Title
PLN19-0556 - Amendment to Certificate of Approval for Site A - Block 11 and Waterfront Park Design - Applicant: Alameda Point Partners. Public hearing to consider proposed amendments to the 2016 approved Certificate of Approval for the Block 11 building adjacent to the NAS Historic District and the new Waterfront Park on the Seaplane Lagoon. The environmental effects of the proposed project were considered in the Alameda Point Environmental Impact Report (State Clearinghouse No. 2013012043). No further environmental review is required.
Body
To: Chair Saxby and
Members of the Historical Advisory Board
From: Allen Tai, Secretary to the Board
Date: December 5, 2019
BACKGROUND
In June 2015, the City Council unanimously approved the Site A Development Plan for a three phased development on 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 (NAS) Alameda Historic District. The NAS Alameda Historic District boundary overlaps with the western edge of the Development Plan boundary, and the Seaplane Lagoon is itself a historic feature of Alameda Point. Development in these areas have been brought before the Historical Advisory Board (HAB) for certificates of approval pursuant to Alameda Municipal Code Section 13-21. Alameda Point Partners (“APP”), the Site A developer, has completed construction of over 90% of the new roads and infrastructure to support Phase I of Site A, and vertical construction has begun on several of the residential blocks.
APP is currently requesting approval to modify the approved designs for a 220-unit residential building known as Block 11 (Exhibit 1) and Phase I of Waterfront Park (Exhibit 2) located along the Seaplane Lagoon. APP is proposing these changes in an effort to reduce escalating construction costs and long term maintenance costs for both the building and the park. The HAB previously approved a Certificate of Approval for both these projects on March 3, 2016, finding them consistent with the Secretary of the Interior’s Standards. The 2016 staff report is available online at: <http://alameda.legistar.com/gateway.aspx?m=l&id=/matter.aspx?key=4343>
DISCUSSION
Block 11 Design Changes (Exhibit 1)
The Block 11 building provides 220 residential units at the terminus of West Atlantic Avenue and the entrance to the Waterfront Park. This particular location is regarded as the focal point of Site A and the Alameda Point Waterfront Town Center subarea. Block 11 fronts onto the adjacent Historic District where it will provide an architectural transition between the Historic District to the west and the non-historic portions of Alameda Point and Site A to the east.
The Block 11 architectural design shares architectural elements, materials and colors that reflect and respect, without replicating, the “Art Moderne” architectural style of the most important contributing buildings in the Historic District. Examples of these elements include the strong horizontal lines that define the architectural design of the building, the use of glass and light off-white concrete and stucco materials, and ground floor retail elevation elements that reflect the design of the large multi-pane hangar doors that are such defining features of the adjacent Hanger Row. Additionally, the siting of the Block 11 building and adjacent waterfront park respect the historic street alignment and maintain view corridors along RAMP and Pan Am Avenue and of the seaplane hangars looking north.
The major changes to Block 11 proposed by APP may be summarized as follows:
• The average unit size is being reduced from 1,100 square feet to approximately 930 square feet. According to APP, even with the smaller unit sizes, the hard costs per unit will still be at least 10% greater than originally projected in 2016.
• The total number of residential units remains at 220 units, but the distribution of the unit sizes is changing. The number of one bedroom units is increasing from 61 to 127, the number of two bedroom units is decreasing from 113 to 73, the number of three bedroom units is decreasing from 40 to 20 units, and the originally planned six townhome units on the ground floor facing Pan Am Way are being eliminated.
• The overall size of the building is being reduced from 453,452 square feet to 377,318 square feet. The overall building footprint is reduced. The building is approximately 50 feet shorter in the north south dimension and 20 feet shorter in the east west dimension.
• The storm water collection system is changed. Previously located in the interior court yard above the garage, the revised plan uses more traditional, lower cost bio-swales on the north and east side of the building. The reduction in the footprint of the building makes the space available for the ground level bio swales. The collection system is now designed around natural, gravitational flows instead of a mechanical pump system, which significantly reduces costs both upfront during construction and future maintenance.
Staff analysis of the proposed design changes focused on the changes to the site plan and the changes to the building elevations as they relate to the Historic District. The 2016 Certificate of Approval by the HAB was based on the following findings consistent with the Secretary of the Interior Standards:
• The Block 11 building barely overlaps into the NAS Alameda Historic District Boundary and residential uses are not incompatible with former military bases.
