HomeMy WebLinkAboutDRB 2016-06-07 #3JB �CITYof Meeting Date: June 7, 2016
Case Numbers: ED15-082 & UP16-001
Project Planner: Paul Jensen, (415) 485-5064'44 1.
Community Development Department — Planning Division
Agenda Item:
REPORT TO DESIGN REVIEW BOARD
SUBJECT: San Rafael Fire Station 57- 3530 Civic Center Drive — Request for review of REVISED
SITE PLAN for Environmental and Design Review Permit to replace the existing Fire Station
57 with the development of a new fire station (9,600 square feet), that will include the Medic 3
(paramedic) unit currently located at Fire Station 53. The project includes associated site and
landscaping improvements and a future, 800 -square foot storage building for this County -
owned site. The initial site plan recommended for approval by the Design Review Board on
March 22, 2016 has been revised to avoid the filling of a small, 3,900 square -foot wetland.
The wetland is located on the eastern portion of the property. APN: 179-270-12; Public/Quasi-
Public (P/QP) District; City of San Rafael, applicant; County of Marin, property owner; File
Nos: ED15-082 & UP16-001.
BACKGROUND
On March 22, 2016, the Board completed a review and voted to recommend approval of the design for
the new Fire Station 57 proposed on the Marin County Civic Center campus. The project proposes the
construction of a new 9,597 -square foot, two-story station that would house five on -duty fire fighters in a
24-hour shift and paramedic services (Medic 53). The plan includes three drive-through apparatus
bays, the North Area Medical Supply Cache, public lobby, sleeping quarters, kitchen and restroom
facilities and ancillary uses (surface parking and storage facilities). The site plan presented to the
Board proposed to fill a 3,900 square -foot jurisdictional wetland (located on the eastern portion of the
site) for the development of surface parking, apparatus turnaround and a future storage building. It was
reported to the Board that the wetland fill could not be avoided and that: a) City and County staff were
collectively working to find an appropriate wetland mitigation site; and b) the wetland fill and mitigation
would be addressed as part of the environmental review process for the project. A copy of the site
plan reviewed by the Board is presented in attached Exhibit 3. For site and project details, the March 22
Design Review Board staff report can be accessed at the following link:
http:fl ityofsanrafael granicus.com/MetaViewer h ?view id=2&clip id=896&meta id=84987
Following the March 22, 2016 Board meeting, City and County staff continued to work to find an
appropriate site on the Civic Center campus for wetland mitigation. Staff focused on the Civic Center
campus for a mitigation area as it is close to the area of impact (fill) and mitigation can be achieved at a
replacement ratio size of 2:1 (considered on-site mitigation). City staff was not successful in locating an
appropriate mitigation area on the Civic Center campus, so the search continued to pursue off-site
options, including the potential for contribution. Options considered included a contribution to an
established North Marin wetland mitigation bank. As this effort proved more challenging and costly
than productive, the project design team focused on developing several fire station site plan options
that avoid filling the wetland. A viable site plan option to avoid wetland fill was finalized and was
mutually supported by County and City staff. The proposed site plan for the project has been revised
and is discussed below.
SITE PLAN REVISIONS
As discussed above, the project site plan for the new Fire Station 57 has been revised to avoid filling
the wetland located on the eastern portion of the site. The revised site plan is presented in attached
Exhibit 4. As description of the revised site plan is provided as follows:
As presented in the revised Architectural Site Plan (Plan Sheet A-1), the proposed, rear parking
lot has been shifted westward and northward to avoid filling the wetland. Instead of leasing the
rear area that is encompassed by the wetland from the County, the City would lease an
extended area north of the proposed fire apparatus driveway. This extended land area to the
north abuts the fenced, public dog park. The site for the future storage building is proposed to
be placed close to the rear property line respecting a 10 -foot landscape setback.
2. A revised Conceptual Planting Plan has been prepared (Plan Sheet A-1.1), which includes:
a. No changes are proposed to the previously reviewed fire station building footprint and
setbacks along the front or immediate rear (Golf Avenue right-of-way) of the station site.
b. The landscape buffer along the southern property boundary has been set at 10 feet and
would be planted with trees, shrubs and ground cover.
c. The surface for the rear parking area is proposed to be a permeable pavement to off -set
some of the previously -proposed bio-swales.
d. As the leased area has been shifted north closer to the public dog park, additional tree
planting is proposed north of the station surface parking area. The parking has been
specifically design to respect and protect an existing grove of oak trees near the Civic
Center Drive frontage.
e. A solid perimeter fence is continued to be proposed along the southern property boundary
but the fence abutting the wetland would be an open, vinyl clad chain link design. The
setback between the rear fence and edge of the wetland is a minimum of five feet.
f. No improvements are proposed east of the rear parking lot within the wetland area. As this
area is no longer part of the property lease negotiations with the County, the area would be
left in its current condition.
