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Report regarding consideration of applications for a Design Review, Use Permit, Transportation Demand Management Plan, and Environmental Impact Report, for the construction of a new office / R&D building and parking structure in the Business and Technology Park (BTP) Zoning District. (Christopher Espiritu, 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 certifying the Environmental Impact Report EIR19-0003, including adoption of a Mitigation Monitoring and Reporting Program and Statement of Overriding Considerations; and,
2. Adopt a Resolution making findings and approving Planning Project P19-0001, including Use Permit UP19-0011, Design Review DR19-0032, and Preliminary Transportation Demand Management Program TDM19-0005, based on the attached draft findings and subject to the attached draft Conditions of Approval.
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BACKGROUND/DISCUSSION
Site Overview
The project site is located at 499 Forbes Blvd., on the northwest corner of Forbes and Allerton Avenue. The site totals 2.96 acres (128,737 sq. ft.), and consists of two contiguous parcels (APNs 015-082-040 and 015-082-299), one is a relatively rectangular parcel, and the other is one long, thin parcel that contains a portion of a decommissioned railroad track. Offices, warehouses, and distribution centers for food packaging companies are located to the north of the project site, across the railroad tracks. A large surface parking lot and bus station serving Genentech abuts the project site to the east, and office and warehouses for a food distribution company abuts the project site to the west. A vacant lot is located to the south of the project site, directly across on Forbes Boulevard. Other surrounding uses include additional Genentech and biotechnology company buildings and office buildings.
The project site is zoned Business and Technology Park (BTP) per the South San Francisco Zoning Ordinance. The project site is currently developed with a surface parking lot and landscaping along the perimeter of the site, and a one-story vacant warehouse building. The existing building, approximately 54,000 sq. ft. and built in 1968, was previously used by Columbus Salame, a meat processing, packaging, and distribution company.
Project Description
The project would involve the construction of two new structures, a five-story, 128,737 square-foot office structure and a five-story, 97,859 sq. ft. parking structure with 308 parking spaces. The proposed project would redevelop the former industrial uses into new office/R&D uses. The existing one-story structure would be demolished as a part of project implementation. The new office structure would be approximately 85 feet in height and would occupy the same general footprint as the demolished structure. The parking structure would be 60 feet in height. Additional surface parking spaces (14 stalls) would be located at the western edge of the project site, and bicycle parking would be provided throughout the project site. Landscaped area would account for approximately 42,819 sq. ft. of the project site and would be located mainly along the perimeter, between the two new structures, and at the rear of the site. A terraced outdoor seating area would be located at the northwest corner of the site, near the existing rail line.
The project would also include improvement of the existing railroad tracks located at the rear of the site, and would become part of the City’s Rails-to-Trails program. The trail would be adjacent to the proposed parking garage and extend northeast for approximately 0.2 mile and then curve southwards to allow access from Forbes Boulevard. A connection would be made between the newly built trail and an outdoor amenity space at the northwest corner of the site.
Vehicle access to the project site would be provided through a single 26-foot-wide driveway located on the western portion of the site, allowing for ingress and egress of automobiles and small single-unit trucks. The project would also involve modification to an existing roadway median on Forbes Boulevard to allow for a new left turn lane.
The project applicant has submitted applications for Design Review, a Conditional Use Permit, including for a reduction in required parking, and a Tentative Parcel Map to merge the two contiguous parcels at the project site. Pursuant to section 19.48.180 of the Municipal Code, this merger is subject to City Engineer review and approval only as a contiguous parcel under common ownership merger, and would trail the application which is approved by the Planning Commission.
Architectural Design
499 Forbes consists of a 5-story Laboratory/Office building and associated 5 and ½ story parking garage. The lab building massing consists of two linear bars, expressive of the building functions-- with an east laboratory bar, and a west office bar. The twin bars reduce the visual scale of the project towards the Forbes public street face while supporting flexibility of interior program. Garage massing is situated at the northern portion of the site, framing an exterior courtyard at the heart of the site. Green screen elements wrap the garage massing forming a living back drop to the site’s exterior programmed spaces.
