4.2 Visual Quality and ShadoThe ABSMC Summit Campus covers 20.40 acres and comprises three major...

4. Environmental Setting, Impacts, Standard Conditions of Approval, and Mitigation Measures

ABSMC Summit Campus Seismic Upgrade and 4.2-1 ESA / 207376 Master Plan Project Draft EIR December 2009

4.2 Visual Quality and Shadow This section describes the existing visual conditions for the project site and vicinity and analyzes the potential for the project to affect the visual character of the project area, views from surrounding public areas, and potential effects associated with light, glare, and shadows. Potential impacts are discussed and evaluated, and appropriate standard conditions of approval and/or mitigation measures are identified, as necessary. Pursuant to the City’s amendment to the Oakland General Plan (City of Oakland, 2005), as well as Section 15358(b) of the CEQA Guidelines, mitigation measures are proposed only to address physical impacts that may result from the project.

4.2.1 Environmental Setting

Visual Character This assessment of visual quality focuses on the built environment. “Before” and “after” photographs and descriptions of the built environment on and around the project site are included in this section. Figures 4.2-2 through 4.2-6 represent the project site before and after Phase 1 and Future Phases of the Master Plan. Figures 4.2-7 and 4.2-8 are cumulative photo-simulations; they represent the project site before and after the building of the entire proposed project, as well as the buildout of other nearby reasonably foreseeable future projects in 2030.

The following summary describes the built environment on the project site and in the project site vicinity. Site descriptions are provided in Chapter 3, Project Description and Section 4.1, Land Use, Plans and Policies, which focuses on existing land uses. The visual setting of the project area reflects the characteristics of the project area’s existing uses, street grids, and natural and manmade features, including the elevation of the Pill Hill neighborhood above surrounding streets.

Project Vicinity The project site is located in a developed urban area, between the Telegraph Avenue commercial corridor and Broadway’s Auto Row, with the MacArthur Expressway/I-580 one block to the north. The general project vicinity is fully urbanized and relatively dense setting characterized by a mix of commercial and office buildings that vary in terms of age, architectural style and height. Several large parking lots associated with auto dealerships, as well as a mix of residential properties and urban parks, exist in the area.

This area is visually dominated by the gray environment of roads, concrete and asphalt.

G F

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Alta Bates Summit Medical Center (ABSMC) Summit Campus Seismic Upgrade and Master Plan EIR . 207376

Figure 4.2-1Photo-Simulations Key Map

SOURCE: Devenney Group

VIEWPOINTS

F - 580 WB (KAISER V.P. #1)

A - BROADWAY / HAWTHORNE

B - TELEGRAPH / HAWTHORNE

C - TELEGRAPH / 31ST

D - BROADWAY / 30TH

E - SUMMIT / 30TH

NEW BUILDINGS

1 - PATIENT TOWER

2 - GARAGE

3 - MOB

4 - COLLEGE EXPANSION

G - 980 NB/24EB (SIMILAR TO MAC BART)

4.2-2

Existing View Looking West Along Hawthorne Avenue

Proposed View Looking West Along Hawthorne Avenue

Alta Bates Summit Medical Center (ABSMC) Summit Campus Seismic Upgrade and Master Plan EIR. 207376

Figure 4.2-2Viewpoint A: Broadway at Hawthorne Avenue


Phase IPatient Care

Pavilion

4.2-3


Figure 4.2-3Viewpoint B: Telegraph Avenue at Hawthorne Avenue


Phase IParking Garage

Phase IPatient Care Pavilion

Future PhaseS.M.U. Building

Existing View Looking East Along Hawthorne Avenue

Proposed View Looking East Along Hawthorne Avenue

4.2-4

Existing View Looking Northeast

Proposed View Looking Northeast


Figure 4.2-4Viewpoint C: Telegraph Avenue at 31st Street


Phase I Garageand Future Phase

Fitness Center

Phase IPatient Care

Pavilion

4.2-5

Existing View Looking Northwest

Proposed View Looking Northwest


Figure 4.2-5Viewpoint D: Broadway at 30th Street



4.2-6

Existing View Looking North Along Summit Street

Proposed View Looking North Along Summit Street


Figure 4.2-6Viewpoint E: Summit Street at 30th Street



FuturePhase M.O.B

4.2-7

Visual simulation of proposed project with cumulative development

Existing view from I-580 looking south


Figure 4.2-7Viewpoint F: Cumulative View from I-580

SOURCE: Environmental Vision

Broadway/Valdez Specific Plan

Phase 1 Patient Care Pavilion

4.2-8

Visual simulation of proposed project with cumulative development

Existing view from I-980 looking east


Figure 4.2-8Viewpoint G: Cumulative View from I-980


Kaiser OaklandMedical Center


Phase I Garagewith Future PhaseFitness Center on

Top FloorFuture PhaseSMU Building

Future PhaseMOB

4.2-9

4. Environmental Setting, Impacts, Standard Conditions of Approval, and Mitigation Measures 4.2 Visual Quality and Shadow


East of the Project Site Broadway, a six-lane roadway with a landscaped median, is one block (0.1 mile) east of the project site. Along Broadway, between Grand Avenue and 42nd Street, is Oakland’s Broadway Auto Row, a two-mile stretch of used and new car dealer facilities. This area includes large one- and two-story showrooms, surface parking lots for the auto dealerships, and one- and two-story repair shops. This segment of Broadway is interspersed with other uses, including a grocery store, two- to three-story office buildings, and retail spaces. Farther east are a mix of apartment and detached residential properties two to four stories in height.

South of the Project Site Immediately south of the project site is an area of mixed uses, including residential, commercial, and light manufacturing, including portions of Auto Row. Buildings are primarily between two and four stories tall. At 2619 Broadway, 0.25 mile south of the project site, is the First Presbyterian Church of Oakland, a neo-Gothic cathedral and landmark in the neighborhood. Farther south, from directly across 27th Street to downtown (0.25 mile to 0.75 mile from the project site), light industrial uses and surface parking lots are the primary uses, primarily between one and four stories. Farther south is the downtown area, which contains primarily mid-rise and high-rise commercial and civic structures.

West of the Project Site The visual character of the Telegraph Avenue corridor, immediately west of the project site, is urban. This area consists of low- to mid-rise commercial and institutional structures, apartment and detached residential buildings, and surface parking lots. Farther west, 0.25 mile from the project site, is the Grove Shafter Freeway / I-980, which creates a manmade barrier between properties across the freeway and the Telegraph Avenue corridor and nearby residential properties. The I-580/I-980/ SR 24 interchange rises 0.15 miles to the northwest of the project site, and the interchange ramps are dominant visual features in this area.

North of the Project Site Directly north of the project site is a mix of apartment and detached residential buildings, as well as commercial retail, institutional, and surface parking uses. Immediately north of these blocks is I-580, which creates a manmade barrier between these uses and the detached buildings of the residential neighborhood to the north, which also includes Mosswood Park. The I-580 / I-980 / SR 24 interchange rises to the northwest of the project site, and the interchange ramps are dominant visual features in this area. One quarter mile to the northeast is the Kaiser Medical Center—a mix of mid-rise and low-rise office, medical care, and one-story buildings, with associated surface parking lots.

Project Site The ABSMC Summit Campus covers 20.40 acres and comprises three major buildings: the Peralta Pavilion, the Providence Pavilion, and the Merritt Pavilion. Other smaller buildings that house administrative offices, classrooms, health education centers, medical office buildings (MOBs), and parking structures are also included on the campus. Buildings range in height from one to nine



stories. Table 3-1 in Chapter 3, Project Description, lists the existing buildings, square footage, and their current uses. The lawns, landscaped sidewalks, courtyard and public open spaces of the campus infuse the visual setting with vegetation and natural scenery that soften the otherwise subdued appearance of the urban surroundings and make the area more visually engaging.

The topography of Pill Hill and the ABSMC Summit Campus is important for understanding the buildings’ orientations and the visual interest created in this area by the topography. Heading from east to west on Hawthorne Avenue, the ground elevation is 79 feet at Webster Street, 84 feet at the peak of the hill, 79 feet at Summit Street, and 51 feet at Elm Street. The elevation change on 30th Street is similar, with the ground elevation at 56 feet at Webster Street, 77 feet at Summit Street, 79 feet at the peak of the hill, and down to 42 feet at Telegraph Avenue. These changes in elevation, in effect, limit the on-site views looking east or westward. In addition, there is a steep elevation change just west of Providence Garage down to the Lower Peralta Parking Lot.

