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Location: |
Jack London Square (area bound by
the Oakland Estuary, the Embarcadero, Clay Street and Alice Street, plus one
block bound by the Embarcadero, Harrison Street, 2nd Street and
Alice Street) |
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Proposal: |
Preliminary Design Review of the Jack London Square Redevelopment Project. The project would intensify the retail, dining, and entertainment uses within Jack London Square, resulting in approximately over one million new net gross square-feet. To accommodate the intensification of existing uses at Jack London Square, demolition of approximately 161,800 square-feet of existing commercial space is also proposed. |
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Applicant: |
Jack London Square Partners, LLC (Stuart Rickard, Project Manager) |
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Owner: |
Port of Oakland. |
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Case File Number: |
ER03-0004
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General
Plan: |
Mixed Use Waterfront/Estuary
Plan Area |
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Zoning: |
C-45 Community Shopping
Commercial Zone; R-80 High-Rise Apartment Residential Zone; and M-20 Light
Industrial Zone |
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Environmental
Determination: |
A draft environmental impact
report has been completed. The
public comment period ends on October 24, 2003 at 4:00 pm. |
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Service Delivery District: |
1-West Oakland |
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City Council District: |
2 |
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Action
to be Taken: |
No action will be taken;
discussion only of Design Review issues. |
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For further information: |
Contact Development
Director Claudia Cappio at 510-238-2229 or Contract Planner Diane Henderson at 415-457-0525 |
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In November, 2002, Jack London Square Partners filed
an environmental review application to begin review and consideration of the
redevelopment of Jack London Square.
The project site is located primarily on the estuary side of the
Embarcadero between Clay Street and Alice Street in downtown Oakland, south of
Interstate 880 (I-880). The preliminary
proposal that was submitted on November 19, 2002 intensifies the retail,
dining, and entertainment uses within Jack London Square, resulting in
approximately over one million new net square-feet of development. Approximately 161,800 square-feet of
existing commercial space would be demolished.
As part of the project, the applicant has requested that a Planned Unit
Development (PUD) and Development Agreement (DA) be considered by the City,
along with a request to change the entire land area for the project to the C-45
(Community Commercial) and conditional use permits for certain uses and
development standards.
The City determined
that an environmental impact report (EIR) is required. The Draft EIR was published on September 8,
2003, beginning a 46-day public review period which will end on October 24,
2003. No land use entitlements for the
project can be considered for approval prior to completion of the EIR
process.
The purpose of the
Design Review Committee meeting is to review and comment on the desgn aspects
of the project. This first meeting will
focus on general site planning; the next Design Review meeting will focus on
individual building design. The
Commission’s recommendations will be compiled and forwarded to the Planning
Commission.
The
proposed project would redevelop nine specific sites within Jack London
Square. The project would intensify
existing office, retail, and dining establishments by providing new
construction on nine development areas (labeled Site C, Site D, Pavilion 2, Water
I Expansion, 66 Franklin, Site F1, Site F2, and Site F3) as well as add retail
and possibly residential uses on an adjacent full block (labeled Site G) on the
project area site plan (attached).
The
Draft Environmental Impact Report (DEIR) contains a detailed analysis of 1.2
million square feet of mixed use development.
In response to the information and analysis in the DEIR, public comments
and Staff comments, the Applicant has now submitted a revised mitigated plan
showing a more detailed design scheme and site plan than the plan analyzed in
the DEIR. The key differences between
the initial submittal and the revised plan are a reduction in the mass, bulk
and total square footage of the proposed project.
The
mitigated plan has been designed to follow the Modified Development Alternative
of the DEIR. Specifically, the
mitigated plan would result in approximately 1 million new net gross square
feet and would demolish up to 131,800 square feet of existing space. The reduction in office space would be reflected
with the removal of the third floor on the proposed building for Site C, making
the building a two-story structure. The
reduction in retail space would occur by not constructing the proposed Pavilion
2 and instead providing retail extensions and/or kiosks within the existing
plaza to the south of the Barnes and Noble bookstore. Retail would be further reduced with a change in the building
footprint of Site F1, around Heinold’s First and Last Chance Saloon.
Office
uses would be located within the development on Site C, Site D, 66 Franklin,
Site F1, and Site F2. The movie theatre
would be located on Site D, and the 250-room hotel would be located on Site
F3. Retail and restaurant uses would be
integrated into every development except on Site G, which would contain
residential uses above a parking structure containing about 743 spaces and a
supermarket on the ground floor. The
remaining new parking (550 spaces) would be integrated into an office and
retail development on Site F2.