Acting as two carved masses, the project embraces a solid materiality as an authentic expression of the functional needs of the building as a laboratory, and in response to the solar exposure it receives on its east & west faces. Façade materiality will employ a subtle warmth, and rich texture that aligns with the stone concept as a memory of the geological landscape which has been transformed in the region over time. The fine grain of the material module and expression brings a human scale experience to the project, reminiscent to the lovely play of light and texture on natural stone formations. Solid portions of the exterior façade are composed of high-quality Italian porcelain rainscreen cladding panels complimented by large format vision glass windows. The porcelain panels have a rich texture providing depth and visual interest to the façade from both distant and close-up viewing. Towards the north, the project utilizes a more transparent façade to take advantage of the lower solar exposure and indirect light opportunities towards the campus core. Carves in the west bar reduce solar exposure and provide opportunities for self shading and commensurate increases in vision area for these zones adjacent to interior work spaces. Architectural renderings are included on Sheets A01-004 to A01-005 in the project plan set (attached as Exhibit C to the Entitlements Resolution).
Landscaping and Open Space
The project provides landscaping throughout private to public open space in the form of plazas, central courtyard, seating enclaves, terrace gardens and connectivity to local/regional trail networks. Within the exterior amenity spaces accent paving, modular seating, green-wall systems and low water use natives and adaptive plantings will be used to define these various outdoor spaces as well as define circulation and heighten the sense of arrival and points of egress. Planting geometries will also provide a strong textural composition for viewing and occupancy. Featured landscape areas include C-3 filtration/Bio-retention zones to capture and treat building and site paving runoff which are integrated into the site landscape composition. Illustrative plans and landscape plans are included on Sheets L-001 to L-003 in the project plan set (Exhibit X - Entitlements Resolution).
Circulation
As proposed, vehicular access to the project site would be provided via a single, 26-foot-wide drive aisle and curb cut from Forbes Boulevard. The project would also involve modification to an existing roadway median on Forbes Boulevard for a new left turn lane into the project site.
In addition, as an integral component of the campus design, the pedestrian and bicycle experience on-site has been thoughtfully considered and integrated. The Rails to Trails redevelopment at the North of the project site creates a strong connection to the neighborhood and greater South San Francisco context and thus is key driver in the design of the development. At the North side of the site the project creates a strong and deliberate connection from the Rails to Trails bike path through the heart of the new campus development and on through to Forbes Boulevard. This connection to the bike trail is punctuated by a series of terraced gardens complete with seating and lush planting and will be a tremendous amenity to pedestrian and bicycle users alike. Further, the project would install a new bike lane along the Forbes Boulevard frontage of the project site, thus creating a necessary link between existing bicycle facilities and proposed facilities connecting to the South San Francisco Caltrain Station to the west.
Entitlements Request
The Project is seeking the following entitlements:
• Use Permit (Parking Reduction)
• Design Review
• Certification of EIR, including adoption of a Mitigation Monitoring and Reporting Program (MMRP) and Statement of Overriding Consideration (SOC)
Each of these items is discussed in more detail below.
GENERAL PLAN 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 proposed office / R&D project is consistent with the land use designation, which promotes office/R&D facilities and supplementary uses.
General Development Standards
Per the development criteria outlined in Table 20.110.003 of the South San Francisco Municipal Code (SSFMC), the proposed project meets the development standards listed under the BTP zoning district (see below).
499 Forbes Boulevard Parcel*
• Max. FAR Permitted: .50; or 1.0 w/incentives Proposed: 1.0
• Lot Coverage Permitted: 60% Proposed: 37%
• Height Permitted: 85 ft. Proposed: 82 ft.
• Landscaping Required: 15% Proposed: 24%
*For all other development standards not listed above, please view Sheet A01-001 of the plan set (Exhibit X - Entitlements Resolution).