3. Revised Civil Site and Grading and Stormwater Pollution Prevention Plans have been prepared
(Plan Sheets A-1.3, A-1.4 and A-1.5). The amount of earth movement is reduced from the initial
site plan. Because of the grade change north of the site, a small retaining wall is proposed along
the northern property boundary. The resulting earth movement would be 1,000 cubic yards of
cut and 915 cubic yards of fill (some off -hauling).
4. A revised Site Lighting Photometric Plan has been prepared (Plan Sheet A-1.6). Wall and
ground bollard lighting around the fire station building have not changed from the initial site plan.
However, the plan proposes some shifts in the location of freestanding light standards in the
rear parking lot. The light standard types and height have not changed from the initial site plan.
Three, 16 -foot -high freestanding standards are proposed in the central and northern portion of
the rear lot. Two, 3 1/2 -foot high bollard lights are proposed near the southern property line,
which abuts the single-family residence fronting Golf Avenue.
Please note that the revisions are limited to the rear eastern and north portions of the site plan only. No
changes are proposed to the location, placement or design of the fire station as previously reviewed
and supported by the Board. Further, no changes are proposed to the emergency vehicle access,
security fence and gate access to Golf Avenue. or to the recommended landscape improvements in this
area (within the Golf Avenue right-of-way behind the fire station). The emergency vehicle access
along Golf Avenue continues to be proposed at the reduced width of 12 feet for one-way vehicle
access.
ANALYSIS
General Plan 2020 Consistency
The initial project site plan was reviewed and found to be generally consistent with the pertinent goals,
policies and programs of the San Rafael General Plan 2020. At the time of initial site review, it was
reported to the Design Review Board that the wetland fill was in potential conflict with General Plan
Conservation Element Policy CON -3 (Wetland Protection and Mitigation) but that the filling could not be
avoided because of its geographic location. Given its small size and geographic isolation, it was
determined that preserving this wetland would not be practical. As the mitigation efforts for filling this
wetland have not been successful, avoidance of fill has been pursued. Therefore, the revised site plan
would be fully consistent with Policy CON -3.
The revised site plan proposes a minimum five-foot wetland buffer setback, which is far less than the
50 -foot setback buffer recommended by Conservation Element Policy CON -4 (Wetland Setbacks).
Policy CON -4 allows the City to waive this requirement "if it can be demonstrated that the proposed
setback adequately protects the functions of the wetland to the maximum extent feasible and resulting
values to the satisfaction of the City after review by the appropriate regulatory agencies." Consistent
with the recommendations of Policy CON -4, the City initiated consultation with the appropriate
regulatory agencies, the California Department of Fish & Wildlife and the San Francisco Bay Regional
Water Quality Control Board. The request for consultation is presented in the attached letter dated
April 12, 2016 (Exhibit 5). The letter to these regulatory agencies summarizes a review of the wetland
conditions by Environmental Collaborative, the City's wetland/biological consultant. As explained in the
letter, Environmental Collaborative finds that a waiver of the CON -4 setback requirement is reasonable
and logical for a number of reasons (including the very low value of the wetland). A requested deadline
for response was provided in the letter (April 27). However, to date, the City has not received a
response from these agencies. Ultimately, this topic area will be covered in the Initial Environmental
Study that is being prepared for this project. These agencies will be included on the distribution list to
receive and review the Initial Study.
