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PUBLIC WORKSHOP - TRA VIGNE MIXED USE DEVELOPMENT PROJECT
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RECOMMENDATION
Information Only
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SUMMARY
This informational report is being provided in advance of scheduling and holding a public hearing before the Planning Commission to consider development applications submitted for the Tra Vigne Mixed Use Development Project. Project applications include a General Plan amendment, Annexation and prezoning, Amendments to the Eight Mile and West Lane Precise Road Plans, Tentative Maps for subdivision of the west and east sides of the project site, and Development Agreements.
Chapter 16.128 of the Development Code provides procedures for and regulation of Development Agreements. In brief, a Development Agreement is a legal binding contract between the City and a property developer that specifies the agreed terms under which real property will be developed. The terms are negotiated between the City and developer and each party receives a benefit. Developers may request that fees and regulations be locked in place as of the date of execution along with other favorable allowances. The City may request certain provisions or project enhancements that benefit the City beyond development of the Project.
If mutually satisfactory terms are not reached, developers may file a Vesting Tentative Map in accordance with Development Code Section 16.188.080. A Vesting Tentative Map provides “vested rights” which provide a level of certainty for the developer by locking in the City’s regulations and freezing fees at the time of map approval.
Staff will present aspects of the specific applications connected with this project to familiarize the Planning Commission and general public with the proposed project elements, applications types that are filed for site development, and respond to questions.
DISCUSSION
Project Location
The proposed Tra Vigne mixed use development project (Project) is located in the northeastern portion of the City of Stockton Metropolitan Area, within the unincorporated area of San Joaquin County. The Project area is adjacent to the City of Stockton limits to the east, within the Stockton Sphere of Influence (SOI) and within the City of Stockton Urban Services Boundary.
The site is immediately southeast of the intersection of West Lane and Eight Mile Road. The Project site is bounded on the north and west by Eight Mile Road and West Lane on the east by the Union Pacific Railroad (UPRR), and on the south by Bear Creek. (See Attachment A - Project Location Map)
Existing Uses
The Project site consists largely of active agricultural fields and includes 15.57 acres of industrial uses in the north-central portion of the Project site; uses within these industrial lots include Pacific Bell and Bragg Investment Company.
Surrounding Uses
Uses immediately adjacent to the Project site include a truck and trailer repair service establishment to the northwest across Eight Mile Road. Other existing uses north of the Project site include large-lot single family residences and agricultural land. Immediately to the east of the Project site are industrial land uses, including several large warehouses and a large storage lot. Farmland lies immediately west and south of the Project site. Other nearby uses include Ronald McNair High School located southwest of the Project site, across West Lane.
General Plan
The Envision Stockton 2040 General Plan land use designations for the Project site are shown at Attachment B - General Plan Map and are summarized as follows:
Low Density Residential (LDR): Allowed uses: single-family residential units, duplexes, triplexes, semi-detached patio-homes, townhomes, public and quasi-public uses, second units, and other similar and compatible uses.
• Maximum dwelling units per gross acre: 6.1 du/ac.
• Maximum dwelling units per net acre: 8.7 du/ac.
High Density Residential (HDR): Allowed uses: Multifamily residential units, apartments, dormitories, group homes, guest homes, public and quasi-public uses, and other similar and compatible uses.
• Dwelling units: 13.2 to 24 dwelling units per acre. Maximum FAR of 0.3.
Commercial (C): Allowed uses: a wide variety of retail, service, and commercial recreational uses, business, medical and professional offices, residential uses, public and quasi-public uses and other similar and compatible uses. Community or regional commercial centers as well as freestanding commercial establishments are permitted.
• Maximum floor area ratio (FAR): 0.3,
• Dwelling units: 13.2 to 24 dwelling units per acre. Maximum FAR of 0.3.
Industrial (I): Allowed uses: a wide variety of industrial uses including uses with nuisance or hazardous characteristics, warehousing, construction contractors, light manufacturing, offices, retail sales, service businesses, public and quasi-public uses, and other similar and compatible uses. Residential uses are prohibited.
• Maximum FAR: 0.6
Additionally, the Project proposes an amendment to the Circulation Element, removing a planned bridge crossing of Bear Creek.
Applicant’s Project Objectives
The Tra Vigne Development Project application identifies the following objectives:
• Commercial: To establish a commercial site that maximizes the visual exposure of Eight Mile Road and West Lane to capitalize on commuter traffic, while also catering to the neighborhood needs of the residents within the development.
• Low and High Density Residential: Provide low- and high-density residential housing in accordance with the General Plan, while ensuring flexibility in the lot and housing types to accommodate market demands.
• School: Provide a site that could accommodate a K-8 school in the event that the School District desires to build a school within the Project site. Alternatively, if the School District chooses not to build a school within the Project site, ensure that there is a design alternative that would accommodate low density residential housing.
