Title
PLN19-0046 -Design Review for Alameda Marina Waterfront Park 1829 Clement Avenue. Applicant: Alameda Marina Development, LLC. The Planning Board will hold a public hearing to consider a Design Review application to construct approximately 3.5 acres of publically accessible waterfront open space, parks, landscaping and roadway and sidewalk improvements on the Alameda Marina property generally located between Clement Avenue and the Oakland Estuary and between Alameda Marina Drive and Willow Street. The environmental effects of the proposed project were considered and disclosed in the Alameda Marina Master Plan Environmental Impact Report (State Clearinghouse #2016102064). No further environmental review is required under the California Environmental Quality Act for the proposed improvements.
Body
To: Honorable President and
Members of the Planning Board
From: Andrew Thomas
Acting Planning, Building & Transportation Director
Executive Summary
On July 10, 2018, the City Council unanimously approved the Alameda Marina Master Plan for the redevelopment of the 44-acre Alameda Marina site located on Clement Avenue between Alameda Marina Drive and Willow Street in the Northern Waterfront Priority Development Area. The site is comprised of approximately 27 acres of uplands and submerged lands owned by Pacific Shops, Inc. (“the applicant”) and an adjacent 17 acres of waterfront land and submerged lands owned by the City in trust for the State of California (“Tidelands”) that are leased to the applicant.
On February 25, 2019, the Planning Board held a study session to review and comment on the Open Space Development Plan, which provides the detailed designs for the waterfront open space, internal streets, and Clement Avenue frontage (Exhibit 1). The Master Plan requires a variety of subsequent permits that will require review and approval by the Planning Board, the City Council and/or regional agencies. Approval of the open space plan is a prerequisite for the review and approval of the project by the San Francisco Bay Conservation and Development Commission (BCDC).
Since the February meeting, the applicant has made a number of changes to the plans in response to the Planning Board’s comments. At this time staff is recommending that the Planning Board conditionally approve the open space plan, which will allow the project to be reviewed and approved BCDC. Staff’s recommended resolution and conditions of approval are attached as Exhibit 2.
The following background section of the report provides a history of the project, which was also provided in the February report. The discussion section of this report describes the Open Space Plan presented in February. The discussion concludes with a subsection that describes the specific changes to the plans or conditions added to the resolution by staff to address the Planning Board’s comments at the February study session.
BACKGROUND
In 1990, the City Council amended the City of Alameda General Plan to designate Alameda Marina and other industrial and maritime sites along the Northern Waterfront for mixed use development. In 2012, the City Council amended the General Plan and Alameda Municipal Code (AMC) to designate 21.62 acres of the non-Tidelands portion of Alameda Marina land as a multifamily housing opportunity site in support of future mixed use development on the property. The site’s Mixed Use Zoning District (MX) zoning designation with a Multifamily Residential Combining District (MF) overlay implements the General Plan’s Mixed Use designation and made it possible for the City of Alameda to bring its General Plan and AMC into compliance with State Housing Law. Residential uses are prohibited on the adjacent Tidelands and submerged property.
In 2012, the City and the applicant entered into a new lease for the Tidelands property (“2012 Lease”). One of the primary purposes of the 2012 Lease was to facilitate reinvestment and improvement of the City-owned Tidelands property. The 2012 Lease requires the applicant to prepare a Master Plan for the entire site with higher value uses to fund the major investments necessary to improve the City Tidelands property including seawalls, bulkheads, public access, and supporting infrastructure, which are all in very poor condition. A 2017 analysis of the City’s property shoreline, prepared by a City consultant, estimates the costs for the seawall improvements alone to be between $15 million and $17 million. Pursuant to the 2012 Lease, if the City does not approve the Master Plan, a required first step to enable the applicant to acquire all other necessary permits from the regional regulatory agencies, in time to begin the first phase of construction by January 2019, the tenant’s financial responsibilities for the improvement of the City property will terminate and the lease will terminate in 2037. If that were to occur, the City of Alameda would take over the financial responsibilities for the improvement of the City-owned property.
