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HomeMy WebLinkAboutCD 1650 Los Gamos - Kaiser Permanente Office Building PPTKaiser Permanente: Medical Office Building 1650 Los Gamos Drive City Council Hearing – September 17, 2018 Kaiser Permanente – 1650 Los Gamos Drive Medical Office Building – Project Summary •Reuse of existing Office Building for Medical Offices and construction of a new 433-space, three-level, parking structure (APN 165-220-12) •Entitlements – PD Rezoning, Design review, Master Use Permit and Sign Program amendment. •Includes City initiated PD rezoning for County property at 1600 Los Gamos •CEQA Environmental Review – Draft EIR and Final EIR •Identified impact and appropriate mitigation measures •Significant / unavoidable impacts – Based on traffic and timing of intersection improvements, not mitigation implementation •Statement of Overriding Considerations •Applicant’s public benefit / voluntary improvements •Unanimous recommendation for approval of project by DRB and Planning Commission Project Site 1650 Los Gamos Drive parking structure western parcel Existing Proposed Three-level structure, articulated corners/decorative screens Setback, partially buried, maintain screen trees Solar arrays screen all vehicles/ would not create additional impact Lighting study indicates no light spillage at property boundary California Environmental Quality Act (CEQA) Process to date Initial Study – Preliminary Review and Assessment Notice of Preparation (NOP) (filed 6/09/17) Scoping Hearing by Planning Commission (6/27/17) DEIR published – March 9, 2018 Public Comment Period for DEIR– 45 days (3/9 – 4/23/18) Public Comment hearing by PC– Receive oral comments on the DEIR and proposed alternatives Preparation of Response to Comments document Final EIR published – August 10, 2018 DEIR – Summary Land Use and Planning •DEIR concluded that there would be no conflict with any plan or policy Aesthetics •DEIR concluded that the project would not substantially degrade the existing visual character or quality of the site and its surroundings Air Quality •DEIR concluded that the project would result in a cumulatively considerable net increase of any criteria pollutant, expose sensitive receptors to substantial pollutant concentrations, and contribute to cumulative air quality degradation and to regional air quality cumulative impacts •MM AIR-1. Include basic measures to control dust and exhaust during construction. DEIR – Summary Greenhouse Gas Emissions •DEIR concluded that the project will not generate greenhouse gas emissions, either directly or indirectly, that may have a significant impact on the environment, •The project is consistent with the San Rafael General Plan 2020 / 2011 Climate Change Action Plan Greenhouse Gas Reduction Strategy. Noise •DEIR concluded that the project would expose noise-sensitive receptors to a temporary increase in ambient noise levels due to Project construction activities. MM NOISE-1. Incorporate best management practices during Project construction activities. DEIR – Traffic Summary Traffic Impacts that can be mitigated •IMPACT TRAF-2: Implementation of the Project would increase traffic volumes on freeway segments and affect levels of the regional network under Existing plus Project Conditions. (Less than Significant with Mitigation Incorporation) Mitigation Measure TRAF-2: Kaiser Permanente shall implement additional TDM measures. DEIR – Traffic Summary (Cont’d) Impacts - Significant and Unavoidable •IMPACT TRAF-1: Implementation of the Project would increase traffic volumes on area roadways and affect levels of service at the local intersections and freeways under Existing plus Project Conditions. Mitigation Measure TRAF-1: Signalize Lucas Valley Rd. / Los Gamos Dr. •IMPACT TRAF-3: The Project would contribute to deficient operations of the Lucas Valley Road/Las Gallinas Avenue intersection by increasing the average delay by more than five seconds under Baseline plus Project conditions. Mitigation Measure TRAF-3: Improve Intersection Operations at Lucas Valley Rd./Las Gallinas Ave. •IMPACT TRAF-4: The Project would contribute to deficient operations of the Lucas Valley Road/Las Gamos Drive intersection by increasing the average delay by more than five seconds under Baseline plus Project conditions. Mitigation Measure TRAF-4: Signalize and Reconfigure the Lucas Valley Rd./Los Gamos Dr. Intersection. •IMPACT TRAF-5. The addition of Project-related traffic would exacerbate the Cumulative No Project condition and contribute more than 5 seconds of delay at the Lucas Valley Road/Las Gallinas Avenue intersection. Mitigation Measure