Heading from south to north, Webster Street’s elevation is 56 feet at 30th Street, gradually increasing to 79 feet at Hawthorne Avenue. Summit Street’s elevation is 77 feet at 30th Street, 88 feet at its peak, and 79 feet at Hawthorne Avenue. Telegraph Avenue stays relatively flat, with an increase from 42 feet at 30th Street to 49 feet at Hawthorne Avenue. Like the east-west long-range views, north-south long range views are also limited by the peak of the hill on each street, creating more intimate localized views.

Existing Buildings 350 Hawthorne Avenue, Bechtel Hall, is a seven-story structure containing 69,674 square feet of classrooms and dormitory space, and the two-tiered rear Towne Courtyard. The building was built in 1966 and designed in a Modern architectural style, often referred to as “Brutalist” due to its exposed concrete construction and expressionistic massing, whereby the interior disposition of spaces is clearly articulated on the exterior facade. The building does not constitute a significant visual resource and its removal would not substantially degrade the visual character of the site or surroundings.

461 34th Street is a 3,600-square-foot, single-story medical office building with a rectangular plan, wood board and batten wall cladding, and a flat roof capped with metal flashing. The building is set back on the lot, with a small parking lot at the front of the property. The building does not constitute a significant visual resource and its removal would not substantially degrade the visual character of the site or surroundings.

422 Hawthorne Avenue is an 11,136-square-foot, three-story stucco building with a horizontal roof. This building is currently unoccupied and used for storage. The building was constructed circa 1935 and has a minimal Art Deco style on its front façade. The building does not constitute a significant visual resource and its removal would not substantially degrade the visual character of the site or surroundings.

435 Hawthorne Avenue is a 17,280-square-foot, three-story (two stories over a full basement) office building with a rectangular plan, stucco cladding, and a flat roof with a gabled parapet clad



in asphalt shingles. The building was constructed in circa 1925, and has a minimal Dutch Revival architectural style. The building does not constitute a significant visual resource and its removal would not substantially degrade the visual character of the site or surroundings.

3232 Elm Street is a 7,330-square-foot, single-story red brick medical office building. The property has low aesthetic value, and the building’s removal would not substantially degrade the visual character of the site or surroundings.

3300 Elm Street is a 2,600-square-foot, one-story red brick medical office building. The property has low aesthetic value, and the building’s removal would not substantially degrade the visual character of the site or surroundings.

3023 Summit Street is an 11,382-square-foot, two-story medical office building with a rectangular plan, flat roof, and stucco siding. The building has low aesthetic value and the building’s removal would not substantially degrade the visual character of the site or surroundings.

3043 Summit Street is a 2,500-square-foot, medical office building with a rectangular plan, flat roof, and stucco siding designed in a minimal Spanish Eclectic style of architecture. The property has low aesthetic value, and the building’s removal would not substantially degrade the visual character of the site or surroundings.

418 30th Street is a 3,500-square-foot, two-story over basement former residence with a rectangular plan, hipped roof with flared eaves clad in terra cotta Spanish tile, and painted brick walls. Construction is wood framing clad in brick veneer over a concrete foundation. The former residence, now a doctor’s office, was built in 1909 and designed in the Craftsman-Colonial Revival style of architecture. The symmetrical building also has Spanish tile-clad hipped dormers on the front and side elevations, and exposed wood frame eaves with decoratively carved wood rafter tails. Brick steps lead from 30th Street to a brick porch entrance with a flat roof and low balustrade located on the front (southern) elevation. The front entry itself is recessed, and the original fenestration has been replaced with a wood frame window wall and replacement solid wood front door. Original windows on the remainder of the building include wood frame fixed and double-hung windows with 1-over-1panes, as well as 3-over-3 panes. Two offset windows in the rear of the property also include glass block, which is likely a later window in-fill alteration. Decorative brick headers are located above all windows, and all window sills are brick. A stucco-clad single-story addition with a flat roof is located at the rear of the building. The property has moderate aesthetic value, but the building’s removal would not substantially degrade the visual character of the site or surroundings. This building may be presumptively considered a CEQA historical resource. See Section 4.7, Cultural Resources, for further discussion of this building.

The series of photographs of existing conditions presented in this section (Figures 4.2-1 through 4.2-8) collectively reflect the 2009 baseline condition against which the project effects on visual character and scenic resources views are measured. These photographs are paired with photo-simulations that will be discussed in the impact analysis, below, showing the changes to visual character and scenic resources with the proposed project.



Light and Glare The project site is located in a built-out urban environment that has existing sources of light and glare associated with nearby land uses. Major light sources in the area include the street lighting that surrounds the project area along Webster Street, 30th Street, 34th Street, Telegraph Avenue, as well as streets internal to the site, such as Summit Street and Hawthorne Avenue. In addition, building lights emanate from the existing uses on the side (institutional, office, and parking), and other lighting emanates from other urban uses in the immediate area. Existing lighting sources at and near the project site already provide a significant source of illumination in the project area.

Shadow Existing structures on the project site range between one and nine stories in height and are generally set back from the street lot lines by between 5 and 15 feet. The seven-story Bechtel Hall, the nine-story Peralta Pavilion, the seven-story Merritt Pavilion, the nine-story Providence Pavilion, as well as other single-story MOBs are located on the project site. The taller buildings are primarily to the south, east, and west of the proposed improvements, and are the sources of existing shadow in the project area (a complete list of existing buildings’ square footage and number of stories is available in Table 3-1 in Chapter 3, Project Description). The shadow cast by existing buildings on and surrounding the project site is moderate.

Shadow diagrams, which illustrate the proposed project’s shadow effects as compared to the existing shadow environment, are provided in Figures 4.2-9 through 4.2-20. Cumulative shadow diagrams, which illustrate the proposed project’s shadow effects, combined with the shadow effects of cumulative development in the defined geographic area, including past, present, existing, approved, pending, and reasonably foreseeable future development, are provided in Figures 4.2-21 through 4.2-26. The figures provide existing shadow for representative times of day (9:00 AM, 12:00 noon, and 3:00 PM) on the equinoxes (March 21st and September 21st), and the solstices (June 21st and December 21st). Shadows on any other day of the year would be within the ranges of shadows represented by those four dates. Overall, existing shadow cast from the project site occurs primarily in the morning and afternoon hours during late fall and early winter, when the sun is lowest on the horizon. Parcels south and north of the project site include a number of two-story and mid-rise buildings, which do not generate existing substantial shadow in the project area.

The site reconnaissance conducted for this analysis did not identify any passive solar heat collectors, solar collectors for hot water heating, or photovoltaic solar collectors in the areas adjacent to the project site. However, the potential exists that any of these systems may be installed on one of more of the surrounding buildings in the future.

Historic Resources With respect to cultural resources, as stated in Section 4.7, Cultural Resources, the 418 30th Street building may be presumptively considered a historical resource under CEQA. In addition, the Parks Chapel African Methodist Episcopal (A.M.E.) Church, at 476 34th Street at Elm Street, is considered a historical resource for CEQA purposes.


Figure 4.2-9March 21st, 9 am

Shadow Diagrams


DST = Daylight Saving Time

4.2-14


Figure 4.2-10March 21st, 12 pmShadow Diagrams



4.2-15


Figure 4.2-11March 21st, 3 pm

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Figure 4.2-12June 21st, 9 am

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Figure 4.2-13June 21st, 12 pm

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Figure 4.2-14June 21st, 3 pm

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Figure 4.2-15September 21st, 9 am

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4.2-20


Figure 4.2-16September 21st, 12 pm

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4.2-21


Figure 4.2-17September 21st, 3 pm

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4.2-22


Figure 4.2-18December 21st, 9 am

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4.2-23


Figure 4.2-19December 21st, 12 pm

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4.2-24


Figure 4.2-20December 21st, 3 pm

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Existing Shadow New Project Shadow

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Scale in FeetCumulative Project

SitesCumulative Project

Shadow


Figure 4.2-21March 21st and September 21st, 9am

Cumulative Shadow Diagrams


PDT = Pacific Daylight Time

4.2-26

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Figure 4.2-22March 21st and September 21st, 12pm

Cumulative Shadow Diagrams 4.2-27

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Figure 4.2-23March 21st and September 21st, 3pm




4.2-28

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Figure 4.2-24June 21st and December 21st, 9am

Cumulative Shadow Diagrams 4.2-29

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Figure 4.2-25June 21st and December 21st, 12pm




4.2-30

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Figure 4.2-26June 21st and December 21st, 3pm