The
proposed Site F1 building, which would contain office and retail uses, has been
redesigned to pull the proposed Harvest Hall structure away from Heinold’s
First and Last Chance Saloon, an historic resource. Although still incorporated into the design of the building on
Site F1, the physical space around Heinold’s First and Last Chance Saloon would
be increased such that the structure would be discerned separately. The Site F1 building would incorporate an
open, glassy atrium space and be transparent on the south and west facades of
the historic resource. The atrium roof
would extend above the saloon’s roof, leaving a large open area around the
small structure, although it would still be surrounded on three sides and
overhead with the new Harvest Hall.
The
project would be connected into the existing utility infrastructure. The project would also include a peak-hour
shuttle between the project area and the Oakland 12th Street BART
Station.
A
comparison of the November 2002 submittal and the mitigated plan submitted in
September 2003 is provided in the table below.
Comparison of
the November 2002 Submittal and September 2003 Revised Submittal
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November
2002 Submittal |
September
2003 Revised Submittal |
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Approximately up to
1.2 million net new gross square feet
of office, retail and restaurant space, hotel, conference/banquet space
theater, residential and supermarket uses as well as associated parking. |
Approximately up to
one million net new gross square feet
of office, retail and restaurant space, hotel, conference/banquet space
theater, residential and supermarket uses as well as associated parking. |
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Approximately
380,300 gross square feet of office. |
Approximately
364,300 gross square feet of office (a
reduction of approximately 16,000 square feet). |
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Approximately 404,000
gross square feet of retail and restaurant. |
Approximately
320,400 gross square feet of retail and restaurant (a reduction of 84,000 square feet). |
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Approximately
30,000 gross square feet of conference space in the hotel. |
Approximately
15,000 gross square feet of conference space in the hotel (a reduction of approximately 15,000
square feet). |
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250-room hotel. |
Same as November
2002 submittal. |
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1,700-seat theater. |
Same as November
2002 submittal. |
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40,000 gross square
feet of supermarket space. |
Same as November
2002 submittal. |
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120 residential
units. |
Same as November
2002 submittal. |
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1,293 parking
spaces. |
Same as November
2002 submittal. |
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Demolition of
approximately 161,800 square feet as follows: ·
24,000 sq.
ft. at Site D ·
14,000 sq.
ft. at Water Street 1 ·
93,800 sq.
ft. at 66 Franklin Street ·
30,000 sq.
ft. at Pavilion 2 |
Demolition of
approximately 131,800 square feet (approximately
30,000 square feet less than November 2002 submittal) as follows: ·
24,000 sq.
ft. at Site D ·
14,000 sq.
ft. at Water Street 1 ·
93,800 sq.
ft. at 66 Franklin Street ·
Pavilion 2 is retained. |
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Building Massing: ·
Site
C: 3 levels ·
Site
D: 7 levels ·
Pavilion
2: 2 levels ·
Water
I: 2 levels ·
66
Franklin: 6 levels ·
Site
F1: 9 levels ·
Site
F2: 8 levels ·
Site
F3: 13 levels ·
Site
G: 8 levels |
Building Massing: ·
Site
C: 2 levels (a reduction of one level)
·
Site
D: same as 11/02 submittal ·
Pavilion
2: possible kiosks instead of new
construction ·
Water
I: same as 11/02 submittal ·
66
Franklin: same as 11/02 submittal ·
Site
F1: same as 11/02 submittal ·
Site
F2: same as 11/02 submittal ·
Site
F3: same as 11/02 submittal ·
Site G: same as 11/02
submittal |
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Heinhold’s First
and Last Chance Saloon would be incorporated into the design of the building
on Site F1. |
Heinhold’s First
and Last Chance Saloon would still be incorporated into the design of the
building, but physical space would be provided such that the resource could
be discerned as a separate structure. |
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Details of project
circulation are conceptual; access points for vehicles and pedestrians unknown. |
More defined
project circulation detailed on plans; access points for vehicles and
pedestrians identified. |
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Landscaping plan
very conceptual. |
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Water features and
public art unknown. |
Conceptual water
features and public art identified on plans. |
The
proposed project would create approximately 40,000 square feet of new,
permanent open space adjacent to the estuary to the west of the hotel (Site
F3). The Meadow Green (Site C) would be
reconfigured by removing the existing parking spaces so that open space is
immediately adjacent to the estuary shore.
The building on Site C would be designed such that a public viewing and
open area would wrap the building from the terminus of Washington Street and
overlook the Meadow Green and estuary.
Water
Street, the main pedestrian walkway through Jack London Square, would be
extended to the east through Sites F1, F2, and F-3 and would connect to a
public access path along the estuary shore at The Landing development, an
existing residential development immediately east of the project area. The plaza area at the terminus of Broadway
near Water Street and the Scott’s Restaurant entrance would be improved for
pedestrian circulation and activity by relocating the valet parking service
closer to The Embarcadero.
The proposed project would also maintain the
historic city street grid system, such that north/south view corridors along
Clay, Washington, Broadway, Franklin, Webster, Harrison, and Alice Streets
would be maintained through Jack London Square to the estuary.