TRAF-5: Implementation of Mitigation Measure MM TRAF-3 Environmentally Superior Alternative & Public Benefits The Applicant-Implemented Traffic Improvements Alternative would avoid the significant impacts related to traffic impacts identified with the project, including Impact TRAF-1 and Impact TRAF-4. •Kaiser to voluntarily seek approvals and construct the intersection improvements at the Lucas Valley Rd. and Los Gamos Dr. intersection. Applicant’s letter of Public Benefit for overriding considerations 1.Furtherance of City Goals and Policies - Consistent with SR General Plan 2.Development of an Existing Infill Site 3.Significant Community Benefits and Traffic/Infrastructure Investments - Development of Intersection Improvements - $1,050,000 4.Increased Economic Impacts to the City of San Rafael 5.Enhanced Public Safety and Public Health 6.Implementation of Sustainable Development Strategies 7.Greenhouse Gas Emissions Reduction and Congestion Relief - Transportation Demand Management Intersection Improvement / Public Benefits •Implementation of MM-TRAF 4, as well as improvements identified in Alternate 4, including sidewalks and bicycle lanes. •Implementation of San Rafael General Plan 2020 – Policy C-6 – Identified Improvements •Full funding of Lucas Valley Road / Los Gamos Drive intersection (approximately $1,050,000) – no reimbursement from City or County Public Benefits and Statement of Overriding Considerations •EIR concludes significant, unavoidable impacts to Transportation/Circulation. •To approve the project, Statement of Overriding Considerations required balancing of competing public objectives (including environmental, legal, technical, social, and economic factors). •On balance, benefits of project outweigh the significant unavoidable environmental impact(s). •The identified mitigation measures for upgrading local intersections would reduce potential impacts to less than significant levels. •The permitting and review process required will be contingent on a coordinated effort with the City/ County/Caltrans and Kaiser Permanente. •MOU, including a fair-share agreement will be required DRB Review One conceptual – 9/6/18; Two Formal 5/22/18 & 7/14/18 Consistent with the General Plan and Design Guidelines The height and configuration of the proposed parking structure is consistent with development standards Design aesthetic of the neighboring commercial buildings Parking structure would remain largely unseen from public vantage points in residential areas to the west and uphill of the structure 5-0 vote to recommend approval of design Planning Commission Review & Recommendation - 8/28/18 Recommended approval of the project - Generally agreed with the Design Review Board’s recommendation Commission considered concerns of the community members in opposition to the parking structure and the amount of parking Medical office building would most likely reduce greenhouse gas emissions Provide a much needed regional serving medical use close to freeway access. Location would provide added benefit of immediate access to the freeway in times of natural disasters and emergency services. Unanimous 5-0 approval (one absent, one recusal) of all resolutions/ordinance Public Comments Comments both in support and opposition Community concerns at DRB and Planning Commission – addressed through design revisions when appropriate Concerned neighbors provided letters which reiterate the points of opposition and included a link to a Move.org petition. Design character of parking structure / private view impacts. Increased Traffic Impacts / increase vehicle trips. Too much parking, parking structure too big – utilize excess parking in the area. Increase in GHG Emissions City has addressed latest comments in memo’s to Council Conclusion •DRB and PC recommend approval of the project •Complies with General Plan and Zoning •Reuse of existing building •Moves existing regional services closer to freeway/transit •Allows a major employer and needed community use to continue to operate and meet needs of community •Public benefits outweigh potential impacts •Major infrastructure improvement City Council Discussion •Open the Public Hearing and accept public testimony on the project; •Close the Public Hearing and review and discuss the Final EIR, including the significant impacts and whether a Statement of Overriding Considerations should be granted, and the planning, merits and issues; and •Staff recommendation is to adopt the following Resolutions/Ordinances •Attachment 1: Certify Final EIR •Attachment 2: Adopt CEQA Findings, a Statement of Overriding Considerations, and approval of a