4.2-31



4.2.2 Regulatory Setting

Local Plans and Policies

City of Oakland General Plan Oakland General Plan policies that pertain to visual quality relevant to the proposed project and its vicinity are contained within the General Plan OSCAR Element, and the LUTE. Applicable policies include the following:

• Particular attention should be paid to (a) views of the Oakland Hills from the flatlands; (b) views of downtown and Lake Merritt; (c) views of the shoreline; and (d) panoramic views from Skyline Boulevard. (OSCAR Policy OS-10.1)

• New development should minimize adverse visual impacts and take advantage of opportunities for new vistas and scenic enhancement. (OSCAR Policy OS-10.2)

• Preserve, protect, enhance, perpetuate, use, and prevent the unnecessary destruction or impairment of properties or physical features of special character or special historic, cultural, educational, architectural or aesthetic interest or value. Such properties or physical features include buildings, building components, structures, objects, districts, sites, natural features related to human presence, and activities taking place on or within such properties or physical features. (HPE Goal 2)

• Avoid or Minimize Adverse Historic Preservation Impacts Related to Discretionary City Actions: The City will make all reasonable efforts to avoid or minimize adverse effects on the Character-Defining Elements of existing or Potential Designated Historic Properties which could result from private or public projects requiring discretionary City actions. (HPE Policy 3.1)

City of Oakland Standard Conditions of Approval and Uniformly Applied Development Standards Imposed as Standard Conditions of Approval The City’s Standard Conditions of Approval relevant to visual quality and shadow are listed below for reference. If the proposed project is approved by the City, then all applicable Standard Conditions of Approval would be adopted as conditions of approval and required of the project to help ensure less-than-significant impacts to visual quality. The Standard Conditions of Approval are incorporated and required as part of the project, so they are not listed as mitigation measures. Standard Conditions of Approval applicable to potential visual quality impacts due to the project include:

VIS-1: Lighting Plan

Prior to the issuance of an electrical or building permit. The proposed lighting fixtures shall be adequately shielded to a point below the light bulb and reflector and that prevent unnecessary glare onto adjacent properties. Plans shall be submitted to the Planning and Zoning Division and the Electrical Services Division of the Public Works Agency for review and approval. All lighting shall be architecturally integrated into the site.

Scenic Highways Element The City’s Scenic Highways Element of the General Plan (adopted 1974) includes a number of policies that pertain to visual resources identified as part of the Caltrans Scenic Highway



Program. Policies within the City’s Highways Element aim to limit signage and visual intrusions and protect panoramic vistas along scenic corridors, and to ensure that new construction within scenic corridors demonstrates “architectural merit” and is “harmonious” with the surrounding landscape. The entire length of MacArthur Freeway (I-580) within Alameda County is identified as part of the Caltrans Scenic Highways Program. I-580, an Officially Designated State Scenic Highway, is one block north of the project site.

4.2.3 Impacts and Mitigation Measures

Significance Criteria The proposed project would have a significant impact on the environment, if it would:

1. Have a substantial adverse effect on a scenic vista;

2. Substantially damage scenic resources, including, but not limited to, trees, rock outcroppings, and historic buildings within a state or locally designated scenic highway;

3. Substantially degrade the existing visual character or quality of the site and its surroundings;

4. Create a new source of substantial light or glare which would substantially and adversely affect day or nighttime views in the area;

5. Introduce landscape that would now or in the future cast substantial shadows on existing solar collectors (in conflict with California Public Resource Code Section 25980-25986);

6. Cast shadow that substantially impairs the function of a building using passive solar heat collection, solar collectors for hot water heating, or photovoltaic solar collectors;

7. Cast shadow that substantially impairs the beneficial use of any public or quasi-public park, lawn, garden, or open space;

8. Cast shadow on an historic resource, as defined by CEQA Section 15064.5(a), such that the shadow would materially impair the resource’s historic significance by materially altering those physical characteristics of the resource that convey its historical significance and that justify its inclusion on or eligibility for listing in the National Register of Historic Places, California Register of Historical Resources, Local register of historical resources, or a historical resource survey form (DPR Form 523) with a rating of 1-5; or

9. Require an exception (variance) to the policies and regulations in the General Plan, Planning Code, or Uniform Building Code, and the exception causes a fundamental conflict with policies and regulations in the General Plan, Planning Code, and Uniform Building Code addressing the provision of adequate light related to appropriate uses.

10. Create winds exceeding 36 mph for more than 1 hour during daylight hours during the year.1

1 In the City of Oakland, wind analysis only needs to be performed if the project’s height is 100 feet or greater

(measured to the roof) and one of the following conditions exist: (a) the project is located adjacent to a substantial water body (i.e., Oakland Estuary, Lake Merritt or San Francisco Bay); or (b) the project is located in Downtown. The proposed project meets the first criterion, but it does not meet the second set of criteria. Therefore, wind analysis is not included in this EIR.



In the analysis below, short-range views are views of areas and features within 0.25 mile. Mid-range views are of features between 0.25 and 0.50 mile away. Long-range views are of areas beyond 0.50 mile.

Impacts

Scenic Vistas or Resources

Impact VIS-1: The proposed project would not adversely affect a scenic vista or substantially damage scenic resources within a state or locally designated scenic highway. (Less than Significant)

The project site is located within the OSCAR’s Central Planning Area. This planning area is urbanized, on relatively flat terrain, and contains Oakland’s civic and business core, as well as the southern portions of the Telegraph Avenue commercial corridor and Auto Row along Broadway. The project site is occupied by several structures ranging from one to nine stories in height containing patient care, medical office, administrative, retail uses, as well as surface and structured parking facilities.

The analysis of the project’s effect on scenic vistas and whether the project would substantially damage scenic resources, focuses on changes to existing, notable public viewsheds that would result from implementation of the project. Because of existing development at the project site and in its vicinity, scenic resources and views at and through the project site and vicinity are generally limited to long-range views of the Oakland hills to the north, which are only available when looking northward between or above buildings.

As stated above, Figures 4.2-2 through 4.2-6 represent the change in the built environment after Phase 1 and Future Phases of the proposed project. Figures 4.2-7 and 4.2-8 represent the change in the built environment in 2030 after buildout of the Master Plan and other known and planned projects in the vicinity.

Phase 1 Phase 1 of the proposed project includes the demolition of several buildings and the construction of a surface parking lot at Elm Street and two new buildings: the 11-story patient care pavilion tower at Merritt Pavilion and the seven-story parking garage at Lower Peralta Parking Lot.

In the existing view from the intersection of Broadway and Hawthorne Avenue looking west down Hawthorne Avenue (see Figure 4.2-2), the General Motors car dealership on the left and the Broadway Webster Medical Plaza on the right dominate the foreground. Portions of the Merritt Pavilion are in the short-range view directly ahead. The Hawthorne Avenue streetscape, with young street trees on the sidewalk on either side, is also seen in the foreground and reaches toward Webster Street, where the street turns south and then back east. After Phase 1 of the Master Plan, with the construction of the 11-story patient care pavilion, the short-range view would change. More sky would be blocked, and the bulk of the new building would be similar to that of the Broadway Webster Medical Plaza. The topography and intervening buildings at this



location would continue to obscure mid- or long-range views. However, from this view, the proposed project would result in a visual “district” that can clearly be associated with medical buildings and the hospital complex.

In the view from Telegraph Avenue (north of Hawthorne Avenue) looking northeast toward the project site (see Figure 4.2-3), the one- and two-story commercial and industrial buildings of Telegraph Avenue are in the foreground. The Telegraph Avenue streetscape, devoid of vegetation at this location, is also seen in the foreground. Vegetation in the interior of the block is visible on the right side of the view, and the existing buildings of the project site are visible just above the foreground buildings in the center of the view. After Phase 1 of the Master Plan, the short-range view would change. The glass façade of the new patient care pavilion would be visible between and above the low buildings on Telegraph Avenue. The new patient care pavilion would replace the other buildings on site. There are no existing nor would there be future mid- or long-range views available at this location due to the topography and intervening buildings.

In the view from Telegraph Avenue and 31st Street looking northeast toward the project site (see Figure 4.2-4), the parking lot and surrounding landscaping of the Peralta Pavilion is in the foreground. The Telegraph Avenue streetscape, with a mature street tree and a street light, is also seen in the foreground. Visible in the short-range view is the existing Providence Parking garage, though it is primarily obscured behind vegetation. After the Phase 1 of the Master Plan, the short-range view would change. The new Peralta Parking Garage would be in the center of the view, and the glass façade of the new patient care pavilion would rise behind it. Overall, although the architecture of the two buildings together is interesting and the buildings would complement other new buildings, there would be an increased presence and perception of bulk in the view from this location because of the low elevation of the buildings in the foreground, with more sky blocked out. There are no existing nor would there be future mid- or long-range views available at this location due to the topography and intervening buildings.