Conditional Use Permit - Request for Parking Reduction
According to Table 20.330.004 of the SSFMC, “Required On-Site Parking Spaces”, office and R&D uses must adhere to the following parking requirements:
• Office: one (1) space per 300 sq. ft. under 100,000 sq. ft.
• Office: one (1) space per 350 sq. ft. over 100,000 sq. ft.
• R&D: one (1) space per 350 sq. ft.
Required Parking for Project:
• 415 spaces (3.22 spaces per 1,000 sq. ft.)
Proposed Parking for Project:
• 322 spaces (2.5 spaces per 1,000 sq. ft.)
Based on the proposed building square footage of 128,373 gross sq. ft. for 499 Forbes Boulevard, 415 parking spaces are required by the SSFMC. The developer is proposing to provide a total of 322 parking stalls with the majority of the spaces being located in the proposed parking structure and a small surface parking lot abutting the proposed building on the project site. Therefore, the developer is seeking a parking reduction of 93 spaces, or 28%, for an overall parking ratio of 2.5 spaces per 1,000 sq. ft.
Through section 20.330.006(D) of the SSFMC the Planning Commission may grant a Conditional Use Permit for reduced parking if it finds the following:
a. Special conditions-including but not limited to the nature of the proposed operation; proximity to frequent transit service; transportation characteristics of persons residing, working, or visiting the site; or because the applicant has undertaken a transportation demand management program-exist that will reduce parking demand at the site;
b. The use will adequately be served by the proposed on-site parking; and
c. Parking demand generated by the project will not exceed the capacity of or have a detrimental impact on the supply of on-street parking in the surrounding area.
The proposed project would provide 322 parking spaces, which is approximately 78% of the required parking spaces at a ratio of 2.5 spaces per 1,000 sq. ft. Across the East of 101 area similar reduced parking standards have been accepted and/or successfully applied within several large developments, such as ARE’s Merck and Verily campuses located on E. Grand. For example, with parking ratios around 2.20 spaces per 1,000 sq. ft. of office/R&D space, ARE’s campuses have achieved on average a 35% to 45% alternative mode split in employee travel behavior.
Based on studies from the Institute of Transportation Engineers (ITE) as well as annual TDM reporting, the proposed parking standard of 2.5 spaces per 1,000 sq. ft. for the 499 Forbes Boulevard project, is not anticipated to result in a shortfall of on-site parking or create the need for overflow parking off-site. Furthermore, the proposed project, similar to all previous developments in the East of 101 Area, is required by the Zoning Ordinance to implement a TDM Plan that must achieve a minimum alternative mode shift of 35% (see TDM discussion below).
With any proposed parking reduction, the primary concern is impact to surrounding properties and the on-street parking supply. In this case, no impact to street parking is expected since there is no permitted street parking on Forbes Boulevard. Additionally, employees or visitors are not likely to park in surrounding parking lots, which are monitored by their respective property owners, and designed to be self-serving and thus, inconvenient to anyone but on-site users. Staff believes that the proposed parking will be sufficient and the reduction in parking supports the project’s effort to promote and enhance alternative modes of travel through its TDM plan, and implementation of a bike lane on Forbes Boulevard, and the new Rails-to-Trails segment.
Transportation Demand Management (TDM) Plan
The proposed project would implement a TDM Plan pursuant to the City’s Municipal Code Chapter 20.400, Transportation Demand Management, which contains the City’s TDM requirements. The TDM requirements apply to all nonresidential development expected to generate 100 or more average daily trips. The minimum requirements are to achieve 28% alternative mode usage (compared to driving alone) with additional density bonuses allowed for higher use of alternative modes. In order to achieve a FAR of 1.0, as required for development of the project, the TDM Plan implemented in connection with the project must achieve 35% alternative mode usage.