• Industrial: Retain the existing industrial uses within the Project site.
• Phasing: Establish a logical phasing plan designed to ensure that each phase of development would include necessary public improvements required to meet city standards.
Development Plan Details
The Project site is designed with two sub-planning areas (See Attachment C - Proposed Development Plan):
Tra Vigne East: The proposed Project includes a tentative map that would subdivide the Tra Vigne East property (approximately 121 acres) consistent with the proposed land uses. Tra Vigne East proposes a tentative map, with 418 units to be developed. Residential lot sizes in the tentative map primarily range from 5,000 to 6,000 sf. Within this portion of the Project site, 15.57 acres of existing industrial land would be retained.
Tra Vigne West: The proposed Project includes a tentative map that would subdivide the Tra Vigne West property consistent with the proposed land uses. The approximately 205-acre Tra Vigne West includes a detailed lot layout of 655 single family residential units. Residential lot sizes in the tentative map primarily range from 5,000 to 6,000 sf. Additionally, the Tra Vigne West site would include up to 340 high density residential units on 11.7 acres to the east of the proposed commercial area.
The proposed Project establishes a site for a 14.7-acre K-8 school to be developed by the Lodi Unified School District (LUSD). The development of a K-8 school at this site is the discretionary decision of the LUSD. If the LUSD decides to not pursue building a school at this site, then the site would be developed for residential in accordance with the General Plan land use designation. Construction of homes in this location would increase by 90 the number of LDR units.
The 10.5-acre commercial area in the northwest portion of the Project site could include a range of commercial uses, with the applicant indicating a possible 70,000-sf grocery store, 22,000 sf of retail shops, a 3,500-sf quick service restaurant, a 3,500-sf convenience store with attached fueling facility, and a 2,500-sf wine tasting room.
Project Phasing
Residential lots within the Project site are proposed to be developed in several phases. The proposed phasing indicates the first stages of development would occur in Tra Vigne West, with initial phases located along the southwest portion of the Project site along West Lane and would then develop generally towards the east and north in up to 12 separate phases. Tra Vigne East is anticipated to be developed following Tra Vigne West, in up to four separate phases. Collective development of the Tra Vigne Project may take over 20 years and vary in part on prevailing market conditions.
Parks and Open Space
Approximately 9.5 acres of traditional park space is proposed for Tra Vigne West. Two park areas are proposed within Tra Vigne West including a centrally located 5.8-acre park and a 3.7-acre park in the southwest corner of the Tra Vigne West site. Additionally, a 6.24-acre detention basin area would be located in the southwestern portion of the Project site, adjacent to the 3.7-acre park.
Tra Vigne East includes plans for an additional 5.57 acres of traditional park space. One traditional park area, totaling 5.57 acres, would be in the southern portion of Tra Vigne East, adjacent to the Bear Creek open space area. Additionally, a 3.75-acre detention basin area would be in the southwestern portion of the Tra Vigne East within the Project site.
In addition to dedicated parkland within the Project site, 20.36 acres of non-traditional park/open space areas (13.75 acres at Tra Vigne West, and 6.61 acres at Tra Vigne East), primarily planned along the Bear Creek corridor.
General Plan Amendments
The proposed Project would require a City of Stockton General Plan Amendment to the Land Use Element to change land uses on the Project site to match the Project land use plan. Changes to the Land Use Element would include maintaining approximately 260 acres of LDR uses; maintaining approximately 15.6 acres of IL uses; changing approximately 1.5 acres of LDR to CG uses; changing approximately 1.03 acres of LDR to HDR uses; and changing 20.3 acres of LDR to Open Space along Bear Creek.
Additionally, changes to the Circulation Element are proposed which would include the removal of a planned bridge crossing over Bear Creek associated with what is shown as an extension of Marlette Road from the west through the Project site and ultimately traveling eastward through the Bear Creek South Project area to Holman Road.
Annexation
The Project site is within the City of Stockton’s SOI. The proposed Project would result in the annexation of the Project site to the City of Stockton, along with the roadway right-of-way for the adjoining Eight Mile Road and West Lane. The total annexation area would be approximately 341 acres. The proposed Project includes property owner-initiated annexation for all parcels except for APN 120-02-13 (Pacific Bell) and 120-02-14 (Bragg Investment Company).
Prezoning
The Project area is currently within the jurisdiction of San Joaquin County. Current County zoning for all parcels is I-G, I-L, and AU-20. The San Joaquin County Local Agency Formation Commission (LAFCo) will require the Project site to be pre-zoned by the City of Stockton in conjunction with the proposed annexation.
The City’s pre-zoning will include the following zoning designations: Residential, Low Density (RL), Residential, High Density (RH), Industrial, Limited (IL), Commercial, General (CG), and Open Space (OS). The pre-zoning would go into effect upon completion of the annexation process.