In the view from the intersection of Broadway and 30th Street looking northwest (see Figure 4.2-5), the existing car dealerships and parking lot light fixtures are in the foreground. Also in the foreground is the Broadway streetscape, which is not vegetated at this location. Visible in the short-range view is the Alta Bates Summit Medical Center campus, including the Merritt Pavilion near the center of the view and the Providence Pavilion on the left side of the view. On the right side of the view is the Broadway Webster Medical Plaza. After Phase 1 of the Master Plan, the 11-story patient care pavilion would dominate the center of the view. It would complement the Broadway Webster Medical Plaza building to the right side of the view, and the patient care pavilion’s glass façade would contrast with the existing solid façades in the view. Existing and mid- and long-range views are not available at this location due to topography and intervening buildings. This view contributes to the urbanization of the area and is more in keeping with the views that might be expected along a prominent city street.

In the view from the intersection of Summit Street and 30th Street looking north (see Figure 4.2-6), the Providence Pavilion is visible in the foreground on the right side of the street, and the existing medical office building is visible in the foreground on the left side of the street. The streetscape of



Summit Street, with vegetation, signage, light fixtures, a trash can, and bus stops are also visible in the foreground. In the short-range view, Summit Street slants uphill. The Peralta Pavilion extends along the right side of the street, partially obscured by mature trees both on the sidewalk and on the property. On the left side of the street, the entrance to the existing parking lot is visible in the short-range view, as are vegetation and portions of the facades of 3023 and 3043 Summit Street. After Phase 1 of the Master Plan, the glass façade of the 11-story patient care pavilion would be visible behind the Providence Pavilion in the short-range view. Mid-range views are not available from this location due to topography and intervening buildings. In the long-range view are the East Bay Hills, though they are mostly obscured by vegetation on the campus. Implementation of the proposed project would not affect those views from this location.

Future Phase(s) The future phases of the project includes the construction of three buildings: the Samuel Merritt College Expansion at the location of the Phase 1 surface parking lot at the corner of Hawthorne Avenue and Elm Street, a one-story fitness center atop the Phase 1 parking garage structure (see above), and a five-story MOB that would replace the area currently occupied by 3043 Summit Street, 3023 Summit Street, 418 30th Avenue, and the intervening surface parking lots which would be demolished.

As discussed above, in the view from the intersection of Broadway and Hawthorne Avenue looking west down Hawthorne Avenue (see Figure 4.2-2) after Phase 1 of the Master Plan, the short-range view would change. After Future Phases of the Master Plan, no new buildings would be visible from this location, and the view would remain the same as it would after Phase 1.

As discussed above, in the view from the Telegraph Avenue and just north of Hawthorne Avenue looking northeast toward the project site (see Figure 4.2-3),after Phase 1 of the Master Plan, the short-range view would change. The glass façade of the new patient care pavilion would be visible between and above the low buildings on Telegraph Avenue. The new patient care pavilion would replace the other buildings on site. After future phases of the Master Plan, the view would change slightly. Portions of the four-story SMU building would be visible in front of the patient care pavilion, and some of the fitness center would be visible. However, these new buildings would not substantially change views from this location.

As discussed above, in the view from Telegraph Avenue and 31st Street looking northeast toward the project site (see Figure 4.2-4) after the Phase 1 of the Master Plan, the short-range view would change. The new Peralta Parking Garage would be in the center of the view, and the glass façade of the new patient care pavilion would rise behind it. After future phases, the fitness center would be built atop the new parking garage, adding one story to the building.

As discussed above, in the view from the intersection of Broadway and 30th Street looking northwest (see Figure 4.2-5) after Phase 1 of the Master Plan, the 11-story patient care pavilion would dominate the center of the view. It would complement the Broadway Webster Medical Plaza building to the right side of the view, and the patient care pavilion’s glass façade would contrast with the existing solid façades in the view. The view from this location would not change after implementation of future phases of the Master Plan.



As discussed above, in the view from the intersection of Summit Street and 30th Street looking north (see Figure 4.2-6) after Phase 1 of the Master Plan, the glass façade of the 11-story patient care pavilion would be visible behind the Providence Pavilion in the short-range view. Implementation of future phases would further change this view. The MOB would be constructed on the west side of Summit Street. In addition, Summit Street north of the Providence Pavilion would become a pedestrian-only area, with associated landscaping. This landscaping, when grown to maturity, could obscure some views of the East Bay Hills, but not to an extent that would be considered an adverse effect.

Cumulative Development In the view from I-580 looking southwest (see Figure 4.2-7), I-580 and the Honda Dealership on Broadway are visible in the foreground. The 12-story Webster Medical Plaza and associated parking garage is visible in the short-range view in the center of the view, and the existing Merritt Pavilion Buildings are visible to the right of the view. In the mid-range view to the left is the existing streetscape of Broadway and some of the existing auto dealerships. In the long-range view are the skyscrapers of Downtown Oakland. In 2030, after the complete buildout of the Master Plan, the new Merritt Pavilion patient care pavilion tower would be visible in the short-range view to the right of the existing Webster Medical Plaza building. Mid-range views down Broadway would include new mixed-use retail and residential buildings constructed pursuant to the Broadway / Valdez Specific Plan. Long-range views of Downtown Oakland would be somewhat obscured by the new development on Broadway.

In the view from I-980 looking east (see Figure 4.2-8), the roofs of the residential buildings west of Telegraph Avenue are visible in the foreground. The existing Merritt Pavilion is visible in the short-range view to the left, the existing Providence Parking Garage is visible in the center, and the Providence and Peralta Pavilions are visible to the right. In the mid-range view to the left are the existing towers that are part of the Kaiser Medical Center. In the long-range view to the left are the East Bay Hills. After the complete buildout of the Master Plan, the glass façade of the new Merritt Pavilion patient care pavilion tower would be visible in center of the short-range. Also visible in the short-range view would be the new Peralta Parking Garage, and the proposed five-story medical office building would be visible to the right. Mid-range views would include the new hospital buildings constructed at the Kaiser Medical Center to the left. Long-range views of the East Bay Hills would be somewhat obscured by the new development both at the Kaiser Medical Center and at the project site, but the change would not be considered significant. The area is built up, and views of the East Bay Hills are already obscured by existing buildings on Broadway.

Finally, although 418 30th Street has moderate aesthetic value, it is not a unique scenic resource, and its demolition would not result in a significant impact. In addition, the construction of the five-story MOB at the site would not severely impact any existing views. There are currently no public scenic vistas viewable in any direction through the properties of 418 30th Street, 3023 Summit Street, 3042 Summit Street, nor intervening surface parking lots. Therefore, the construction of the new MOB would not significantly impact views.



Scenic Highways Program The Caltrans Scenic Route Program identifies the Oakland segment of I-580 as an Officially Designated State Scenic Highway. Closest to the project site, I-580 is one block north of 34th Street. An exit from eastbound I-580 meets the local street network at the intersection of Webster Street and 34th Street. The Scenic Highways Element of the Oakland General Plan defines the I-580 scenic corridor, which is intended to protect “the area most critical to the scenic quality of the route in question.” The project site is within the area designated as a scenic corridor, and, as stated above and shown in Figures 4.2-7, it is visible from the segment of I-580 closest to the site. However, as noted above, the project site is within an existing developed urban environment with other mid-rise towers nearby. Therefore, while the project would be noticeable from I-580 and may minimally obscure some long-range views from this freeway, its impacts would be considered limited because it would not disrupt or alter these views substantially. Therefore, the project is not expected to substantially degrade any views from any scenic resources in the area and would result in less-than-significant effects with regard to scenic vistas and resources.

Summary In summary, because the project’s Phase 1 and future phases would only minimally affect already-limited long-range views of the Oakland hills in the immediate vicinity of the project site, and because the project site would not result in the deterioration of views from a designated scenic highway, the project would have a less-than-significant impact on scenic resources or scenic vistas.

Mitigation: None required.