• While the new 7-story building has potential to alter existing spatial relationships, the visual impact within the historic district will be limited. This is primarily due to the fact that the building will be built 150’ away from the nearest two contributing structures. The proposed reduction of the building footprint further increase this separation. The layout of the Site A development plan also positions Block 11 where the building would not disrupt the important east-west Taxiway view corridor.
• Although Block 11 would be a new element overlapping the boundary of the historic district, the building would not destroy any historic materials, features or spatial relationships that characterize the historic district. Block 11 is also design to differentiate from nearby contributing structures in terms of materials and design while remaining compatible by incorporating key architectural features that appear in Alameda Point historic buildings.
Staff finds that revisions to the Block 11 design do not change the findings and conclusions made by the HAB to approve the Certificate of Approval in 2016. Therefore, staff recommends the HAB approve the proposed amendments to Block 11.
Phase I Waterfront Park Design Changes (Exhibit 2)
The 2.63-acre Phase I Waterfront Park represents the first phase of a larger 6.7 acre Waterfront Park, which is part of the 14-acre public park plan to be designed and constructed as part of the Site A project. The Phase I Waterfront Park is designed to provide a variety of public spaces for passive recreation and opportunities for the public to enjoy the waterfront location and special events, and appreciate the views of the San Francisco skyline and the historic row of seaplane hangar buildings at the entrance to the Historic District, along the northern edge of the Seaplane Lagoon.
The primary changes to the Park design proposed by APP include:
• Replacing the approved mechanical storm water system with comprised of structured bio retention areas and mechanical pumps to a passive gravitational infiltration system that utilizes larger unstructured bio-swales. This change reduces both construction and long term maintenance costs and also increases the amount of vegetated area in the park.
• The change in stormwater treatment design also means the five structured landscaped terraces would be replaced with three rolling softscaped terraces. The increase in landscape area and reduction in paved, hardscape areas decreases the heat island effect.
• The plan retains the location of the trees, but all palm trees are being replaced with large shade trees. Increasing the amount of shade by switching out palms to shade trees reduces the urban heat island effect. The plan for shade trees in-lieu of palm trees is supported by the Alameda Recreation and Parks Department.
• Modifying the number and types of seating provided in the Park. The previous terrace design providing extensive informal seating as part of the terrace walls. The removal of the terraces eliminated those seating opportunities.
The 2016 Certificate of Approval by the HAB was based on the following findings consistent with the Secretary of the Interior Standards:
• The proposed park preserves the existing spatial organization of the NAS Alameda Cultural Landscape. The size and configuration of the park remains the same.
• The park preserves the existing views and vistas along the south side of the Seaplane Hangars, southward to the Seaplane Lagoon and piers and westerly across Airfield that are character defining features of the NAS Alameda Cultural Landscape. Although the replacement trees will have a larger tree canopy than the palm trees they replace, the trees will remain in previous alignment that maximum view corridors through the park.
• The proposed park preserves the flat topography that is a character-defining feature of the historic designed landscape within the NAS Alameda historic district.
• The proposed park preserves the low ground cover and avoids adding foundation planting beds or trees that could obstruct views of Building 77.
• The proposed park retains and preserve the Seaplane Lagoon, including its bulkhead and ramps on the north edge, the rip-rap sides, and jetties on the south side.
Overall, the changes in the park design remains respectful of the Historic District, of which the "flatness" and "openness" of the streets and landscape patterns are character-defining elements. Consistent with the Historic District guidelines, tree plantings and planted areas are strategically located to preserve the "openness" of the historic taxiways. Where trees are planted, they are placed in order to emphasize the character defining views for the Historic District.
Conclusion:
Staff recommends the Board hold a public hearing and approve the amendment to the Certificate of Approval for Block 11 and the adjacent Phase I Waterfront Park. Overall, the proposed changes to these two projects remain consistent with the findings and conclusions made by the Board to approve a Certificate of Approval in 2016.
ENVIRONMENTAL REVIEW
On February 4, 2014, the City of Alameda certified the Alameda Point Final Environmental Impact Report (State Clearinghouse No. 2013012043) 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 an amendment to Certificate of Approval for Block 11 and the Waterfront Park with conditions set forth in the draft resolution (Exhibit 4).
Reviewed By,
Andrew Thomas,
Planning, Building and Transportation Director
Exhibits:
1. Block 11 Plans
2. Phase 1 Waterfront Park Plans
3. Draft Resolution