Mitigation Monitoring and Reporting Program (MMRP) •Attachment 3: Adopt a PD Rezoning to establish a new separate PD District on this site with appropriate land use regulations •Attachment 4: Adopt a PD Rezoning to change PD 1590 District to remove the subject property from the land use allowances •Attachment 5: Approve Design Review Permit, Master Use Permit and Sign Program Amendment for the project QUESTIONS Kaiser Permanente - Proposed Project 1650 Los Gamos Dr building ( [APN 165-220-13) 4.09-acre parcel Medical Office Building - reuse of existing 148,000 sq ft building 204 surface parking spaces. Kaiser Permanente branded signage  New Parking Structure (APN 165-220-12) 7.2-acre parcel, located to the west of 1650 Los Gamos Dr Existing surface parking lot – site of proposed parking structure 433 structure spaces in new structure – replaces 209 surface spaces. Existing sanitary sewer line running through the parcel. Surface parking site - easement over a portion of the adjacent parcel (1600 Los Gamos Drive). 42 parking spaces Project Alternatives 1.No Project/No Medical Office Uses 2.Reduced Medical Office Use 3.Alternate Parking Structure Location 4.Applicant-Implemented Traffic Improvements: •Assumes Kaiser Permanente voluntarily constructs intersection improvement at Los Gamos Dr. and Lucas Valley Rd. and other related traffic or vehicular circulation improvements as part of the proposed Project. •No required mitigation measure to reduce impact significance related to AM and PM peak hour trips at Los Gamos Dr. and Lucas Valley Rd. intersection. •Intersection would still require multi-agency coordination and entitlement review and approval. Meets all of Kaiser Permanente’s main project objectives. Alternative reduces the Project’s environmental impacts without requiring mitigation to reduce potential impacts specific to traffic impacts. Final EIR – Response to Comments •13 Comment letters •6 oral comments, 6 comments from the Planning Commission •Response to comments document •Master Responses: •Master Response 1: Kaiser Permanente’s Fair-Share Contribution •Master Response 2: Significant and Unavoidable Impacts •Master Response 3: Parking Structure / Parking Space Requirement • Master Response 4: Historical Occupancy Rates •Master Response 5: AM/PM Peak Hour Vehicle Trips •Master Response 6: Greenhouse Gas (GHG) Emissions Applicant’s letter of Public Benefits 1.Furtherance of City Goals and Policies Consistent with SR General Plan 2.Development of an Existing Infill Site 3.Significant Community Benefits and Traffic/Infrastructure Investments Development of Intersection Improvements - $1,050,000 4.Increased Economic Impacts to the City of San Rafael 5.Enhanced Public Safety and Public Health 6.Implementation of Sustainable Development Strategies 7.Greenhouse Gas Emissions Reduction and Congestion Relief Transportation Demand Management Action Res. # Description Major Questions Final EIR 1 Certification of Final EIR Was the correct process followed? Did the FEIR answer questions raised in scoping and draft process? P r o j e c t Cross Over 2 1) CEQA Findings of Fact, 2) Statement of Overriding Consideration, 3) Mitigation Monitoring and Reporting Program (MMRP) 1)Do project benefits outweigh costs? 2)Is the MMRP adequate? Planning Entitlements 3 1) Separate 1650 from existing PD, 2) Create a new PD for 1650 1)Consistent with General Plan 2020? 2)Is a new PD consistent with area and location? 4 Remove Project Site From Current PD 1) Consistent with General Plan 2020? 2) Is removal consistent with area and location? 5 1) Environmental & Design Review Permit, 2) Master Use Permit; 3) Sign Program Amendment Consistent with General Plan 2020; Planned Development Zone requirements; Zoning Ordinances: Health and safety; Environmental impact, Aesthetics •Views through the site from end of Salvatore Way looking north/northeast (towards proposed parking structure) •Views looking north from near rear yard of 56 Salvatore Way – on open space, not in rear yards. DEIR – Land Use Summary •IMPACT LU-1: The Project would not conflict with any applicable land use plan, goal, policy, or regulation, including zoning, adopted for the purpose of avoiding or mitigating an environmental effect. (Less than Significant) •IMPACT LU-2: The Project, combined with past, present, and reasonably foreseeable projects in the area, would not result in a cumulative land use impact regarding land use, plans and policies. (Less than Significant) DEIR – Aesthetics Summary •IMPACT AES-1: The Project would not substantially degrade the existing visual character or quality of the site and its surroundings. (Less