Visual Character

Impact VIS-2: The proposed project would alter the existing visual conditions on the project site, but would not substantially degrade the existing visual character or quality of the site and its surroundings. In addition, it would be consistent with the City of Oakland Design Review criteria for non-Residential projects. (Less than Significant)

The proposed project would result in a substantial change to the visual character of the site by the proposed demolition of existing on-site structures and the new construction of low-rise and mid-rise medical office and patient care buildings, as well as the parking structure. Project construction is anticipated to occur in phases. Phase 1 would result in the demolition of the existing Bechtel Hall building and construction of an 11-story patient care pavilion. In addition, Phase 1 would result in the demolition of the buildings at 422 Hawthorne Avenue and 435 Hawthorne Avenue and the construction of new buildings, including a seven-story parking garage. Future phases would result in the demolition of three total buildings among Elm Street, Summit Street, and 30th Street and a new four-story building for the use of Samuel Merritt University (Elm Street) and a five-story MOB (Summit Street and 30th Street). In addition, future phases would include the addition of one floor to the parking garage proposed in Phase 1 (see below) for a fitness center.



Phase 1

Patient Care Pavilion: The proposed new patient care pavilion tower would be constructed in a contemporary style. It would have a façade consisting of steel and glass, with vertical and horizontal bands. The vertical bands would emphasize the towers’ vertically while the horizontal bands would express each floor. The first five floors of the tower would connect to the existing Merritt Pavilion and serve as a base for the new combined structure. The upper six floors would compose the tower portion.

The new patient care pavilion tower would span 11 stories or 183’9” feet in height. The proposed structure would be set back from the southern lot line by landscaping and a patient drop-off area. In general, the new structure would be much more visually prominent in its context than the existing Bechtel Hall on the building site. The character of the pedestrian environment at the ground level would also be altered with a new circulation plan and patient drop-off area (see Section 4.3, Transportation, Circulation, and Parking).

The proposed patient care pavilion would slightly contrast with the existing visual environment in the ABSMC Summit Campus and the surrounding vicinity, where the tallest building is currently nine stories. In addition, most buildings on the campus and in the project area are generally older and do not have steel and glass facades (except for the Providence Medical Office Building). As noted in the setting, the campus is interspersed with taller and bulkier buildings, including the Peralta and Providence Pavilions. Therefore, in terms of size and massing, the proposed patient care pavilion tower, at 11 stories, would result in a slight but noticeable change to the ABSMC Summit Campus and the project area. Nonetheless, the change would not substantially degrade the existing visual character or quality of the project site or the surrounding area.

The future phase MOB, described in detail below, may be constructed at the same time as the Phase 1 construction. The proposed MOB would not contrast with the existing visual environment. Development of the MOB includes closure of Summit Street and landscaping a public plaza. Therefore, the MOB would significantly improve the pedestrian experience by removing vehicles from the campus’s main thoroughfare to give pedestrians more space.

Parking Garage: The buildings at 422 Hawthorne Avenue and 435 Hawthorne Avenue would be demolished to accommodate the proposed parking garage. The garage would be seven stories or 69’7” in height, with a rectangular floor plan for every story. It would include 1,067 parking spaces in the area to the west of the existing Providence Garage. The new garage would be set back from Hawthorne Avenue by green space. An elevated east-west vehicular bridge would connect the two garages. Vehicular access to the new garage would also be provided at the intersection with Elm Street and via a driveway from Hawthorne Avenue. In addition, a north-south walkway would run at ground level between the two garages, creating a pedestrian connection through the campus from the Peralta Pavilion to the intersection of Hawthorne Avenue and Summit Street.

The new garage would contrast with the existing visual environment on the south side of Hawthorne Avenue. Where the low-rise 422 Hawthorne Avenue and 435 Hawthorne Avenue buildings and the Lower Peralta Parking Lot now exist, a new seven-story parking garage would be set back from



the street by a landscaped area. This landscaping would provide a buffer so the garage would not overwhelm the pedestrian experience on Hawthorne Avenue. In addition, the new garage would be mostly obscured by existing buildings in views from Summit Street, 30th Street, and Telegraph Avenue.

Nonetheless, in terms of size and massing, the proposed garage, a seven-story structure, would result in a noticeable change to the ABSMC Summit Campus or the project area. This change would not substantially degrade the existing visual character of the site or its surroundings. Although a less than significant CEQA impact, there is a non-CEQA planning discussion of different garage heights and design in Chapter 5, Alternative 7: Reduced Garage Bulk Scenarios.

Surface Parking Lot: 3232 Elm Street and 3300 Elm Street would be demolished and replaced with a 69-space surface parking lot, which would be used as a construction staging area for all phases of the proposed project. The lot would comprise the majority of the two properties. Use of this site as a construction staging area would contrast with the surrounding residential uses along Elm Street. However, the site would be surrounded by landscaping, including trees, bushes, and a fence, to screen it from nearby properties, and its use as a construction staging area would be a temporary use not resulting in a permanent visual impact.

The new surface parking lot would contrast with buildings along Elm Street, which are primarily detached residential buildings. The landscaping around the parking lot would partially shield it from view. In terms of use and character, the proposed surface parking would result in a noticeable change to the ABSMC Summit Campus, and it would result in a change in the project area along Elm Street. As noted in the setting, the campus is interspersed with surface parking lots. Therefore, this change would not substantially degrade the existing visual character of the site or its surroundings.

Future Phase(s)

Building for Samuel Merritt University Use: The surface parking lot constructed in Phase 1 would be replaced with a four-story building for the use of Samuel Merritt University. The new building would comprise most of the two lots and connect back to the Health Education Center to the west. In general, the new structure would be much more visually prominent in its context than the existing 3232 Elm Street and 3300 Elm Street, both of which are lower buildings hidden by site landscaping and the elevation change of Hawthorne Avenue. The character of the pedestrian environment at the ground level would not be noticeably altered, given that the sidewalk would remain in its current configuration. The only difference would be the feeling of walking next to a taller structure that is closer to the lot line than the existing structures.

This proposed new building would contrast with buildings along Elm Street, which are primarily detached residential buildings. In addition, most buildings on the campus and in the project area are generally older and do not have contemporary façades (except for the Providence MOB and the Health Education Center). In terms of size and massing, the proposed building, at four stories, would result in a noticeable change to the ABSMC Summit Campus and along Elm Street. As noted in the setting, however, the campus is interspersed with buildings three to six



stories in height, including the Health Education Center and the Peralta and Providence MOBs. Therefore, the new four-story building would not substantially degrade the existing visual character of the site or its surroundings.

Medical Office Building: 418 30th Street, 3023 Summit Street, and 3043 Summit Street would be demolished to accommodate the proposed five-story MOB. The proposed MOB would not contrast with the existing visual environment. It would comprise most of the lots listed above, as well as intervening surface parking lots. In general, it would be much more visually prominent in its context than the existing 3023 Summit Street, 3043 Summit Street, and the surface parking lot.

Pedestrians would have a slightly altered experience due to the feeling of walking next to a five-story building at the lot line instead of the existing buildings and surface parking lot. In addition, future phases of the proposed project include the closure of Summit Street to vehicular traffic. A drop-off area in front of Providence Pavilion South would be accessible from 30th Street, and a turnout lane for drop-off at the main Providence Pavilion building would be accessible from the realigned Hawthorne Avenue (see Section 4.3, Transportation, Circulation, and Parking). The remainder of the Summit Street right-of-way between Hawthorne Avenue and 30th Street would be landscaped as a public plaza. Future phases would therefore, significantly improve the pedestrian experience by removing vehicles from the campus’s main thoroughfare to give pedestrians more space.

Fitness Center: The addition of the one-story fitness center atop the Phase 1 parking garage would not substantially alter the parking garage. The additional story would be designed to complement the parking garage. It would not have a significant effect on the pedestrian experience adjacent to the garage, and the additional bulk would be primarily masked by surrounding buildings. The additional story would be most visible along Elm Street looking southward. Therefore, in terms of size and massing, the proposed fitness center addition would not result in a noticeable change to the ABSMC Summit Campus or to the surrounding project area, and it would not substantially degrade the existing visual character or quality of the project site and its surroundings.

Design Review Criteria As stated in Chapter 4.1 of this EIR, the proposed project would be subject to non-residential design review. According to the City of Oakland Justification for Granting Non-Residential Design Review, “Design Review is intended to ensure high quality attractive designs that will complement and benefit the surrounding neighborhood and the city as a whole.” Projects that require design review, including the proposed project, and are found to be consistent with design review criteria, can generally be found to result in a less than significant impact to existing visual character or quality.

Criterion 1: “That the proposal will help achieve or maintain a group of facilities which are well related to one another and which, when taken together, will result in a well-composed design, with consideration given to site, landscape, bulk, height, arrangement, texture, materials, colors, and appurtenances; the relation of these factors to other facilities in the vicinity; and the relation of the proposal to the total setting as seen from key points in the surrounding area.”