In 2016, the applicant submitted the first draft Master Plan for the site. Over the next two years, the applicant made many revisions to the Master Plan to address public concerns raised at approximately 75 community and group meetings, five (5) Planning Board subcommittee meetings and five (5) full Planning Board meetings. Throughout the two-year planning process, the Planning Board consistently advocated for and required that the Master Plan provide a mix of uses that includes residential uses, boatyard operations and facilities, and open space; that the plan maintain the most unique and interesting historic features on the site, while recognizing that not every existing building and space could be preserved; and that the plan address the need for not only affordable housing, but also housing for middle-income families and first-time homebuyers.
On May 29, 2018, the Planning Board unanimously approved resolutions recommending that the City Council approve the Master Plan and EIR. On July 10, 2018, the City Council unanimously approved legislation certifying the EIR and approving the Master Plan and Density Bonus Application.
The Master Plan serves as the zoning code and “master plan” for the site, which is used to evaluate all future discretionary entitlements, such as the open space design review plans, subdivision maps, and future building design review applications.
Mixed Use Development: The Alameda Marina Master Plan provides for 3.59 acres of public open space, 7.35 acres of maritime commercial property with 180,972 square feet of maritime and commercial building floor area and dockyard space, a 529 berth marina on 12 acres of submerged maritime commercial land with marina facilities, and approximately 17.74 acres of residential land.
Green Building and Universal Design: The Master Plan requires all new construction to comply with a LEED Silver or equivalent standard and the City of Alameda’s 2017 Universal Design Ordinance requirements. In 2020, it is anticipated that the State will adopt new statewide standards requiring that all new residential construction move towards a “zero net energy” standard. Most, if not all, of the new residential building permits issued for Alameda Marina will probably be issued in 2020 or later, and those permits will be subject to the 2020 Residential Building Code.
Reinvestment in City-owned Tidelands: The Master Plan requires significant reinvestment in the City-owned Tidelands and public lands, which are critical to the long-term viability of the land for future maritime use; including reinvestment in City-owned marina facilities, bulkheads and seawalls, and infrastructure necessary to support continued maritime use of the public lands. This investment in city lands is estimated to be in excess of $20 million.
Seawall Improvements: The Master Plan requires complete reconstruction and/or rehabilitation of the 4,009 lineal feet of shoreline embankments, seawalls and bulkheads on the property, most of which is on City-owned Tidelands property. There are several areas throughout the 4,009 lineal feet of shoreline that have experienced loss of soil and cave-ins due to the complete loss of steel pile walls. The initial estimated cost to upgrade the seawalls is between $15 million and $17 million and includes the necessary upgrades to address three feet of anticipated sea level rise over the next 50 years. The phasing plan requires the improvements to be completed with each phase of the residential development.
Marina Improvements: The Master Plan requires rehabilitation and improvement of the 530-slip marina including dredging, pier and dock improvements, restroom and shower upgrades, replacement and improvement of the sewer, water, power, and sanitary infrastructure that supports the marina operations, and construction of three parking lots totaling 348 public parking spaces. The estimated cost to upgrade these City-owned facilities is between $3.25 million and $4 million. The Master Plan phasing plan requires the improvements to be completed in phases with each phase of the residential development.
Boatyard Improvements: The Master Plan provides for up to 180,972 square feet of maritime commercial floor area and yard space and all new infrastructure to support maritime commercial uses. The Master Plan requires boat servicing, repair, and maintenance areas on both land and water to support the recreational boating community. Prior to issuance of the first grading or infrastructure permit, the City and the applicant will jointly issue a Request for Qualifications/Proposals to solicit a qualified boatyard operator and identify the specific improvements that will be needed to construct and operate an environmentally sensitive/compliant boatyard facility.
To support a future, environmentally clean boatyard at Alameda Marina, the Master Plan requires regrading of the entire site to protect water quality, construction of new infrastructure to support boatyard and other maritime commercial uses, and preservation of the existing boatlift rails and washing areas, which are necessary to move boats out of the water and into the “yard” for “bottom work”. In the water, “Service Ships” will provide facilities for “top side” boat maintenance and repair including engine installation and service, marine electronics, canvas, fiberglass, rigging, and mechanical services at Alameda Marina. The facilities will also provide for “incubator” opportunities, co-op arrangements, apprenticeship programs, and synergy between the various maritime providers.