than Significant) •IMPACT AES-2: The Project would not create a significant increase in light and glare that would adversely affect nighttime views in the area. (Less than Significant) •IMPACT AES-3: The Project, combined with past, present and other reasonably foreseeable future development in the area, would not cause cumulative aesthetics impacts. (Less than Significant) DEIR – Air Quality Summary IMPACT AIR-1: The Project would result in a cumulatively considerable net increase of any criteria pollutant for which the Project region is non- attainment under an applicable State or federal ambient air quality standard (including releasing emissions which exceed quantitative thresholds for ozone precursors). The incorporation of construction best management practices as Project conditions of approval would result in a less-than-significant temporary criteria air pollutant impact. (Less than Significant with Mitigation Incorporation) Implementation of Mitigation Measure AIR-1 IMPACT AIR-2: The Project would not violate any air quality standard or contribute substantially to an existing or projected air quality violation. (Less than Significant) DEIR – Air Quality Summary IMPACT AIR-3: The Project would expose sensitive receptors to substantial pollutant concentrations. The incorporation of construction best management practices as Project conditions of approval would result in a less than significant temporary impact to sensitive receptors. (Less than Significant with Mitigation Incorporation) Implementation of Mitigation Measure AIR-1 IMPACT AIR-4: The Project would contribute to cumulative air quality degradation and to regional air quality cumulative impacts. The incorporation of construction best management practices as Project conditions of approval would result in a less than significant cumulative air quality impact. (Less than Significant with Mitigation Incorporation) Implementation of Mitigation Measure AIR-1 DEIR – Air Quality Mitigation Measures MM AIR-1. Include basic measures to control dust and exhaust during construction. During any construction period ground disturbance, Kaiser Permanente shall ensure that the Project contractor implement measures to control dust and exhaust. Implementation of the measures recommended by BAAQMD would reduce the air quality impacts associated with grading and new construction to a less than significant level. The contractor shall implement eight best management practices that are required of all projects. DEIR – Greenhouse Gas Summary IMPACT GHG-1: The Project will not generate greenhouse gas emissions, either directly or indirectly, that may have a significant impact on the environment. (Less than Significant) IMPACT GHG-2: The Project will not conflict with an applicable plan, policy, or regulation adopted for the purpose of reducing the emissions of greenhouse gases. (Less than Significant) IMPACT GHG-3: The Project would not result in a cumulatively considerable contribution to a significant cumulative impact related to greenhouse gas emissions. (Less than Significant) DEIR – Noise Summary IMPACT NOISE-1: The Project would not produce noise levels that would exceed the City’s established noise thresholds or increase the existing ambient noise environment. (Less than Significant) IMPACT NOISE -2: Construction-related vibration levels resulting from activities at the Project site would not exceed 0.3 in/sec PPV at the nearest noise-sensitive receptors. (Less than Significant) IMPACT NOISE-3: The Project would not result in a substantial permanent noise level increase due to project-generated traffic at the existing noise- sensitive land uses in the project vicinity. (Less than Significant) IMPACT NOISE-4: Existing noise-sensitive land uses would be exposed to a temporary increase in ambient noise levels due to Project construction activities. The incorporation of construction best management practices as Project conditions of approval would result in a less-than-significant temporary noise impact. (Less than Significant with Mitigation Incorporation – MM NOISE-1) DEIR – Noise Mitigation Measures Mitigation Measure MM NOISE-1. Incorporate best management practices during Project construction activities. •Regulation of the arrival and operation of heavy equipment and the delivery of construction material. •Compliance with the City of San Rafael’s Municipal Code, the Project shall adhere to the allowable construction hours of 7:00 a.m. to 6:00 p.m. on weekdays and 9:00 a.m. to 6:00 p.m. on Saturdays. •Construction activities prohibited on Sundays and national holidays. •Construction crews shall adhere to