Construction
Schedule
The project is currently envisioned to be
implemented in two phases: the first phase is expected to start construction within 6 months of project
approvals (about mid-2004) with concurrent development on Site C, Site D, Site
F1, Site F3, and Site G. This would
result in approximately 885,000 gsf (excluding parking) for occupancy by the
end of 2006. The second phase of the
proposed project, development on Pavilion 2 (possibly kiosks), Water I
Expansion, 66 Franklin, and Site F2 would likely be constructed in stages over
subsequent years with occupancy by 2020 or before.
GENERAL PLAN AND ZONING DESIGNATIONS AND POLICIES
The project site is
currently in a General Plan land use classification of Mixed Use
Waterfront/Estuary Plan Area per the Land Use and Transportation Element
(LUTE). Per the Estuary Policy Plan,
the project site is located in three land use classifications: Retail, Dining and
Entertainment (RDE-1); Waterfront Commercial-Recreation (WCR-1); and Mixed Use
District (MUD). The project site is
currently zoned C-45 Community Shopping Commercial, R-80 High Density
Residential, and M-20 Light Industrial; the proposed application includes a
request to rezone the entire site to C-45.
The General Plan
Land Use and Transportation Element (LUTE) includes the following Mixed Use
Waterfront objectives and policies:
Objective W8 Provide a comprehensive planning framework,
for the Jack London Square, the Embarcadero Cove, and the Fruitvale Waterfront
Area. In addition to these general
objectives and policies, the Estuary Plan to be adopted as part of the General
Plan will provide additional detail.
Objective W9 Develop and encourage mixed use areas along
the estuary shoreline, while enhancing and promoting economic opportunities in
Oakland which take advantage of the waterfront’s unique character to attract
public uses and activities.
Policy W9.1 Defining Mixed-use Along the Estuary. Mixed use areas are areas or developments
where residential uses are integrated with other non-residential uses such as
commercial, recreation, and industrial areas.
Live/work units are appropriate mixed use developments and unique
residential opportunities for the waterfront.
Policy W9.2 Encouraging Mixed Land Uses Along the
Estuary. Mixed land uses should be
encouraged in areas where the integration of housing with other compatible uses
will add to the overall environmental, social, and economic vitality of the
waterfront, and will create a safe environment.
Policy W9.3 Defining Development Characteristics Along
the Estuary. Mixed use and residential
developments should be sensitive to adjacent properties and designed to enhance
the existing and unique characteristics of the waterfront and immediate
surroundings. Individual properties
should be designed to encourage and provide sufficient public access to the
waterfront and designed to avoid the feeling of “gated” or private
communities.
Policy W9.5 Defining Development Intensity Along the
Estuary. Development along the estuary
shore should reflect higher intensity mixed use activities and areas at Jack
London Square. The balance of
development along the estuary should be of lower intensity than at Jack London
Square; however, higher density nodes of development may be appropriate at key
locations. Access to transportation
corridors and transit should be provided.
The development intensity should significantly decrease adjacent to
Martin Luther King Jr. Regional Shoreline.
Policy W9.6 Developing Housing Along the Estuary: Quality, Type and Services. Housing quality, type and services should be
developed in a manner that is consistent with the policies and requirements of:
future detailed plans created for the Waterfront; the Housing Element of the
General Plan; the City’s Building Code; and/or other appropriate codes or
regulations.
Policy W9.7 Supporting Existing Residential Communities
Along the Estuary. The existing
residential communities within and adjacent to the waterfront should be
supported and enhanced.
Policy W9.8 Taking Advantage of the Unique Waterfront
Along the Estuary. Programmed events
and activities that take advantage of the unique waterfront setting should be
encouraged. Appropriately scaled
conference and convention facilities, hotels, etc., and businesses that benefit
from the close proximity to the seaport and airport should be encouraged and be
consistent with City economic development strategies. These uses may include retail, restaurants, destination
entertainment, waterfront related commercial and recreational services (boat
tours, water taxis, etc.)
Policy W10.2 Defining Jack London Square Land Uses. The area should reflect its current dominant
use of commercial and entertainment uses and activities such as restaurants,
retail, theater, hotel, farmers market, concert series, boat shows, and other
entertainment and cultural activities.
Other appropriate uses include office, live/work, and waterfront density
residential development as described in the Land Use Classifications in Chapter
3.
Policy W10.3 Defining Jack London Square Development
Intensity and Characteristics.
Development in this area should be high intensity commercial,
entertainment, and cultural activities which capitalize on proximity to
downtown, existing area of bigger establishments retailing durable goods,
existing produce market area with offices and live/work spaces, and proximity
to ferry and AMTRAK stations.