Zoning Ordinance Consistency
The initial site plan was determined to be consistent with the applicable provisions of San Rafael
Municipal Code Chapter 14 (Zoning). With the revised site plan, nothing has changed to the basic land
use, building setbacks, lot coverage, off-street parking, building design or general landscaping that
would modify this finding. The one exception to the zoning consistency provisions is related to the
reduced wetland setback. San Rafael Municipal Code Section 14.13.040B.3. (Wetland Overlay District,
Property Development Regulations — Wetland Setbacks) allows the Planning Commission to grant an
Exception for minor reductions in the 50 -foot wetland setback (up to 10% reduction). As the setback
reduction would be major, the Planning Commission would be required to consider and grant a
Variance (in -lieu of an Exception) to allow the minimum five-foot buffer setback. As determined by
Environmental Collaborative (summarized in Exhibit 5), the proposed buffer setback is reasonable and
logical. Specifically, the defined wetland is geographically isolated, was created by a manmade
drainage swale, has very low biological value, and the reduced buffer would be off -set by a more
substantial buffer on the east side of the wetland. Further, it has been determined that complying with
the minimum 50 -foot wetland setback is not possible or practical. Compliance with the 50 -foot setback
would render the area to the rear of the fire station as unusable as it would be impossible to provide an
adequate maneuvering radius for fire apparatus/equipment. As discussed above, this proposal will be
assessed and addressed in the Initial Environmental Study, which will be considered by the Planning
Commission with the Variance application.
OUTREACH - NEIGHBORHOOD CORRESPONDENCE
Public notice of this meeting was provided to property owners and residents within 500 feet of the
subject property. In addition, a notice board was posted on the subject property informing the public
about the scope of the project and the date/time of the Design Review Board meeting. Residents of
Golf Avenue that have been involved in the fire station review process were forwarded a copy of the
revised site plan.
EXHIBITS
1. Vicinity Map
2. Revised Project Description, Mary McGrath Architects; May 5, 2016
3. Reduced Project Site Plan presented to the Design Review Board on March 22, 2016
4. Reduced, Revised Project Site Plan
5. Letter to California Department of Fish & Wildlife and San Francisco Bay Regional Water
Quality Control Board from the City of San Rafael; April 12, 2016
Full-sized plans have been provided to the DRB members only.
cc: Mary McGrath Architects
1212 Broadway, Suite 401
Oakland, CA 94612
Raaj Patel
Kitchell
2750 Gateway Oaks Drive, Suite 300
Sacramento, CA 95833
David Speer
Office of County Administrator
County of Marin
Civic Center Drive, Room 325
San Rafael, CA 94903
North San Rafael Coalition of Residents
Carolyn Lenert
P.O. Box 6642
San Rafael, CA 94903
Santa Venetia Neighborhood Association
Attn: Linda Levey
PO Box 4047
San Rafael, CA 94913
Golf Avenue Residents
c/o: Alice Watkins
18 Golf Avenue
San Rafael, CA 94901
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EXHIBIT 2
STATION 57
PROJECT
DESCRIPTION
REVISED
DATE: I Revised May 5, 2016
PROJECT: I Replacement Fire Station No. 57 and Future Storage Building
DESCRIPTION:
The City of San Rafael and the County of Marin, jointly, propose to replace the existing Fire
Station No. 57 at its existing site. The County of Marin is the property owner and the City and
County are sharing the cost to reconstruct the fire station. Upon completion, the City will
lease the fire station from the County.
The existing site address is 3530 Civic Center Drive. The fire station site is adjacent to the
Frank Lloyd Wright's landmark Civic Center building, however, Fire Station 57 is a non -
contributor to the Marin County Civic Center National Register District because it was; 1)
constructed after the period of significance (1960-1970); and 2) was not designed by Frank
Lloyd Wright. Because Fire Station 57 is not a contributor to the Marin County Civic Center
National Register District, it has been determined that demolishing it will not be an adverse
effect (significant impact) on the historic property (historical resource). When the Marin
County Civic Center National Register District was created only the Hall of
Justice/Administration Building and the Post Office were found to be contributors to the
district.
The proposed 9,597 SF, two-story fire station will house five on -duty fire fighters in a 24-hour
shift. Three on -duty firefighters are assigned to the existing station. Medic 53, currently
located at Fire Station 53 will be relocated to this station to improve medical response times
to the north area of the City. This will increase on -duty staffing at this location from three to
five. The shift duty is a 48-hour schedule resulting in a shift change every other day. 10 on-
site parking spaces are provided to accommodate this shift change.
The core facilities of the station (kitchen, dining, dayroom, restrooms, fitness room and
apparatus support spaces) have been designed to accommodate six on -duty personnel in the
event that additional staffing would be required to serve this location and to allow for staff
training.
The Fire Station includes the following elements:
�+ Three drive-through apparatus bays;
■ Apparatus support spaces including a workshop, medical storage and clean-up room,
STATION 57
PROJECT
DESCRIPTION
REVISED
turnout storage and related janitor facilities;
■ North Area Medical Supply Cache
• Public lobby, accessible restroom and station office;
Kitchen, dining, dayroom and laundry room;
■ Private sleeping quarters with unisex restrooms;
■ And, mechanical, electrical, communications rooms.