For comparison purposes, the planned facilities at Alameda Marina would have more capacity than the nearby Grand Marina boatyard. Depending on the strength of the maritime repair market in Alameda, the facilities at Alameda Marina could be comparable in capacity to other facilities in the Bay Area, such as the Berkeley Marine Center, the San Francisco Boatworks at China Basin, and KKMI in Sausalito, the Vallejo Boatworks, and the San Rafael Yacht Harbor. In the event that a qualified operator is not available to the City and applicant’s satisfaction, the Master Plan requires provision of a “concierge service”, which would allow boat owners to leave their boats at Alameda Marina for “top work” and the Marina would have the “bottom work” completed at one of the other available boatyards, eliminating the need for the Alameda boat owner to sail or motor their boat to a different Bay Area boatyard. Bay Ship and Yacht is able to service houseboats.
Dry Boat Storage and Parking: The Master Plan requires construction of a new 60-boat dry storage yard with a three (3)-ton hoist in the first phase of the development. The hoist will allow dry boat storage owners to place their boats in the water from within the dry boat storage area, and a new access to the adjacent Grand Marina boat ramp will provide a secondary means to launch boats. In addition, boaters will have the ability to rent a “dry slip” in the water, which allows boats to be stored in slips above the water. Since the overall project will be constructed in three phases, portions of the existing dry boat storage (approx. 250 stalls) will remain available for lease throughout the development of the first and second phases, which may span a period of five to 10 years, which will provide an opportunity for active dry boat sailors to store their boats at Alameda Marina. (Currently, only 49 of the 165 sailboats in the existing dry boat storage area are registered and insured.) Furthermore, in eleven years, the Tidelands Lease for the 6.4 acres of land at the nearby Encinal Terminals property will expire, at which time City Council may decide whether there is sufficient demand to provide additional dry boat storage in Alameda’s northern waterfront.
Clement Avenue and Cross Alameda Trail Improvements: The Master Plan includes reconstruction of the .3 mile-segment of Clement Avenue that fronts the project site, including a widening of the current substandard public sidewalk to seven (7) feet, removal of the railroad tracks, and construction of new bicycle lanes or a cycle track along Clement Avenue as part of the Cross Alameda Trail. All of the overhead utility lines, with the exception of the high voltage KV 115 lines, will be undergrounded. This eliminates at least eight existing poles and the associated overhead lines on Clement Avenue. Improvements to the City-owned Clement Avenue is initially estimated to cost between $3 million and $4 million.
Waterfront Access Improvements: The Master Plan provides for the construction and rehabilitation of approximately 3.45 acres of publically accessible waterfront open space, including creation of a unique “water life” park with kayak and personal watercraft launching facilities in the former “graving dock”, which was the facility originally constructed to build segments of the Posey Tube.
Bay Trail Improvements: The Master Plan includes a new Bay Trail facility along the waterfront from a new connection to the Grand Marina Bay Trail along the waterfront to the Naval Operations Support Center and out to Clement Avenue.
DISCUSSION
Open Space Development Plan. On February 25, 2019, the Planning Board reviewed the preliminary Open Space Development Plan for the project. The Open Space Development Plan is intended to implement the Master Plan vision for these spaces and provide the final design review approval prior to issuance of permits to construct these open spaces, streets and trails.
As shown in Exhibit 1, the Open Space Development Plan provides detailed drawings for the following major public spaces and facilities:
San Francisco Bay Trail: The proposed San Francisco Bay Trail spans the entire length of the site, connecting the west end of the project site to Grand Marina and terminating with a future connection on the east end property line adjacent to the neighboring federal facility. The Trail provides new and improved access along the shoreline waterfront and connects distinct open space zones and uses on the land and water side of the project.
The width of the trail varies from 14’ to 16’ wide along the western edge at the Marina Bay Trail Connector to a consistent 16’ wide trail along the Wharf Promenade and Harbor View Park. A 12’ wide section runs between the Water Life Park and Clement Avenue. The Trail will be constructed with concrete and designed to meet the criteria and specifications of the San Francisco Bay Trail standards and guidelines.
The Marina Bay Trail Connecter is situated on the west end of the project site. It provides access to the adjacent public, City-owned Grand Street launch ramp, the on-site dry boat storage area for approximately 60 boats with the new relocated boat hoist, the maritime amenity buildings along the water’s edge and access to the marina and maritime commercial parking lot.
