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Report regarding applications for Design Review and a Transportation Demand Management Plan for a new 8-story office / R&D building with detached parking garage at 573 Forbes Boulevard in the Business Technology Park - High (BTP-H) Zoning District in accordance with Title 20 of the South San Francisco Municipal Code (SSFMC), and determination that the project is consistent with the 2040 General Plan Environmental Impact Report, pursuant to California Environmental Quality Act (CEQA) Guidelines Sections 15162 and 15183 and related CEQA requirements. (Stephanie Skangos, Associate Planner)
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MOTIONS FOR THE COMMISSION TO ADOPT STAFF RECOMMENDATION:
(1) Move to adopt the Resolution making a CEQA determination; and
(2) Move to adopt the Resolution approving Planning entitlements.
RECOMMENDATION
Recommendation
Staff recommends that the Planning Commission conduct a public hearing and take the following actions:
1. Adopt a Resolution making findings and a determination that the Project is consistent with the scope of environmental analysis in the previously certified 2040 General Plan Environmental Impact Report, pursuant to California Environmental Quality Act (CEQA) Guidelines Sections 15162 and 15183 and no further environmental review would be required; and,
2. Adopt a Resolution making findings and approving the entitlements for Planning Project P23-0050, including Design Review DR23-0013 and Preliminary Transportation Demand Management Program TDM23-0005, subject to the draft Conditions of Approval.
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PROJECT OVERVIEW AND BACKGROUND
Site Overview
The 573 Forbes Boulevard project site is comprised of one 2.83-acre parcel located on the north side of Forbes Boulevard, west of Gull Drive, and currently occupied with a 33,250 square foot, single-story tilt-up warehouse. The western portion of the site narrows into a panhandle and slopes upward. The project site is flanked by a UPS parking lot to the east, Genentech bus parking lot to the west, and a USDA APHIS facility to the north, separated by a slope. UCSF Logistics is across Forbes Boulevard to the south. A multi-use Rails to Trails path runs from Forbes Boulevard between the project site and the Genentech parking lot, curving to continue west behind the bus lot.
Project Description
The project proposes to demolish the existing warehouse and construct a new 8-story, 246,234 square foot building plus basement level (gross square footage of the new building, including the basement level, is 315,718 square feet), and an associated 8-story parking garage with 470 parking stalls. The specific tenant(s) have not been identified, but the applicant is targeting research and development (R&D), office, or technology tenants. The proposed office / R&D building has an approximately 35,000 square foot footprint, reaching a height of 137 feet above grade, with rooftop elements reaching 171 feet. The parking garage is proposed to reach a height of 85 feet, with a footprint of 26,951 square feet. Site improvements would also include open space, landscaping, outdoor seating areas, pedestrian walkways, and vehicular circulation elements. The project site plan and architecture is detailed in the Plan Set (Associated Entitlements Resolution, Exhibit B).
Architectural Design
The design for the 573 Forbes Boulevard Project was inspired by the unique challenges and opportunities presented by the project site, as well as the general needs of biotechnology uses. The main building, rectangular in plan with an angular gesture on the first two levels, will be a steel-framed structure clad in tinted glass and dark metal panels. A spacious balcony will be located on the third level, above the double-height lobby space. Each level above will have its own private outdoor balcony terrace of equal size, projecting out at an angle from the main rectangular mass, helping to break up the massing of the street-facing façade. Wood and copper-colored accents will be incorporated at the balconies, as well as at the roof screen.
The detached parking structure will be a poured-in-place concrete structure with a copper-colored mesh screen to provide an open-air garage. The top level of the structure will have a canopy of photovoltaic panels to convert sunlight to electrical power.
Landscaping and Open Space
The project provides landscaping and open space in the form of a courtyard, seating enclaves, balconies, pedestrian promenades, landscape buffers, and tree plantings throughout the site. Within the exterior amenity spaces and courtyard, accent paving, modular and concrete seating, recessed wall / step and bollard lighting, and low water use native and adaptive plantings will be used to define various outdoor spaces as well as define circulation and heighten the sense of arrival and points of egress. The landscape areas throughout the site include C-3 filtration/Bio-retention zones to capture and treat building and site paving runoff which are integrated into the site landscape composition. The tree palette contains trees species to provide windscreens, feature plantings, and shade elements for open space and parking and circulation areas throughout the site. Landscape plans and planting palettes are included in the Plan Set (Associated Entitlements Resolution, Exhibit B).