A second building is planned for the rear of the site. This is planned as an 800 SF storage
building and the date that is will constructed is not known at this time.
The entire parcel encompasses 66.55 Acres. The affected area proposed for development is
located in the South end of the parcel and is approximately 31,322 SF (0.72 acres). A
designated wetland occurs at the east edge of the site. No development will occur at this
location. A 3-5' landscape buffer is being provided between the site fence and the wetland
area.
In the area of development, the existing paving, lighting and buildings on the site will be
demolished and the site will be redeveloped with concrete and asphalt paving, site lighting,
above grade fueling, emergency generator with enclosure, Landscaping, retaining walls,
fencing and gates. A gravel training area is provided at the location of the future storage
building. Landscape areas will be utilized as bio -retention basins. A parking area with 10
parking spaces including a van accessible parking space and loading zone is located on-site
with an accessible route to the station entrance from the parking area and the public
sidewalk. Two additional spaces are provided for trailer storage. The project landscaping is
designed to follow the City's landscape design requirements for drought tolerant plant
selection and low flow irrigation systems. Plan selection will be suitable to bio -retention
basins.
Off-site improvements include a new access apron and sidewalk replacement. The median at
the front of the station along Civic Center Drive will be modified to move the existing left turn
opening to align with the new apparatus bay location. A keep clear zone will be stripped in
front of the apparatus bay apron along the Civic Center Drive frontage; and other
miscellaneous off-site improvements adjacent to the project will be completed as a part of the
work.
EXHIBIT 3
Initial Project Site Plan (Reduced) Presented t®
Design Review Board ®n March 22, 2016
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EXHIBIT 4
Revised Project Site Plan (Reduced)
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EXHIBIT 5
LETTER TO REGULATORY AGENCIES REQUESTING
COMMENTS ON WETLAN®.SETBACK BUFFER
April 12, 2016
Tim Dobson
COMMUNITY DEVELOPMENT DEPARTMENT
PHONE: 415-485-3085
FAX: 415-485-3184
Xavier Fernandez
California Department of Fish & Wildlife San Francisco Bay
Bay Delta Region (Region 3) Regional Water Quality
7328 Silverado Trail 1515 Clay Street, Suite 1400
Napa, CA 94558 Oakland, CA 94612
Subject: 3530 Civic Center Drive, San Rafael, CA (APN 179-270-12);
New Fire Station 57; consultation on jurisdictional wetland setback
Gentlemen:
The City of San Rafael operates Fire Station 57, which is located on the Marin County Civic
Center campus at 3530 Civic Center Drive (APN 179-270-12) in North San Rafael. The fire
station site encompasses 0.83 acres which is leased from the County of Marin (see attached
vicinity map). The front portion of the site is developed with a one-story, 4,500 -square -foot fire
station, while the rear portion is undeveloped and unpaved. The rear, undeveloped portion is
used by the County of Marin for informal storage and is bisected by an open drainage swale. The
drainage swale does not contain an incised bank. This Swale and environs have been reviewed
and studied by wetland specialist Jim Martin, Environmental Collaborative. Mr. Martin has
determined that the area around and including the Swale meet the criteria for jurisdictional waters
under the Clean Water Act. A wetland delineation request is being submitted to the US Army
Corps of Engineers for verification based on the surveyed limits of mapped jurisdictional
wetlands and other waters. (See the attached photos, graphics and plans for the location and
configuration of the jurisdictional waters).
