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Report regarding consideration of a Use Permit Modification, Design Review Modification, Development Agreement Amendment and Addendum to the 2012 Partial Recirculated Environmental Impact Report to alter the site plan and exterior appearance of a previously entitled project at 475 Eccles Avenue to construct two new five-story office/R&D buildings totaling 262,287 square feet, and a five-level parking structure on a 6.1 acre site and to expand the area of property covered by the entitlements to include the adjacent rail spurs. (Billy Gross, Senior Planner)
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RECOMMENDATION
Recommendation
Staff recommends that the Planning Commission conduct a public hearing and take the following actions:
1. Adopt a resolution making findings and recommending that the City Council make a determination that the Gateway of Pacific Phase 5 Project is fully within the scope of environmental analysis in the 2012 Partial Recirculated Environmental Impact Report and that the 2020 Addendum to the EIR is the appropriate environmental document for the Project pursuant to CEQA Guidelines sections 15162 and 15164; and,
2. Adopt a resolution making findings and recommending that the City Council take the following actions: (1) introduce and subsequently adopt an Ordinance approving the First Amended and Restated Development Agreement between BMR Gateway of Pacific V LP and the City; and (2) adopt a Resolution approving the Use Permit and Design Review Modifications to the previously entitled project.
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BACKGROUND
475 Eccles Entitlement Overview
In July 2016, the City Council approved a Use Permit, Development Agreement (DA), Preliminary Transportation Demand Management (TDM) Plan, Design Review, Alternative Landscape Plan and Environmental Impact Report (EIR) to construct two new office/R&D buildings totaling 262,287 square feet, a four-level parking structure, and other on- and off-site improvements on a 6.1 acre site. As approved, the two office/R&D buildings and the parking structure would be situated near the perimeter of the site, framing a plaza and open space in the center of the site. All three buildings would be consistent in character, with simple geometry, maintaining a unified campus character. The entitled project plans are attached to this staff report (Attachment 1).
PROJECT DESCRIPTION/DISCUSSION
The 475 Eccles project is located to the southeast of the Gateway of Pacific Business Park (GOP) Campus, separated by a former rail parcel located between the two project sites. Subsequent to the 2016 entitlements, the applicant, BioMed Realty (BMR), acquired the rail spurs, which allows the 475 Eccles site to be directly connected to the GOP Campus. Based on this, BMR has submitted an application to effectively make the 475 Eccles project the fifth phase of the GOP Campus, and throughout this staff report the project will be referred to as GOP 5. While not included in the GOP Master Plan, the intent is that GOP 5 will feel like part of the overall campus. The revised building architecture will be in keeping with the rest of the GOP Campus, and the rail spurs parcel will include a pedestrian link between GOP 5 and the rest of the campus, as well as a public bicycle/pedestrian trail that will link through the campus to Forbes Blvd and Oyster Point Blvd. The applicant has prepared a “GOP 4 and 5 Project Description” memo that provides a broader overview of how the projects are related to one another (Attachment 2 to this staff report).
Proposed Design Review Modifications
No changes are proposed to the overall scope of the project; the total square footage of buildings and number of parking spaces will remain exactly as entitled in 2016. The primary modifications to the project are related to the architecture and site planning, allowing GOP 5 to share the campus appearance and site improvements of the larger GOP Campus. The building envelopes will consist of high-quality curtain-wall systems with energy efficient glazing and accents of terra cotta, wood and concrete. Installation of the pedestrian amenities in the former rail spurs portion of the site will enable completion of the continuous pedestrian pathway that runs through the entire GOP Campus, joining all of the Phase 1-5 buildings together. The GOP 5 site planning will also include a mixture of social spaces, amenity areas and featured landscaping to encourage pedestrian use.
DEVELOPMENT AGREEMENT
The applicant’s request for a First Amended and Restated Development Agreement (DA) seeks only minor modifications to the DA. The modifications include:
• Update to the Project Description to reflect the revised project.
• Extend the expiration date from 2028 to 2030. (The applicant is also proposing to extend the Development Agreement for the GOP Phase 1-4 Campus to 2030 by a separate amendment. That entitlement is being considered separately by the Planning Commission for a recommendation to the City Council.)
• Expand the area of property covered by the DA to include the rail spurs property.
• Clarify that the allowed Floor Area Ratio of 1.0 for the Project’s building area does not include the rail spurs property.
• Require a public access easement for the trail improvements proposed on the rail spurs property.
The proposed First Amended and Restated DA is included as Attachment 1 to the accompanying Entitlements Resolution.
GENERAL PLAN CONFORMITY AND ZONING CONSISTENCY ANALYSIS
The Project site is located in the Business and Technology Park land use category and zoning district, and is part of the “East of 101” Planning Sub-Area as defined by the City of South San Francisco’s General Plan.
The Project is consistent with the guiding and implementing policies in the General Plan as it has been designed to promote campus-style uses, such as biotechnology, high-technology and research and development uses. The site layout and overall architecture would help shape the urban character of the East of 101 Area. The Use Permit Modification, Design Review Modification and Development Agreement Amendment will not result in any substantive changes, and the overall project will remain consistent with the intent and purpose of the General Plan land use designation and comply with all development standards of the Zoning Ordinance.
DESIGN REVIEW BOARD
On April 21, 2020 the Design Review Board reviewed the proposed modifications to the plan. The Board recommended approval of the building redesign, but had general comments related to the GOP 5 Campus and the Rail Spurs portion of the project:
GOP 5 Campus
1. Prior to the issuance of building permits, provide accessibility plans from the parking garage to the buildings and public right-of-way.