Implementation of the Master Plan would replace and expand the related hospital and medical office facilities of the ABSMC Summit Campus. The new buildings would increase the overall bulk and total floor-to-area ratio of the project site, and the new patient care pavilion would be taller than the existing buildings on the site. However, the campus is interspersed with taller and bulkier buildings, including the Peralta and Providence Pavilions.

Existing surface parking lots and one- and two-story buildings set back from the street create an inconsistent street wall on Summit Street, 30th Street, and Elm Street. The new garage in Phase 1, and the SMU Building and Medical Office Building in future phases, would replace most of these lots, creating sustained street walls and a stronger structural presence for the entire campus.

Regarding texture, materials, and color, most buildings on the campus and in the project area are generally older and do not have steel and glass facades (except for the Providence Medical Office Building). Therefore, the proposed glass facades of the patient care pavilion and new parking garage would not be consistent with the stucco and brick facades of some of the existing buildings on the project site. Most of these brick and stucco buildings have low aesthetic value, and their replacement would not degrade existing visual character. It can be assumed that the future phase MOB and SMU Building would also incorporate glass in their facades, as well. Therefore, the Master Plan would gradually replace brick and stucco facades on buildings with low aesthetic value. In their place would be buildings with glass facades that, when taken as a whole, would represent a well-composed and consistent design.

Finally, views of the proposed project from various locations are discussed above, under Impact VIS-1. As stated there, the proposed project would result in a less than significant impact to scenic vistas and view corridors. The height and bulk of buildings on the project site would increase, but not to an extent that would overwhelm the site or its surroundings.

Criterion 2: That the proposed design will be of a quality and character which harmonizes with, and serves to protect the value of, private and public investments in the area.

Public investments at and near the project site are limited to the rights-of-way. Private investments include nearby buildings. As stated above, the proposed height, bulk, location, and design of each building would be a noticeable change from existing conditions, but would not detract from the visual character and quality of their surroundings. The new buildings would harmonize with the existing campus.

Criterion 3: That the proposed design conforms in all significant respects with the Oakland General Plan and with any applicable design review guidelines or criteria, district plan, or development control map which have been adopted by the Planning Commission or City Council.

As discussed in Chapter 4.1 of this EIR, the proposed project’s height, bulk, and design would conform to and comply with all bulk and use requirements of the S-1 Zoning District and the Planned Unit Development (PUD) permit specifications.



Criterion D: For Potential Designated Historic Properties that are not Local Register Properties, (a) the design quality of the proposed project is at least equal to that of the original structure and is compatible with the character of the neighborhood; (b) the public benefits of the proposed project outweigh the benefit of retaining the original structure; or (c) the existing design is undistinguished and does not warrant retention and the proposed design is compatible with the character of the neighborhood.

As discussed in Chapter 4.7 of this EIR, 418 30th is considered an historical resource under CEQA. The demolition of this building, which currently houses administrative offices, would allow construction of a larger, more efficient MOB across several parcels on both 30th Street and Summit Street. The MOB would allow consolidation of offices and more efficient operations. In addition, it would replace a parking lot and two buildings on Summit Street, all of which are of low aesthetic value.

Summary In summary, the Phase 1 and future phases would not substantially degrade the existing visual character or quality of the ABSMC Summit Campus or to the surrounding project area. Although buildings on the campus would be somewhat taller and bulkier than those that currently exist, some of the changes would be hidden by the site’s unique topography, especially from locations offsite. In addition, the implementation of landscaping and pedestrian improvements would moderate the increased scale of the campus in each project phase. Finally, the proposed project would be consistent with City of Oakland design criteria. Therefore, the project would have a less-than-significant impact on existing visual character and visual quality of the site and its surroundings.


Impact VIS-3: The proposed project would create a new source light or glare, but would not adversely affect day or nighttime views in the area. (Less than Significant)

As noted in the setting, the project site already contains street and building lighting associated with both the existing uses on the site and with the surrounding structures in the project vicinity. Existing lighting sources currently provide a significant source of illumination that is noticeable in the site vicinity, particularly at night.

The proposed project would likely increase the amount of night lighting from decorative and functional lighting associated with the proposed patient care pavilion, MOB, new building for Samuel Merritt University use, and parking garage, as well as the incidence of glare from window glazing.

The proposed lighting plan would create a sense of place. It would highlight key architectural elements within the project, including the entry drive at Hawthorne Avenue and the overhanging canopy at the top of the patient care pavilion. In addition, way-finding lighting would be provided



throughout the project site to provide the feeling of a safe, active urban space, including wall-mounted fixtures at service entries and low-level landscape lighting in planted areas.

The type and intensity of lighting resulting from the proposed project would constitute a continuation of the type and intensity of lighting already established in the area, and would not be expected to result in a substantial increase in glare over existing conditions.

While the project’s height and mass would make light from the proposed project noticeable from off-site locations, it would be absorbed fairly well into the overall lighting patterns that already exist in the area. The street lighting that surrounding the project block is not anticipated to change substantially from the existing conditions.

The project applicant would be required to comply with Standard Condition of Approval VIS-1, Lighting Plan, which would minimize potential impacts resulting from project related lighting and ensure that lighting and glare effects associated with the project remain less than significant.


Impact VIS-4: The proposed project would result in additional shadow on adjacent areas. It would not cast shadow that would substantially impair the function of a building using passive solar heat collection, solar collectors for hot water heating, or photovoltaic solar collectors. Nor would it cast shadow that would substantially impair the beneficial use of any public or quasi-public park, lawn, garden, or open space. Finally, although it would cast shadow on an historic resource, it would not do so to an extent that the shadow would materially impair the resource’s historic significance (Less than Significant)

The project’s shadow effects were analyzed for representative times of day (9:00 AM, 12:00 noon, and 3:00 PM) during the following four times of year:

• March 1st, three weeks before the vernal equinox, when shadows are approaching midway through a period of shortening;

• July 1st, one week after the summer solstice, when the sun is near its highest and shadows are near their shortest;

• October 1st, one week after the autumnal equinox, when shadows are just beyond midway through a period of lengthening; and

• January 1st, one week after the winter solstice, when the sun is near its lowest and shadows are near their longest.

Figures 4.2-9 through 4.2-20 illustrate the shading effects associated with the proposed project for the aforementioned times of day and seasons. These diagrams convey the relative shadow effects for project area. The project’s greatest shadow effects would occur during late fall and early winter, when the sun is lowest on the horizon. As discussed in more detail, below, the proposed 11-story patient care pavilion tower, seven-story parking garage plus fitness center, five-story MOB and



four-story building for Samuel Merritt University use on the project site would generate additional shadow relative to the existing conditions. New shadow is described by season.

After Phase 1 of the Proposed Project In March (Figures 4.2-9 through 4.2-11) and September (Figures 4.2-15 through 4.2-17), morning shadow would fall in a westerly direction, newly shading the sidewalk along 34th Street and the medical imaging building at 3200 Telegraph Avenue. At noon, project shadow would extend in a northwesterly direction, shading portions of 34th Avenue and the area of the project site currently occupied by 435 Hawthorne Avenue. By 3:00 PM, project shadow would extend in a northeasterly direction and result in new shade along large portions of the roof of the existing Merritt Pavilion South Wing, as well as the area of the project site currently occupied by 435 Hawthorne Avenue.

In June (Figures 4.2-12 through 4.2-14), when shadows are near their shortest, shadows would be cast in a westerly direction at 9:00 AM, completely shading the Samuel Merritt University Health Courtyard, as well as one of the new parking garage entrances from Hawthorne Avenue. By noon, the project would cast very minimal shadow that would extend only slightly northwestward onto buildings, landscaping, and driveways immediate adjacent to the parking garage and new tower. At 3:00 PM, the project would cast shadow in a northeasterly direction, shading the new pedestrian walkway between the new parking garage and the existing Providence Parking Garage, as well as the roof of the existing South Wing of the Merritt Pavilion.

In December (Figures 4.2-18 through 4.2-20), when shadows are near their longest, at 9:00 AM project shadow would fall in a northwesterly direction, extending almost to the Telegraph Avenue underpass at I-580, as well as almost completely over the medical image center at 3200 Telegraph Avenue. The area shaded contains low-rise office buildings, surface parking lots, and the Parks Chapel A.M.E. Church. Only the immediate front of this building is partially shaded in the existing conditions. By noon, project shadow would extend in a northwesterly direction, resulting in shade along properties on the north side of 34th Street, as well as on Hawthorne Avenue. At 3:00 PM, the project shadow would reach in a northeasterly direction toward 34th Street, stretching from the parking garage to the existing Samuel Merritt University Health Education Center, and from the new patient care pavilion tower all the way to the I-580 exit ramp to Webster Street. During this time, sidewalks along both 34th Street and Hawthorne Avenue would be shaded.