Access and Circulation
The project proposes one main vehicular driveway and a second connection that would act as a fire and service lane, both along Forbes Boulevard. Project parking will be provided in a detached 8-story garage with one entrance / exit, accessible via the main driveway off Forbes Boulevard. The main building and parking garage will be separated by an internal courtyard with site amenities, including outdoor seating, and pedestrian and bicycle pathways. The main building will have two main entrances, one off Forbes Boulevard and one within the internal courtyard with direct access from the detached garage. Long-term bicycle parking will be provided on the first level of the parking structure, and short-term bicycle parking will be provided adjacent to both building entrances. A vehicular drop-off zone adjacent to the internal building entry, and accessible via the main driveway, can be used for carshare and taxi drop-offs and pick-ups. Accessible pedestrian and bicycle connections throughout the site, including to the adjacent multi-use Rails to Trails path, will be provided.
In addition to bicycle and pedestrian environments within the project site, the Project will also contribute to access improvements along Forbes Boulevard. Existing medians on Forbes Boulevard will be realigned to match project driveways, and a left-turn capacity lane will be expanded for better access to the proposed main driveway. Improvements will also include the addition of a marked crossing for access to the adjacent Class 1 bicycle trail; inclusion of a raised sidewalk crossing and green bicycle conflict zone markings at the project’s driveway; and modification of lighting and landscaping as necessary.
Entitlements Request
The Project is seeking the following entitlements, discussed in detail in this staff report:
• CEQA Determination
• Design Review
• Transportation Demand Management (TDM) Plan
ZONING CONSISTENCY ANALYSIS
Proposed Use
The project site is located within the Business Technology Park - High (BTP-H) Zoning District. Per South San Francisco Municipal Code (SSFMC) Section 20.100.002 (“Use Regulations - Non-Residential Zoning Districts”), R&D and office uses are both permitted land uses by-right.
Development standards for the BTP-H District are outlined in SSFMC Table 20.100.003 (Development Standards - Non-Residential Zoning Districts). As noted in the below table, the proposed project complies with the applicable development standards, including maximum floor area ratio (FAR) and maximum height. Note that the maximum base FAR in the BTP-H District is 0.5, with up to 2.0 permitted with payment of a Community Benefits Fee per SSFMC Chapter 20.395. As proposed, the project would be developed at a FAR of 2.0 and subject to the requirement for payment of a Community Benefits Fee applicable to the proposed FAR above 1.0.
Additionally, the height maximum in the BTP-H District is the maximum permitted by Federal Aviation Administration (FAA) regulations. The maximum proposed height of the office / R&D building is 137 feet, with rooftop elements reaching 171 feet, which was determined to be preliminarily consistent with FAA regulations. Prior to the issuance of a building permit, the applicant will be required to submit a determination of no hazard issued by the FAA.
Table 1. Project Compliance with BTP-H Development Standards
Additional Development Standards
SSFMC Section 20.100.004 (Supplemental Standards) outlines several additional standards, including new objective design standards, applicable to projects located within a non-residential zoning district, including the BTP-H District. The project has been designed to comply with all required additional development standards for the BTP-H District.
Site and Building Design Standards
SSFMC Chapter 20.310 (Site and Building Design Standards) prescribes general citywide site and building design standards to be used in conjunction with the applicable base zoning district requirements and design standards. These standards contain requirements for building entrances, open space design and orientation, on-site circulation and parking, building materials and textures, and architectural integrity. The design of the project meets these standards, with a focus on high-quality design and materials, usable open spaces, and pedestrian and bicycle connections to and throughout the site.
Parking Requirements
Vehicle Parking
The maximum number of allowed parking spaces for different land uses is regulated by SSFMC Section 20.330.004 (“Required On-Site Parking Spaces”). Maximum parking requirements are a tool to help ensure compliance with the City’s Transportation Demand Management ordinance. Pursuant to this section, office and R&D uses have different parking ratios. However, combined office and R&D buildings are subject to the parking requirements for R&D uses only, as office space has been considered in the establishment of the R&D parking ratio. Therefore, the proposal must meet the parking requirements for R&D uses, which is no more than 1.5 spaces per 1,000 sq. ft. Per the requirement and using the proposed gross square footage of the project (315,718 square feet), the project would need to provide no more than 474 total parking spaces. The proposed detached parking garage will provide a total of 470 parking spaces. Therefore, the project complies with the maximum parking requirements.