Utilities and Infrastructure Improvements
Construction of both onsite and offsite infrastructure improvements would be required to accommodate development of the Project.
Roadways: The Project would be required to make improvements to both Eight Mile Road and West Lane, including construction of frontage improvements. Mitigation measures from the Project’s Environmental Impact Report also will require improvements to the intersection of Lower Sacramento Road/Eight Mile Road, and at Morada Lane/West Lane. Council adopted Precise Road Plans are in place for West Lane and Eight Mile Road to specify allowances for driveway and intersection access. Amendments to both plans are requested to add new street intersections and driveway access for the Tra Vigne Project. Traffic signals would be installed or improved at the intersections of West Lane and “Road B” of the Tra Vigne West Project, and along Eight Mile Road at the intersections of West Lane, “Road C” of the Tra Vigne West Project, and Leech Road. Interior street improvements would also be required, with roadways built to city standards.
Water System: Development areas proposed by the Project would be served by a new potable water distribution system. The water system would consist of 12- and 24-inch water mains along West Lane and Eight Mile Road, and a looped network of 18-, 16-, and 12-inch lines located within the Project site. Local service lines, eight inches in diameter or larger, would extend along proposed interior streets. The Project would include the dedication of a new City potable water well to be located at the southwest corner of the site, adjacent to Bear Creek and West Lane. A Water Supply Assessment for the Project has been completed that determined water supply demands of the Project can be met.
Wastewater System: Wastewater services would be provided by existing and planned City of Stockton collection and treatment system. Wastewater treatment would be provided at the City’s existing Regional Wastewater Control Facility (RWCF). Wastewater collection would be provided by the City’s existing Wastewater Collection System.
A second element of the Project would involve approximately 3,000 LF of 24-inch sewer main in West Lane, and approximately 3,500 LF of 24-inch sewer main along the north side of Bear Creek to connect to the existing 48-inch trunk sewer main northwest of Ronald McNair High School.
Storm Drainage: Development of the proposed Project would include construction of a new storm drainage system, including a drainage collection system that would have 12- to 60-inch diameter pipes, and two detention basins (one in the southwestern corner of Tra Vigne West, and one at the southwestern corner of Tra Vigne East). A pump station would be located at the Tra Vigne West detention basin.
The City will require that a maintenance entity be established to provide for the operation, maintenance, and replacement costs of the detention pond system and other water quality features of the Project.
The Project would incorporate design features that would divert storm water to the groundwater system and/or detain runoff before it reaches the collection system. These design features would include measures also described as Low Impact Development (LID) and Volume Reduction Measures, such as grassy swales and porous pavement.
Utilities: Electrical, gas, phone, cable and related internet services would be extended to all portions of the Project site from existing facilities located along West Lane and Eight Mile Road, or other utility systems in the Project area. Proposed utilities would be located within public utility easements to be dedicated along street frontages. Utility improvements would be installed in conjunction with planned street improvements. Existing electrical distribution, phone and cable lines along the West Lane and Eight Mile Road frontages of the Project site would be undergrounded or relocated in conjunction with required street improvements.
Development Agreements
The proposed Project includes Development Agreements (DAs) for both Tra Vigne East and Tra Vigne West. The DA’s would be used to establish City/applicant agreements related to how the Project would be built and operated over time, and include provisions addressing Project phasing, construction of specific infrastructure improvements, financing responsibilities and fee payments, as well as various legal and procedural requirements.
Environmental Analysis
As noted above, a Draft EIR has been prepared for the Project, in accordance with the California Environmental Quality Act (CEQA). A 45-day public review period for the Draft EIR was commenced on April 12, 2018 and ended on May 29, 2018. The Draft EIR may be referenced at the following weblink:
http://www.stocktonca.gov/files/TraVigneDraft_EIR_Vol_I.pdf
The Draft EIR identified potentially significant environmental impacts which could occur from development of the Project, and, where feasible, application of mitigation measures that would reduce the impacts to a level of less than significant.
Additionally, impacts have been identified where mitigation measures were not feasible, resulting in the creation of potentially significant environmental impacts, including in the areas of aesthetics, agricultural resources, air quality, and greenhouse gases and climate change. For these areas, a Statement of Overriding Considerations is necessary, to address Project benefits that would be considered when evaluating the environmental impacts from development. These will be addressed in the Final EIR along with responses to comments received during the public review period and identification of feasible mitigation measures for all potentially significant effects to less than significant levels.
Public Notice
Mailed notice for the Planning Commission workshop was sent to all property owners within a 300-foot radius, ten days prior to the January 23, 2020 meeting.
Attachment A - Location Map
Attachment B - General Plan Land Use
Attachment C - Proposed Development Plan
This staff report was prepared by Michael McDowell, Deputy Community Development Director, michael.mcdowell@stocktonca.gov (209) 937-8690.