construction best management practices to reduce construction noise levels emanating from the site and minimize disruption and annoyance at existing noise- sensitive receptors in the Project vicinity. •Kaiser Permanente shall be required to develop a construction noise control plan, implementing best management practices to reduce temporary noise impacts. DEIR – Traffic Summary The Fehr & Peers analysis for the proposed Project focused on the AM and PM peak hour operations at the following intersections •1. Lucas Valley Road and Las Gallinas Avenue •2. Lucas Valley Road and Los Gamos Drive •3. Lucas Valley Road and US 101 Southbound Ramps •4. Lucas Valley Road and Smith Ranch Road and US 101 Northbound Ramps •5. Smith Ranch Road and N Redwood Drive and Redwood Highway Two freeway segments were selected as the most likely to be affected by the Project: US 101 between Miller Creek and Lucas Valley Road and US 101 between Lucas Valley Road and Manuel T Freitas Parkway. DEIR – Traffic Summary Evaluation of typical weekday AM and PM peak hour, occurring between 7:00 to 9:00AMand 4:00 to 6:00 PM, when the surrounding transportation network is at its most congested. •Existing No Project– Based on recently collected traffic counts (in order to calibrate micro-simulation model). •Existing Plus Project– Traffic volumes from existing conditions plus traffic volume estimates for the proposed Project. •Baseline No Project– Existing conditions volumes plus traffic estimates for approved, but not yet constructed, developments; background traffic increases due to regional growth expected prior to the proposed Project opening; and approved/funded transportation system improvements expected to be in place when the Project opens. •Baseline Plus Project– Traffic volumes from Baseline conditions plus traffic volume estimates for the proposed Project. •Cumulative No Project– Traffic estimates for development patterns as proposed in the San Rafael General Plan 2020; background traffic increases due to regional growth expected through year 2020; and approved/funded/proposed transportation system improvements. •Cumulative Plus Project– Traffic volumes from San Rafael General Plan 2020 conditions plus traffic volume estimates for the proposed Project Data collection (November 2015), building was 34-percent occupied (50,000 sq ft) with office and now it is 7- percent occupied with two-office tenants. FTIA assumes building usage from 1970’s to 2006 as 100-percent occupied by office uses. From 2006 to 2016 the building occupancy ranged from 25-percent to 40- percent. Recession and subsequent building purchase in 2015 for re-use contributed to a lower occupancy rate than usual in the last ten years. Historically, the existing building has been 100-percent occupied with general office uses. DEIR – Traffic Summary •As a result of the transportation analysis that was completed for the project, off- site roadway improvements were identified as potential mitigation. While not part of the Project, due to their independent utility, the off-site roadway improvements were analyzed as part of the DEIR as required by the California Environmental Quality Act (Pub. Resources Code § 21000 et seq., CEQA). •The FTIA identified a potential mitigation measure requiring improvements to the Lucas Valley Rd./Los Gamos Dr. Intersection, including signalizing the intersection, adding dual westbound left turn lanes, reconfiguring the northbound approach, removing existing striped channelized islands, and striping buffered bike lanes in both directions. •IMPACT TRAF-1: Implementation of the Project would increase traffic volumes on area roadways and affect levels of service at the local intersections and freeways under Existing plus Project Conditions. (Significant and Unavoidable) •IMPACT TRAF-2: Implementation of the Project would increase traffic volumes on freeway segments and affect levels of the regional network under Existing plus Project Conditions. (Less than Significant with Mitigation Incorporation) DEIR – Traffic Summary •IMPACT TRAF-3: The Project would contribute to deficient operations of the Lucas Valley Road/Las Gallinas Avenue intersection by increasing the average delay by more than five seconds under Baseline plus Project conditions. (Significant and Unavoidable) •IMPACT TRAF-4: The Project would contribute to deficient operations of the Lucas Valley Road/Las Gamos Drive intersection by increasing the average delay by more than five seconds under Baseline plus Project conditions. (Significant and Unavoidable) •IMPACT TRAF-5. The addition of Project-related traffic would exacerbate the Cumulative No Project