In response to BCDC design review comments on this area, the boat hoist platform and public access in this area has been revised since the Master Plan approval to ensure minimal conflict between users of the Bay Trail during boat hoist operations. The boat hoist is now cantilevered on a platform over the water designed with a sliding security gate to close off the hoist platform area while in use to allow for users to access the Bay Trail.
The Maritime and Commercial Core Edge: The maritime and commercial core area at the center of the site contains most of the space allocated for the “working waterfront”. In response to the City Council’s request to maintain more area for maritime use, the proposed development plan has designed for a maritime flex space at the terminus of the Schiller Street entrance adjacent to Building 19. The open space in this zone is designed to support a working waterfront with large areas of hardscape to allow for maritime activities adjacent to and interconnecting with public open space and the Bay Trail.
The Wharf Promenade: The 1.25 acre Wharf Promenade located in the middle of the project site will be maintained and rehabilitated for public use. The wharf and adjacent open spaces are designed as a flexible space on the public boardwalk/promenade with opportunities to gather and sit and accommodate events such as a weekly farmers market and other similar events. Public art and marina artifacts such as ship cleats in this area define the marina character of the space. Building 5 located at the east end of the Wharf Promenade will be maintained and improved for maritime amenities and will include public restrooms and marina facilities for public use.
The Harbor View Park: The 1.2 acre Harbor View Park located on the east end of the site is designed to allow the public to enjoy the Marina’s waterfront and the waterfront views beyond in a passive park and recreation setting. This open space zone includes a large lawn area for open play, barbecue and picnic areas along the lawn edge adjacent to the SF Bay Trail for easy access, sit out/view pockets along the waterfront for close shoreline experiences, restroom/showers/lockers in a new amenity building, bicycle parking, public access parking of approximately 48 spaces, and kayak and paddle board loading. An accessible ramp provides access to Pier 1 and the dock slips that have been relocated further out from the shoreline edge to provide for guest docking in the project.
The Water Life Park: The historic graving dock (site of the Posey Tube construction) will become Water Life Park, which includes segments of the San Francisco Bay Trail, bench seating, a new footbridge connecting east and west ends of the graving dock and accessible ramp access to the water for recreational use. Within the water, Water Life Park includes floating docks for public kayak and paddle board launching, rental facilities, education, and storage. The floating docks are also programmed for use for small craft sailing by organizations such as the Bay Area Association of Disabled Sailors. The calm waterway within and immediately around the graving dock channel will provide a unique opportunity for water recreation to the public and future residents that is currently non-existent along the shoreline today.
Trees: The Open Space Plan increases the number of trees on the property from 37 to over 500.
Improvements to City-owned Clement Avenue Right-of-Way. The Master Plan ensures approximately $2 million in capital improvements to the City-owned Clement Avenue right-of- way. The current City sidewalk is substandard and does not provide adequate access for individuals with disabilities. The existing buildings, fences and gates at Alameda Marina severely limit public access and public views from Clement Avenue through the site to the waterfront.
As shown in Exhibit 1, the Open Space Development Plan provides seven (7) public access connectors from the public right of way on Clement Avenue, through the project, to the public waterfront. The plans provide for reconstruction and widening of the existing substandard sidewalk to ensure a consistent 7 foot wide public sidewalk along the entire 6 block frontage of the project site. In front of the two historic buildings to be preserved, on-street parking will be removed to widen the sidewalk to 13 feet in width. For all other areas of the frontage, the additional sidewalk width will be provided by extending the sidewalk into the site, as opposed to into the right of way.
Response to Planning Board Requests from February 25, 2019 Study Session
Since the February meeting, the applicant has made a number of changes to the plan in response to the Planning Board comments. Those changes include:
Shoreline Trail. An accessible meandering 5’ concrete path has been added at the perimeter of Harbor View Park to provide improved public access to the shoreline viewing areas.
Staff has added a condition requiring that the name “Harbor View Park” be reviewed and approved by the Recreation and Parks Commission and City Council. (City parks are named by the City Council, with a recommendation from the Commission.)
Shade Trees. Shade trees such as the Coast Live Oak, London Plane Tree and Glory Maple in the project provide shade to pedestrians along the internal circulation system. A Shade Tree Planting Plan (L4.2) in this submission provides further details on location and species type.
