
Staff is recommending that the Planning Board recommend the proposed clarifying General plan text amendment to the City Council and include the recommended condition of approval that requires approval of the amendment by the City Council prior to issuance of building permits for the project.
PUBLIC NOTICE AND COMMENTS
Property owners and residents within 300 feet of the project’s boundaries were notified of the public hearing and given the opportunity to review and comment on the proposal. Project notification was also provided to the responsible regulatory agencies including the ALUC, FAA, and the Port of Oakland. Public comment letters received on the proposal are attached as Exhibit 3.
ENVIRONMENTAL REVIEW
Pursuant to CEQA Guidelines Section 15162, there have been no significant changes in circumstances that require revisions to the previously certified Environmental Impact Report. The proposed project will not result in any significant traffic, noise, air quality or water quality impacts. The proposed project is not likely to cause substantial environmental damage or substantially and avoidably injure endangered, rare, or threatened fish or wildlife or their habitat. Staff is able to make the same recommended findings based upon the following evidence on the record:
The project site has no value as habitat for endangered, rare or threatened species. The Harbor Bay Isle Environmental Impact Report (EIR) analyzed the impacts of Harbor Bay development on wildlife and migratory birds. The biological survey for the proposed hotel concludes that the proposal does not substantially change the determination of the previously certified EIR. The area of the proposed development is currently a vacant 3.7 acre site. The vacant site has no habitat value for any endangered, rare, or threatened wildlife species. A survey for burrowing owls and sensitive species was conducted by WRA Environmental Consultants at the project site on January 15, 2018, and no evidence of the presence of these species were observed on or within a zone of influence of the site (Exhibit 4).
Approval of the project would not result in any significant effects relating to traffic, noise, air navigation, air quality, or water quality. The previously certified Harbor Bay Isle EIR analyzed the impacts of the Harbor Bay development on traffic, noise, and air navigation. The traffic analysis, noise analysis, and Airport Land Use Commission analysis conclude that the proposed hotel facility will not substantially change the determinations of the previously certified EIR. A traffic and parking analysis conducted by Abrams and Associates on September 24, 2018 shows that the new hotel proposal does not result in any significant traffic or parking impacts to the surrounding area (Exhibit 5). The project also received an approval letter from the Alameda County Airport Land Use Commission on March 13, 2017 in regards to compliance with the safety, noise, and height development requirement of the adjacent Oakland Airport. The Noise analysis conducted by RGD Acoustics on February 5, 2018 determined that the project can meet city, state, and county requirements in regards to noise levels through the implementation of standard CNEL building requirements (Exhibit 6). The proposed project will not result in any significant traffic, noise, air quality or water quality impacts because the proposed hotel use is consistent with the uses analyzed by the Harbor Bay Isle Environmental Impact Report.
RECOMMENDATION
Hold a public hearing and adopt a draft Resolution recommending that the City Council approve the General Plan Text Amendment described above and approving Design Review and Development Plan Amendment Application No. PLN17-0600 (Exhibit 7).
Respectfully submitted,
Henry Dong
Planner II
Exhibits:
1. Project Plans
2. Design Intent
3. Comment Letters
4. Biological Resources Survey
5. Traffic and Parking Analysis
6. Noise Assessment
7. Draft Resolution