Development must be sensitive to open, public gathering spaces such as
boardwalks, open plazas, outside eating areas for restaurants, etc. Properties along the shoreline should be
particularly sensitive to public uses and access due to the unique potential
for direct water access and viewing opportunities of the estuary, San Francisco
Bay, City of Alameda, San Francisco skyline, and Port of Oakland shipping
activity.
Policy W10.4 Defining Jack London Square Mixed Use
Characteristics. The character of this
area should be mixed use. Higher
density housing, single use housing, and live/work lofts and units are
appropriate within the area and developments.
Mixed use should be senseitive to the surrounding character and design
of existing buildings as well as the desire to have the shoreline fully
accessible to the public.
Policy W10.6 Specifying Public Access and Linkages. Public access along the estuary should be
facilitated by commercial and active recreational uses. It is important to have physical access to
and between uses and activities along the waterfront, particularly along the
shoreline. Opportunities for landscaped
and signed linkages along Broadway, Webster, Harrison, and Oak streets, as well
as the Lake Merritt Channel, should be developed for (land and water) auto,
bicycle, pedestrian, and public transportation.
Policy W10.7 Jack London Square Area Design
Criteria. Developments in this area
should be designed to enhance direct access to and along the water’s edge,
maximize waterfront views and vistas, and make inviting public pedestrian
access and spaces. Development and
amenities must be sensitive to the surrounding character of pedestrian-oriented
activities with focus on cultural and retail entertainment. Traditional and historic buildings and
structures are character defining and should be preserved, adapted for new
uses, or integrated into new development, where feasible.
The Estuary Policy
Plan (“Estuary Plan”), adopted in June 1999 as part of the General Plan
includes numerous objectives and policies that apply to the proposed
development. The project area is known
as the “Jack London Phase II Sites in the Estuary Policy Plan. The following are pertinent goals and
policies specific to the Jack London District, as discussed in the Estuary
Plan:
Policy JL-1 Reinforce retail, dining and entertainment
uses along the waterfront, and extend these uses along Broadway to create a
regional entertainment destination.
Policy JL-1.1 Expand commercial uses along the entire
five-block frontage of Lower Broadway.
Policy JL-1.2 Intensify Phase I of Jack London Square.
Policy JL-2 Encourage the redevelopment of Phase II of
Jack London Square between Webster and Alice streets.
Policy Jl-2.1 Encourage the redevelopment of Phase II of
Jack London Square for commercial-recreational and waterfront-oriented uses.
Policy JL-5 In areas outside the existing boundaries of
the historic district (API) and east to the Lake Merritt Channel, encourage the
development of a mix of uses, including housing, within a context of commercial,
light industrial/manufacturing uses, and ancillary parking.
In the time since
the initial project submittal in November 2002, Staff has worked with the
Project Applicant and consultants to refine and improve the project. Over the course of several months Staff has
met with the Applicant to review refined development plans and concepts. There have been five primary areas of focus:
A. Historic resources;
B. Site access and circulation (vehicular and
pedestrian);
C. Open space, landscaping, pedestrian pathways
and linkages;
D. Building mass, appearance, height and form;
and
E. Streetscape and pedestrian scale.
Each of these issues
is interrelated with one another and they are, to various degrees, reflected in
the revised plan now before the Design Review Committee. The following section of the report outlines
the major design issues that Staff views as important for the Planning
Commission to consider as the project review moves forward. Commissioners may also highlight other
issues that should be considered and addressed in more detail.
A. Historic
Resources
The
revised project redesigns the building for Site F1 around Heinold’s First and
Last Chance Saloon such that it would provide a more open and transparent
atrium around the historic resource than the November 2002 submittal. Heinold’s First and Last Chance Saloon would
be discerned more clearly as a separate structure since there would be physical
space between the historic resource and the new
building. However, even with these
conceptual design revisions, there are important design details that must be
carefully considered, including how the Heinold’s building would meet the new
structure, degree of setback, roof proportions, and design of ground
treatments. In addition, the revised
project would include demolition of the triangular portion of Heinold’s on the
north side of the building. This
modification would still be deemed a significant and unavoidable impact.
ISSUE: Heinold’s First and Last Chance Saloon is an
historic resource and should be appropriately preserved.
(Staff: The
revised project redesigns the building for Site F1 around Heinold’s First and
Last Chance Saloon such that it would provide a more open and transparent atrium
around the historic resource than the November 2002 submittal. The fundamental issue for the Commission to
consider is that there is likely a degree of setback and transition from the
historic resource to avoid or lessen the degree of significant impact. It is important to note that the Commission
would have to find this degree of setback to be physically infeasible to
incorporate into the project. At this
point, staff believes that it is feasible and the impact can be mitigated to a
less than significant level, with further revision to the plans. What does the Commission believe is an
adequate degree of setback and transition to preserve the physical and cultural
integrity of this historic resource?)
B. Site Access an