Staff has added a condition of approval requiring additional large shade trees in the “Harbor View Park” on the waterfront that is located on City land.
Lighting. The project plans include a conceptual rendering of the project at night (Page L5-0). As shown in the drawing and on page L3.3, the conceptual plan is comprised of bollard lighting along the water’s edge and in the parks and street pole lighting along the streets and major circulation routes.
Staff has added a condition of approval requiring submittal of a detailed lighting plan and photometric study for Planning Board review and approval. The detailed lighting plan shall specify the type of lighting fixtures, the location of those fixtures on the plan, a street lighting plan for the Clement Avenue frontage, which may differ from the internal street lighting plan, and the bay trail lighting plan, which may differ from the internal street lighting plan.
Pedestrian Access and Visual Access through Buildings. The Master Plan requires a public path into the project and the waterfront from the intersection of Union Street and Clement Avenue, and the Master Plan requires a view corridor into the project and waterfront at the intersection of Chestnut and Clement Avenue.
The Master Plan establishes minimum height and width standards for these pedestrian and visual corridors, but defers the actual design of the corridors to design review. On February 25th, the Planning Board requested more detail on the design of the corridors, but the applicant is unable to provide any additional detail at this time, because they have not yet designed the buildings that will create these corridors. Further complicating matters, staff is still considering the best location for a garage entrance for the building across from Union Street. On the open space plan, the garage access is on Clement in close proximity to the intersection of Clement and Union. Transportation planning and engineering staff is not entirely comfortable with the proposed location of the curb cut on Clement Avenue and its relationship to the bike lanes or two way cycle track that is being considered on Clement as part of the City’s Cross Alameda Trail project. The access to the garage will need to be resolved as part of the prior to approval of the tentative map and prior to approval of the design review plans for the actual building. For these reasons, staff has added two conditions requiring that the final design of the public access easement through the building at the foot of Union Street will be reviewed and approved by the Planning Board during the review of the Tentative Map for the project and the Design Review of the project, and the view corridor through the building at the foot of Chestnut Street will be subject to design review when the building is submitted to the Planning Board for Design Review.
DG Paving. Decomposed Granite (DG) paving has been limited to small discrete seating/viewing areas in public shoreline park areas including at Harbor View Park, at the northeast shoreline park and near building 13.
Landscape plant material and palette. The plant palette has been amended to include additional ornamental tree types as alternates for use in the residential courtyard areas. The applicant did not remove palm trees from their plan. They believe that the types and locations of the tree are appropriate for the site. Two types of Palm trees are used in the Harbor View Park, at the Wharf Promenade and in the Maritime and Commercial Core at buildings 16, 21 and 27. Palms are consistent with shoreline parks and marinas on San Francisco Bay and have been used at the nearby Grand Marina shoreline park.
Water Shuttle The Master Plan requires a public water shuttle taxi landing that is proposed at the end of Pier 6 on the west end of the project site. Staff has added a condition of approval requiring submittal of final design plans for the improvements to accommodate this public facility prior to issuance of building permits.
Conclusion. Staff is recommending that the Planning Board conditionally approve the revised plans. The conditions acknowledge and recognize that construction cannot commence until a variety of additional actions have taken place, which may eventually alter the details included Exhibit 1, including:
• BCDC approval of the open space plan.
• Planning Board and City Council approval of the Tentative Map.
• Selection of a Boatyard operator, which may result in changes to the boatyard area shown in Exhibit 1.
Although these subsequent approvals may result in minor changes to the Open Space plan, it is necessary to approve the plan in its current form so that some of these subsequent approvals, such as the BCDC review, may commence. The conditions allow for subsequent adjustments to the plan if they are required.
ENVIRONMENTAL REVIEW
On July 10, 2018, the City Council certified the Final Environmental Impact Report for the Alameda Marina Master Plan in accordance with the California Environmental Quality Act (CEQA) (State Clearinghouse #2016102064). The subject development plans implement the Master Plan. Although the Planning Board will not be taking action at this meeting, no further environmental review is required for the approval of the park plans.
RECOMMENDATION
Hold a public hearing and approve the draft resolution of approval (Exhibit 2).
Respectfully submitted,
Andrew Thomas, Acting Planning, Building, and Transportation Director
Exhibits:
1. Alameda Marina Open Space Development Plan
2. Draft Resolution of Approval