The TDM measures and programs proposed in this Plan support the above TDM goals and is anticipated to meet the proposed goal of 35% of peak hour trips being made by non‐single occupant vehicle modes such as transit, bicycles, walking, or other modes. As proposed, the 35% mode split target would be implemented upon occupancy of the project site. The annual reporting requirements for the project will evaluate this TDM Plan for compliance with the 35% minimum alternative mode usage as required under the City’s TDM Ordinance.
SUSTAINABILITY / CLIMATE ACTION PLAN
The City adopted a Climate Action Plan (“CAP”) in February 2014; the CAP serves as South San Francisco’s greenhouse gas reduction strategy. The CAP includes requirements applicable to new development projects; following are the specific requirements applicable to the proposed project.
• Require all new development to install conduit to accommodate wiring for solar.
• Encourage the use of high-albedo surfaces and technologies as appropriate, as identified in the voluntary CALGreen standards.
• Revitalize implementation and enforcement of the Water Efficient Landscape Ordinance by undertaking the following:
- Establishing a variable-speed pump exchange for water features.
- Restricting hours of irrigation to occur between 3:00 a.m. and two hours after sunrise.
- Installing irrigation controllers with rain sensors.
- Landscaping with native, water-efficient plants.
- Installing drip irrigation systems.
- Reducing impervious surfaces.
In addition to the requirements listed above, the CAP includes additional measures that are encouraged in order to help with the City’s greenhouse gas reduction efforts:
• Integrate higher-density development and mixed-use development near transit facilities and community facilities, and reduce dependence on autos through smart parking practices.
• Encourage the use of CALGreen energy efficiency measures as a preferred mitigation for CAP streamlining.
• Promote on-site renewable energy or distributed generation energy systems in new and existing residential and nonresidential projects. Encourage developers of multi-family and mixed-use projects to provide options for on-site renewable electricity or install distributed generation energy systems, similar to the statewide Homebuyer Solar program.
As currently designed, the proposed project will comply with many of the standards above and has the potential to achieve higher levels of sustainability as the project is utilizing several design strategies focused on enhancing resource efficiency and ensuring indoor environmental quality. These strategies will ultimately reduce energy consumption, water consumption and waste. 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. Further, a Condition of Approval has been added to state that the project drawings will need to include the CAP requirements stated above, which are subject to Chief Planner review and approval prior to the issuance of a building permit.
DESIGN REVIEW BOARD
The South San Francisco Design Review Board (DRB) reviewed the proposed project on December 17, 2019, and May 19, 2020. After the May 19, 2020 meeting, the Board was supportive of the project and recommended approval with the following recommendations:
1. For the Landscape Plan, consider making the following modifications:
a. Consider using an alternative species other than the proposed Acacia and Holly Oak, with more appropriate tree species that will better acclimate to local weather and soil types.
b. Consider other alternative species to plants, lawns, and other landscaping elements with species that have a better fit to the City’s climate.
2. Review the project’s ADA accessibility paths to ensure safe travels into buildings.
3. Review the proposed lighting plan to ensure no conflicts with flight paths and compliance with FAA requirements.
Following the DRB meeting, the applicant submitted revised plans that addressed all of the board’s comments. Additionally, a draft Condition of Approval has been included for the applicant to address DRB’s recommendations prior to issuance of building permit.
NEIGHBORHOOD MEETING
The applicant held a neighborhood meeting on December 20, 2019, and provided a brief overview of the proposed project design followed by an opportunity for discussion. Several adjacent property owners attended the meeting and had general concerns regarding traffic in the vicinity and construction mitigation. Overall, the project was well liked and supported by the adjacent property owners who attended the meeting.
ENVIRONMENTAL REVIEW
A Draft and Final Environmental Impact Report (EIR) have been prepared for the 499 Forbes Boulevard Project. The Draft EIR identified significant unavoidable impacts related to Transportation. The Draft EIR public comment period began on May 20, 2020 and ended on July 6, 2020. The City received one comment letter from the California Department of Fish and Wildlife on the Draft EIR during the 45-day public review period for the Draft EIR. The Final EIR consists of the Draft EIR and the Response to Comments document, which includes the comments received during the public review period and responses to those comments. The Final EIR must be certified by the City’s project approval body (the Planning Commission in this case) along with consideration of the project applications. The Final EIR can be found online on the City’s website www.ssf.net/ceqadocuments <http://www.ssf.net/ceqadocuments>).