In 2015, the City of San Rafael approved an Essential Facilities Strategic Plan, which presents
the City's roadmap for replacement of aging emergency service facilities. The strategic plan
proposes to demolish the existing Fire Station 57 and replace it with a new 9,600 -square -foot
station that will incorporate paramedic services.. The initial design plan for the fire station site
was to fill the area of jurisdictional waters, which would have required permit approval from the
US Army Corps of Engineers and water quality certification from RWQCB. However, after
exhaustive study of mitigation options (on-site and off-site), it was determined that the
development plan be revised to avoid filling the jurisdictional waters. A copy of the latest site
plan for the fire station is attached (see Plan Sheets A-1.1 and A-1.2). Please note that from a
1400 Furx AvENUE • PO Box 151560 • SAN RAFAEL, CA 94915-1560
W W W.CTTYOFSANRAFAEL.ORG
Tim Dobson & Xavier Ferfiandes
April 12, 2016
Page 2
local policy standpoint, the decision to avoid filling this jurisdictional wetland is consistent with
San Rafael General Plan 2020 Policy CON -3 (Wetland Protection and Mitigation), which, in part
states, " In order to protect and preserve valued wetlands, loss of wetlands due to filling shall be
avoided unless it is not possible or practical. "
Although we do not believe any regulatory agency permits or approvals will be required with the
latest development plan, the plan proposes a wetland setback that is less than the minimum 50 -
foot setback buffer recommended by San Rafael General Plan 2020 Policy CON -4 (Wetland
Setbacks). Development would be setback an estimated five to 10 feet from the western edge of
the mapped jurisdictional waters, with a fence installed to control access and possible
disturbance. Policy CON -4 allows the City to waive this requirement "if it can be demonstrated
that the proposed setback adequately protects the functions of the wetland to the maximum extent
feasible and resulting values to the satisfaction.of the City after review by the appropriate
regulatory agencies. " Consistent with General Plan 2020 Policy CON -4, the City is consulting
with you on this wetland setback reduction.
As noted above, the City has retained Jim Martin, Environmental Collaborative to complete the
wetland delineation. In consultation with Mr. Martin's wetland and biological resource
expertise, the City of San Rafael staff finds the waiver to the minimum 50 -foot setback
requirement to be reasonable and logical for the following reasons:
1. The drainage swale and adjacent wetland area that has been mapped as jurisdictional
waters is the result of stormdrain outfalls through the area and does not appear to be a
natural drainage. Although hydrologically -linked to waterways downstream, the area
was created by a storm water drain outfall from the south, which was installed when the
lots were developed on neighboring Golf Avenue. Surface runoff continues through the
project site before entering a culvertjust north of the subject wetland and fenced area of
the adjacent County -operated dog park.
2. As noted above, the drainage swale is poorly incised and does not have a well-defined
bank that would classify it as a creek or drainage way. As part of maintenance to
improve drainage function and minimize flooding, the swale has been excavated in the
past and partially lined with riprap.
3. The wetland area is geographically isolated and is completely surrounded by existing
development. In fact, because of its isolation, this area had been a magnet for homeless
encampments, which physically degraded the property.
4. The area has very low biological resource value; it does not contain any well-developed
marsh, seasonal wetland or riparian characteristics. And routine maintenance is required
to allow the drainage to function properly and avoid flooding of the downgradient dog
park, which has occurred in the past.
Tim Dobson & Xavier Fernandes
April 12,' 2016
Page 3
5. It is not possible or practical to comply with the 50 -foot wetiand.setback requirement. As
demonstrated in the attached development plan, providing a more substantial wetland
setback is not possible without compromising the maneuvering radius that is required for
large fire apparatus/equipment. The fire apparatus/equipment is required to enter the site
and circle the rear parking lot for access to the fire station structure. The project
architects have worked diligently to evaluate options in accommodating the requirements
of site access, maneuverability and minimum parking. And still providing minimum
setbacks from the regulated waters to prevent direct and indirect effects on this feature.
6. While a, minimal setback buffer is proposed on the west side of the wetland, it is off -set
by a substantial buffer on the east side of the wetlands. At some points the buffer on the
east side of the wetland is in excess of the 50 -foot requirement.
Consistent with General Plan 2020 Policy CON -4, we request your review and feedback on this
matter. If needed, we are available to meet or complete a site inspection with you to assist in this
feedback. As we are in the process of completing the CEQA/environmental review process, your
timely response by Wednesday, April 27, 2016 is greatly appreciated.
Should you have any questions please do not hesitate to contact me at 415.485.5064 or email at
paul.jensen@cityofsanrafael.org.
Sincerely,
Paul A. Jensen, AICP
CITY OF SAN RAFAEL
Community Development Director
Attachments:
Vicinity Map
Mapped Jurisdictional Waters Map; March 2016
Station 57 development plans; March 4, 2016
cc: Jim Martin, Environmental Collaborative; 1268 64th Street, Emeryville, CA 94608
Cristine Alilovich, Assistant City Manager, City of San Rafael
Chris Gray, Fire Chief, City of San Rafael
David Speer, Facilities, Planning and Development Manager, County of Marin, 3501
Civic Center Drive, Suite 325, San Rafael, CA 94903
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