2. Provide a wind study and proposed wind mitigation measures prior to the issuance of building permits.
3. Revise the proposed planting plan to include tree species that scale to the height of the buildings.
4. Consider the following additional revisions to the planting plan:
a. The tree species in zone 2 are not sufficient to create any affective wind mitigation.
b. Alder, Birch and Pear are especially subject to wind damage.
c. Trees to consider: Monterey Cypress (planted in loamy sand), Canary Island Pine, Aleppo Pine, Bishops Pine, Deodar Cedar, Norfolk Island Pine, Eucalyptus - if the soil is not changed.
d. Westringia fruiticosa may not survive a frost.
e. Ceanothus “Yankee Point” is not a long lived species, consider Ceanothus “Anchor Bay”.
f. Muhlenbergia Rigens does poorly in the cold windy SSF climate. Muhlenbergia Capillaris is very successful, as well as the other clump grasses.
g. Cistus X Hibridus is often short lived and requires fast draining sandy soil to survive.
5. Provide details regarding the proposed depths of the topsoil and clean subsoil in the landscape areas. The success of proposed trees will depend on deep low clay soils, best is loamy sand with less than 10% clay.
6. Consider revising the connection between the promenade and Eccles Ave to make it more prominent and visible from Eccles.
Rail Spurs
1. Revise the Park Street frontage to include a sidewalk along the southern side to connect the accessible paths.
2. Provide a detail on the proposed cantilever ramp materials and finishes.
3. Revise the plans to show a consistent trail width, either 12 ft. or 14 ft.
4. Revise the landscape plans to indicate the plant species on the slopes, the planting areas and irrigation.
5. Revise the landscape plan to show the root spaces for the proposed trees in relation to the retaining wall foundations and footing widths.
6. Consider how wind will affect the design and indicate any proposed mitigation measures.
7. Provide a wind study and proposed wind mitigation measures prior to the issuance of building permits.
Draft condition of approval A-2 requires that the applicant incorporate the DRB’s recommendations prior to the issuance of building permits.
ENVIRONMENTAL REVIEW
The City prepared a Draft Environmental Impact Report (DEIR) in 2012. The DEIR was circulated on October 31, 2012 for a forty-five day review period. A public hearing was held before the Planning Commission on December 6, 2012 to receive comments from the public on the DEIR. The City Council certified the 2012 Partial Recirculated EIR (State Clearinghouse number 2012082101) on July 27, 2016. The EIR included a Mitigation Monitoring and Reporting Program along with a Statement of Overriding Consideration.
For the proposed GOP 5 project, an addendum to the 2012 Partial Recirculated EIR was prepared (2020 Addendum) in accordance with CEQA Guidelines sections 15162 and 15164 to evaluate whether preparation of a Supplemental or Subsequent EIR or Negative Declaration is required. The 2020 Addendum concludes that the implementation of GOP 5, including the rail spurs, will not cause significant impacts, that it will not trigger any new or more severe impacts than were studied in the 2012 Partial Recirculated EIR that was previously certified, and that no significant information has come to light since the EIR was certified that shows new or more severe significant impacts. The 2020 Addendum further concludes that the Project does not represent a substantial change to the 2012 Partial Recirculated EIR and that the Project is fully within the scope of environmental analysis as described in the 2012 Partial Recirculated EIR. The City has reviewed the 2020 Addendum and supplemental analysis (Exhibit B to the CEQA resolution) and has determined that the Project is consistent with previously adopted environmental documents and that no further environmental review is required pursuant to CEQA Guidelines sections 15162 and 15164.
CONCLUSION
The proposed Design Review Modification is in keeping with the previously approved 475 Eccles Ave project entitlements, and will allow the project to be incorporated into the larger GOP Campus setting, continuing the transformation of this previously underutilized site to a high density state-of-the-art Office/R&D campus in keeping with the vision of the General Plan, East of 101 Area Plan and Business & Technology Park Zoning District. There are no new or increased environmental impacts that would occur as a result of the proposed modifications, and thus, an addendum is the appropriate environmental document for the Project and no further environmental review is necessary.
Therefore, staff recommends that the Planning Commission approve a resolution making findings and recommending that the City Council make a determination that the 2020 Addendum is the appropriate environmental document for the project, and approve a resolution making findings and recommending that the City Council approve the First Amended and Restated Development Agreement (DAA20-0002), Use Permit Modification (UPM20-0001) and Design Review Modification (DR20-0012), subject to the Draft Conditions of Approval.
ATTACHMENTS
1. 475 Eccles Ave Approved Drawings
2. Gateway of Pacific Phases 4 and 5 Project Description, dated July 21, 2020
3. Design Review Board Minutes - April 21, 2020
4. Original Development Agreement
ASSOCIATIONS
1. Draft CEQA Resolution (20-447)
A. Exhibit A - 2012 Partial Recirculated EIR
B. Exhibit B - 2020 Addendum
2. Draft Entitlements Resolution (20-448)
A. Exhibit A - Draft City Council Ordinance
i. Attachment 1 - First Amended and Restated Development Agreement
B. Exhibit B1 - Revised Project Draft Conditions of Approval
C. Exhibit B2 - 2016 Adopted Conditions of Approval
D. Exhibit C - GOP 5 / 475 Eccles Revised Project Plans