Bicycle Parking
SSFMC Section 20.330.007 (“Bicycle Parking”) establishes the requirements for short-term and long-term bicycle parking. The minimum number of on-site short-term and long-term bicycle parking spaces are based on the use and number of required automobile parking spaces. The following requirements are applicable to the project:
• Short-term Bicycle Parking: Rate of 5% of the number of required automobile parking spaces, with a minimum of four bicycle parking spaces provided per establishment.
• Long-term Bicycle Parking: Rate of 5% of the number of required automobile parking spaces.
Per these requirements, the project must provide a total of 24 short-term and 24 long-term bicycle parking spaces on site. The project includes the required number of both short-term and long-term bicycle parking spaces with short-term bicycle parking provided adjacent to the building entrances and long-term bicycle parking provided on the first level of the detached parking structure.
Loading Requirements
SSFMC Section 20.330.009 (On-Site Loading) establishes requirements for on-site loading spaces for new buildings. Based on the project’s square footage, a total of five loading spaces would need to be provided. SSFMC Section 20.330.009(A)(1) includes a provision for a reduction in the number of loading spaces required, upon a finding by the Chief Planner and City Engineer that the applicant has satisfactorily demonstrated that due to the nature of the proposed use, such loading space will not be needed.
The project is proposing to include four loading spaces, and the applicant has commissioned a study by American Trash Management to provide justification for the reduction in loading spaces. Based on recent reports prepared by American Trash Management for similar projects in size and nature in the City that have concluded that less than five loading spaces is adequate, staff feels that the reduction of one loading space, for a total of four for the project, is supportable.
Transportation Demand Management (TDM) Plan
Pursuant to SSFMC Chapter 20.400 (Transportation Demand Management), office / R&D uses between 50,000 and 400,000 sq. ft. of gross floor area are required to provide a TDM plan and are categorized as “Tier 3” projects. The minimum requirements for Tier 3 projects are to achieve a total of 40 points, in addition to annual monitoring to achieve a maximum of 60% of employees commuting via driving alone. Points in various quantities are awarded based on specific trip reduction measures; for instance, including promotional programs and materials as a TDM measure would result in 1 point, whereas including a TDM coordinator/point of contact for commute assistance would result in 5 points. In other words, a Tier 3 project would have to propose the number and type of trip reduction measures that would accumulate sufficient points to achieve 40 points.
A draft TDM plan has been prepared for the project by Fehr + Peers (Associated Entitlements Resolution, Exhibit C). The draft TDM plan provides a concise description of TDM Measures that the project will implement to achieve the 40-point minimum for Tier 3 projects, including seven City-mandated TDM measures and a number of optional measures, as outlined below. A draft Condition of Approval is included to ensure TDM compliance and annual reporting.
Table 2. TDM Certification Checklist
GENERAL PLAN CONSISTENCY ANALYSIS
The General Plan Land Use designation for the project site is Business Technology Park High (BTP-H), which is intended for high-density corporate headquarters, research and development facilities, and offices.
The Project is consistent with the guiding and implementing policies in the General Plan as it has been designed to develop an underutilized site with a high-quality employment use. The site layout and building design architecture will contribute to and further shape the urban character of the East of 101 Area. The proposed office / R&D project is consistent with the land use designation, which promotes office / R&D facilities and supplementary uses.
SUSTAINABILITY / CLIMATE ACTION PLAN
The City adopted a new Climate Action Plan (“CAP”) in October 2022; the CAP serves as South San Francisco’s greenhouse gas reduction strategy. The CAP includes requirements applicable to new development projects. As currently designed, the proposed project would comply with many of the standards and measures outlined in the CAP, and staff will continue to work with the applicant to incorporate as many sustainable features beyond those required by the CAP as possible into the project.
DESIGN REVIEW BOARD
The Design Review Board (DRB) reviewed the proposal on June 20, 2023, and recommended approval with some minor design recommendations, including incorporating additional articulation along the rear of the detached parking garage and installing more landscaping within the courtyard. The applicant is taking the DRB recommendations into consideration and reviewing design options. The DRB comment letter is included as Attachment 2 to this staff report.