Overall, new shadows cast by Phase 1 of the proposed project would affect parcels to the north and west of the project site along 34th Street, Hawthorne Avenue, and Telegraph Avenue. Existing development in the project area currently casts shadows onto these areas, although the project would generate shadow on areas that are currently not shaded by existing development, particularly some low-rise buildings, sidewalks and surface parking lots immediately west and north of the site.

As indicated in the Setting discussion, site reconnaissance conducted for this analysis did not observe any passive solar heat collectors, solar collectors for hot water heating, or photovoltaic solar collectors in the areas adjacent to the project site or that might be affected by project shadow. Although there are no solar systems in the project site vicinity that would be affected by project building or landscaping shadow, there is a potential for buildings to install such systems in the future. However,



due to the existing shading in the project area, any additional shadow generated by the proposed towers would be incremental and would not substantially impair the function of a building that may use a solar heating in the future.

With respect to historical resources, shadow patterns cast on the Parks Chapel A.M.E. Church would change under proposed conditions, primarily due to the new patient care pavilion tower to be located at the Merritt Pavilion. The church was designated City of Oakland Landmark # 46 in 1981. This brick church, located about one block northwest from the project area, was built in 1915 and was designed by architect William Arthur Newman. As a building with an “A” rating and a City of Oakland Landmark, this building is listed in the City’s local historic register, and is therefore an historical resource for CEQA purposes.

The total amount of shading of the church would increase over existing conditions, particularly in the late fall and winter morning hours, when it would be cast over existing stained glass windows on the eastern façade. While the impairment would be permanent, it would not damage or destroy an architectural feature of the historic building, or result in a type of change that would be noticeable at all times. In this case, the impairment would occur for a relatively limited period of time during the day (from 8:45 AM to 9:30 AM), and for a limited time during the year (from November 17th to January 23rd). Please see Appendix G, Shadow Memo, for further description of these shadows.

While the project would obscure direct sunlight for a limited time during morning hours in winter, it would not prevent all light from entering the windows, because ambient light from the sky as well as light reflected from other building surfaces would continue to illuminate the window and sanctuary. As such, the impact would be much less than covering the windows or building a new structure immediately adjacent to the church.2

Finally, according to the church’s website, worship services are held on Sundays at 10:00 AM.3 It is assumed that the church would have the greatest number of attendees from 10:00 AM until the completion of worship services, the period of time considered the most sensitive for shadow effects. Since project shadows would be eliminated from the east-facing sanctuary windows by 9:45 AM, there would be no shadow during the building’s most sensitive time period, its highest period of use.

The proposed project would therefore have a less-than-significant shadow impact on the historic significance of the Parks Chapel A.M.E. Church.

With respect to the project’s effects on any nearby public or quasi-public park, lawn, garden, or open space that would be affected by project shadow, as stated above, shadow patterns would be cast on the Samuel Merritt College Health Courtyard during the morning hours in July. However,

2 Note that nearby existing trees on the church property already shade portions of the windows from direct sun and

they also partially block ambient sky light from reaching those windows at other times of the day. Because trees are not permanent structures, this shadow impairment is not permanent, as would be the shadowing effect from the physical structure of the ABSMC Master Plan.

3 Located at www.parkschapelame.org/, accessed September 14, 2009.



this shading is temporary, and Phase 1 of the project would result in a net increase of unshaded open space. Therefore, this is a less than significant impact. No other nearby public or quasi-public park, lawn, garden, or open space would be affected by project shadow.

Based on the above, Phase 1 of the proposed project’s impact with respect to shadows would be potentially significant. ABSMC considered a number of factors during the process of designing the new patient care pavilion. A key factor was the goal of minimizing the height of the building and its resulting shadow cast on adjacent uses to the north. The existing Bechtel Hall already casts shadows extending to the front steps of the Parks Chapel A.M.E. Church in the late fall and early winter; however, any replacement building on the Bechtel Hall site that is taller than the existing building would cast shadows that would extend farther onto the church. Therefore, there is no feasible mitigation to lessen the indirect significant impact on this historic resource.

After Future Phase(s) of the Proposed Project In March (Figures 4.2-9 through 4.2-11) and September (Figures 4.2-15 through 4.2-17), morning shadow would fall in a westerly direction, newly shading the sidewalks along Elm Street and the new Student Plaza directly east of the Peralta Pavilion. At noon, project shadow would extend in a northwesterly direction, shading the new garage’s entrance from 30th Street. By 3:00 PM, project shadow would extend in a northeasterly direction and result in new shade along the western sidewalk of Summit Street, which would be a pedestrian-only space.

In June (Figures 4.2-12 through 4.2-14), when shadows are near their shortest, shadows would be cast in a westerly direction at 9:00 AM, partially shading the new Student Plaza east of Peralta Pavilion, as well as the eastern sidewalk of Elm Street. By noon, the project would cast very minimal shadow that would extend only slightly northwestward onto buildings, landscaping, and driveways immediate adjacent to the new medical office building and college expansion. At 3:00 PM, the project would cast a shadow in a northeasterly direction, shading the western area of the pedestrian-only Summit Street, as well as areas on the north and east sides of the college expansion.

In December (Figures 4.2-18 through 4.2-20), when shadows are near their longest, at 9:00 AM project shadow would fall in a northwesterly direction, extending over the Central Utility Plant of the Peralta Pavilion and across Elm Street onto properties on the western side. The area shaded contains low-rise buildings, surface parking lots, and the Student Plaza to be created east of Peralta Pavilion. By noon, project shadow would extend in a northwesterly direction, resulting in shade along the eastern sidewalk of Elm Street as well as a portion of the Student Plaza east of Peralta Pavilion. At 3:00 PM, the project shadow would reach in a northeasterly direction toward 34th Street, stretching from the new building to be used by Samuel Merritt University halfway to 34th Street, as well as across most of the Summit Street pedestrian-only area.

Overall, new shadows cast by the futures phases of the proposed project would affect areas to the north and west of the project site along Elm Street, the Summit Street pedestrian space, and the Student Plaza to the east of Peralta Pavilion. Existing development in the project area currently casts shadows onto these areas, although the project would generate shadow on areas that are currently not shaded by existing development.



As indicated in the Environmental Setting discussion, site reconnaissance conducted for this analysis did not observe any passive solar heat collectors, solar collectors for hot water heating, or photovoltaic solar collectors in the areas adjacent to the project site or that might be affected by project shadow. Although there are no solar systems in the project site vicinity that would be affected by project building or landscaping shadow, there is a potential for buildings to install such systems in the future. However, due to the existing shading in the project area, any additional shadow generated by the proposed towers would be incremental and would not substantially impair the function of a building that may use a solar heating in the future.

With respect to historical resources, no historic resource would be further shaded by future phases of the proposed project’s future phases. The Parks Chapel A.M.E. Church would continue to be affected by shadows created during Phase 1 of the project, but the shadow effects of future phases would not further detract from the use or enjoyment of this or any other historical resources.

With respect to the project’s affects on any nearby public or quasi-public park, lawn, garden, or open space that would be affected by project shadow, as stated above, shadow patterns would be cast on the new Student Plaza, as well as on Summit Street, which would be converted to a pedestrian-only circulation space. However, given that these shadows would be temporary in nature, and given that future phases would result in a net increase in lawns and open space, this shading is a less-than-significant impact. No other nearby public or quasi-public park, lawn, garden, or open space would be affected by project shadow. Based on the above, the future phases of the proposed project’s impact with respect to shadows would be less than significant.

Summary The proposed project’s impact with respect to shadows would be less than significant after Phase 1 of the proposed project. The proposed project’s impact with respect to shadows would also be less than significant after future phases of the proposed project.


Impact VIS-5: The proposed project would not require an exception to the policies and regulations in the General Plan, Planning Code, or Uniform Building Code, addressing the provision of adequate light related to appropriate uses. (Less than Significant)

Although the proposed project would require a number of discretionary approvals pursuant to the Oakland Planning Code, it would not require a General Plan Amendment or Rezoning as the project would be consistent with the current zoning designations on the project site. As discussed in detail in Chapter 3, Project Description, the project site is located within the S-1 Medical Center Special Zone. Through the final building plan approval and permitting process for the project, the City would ensure project consistency with the light and ventilation section (Section 1203) of the Uniform Building Code, and the City’s Outdoor Lighting Standards (City of Oakland, 2002).