Draft Environmental Impact Report
A Draft EIR analyzing the potential environmental impacts of the project was prepared by Rincon Consultants, Inc. The Draft EIR was circulated on May 20, 2020 for a 45-day review period and was made available on the City’s website for public review. The Notice of Availability of a Draft EIR was posted with the County Clerk, mailed to local, regional, state, and other public agencies (including the State Clearinghouse and the California Department of Transportation), and nearby addresses including property owners and occupants. Hard copies of the Draft EIR were available at the Planning Division’s office for public review upon request. Written comments were accepted until July 6, 2020 at the end of the 45-day review period.
Potentially Significant Impacts
The Draft EIR identified certain potentially significant effects that could result from the project. However, the City finds, for the reasons stated in the EIR, that mitigation identified in the Draft EIR and Initial Study would reduce impacts to less than significant levels. A lead agency (here, the City of South San Francisco) may not approve a project that may result in significant impacts unless the lead agency finds that changes or alterations that will avoid or substantially lessen the impacts have been required or incorporated into the project, that such changes or alterations are within the responsibility of another jurisdiction, or that specific considerations make mitigation of the impacts or alternatives to the project infeasible.
Of the identified potentially significant impacts in the Draft EIR, some are capable of being reduced to less-than-significant levels through the implementation of mitigation measures and a Mitigation Monitoring and Reporting Program (MMRP) (Exhibit C- CEQA Resolution). The following CEQA categories have impacts that can be reduced through mitigation:
• Air Quality
• Biological Resources
• Cultural Resources
• Geology and Soils
• Transportation
Significant and Unavoidable Impacts
A significant unavoidable impact is an impact that cannot be mitigated to a less than significant level if the project is implemented, because no feasible mitigation has been identified. The project would result in the following significant unavoidable impact: Transportation (VMT). For the potentially significant impact on VMT, feasible mitigation measures have not been identified, have uncertain feasibility, or may not be effective in reducing the impacts to a less than significant level. Thus, this impact, related to specifically to transportation (VMT), is designated as significant and unavoidable.
Response to Comments (RTC) Document / Final EIR (FEIR)
The 45-day public comment for the Draft EIR lasted from May 19, 2020 to July 6, 2020. During this period, the City received one comment letter from California Department of Fish and Wildlife. No other comments were received during this time.
Once all comments had been received, the Response to Comments document was prepared. A Notice of Availability and Release, along with the Response to Comments Document (that together with the Draft EIR make up the Final EIR) was published on November 9, 2020. The Final EIR and Notice of Availability and Release were sent to all commenters and have been provided to the Planning Commission. The Final EIR is available to the public at the Planning Division office and on the City’s website.
The Response to Comments document includes written responses to all comments received during the public review period and at the public hearing on the Draft EIR, as well as revised or clarified text.
Comments on the Draft EIR
The following presents a brief summary of the comment letter received during the public review period.
California Department of Fish and Wildlife (CDFW)
The City of South San Francisco received one comment letter on the Draft EIR from the California Department of Fish and Wildlife (CDFW). The commenter states that the California Department of Fish and Wildlife (CDFW) has reviewed the Draft EIR and that the comment letter includes comments and recommendations for identifying and mitigating impacts to biological resources. The commenter also summarizes CDFW’s role under CEQA and a description of the proposed project.
The commenter states that the project could increase artificial lighting, which could result in light pollution that has the potential to affect biological resources. The commenter explains that night lighting can disrupt the circadian rhythms of many wildlife species. The commenter states that CDFW recommends eliminating non-essential artificial lighting, limiting the use of necessary lighting during dawn and dusk, and shielding outdoor lighting.