IMPACT FEES
The 573 Forbes Boulevard Project is subject to the City’s impact and development fees, which are used to offset the impacts of new development on City services and infrastructure. The draft Conditions of Approval (Exhibit A to the Entitlements Resolution) list out the relevant impact fee estimates, summarized below:
• Childcare Fee: $371,813
• Parks Fee: $871,668
• Citywide Transportation Fee: $8.6M
• Commercial Linkage Fee: $4.3M
• Public Safety Impact Fee: $322,567
• Library Impact Fee: $34,473
• Community Benefits Program Fee: $2.5M
• Public Art Requirement: On-site, or in-lieu contribution of 0.5% of construction costs
ENVIRONMENTAL REVIEW
In 2022, the City Council certified a programmatic Environmental Impact Report (EIR) for the 2040 General Plan (State Clearinghouse #202102006) (CEQA Resolution, Exhibit A). The program EIR assessed the potential environmental impacts resulting from implementation of the 2040 General Plan Update, Zoning Ordinance Update and Climate Action Plan Update, which established new land use, development, and urban design regulations for the City over a 20-year planning period. The 573 Forbes Boulevard Project proposal for an office / R&D building is in keeping with the envisioned use at the project site and in compliance with the City’s development standards.
Section 15162 of the CEQA Guidelines states that no subsequent EIR need be prepared for a project where an EIR has previously been prepared unless the lead agency identifies subsequent changes in circumstances that were identified and not previously analyzed or would create new significant environmental effects. More specifically, Section 15183 of the CEQA Guidelines mandates that projects that are consistent with the development density established by existing zoning, a community plan, or general plan policies for which an EIR was certified shall not require additional environmental review, except as might be necessary to examine whether there are project-specific significant effects that are peculiar to a project or its site. CEQA Guidelines Section 15183 specifies that when reviewing a project that meets the requirements of this section, a public agency shall limit its examination of environmental effects to those that the agency determines in an environmental checklist or other analysis.
The environmental checklist and appendices prepared for the project by Lamphier-Gregory, Inc., dated October 2023 (CEQA Resolution, Exhibit B) serves as substantial evidence that the current project is within the scope of the previous environmental analysis including the 2040 General Plan EIR and Mitigation, Monitoring, and Reporting Program (MMRP) and that subsequent CEQA analysis is not required for the proposed project. As demonstrated through the environmental checklist analyzing project impacts, there are no effects that are peculiar to the project, or were not previously identified, or have become more adverse due to new, previously unknown information. As such, no further environmental review would be required pursuant to Section 15183. The project would be subject to all relevant mitigation measures included in the 2040 General Plan EIR MMRP (CEQA Resolution, Exhibit A - Final General Plan EIR).
CONCLUSION
The proposed 573 Forbes Boulevard Project is consistent with both General Plan goals and the Zoning Ordinance requirements. The project would produce an 8-story state-of-the-art office / R&D building at 315,718 sq. ft. (gross square footage), a detached parking garage with 470 parking stalls, and includes enhanced connectivity and off-site improvements. Further, the proposed project is consistent with the City’s ongoing development of the East of 101 Area into a nationally recognized biotechnology / R&D center, and ultimately will provide quality jobs in South San Francisco. For these reasons, staff recommends that the Planning Commission take the following actions:
1. Adopt a Resolution making findings and a determination that the Project is consistent with the scope of environmental analysis in the previously certified 2040 General Plan Environmental Impact Report, pursuant to California Environmental Quality Act (CEQA) Guidelines Sections 15162 and 15183 and no further environmental review would be required; and,
2. Adopt a Resolution making findings and approving the entitlements for Planning Project P23-0050, including Design Review DR23-0013 and Preliminary Transportation Demand Management Program TDM23-0005, subject to the draft Conditions of Approval.
Attachments
1. 573 Forbes Boulevard Project Description & Data
2. Design Review Board (DRB) Comment Letter, dated June 20, 2023
Exhibits to Associated CEQA Resolution (23-739)
A. 2040 General Plan EIR (weblinks)
B. 573 Forbes Boulevard Environmental Checklist
1. Air Quality Calculations
2. Cultural Records Search, Native American Heritage Commission Response
3. Energy Calculations
4. Transportation Analysis
Exhibits to Associated Entitlements Resolution (23-740)
A. Draft Conditions of Approval
B. 573 Forbes Boulevard Project Plans, dated June 13, 2023
C. Proposed TDM Plan, dated September 2023
D. Pedestrian Wind Assessment, dated August 18, 2023