Additionally, the proposed project appears consistent with General Plan policies regarding provision of useable open space (OSCAR OS4.1).

Moreover, the existing maximum development intensity allowed by the existing General Plan classifications would accommodate that proposed by the project. Actual development would be restricted by the limits, standards, and guidelines (building height, setbacks, etc.) prescribed by the current applicable zoning designation and at the discretion of the City through the discretionary review of the project.

The project would incorporate a curtain glass wall design in Phase 1’s new patient care pavilion, which would maximize the sunlight access into the interior of the building. Although the proposed project would cast shadow on nearby buildings, particularly during the winter and fall seasons at certain times of the day, indirect sunlight would still be available to windows of nearby buildings. Furthermore, the intensity of patient care, medical office, retail, and parking development proposed is consistent with the surrounding context in which the site is located and with level of sunlight, noise, and privacy consistent with that typically found and anticipated for hospital developments within Oakland.

The project would result in a net increase of usable outdoor open space by creating new landscaped areas and closing the Summit Street right-of-way to vehicular traffic, which would continue to receive sunlight during most days of the year and times of the day, as analyzed in Impact VIS.4, above. Thus, the project is consistent with relevant policies and regulations regarding the provision of light and usable open spaces and therefore would not have a significant impact.


Cumulative Visual Quality Impacts

Cumulative Context The geographic context used for the visual quality assessment of the proposed project encompasses areas surrounding the project site, which are depicted in existing setting photographs in Figures 4.2-2 through 4.2-8, with the map of the areas shown in Figure 4.2-1. Specifically, nearby Kaiser Oakland Medical Center Master Plan Project and the Broadway/Valdez District Specific Plan Project are considered for the cumulative views. The Broadway/Valdez District Specific Plan Project and the Courthouse Condominiums Project, are considered for the cumulative shadow effects. These projects are included in the City of Oakland’s Active Major Development Projects list. All of the projects listed in Table 4-1, which are in the project vicinity, are considered for light and glare effects.4

4 The Broadway/Valdez District Specific Plan is still in the planning stages. For the purposes of cumulative visual

and shadow analyses, the massing of the Specific Plan was based upon the conceptual massing depicted in Alternative 1 from the Upper Broadway Strategy: A Component of the Oakland Retail Enhancement Strategy (City of Oakland, 2007).



Impact VIS-6: Project construction activity and operations, combined with cumulative development in the defined geographic area, including past, present, existing, approved, pending, and reasonably foreseeable future development, would result in cumulative impacts related to visual character, views, aesthetics, shadow, or light and glare. (Less than Significant)

Implementation of the proposed project combined with cumulative development in the defined geographic area, including past, present, existing, pending and reasonably foreseeable future development, would not result in significant adverse changes to the visual environment, including visual character and views, light and glare, and shadow. New development would, in general, occur as redevelopment projects, by replacing existing development with more intense development as the project site vicinity is largely built out. Figures 4.2-7 and 4.2-8 show the cumulative photo-simulations. Figures 4.2-21 through 4.2-26 show the cumulative shadow diagrams.

Visual Character The construction of the cumulative projects in the area, combined with the proposed project, would change, but not adversely affect, the existing visual character of the project site vicinity. Parking lots and vacant parcels would become staging areas, and they would be occupied by construction equipment and machinery. Some buildings would be demolished and in various stages of replacement by larger structures. Roadway alignments would be adjusted, and new or upgraded utility lines could be required, necessitating excavation of public rights-of-way. Given the temporary period of construction activities of the proposed project and cumulative projects in the area, the project site vicinity’s visual character and quality would be altered for several years but would not be a significant adverse effect. The effect would be less than significant.

Views As shown in Figures 4.2-7 and 4.2-8 and discussed under Impact VIS-1, above, full buildout of the proposed project, combined with cumulative development, would not have a significant adverse impact on scenic vistas or views.

Lighting and Glare Future project applicants would be required to comply with Standard Condition VIS-1, Lighting Plan, which would minimize potential impacts resulting from project-related lighting and ensure that lighting and glare effects associated with those projects remain less than significant.

Shadow In March and September (Figures 4.2-21 through 4.2-23), morning shadow from cumulative development would fall in a westerly direction, newly shading the sidewalks along Broadway, Webster Street and Elm Street, as well as the existing Student Plaza west of Peralta Pavilion. At noon, shadow from cumulative development would extend in a northwesterly direction, shading the sidewalks on Broadway, Webster Street, and 30th Street. By 3:00 PM, shadow from cumulative development would extend in a northeasterly direction and result in new shade along Hawthorne Avenue and 30th Street, as well as on a new plaza along Broadway.



In June (Figures 4.2-24 through 4.2-26), morning shadow from cumulative development would be cast in a westerly direction at 9:00 AM, newly shading the sidewalks along Broadway, 29th Street, 30th Street, Webster Street, Hawthorne Avenue, and Elm Street, as well as the existing Student Plaza west of Peralta Pavilion. By noon, cumulative development would cast a very minimal shadow that would extend only slightly northwestward onto buildings, landscaping, and driveways immediate adjacent to the new medical office building and college expansion, as well as onto sidewalks on Broadway, Webster Street, and Hawthorne Avenue. At 3:00 PM, cumulative development would cast shadow in a northeasterly direction, shading sidewalks on Broadway, sidewalks on Hawthorne Avenue, the western area of the pedestrian-only Summit Street, areas on the north and east sides of the college expansion, and sidewalks on Telegraph Avenue.

In December (Figures 4.2-24 through 4.2-26), when shadows are near their longest, at 9:00 AM shadow from cumulative development would fall in a northwesterly direction, extending over Broadway, 30th Street, Webster Street, Hawthorne Avenue, the Central Utility Plant of the Peralta Pavilion and across Elm Street onto properties on the western side. By noon, cumulative development shadow would extend in a northwesterly direction, resulting in shade along sidewalks on Hawthorne Avenue, Broadway, Webster Street, 34th Street, 30th Street, and Elm Street. At 3:00 PM, the shadow from cumulative development would stretch in a northeasterly direction onto the same streets, as well as onto Telegraph Avenue. Cumulative shadow would also shade most of the Summit Street pedestrian-only area, and other plazas on Broadway.

As shown in the analyses in Figures 4.2-21 through 4.2-26, new shadows cast by cumulative development in the defined geographic area, including past, present, existing, approved, pending, and reasonably foreseeable future development, would affect areas to the north and west of the project site sidewalks and nearby sidewalks along Broadway, Webster Street, and 30th Street. These shadows would not result in significant adverse changes.

Summary All future development that could occur in the project site vicinity would be required to adhere to established restrictions, guidelines, policies, and criteria that address building appearance, height, bulk, and configuration, and the type of land use. Thus, there would not be significant cumulative visual impacts, and the effect of the proposed project, in combination with other foreseeable projects, would be less than significant.




References – Visual Quality and Shadow California Department of Transportation, The California Scenic Highway System,

http://www.dot.ca.gov/hq/LandArch/scenic/cahisys.htm, accessed December 2, 2008.

Candela: Lighting and Design Consulting. Alta Bates Sutter Medical Center Lighting Design Narrative. March 19, 2009.

City of Oakland, CEQA Thresholds and Criteria of Significance Guidelines, August 17, 2004.

City of Oakland, Justification for Granting Non-Residential Design Review. Available Online: http://www.oaklandnet.com/government/ceda/revised/planningzoning/zoningsection/Forms/Non-Residential%20Design%20Review%20findings%20(07-13-04).pdf, accessed September 9, 2009.

City of Oakland, Envision Oakland, City of Oakland General Plan, Land Use and Transportation (LUTE) Element, as amended through March 24, 1998.

City of Oakland, Open Space, Conservation and Recreation (OSCAR), An Element of the Oakland General Plan, adopted June 1996.

City of Oakland, Scenic Highways, An Element of the Oakland Comprehensive (General) Plan, adopted September 1974.

City of Oakland, Upper Broadway Strategy: A Component of the Oakland Retail Enhancement Strategy, Conley Consulting Group, JRDV Architects, Strategic Economics, and Colliers International, September 2007.

4.2 Visual Quality and ShadoThe ABSMC Summit Campus covers 20.40 acres and comprises three major...

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Transcript of 4.2 Visual Quality and ShadoThe ABSMC Summit Campus covers 20.40 acres and comprises three major...