The commenter states that the glass used for exterior building windows at the new buildings could result in bird collisions, which can cause bird injury and mortality.
The commenter accurately describes the proposed project. While this comment does not pertain specifically to the analysis in the Draft EIR, the City acknowledges CDFW’s role in reviewing the project.
Statement of Overriding Considerations and Mitigation Monitoring & Reporting Program
A Mitigation Monitoring and Reporting Program (MMRP) and Statement of Overriding Considerations (SOC) have been prepared pursuant to Public Resources Code Section 21086.6 and 21081, respectively. The MMRP is organized to correspond to environmental issues and significant impacts discussed in the EIR and will be used by the City to track or identify the following: mitigation measures, timing for implementation, responsible party, the action, and ongoing monitoring responsibility. The complete MMRP is attached to the CEQA Resolution as Exhibit C.
The Statement of Overriding Considerations is included with the required CEQA Findings and attached to the CEQA Resolution as Exhibit B. In summary, the Statement of Overriding Considerations must be adopted by the Planning Commission for those impacts identified as significant and unavoidable in the 499 Forbes Boulevard Project EIR (State Clearinghouse No. 2019110287) and the project cannot be approved unless a Statement of Overriding Considerations is adopted which balances the benefits of the proposed project against the unavoidable transportation impacts.
Staff is supporting adoption of the Statement of Overriding Considerations because the Project will provide economic, social, technological, and other benefits that balance the significant and unavoidable impacts of the project related to noise and traffic. Balancing impacts include:
• Creating state-of-the-art office and R&D facilities consistent with the General Plan designation of the site, and General Plan goals and policies;
• Promoting the City’s ongoing development of the East of 101 Area into a nationally recognized biotechnology and R&D center that will attract other life science uses and provide quality jobs for the City;
• Redeveloping underutilized parcels within the project site at a higher density to take advantage of the opportunities offered in the East of 101 Area to create a vibrant office and R&D campus;
• Maximizing alternatives to automobile transportation to further the City’s transportation objectives by emphasizing linkages, Transportation Demand Management (TDM), and bicycle and pedestrian access, as well as the continuation of a new segment in the Rails-to-Trails program; and
• Providing a positive fiscal impact on the City through the creation of jobs, enhancement of property values, and generation of property tax and other development fees
CONCLUSION
The proposed office/R&D project at 499 Forbes Blvd. is consistent with both General Plan goals and Zoning Ordinance requirements. The project would produce a new 5-story state-of-the-art office/R&D building at 128,737 sq. ft., a parking structure with 322 parking spaces, and includes enhanced connectivity and improvements for alternative modes on Forbes Boulevard and construction of a new segment of Rails-to-Trails. Further, the proposed office/R&D campus promotes the City’s ongoing development of the East of 101 Area into a nationally recognized biotechnology/ R&D center, and ultimately produces quality jobs for the City. For these reasons, staff recommends that the Planning Commission take the following actions:
1. Adopt a Resolution making findings and certifying the Environmental Impact Report EIR19-0003, including adoption of a Mitigation Monitoring and Reporting Program and Statement of Overriding Considerations; and,
2. Adopt a Resolution making findings and approving Planning Project P19-0001, including Use Permit UP19-0011, Design Review DR19-0032, and Preliminary Transportation Demand Management Plan TDM19-0005, based on the attached draft findings and subject to the attached draft Conditions of Approval.
Attachments
1. Design Review Board Comment Letter, dated May 19. 2020
Associated Resolutions
1. Draft CEQA Resolution (20-862)
A. Final EIR (FEIR)
B. CEQA Findings & Statement of Overriding Consideration (SOC)
C. Mitigation Monitoring and Reporting Program (MMRP)
D. Draft EIR (DEIR)
2. Draft Entitlements Resolution (XX-XX)
A. Draft Conditions of Approval
B. Preliminary TDM Plan
C. 499 Forbes Boulevard Planning Application Project Plans, dated October 23, 2020