condition and contribute more than 5 seconds of delay at the Lucas Valley Road/Las Gallinas Avenue intersection. (Significant and Unavoidable). DEIR – Mitigation Measures Mitigation Measure TRAFF-1: Signalize Lucas Valley Rd. / Los Gamos Dr. •Coordination with the City of San Rafael, the County of Marin Department of Public Works, and Caltrans, Kaiser Permanente shall pay the fair share cost to signalize the Lucas Valley Road / Los Gamos Dr. intersection. •Signalizing the intersection is consistent with improvements identified in the San Rafael General Plan 2020. •A memorandum of understanding (MOU) will be required between the City of San Rafael and the County of Marin to document the management and maintenance of the new signal. •Implementation of the mitigation measure requires the intersection improvements to be fully funded and constructed. •Until and unless the MOU and fair-share contributions are finalized, and the design and construction of the intersection is permitted and approved, the Project will result in a significant and unavoidable impact. DEIR – Mitigation Measures Mitigation Measure TRAFF-2: Kaiser Permanente shall implement additional TDM measures. •TDM strategies would go beyond what is required as part of the PD District, with the goal of reducing employee vehicle trips, thereby reducing the Project’s impact on the regional network. •TDM strategies may yield trip generation reduction of up to 12-percent. •The Project’s TDM strategies would result in a project trip reduction of up to 10 -15 AM peak hour trips along freeway segment, which would result in a project contribution of less than a 0.01 increase in volume to capacity ratio. •As presented in the 1650 Los Gamos Dr. FTIA, implementation of the Project’s TDM measures will achieve this reduction. •Kaiser will annually quantitatively analyze and monitor employee vehicle trip generation data via comprehensive employee surveys and make adjustments to its TDM measures as needed to achieve the stated reduction. •The TDM program will be submitted to the City of San Rafael for comment and review. Kaiser Permanente will coordinate with the City of San Rafael, as necessary. •The annual survey shall demonstrate how the TDM measures reduce the Project’s impact to peak-hour volume to capacity ratio for the Miller Creek On and Off Ramp. DEIR – Mitigation Measures Mitigation Measure TRAFF-3: Improve Intersection Operations at Lucas Valley Rd./Las Gallinas Ave. •Improvements at the Lucas Valley Rd./Las Gallinas Ave. intersection have yet to be identified through the City of San Rafael’s General Plan 2020; •However, several vehicle capacity improvements could be considered but could facilitate more vehicular traffic and have an adverse impact to pedestrians and bicyclists and result in the diversion of more pass-through traffic along Las Gallinas Avenue and an increase in VMT. •Although mitigation is possible, the intersection is outside of the City’s jurisdiction and specific improvements have yet to be identified by either the City of San Rafael or the County of Marin. •Requires further study and coordination with local neighborhood groups, the City of San Rafael, and the County of Marin. •Since the City cannot legally implement mitigation measures outside of its jurisdiction, this potential mitigation is infeasible from both a legal and public policy standpoint. •Kaiser Permanente would pay its fair share; however, since the intersection is not part of a traffic fee program and intersection improvements have yet to be identified, the Project would result in a significant and unavoidable. DEIR – Mitigation Measures Mitigation Measure TRAFF-4: Signalize and Reconfigure the Lucas Valley Rd./Los Gamos Dr. Intersection. •Coordination with the City of San Rafael, the County of Marin Department of Public Works, and Caltrans, Kaiser Permanente shall pay the fair share cost to signalize the Lucas Valley Road / Los Gamos Dr. intersection. •Signalizing the intersection is consistent with improvements identified in the San Rafael General Plan 2020. •A memorandum of understanding (MOU) will be required between the City of San Rafael and the County of Marin to document the management and maintenance of the new signal. •Implementation of the mitigation measure requires the intersection improvements to be fully funded and constructed. •Until and unless the MOU and fair-share contributions are finalized, and the design and construction of the intersection is permitted and approved, the Project will result in a significant and unavoidable impact. Mitigation Measure TRAFF-5: Implementation of Mitigation Measure MM TRAF-3