Title
PLN17-0003; Consideration of a Conditional Use Permit and Site Plan Review, to demolish the existing structures on the site of the former Kraft Foods manufacturing facility at 100 Halcyon Drive and redevelop the 30.74 acre site into an industrial complex with warehousing and office space. The proposed San Leandro Business Center development would consist of three new industrial buildings totaling 553,200 square feet. The buildings would accommodate a range of industrial, research, warehouse and office uses. The Conditional Use Permit also includes height exceptions for the 70 foot tall architectural screen for co-locating Wireless Telecommunication Facility on Building 1 where 57 feet is the maximum allowed (15 feet above the parapet) and for 43.5- to 46 feet tall southeastern corner portion on Building 2 where 25 feet is the maximum height being within 100 feet of a R Residential District building. IG(AU) Industrial General, Assembly Use Overlay District; Alameda County Assessor’s Parcel Numbers 77C-1240‐2, 77C‐1315‐2, and 77C‐1235‐3‐4; T. Jodry, Trammell Crow Co. (applicant); 100 Halcyon Owners, LLC (property owner).
Staffreport
SUMMARY AND RECOMMENDATION
The proposal is to redevelop an existing 30.74 acre industrial plant with three new industrial buildings totaling 553,200 square feet. The subject property is zoned Industrial General with an Assembly Use Overlay (IG-AU). As per Zoning Code Section 2-714 B. 35. and 36., uses such as “Warehouse-Storage Facilities” and “Warehouse-Wholesale/Retail Distribution Facilities” require a Conditional Use Permit (CUP) in the IG-AU District and, as per Zoning Code Section 5-2502 B.4.a., and any new industrial development project exceeding 5,000 square feet requires Site Plan Review (SPR) approval. The Site Plan Review includes consideration of building elevations, site plans, landscaping, lighting, and a sign program for future tenants.
The request also requires approval for the proposed building height and height exceptions. Section 2-734 of the Zoning Code allows height limits of up to 50 feet for projects in the Industrial General zoning districts with approval. The applicant is requesting a Conditional Use Permit for two height exceptions (Zoning Code Section 4-1658) in order to accommodate a proposed 70 foot tall architecturally screened Wireless Telecommunication Facility tower on Building 1 (Zoning Code Section 4-1686 F. 2. c.) and a height exception for a 43.5- to 46 foot tall portion of the southeastern corner of Building 2, due to a height limit of 25 feet for industrial buildings within proximity within 100 feet of Residential District (R) buildings (Z.C. Section 2-734 B.). The requested Conditional Use Permit and Site Plan Review are a combined application and subject to review and approval by the Board of Zoning Adjustments (BZA).
The proposed project would enhance and improve the prominent industrial property that started manufacturing Maxwell House Coffee and Jell-O for General Foods in 1950. After 66 years of continuous operation, the plant closed in 2016. Three new industrial shell buildings would replace the contiguous multiple buildings, existing mechanical equipment, and various outdoor storage activities that were associated with the former food and beverage plant. Following an extensive analysis, Staff recommends that the Board of Zoning Adjustments approve the project and make the following actions:
1. Adoption of the Initial Study, Mitigated Negative Declaration, and Mitigation Monitoring Plan;
2. Adoption of Recommended Findings of Fact for Approval of PLN17-0003; and
3. Approval of the Recommended Conditions of Approval for Conditional Use Permit and Site Plan Review PLN17-0003 to construct a three new industrial buildings totaling 553,200 square feet of warehouse buildings with loading docks and administrative offices.
APPLICANT'S SUPPORTING STATEMENT
See attached.
RELATIONSHIP TO SURROUNDING AREA
The subject property encompasses 30.74± acres and is near the corner of Washington Avenue and Halcyon Drive. Surrounding land uses consist of commercial and industrial development to the northwest, single and multi‐family housing on the other side of the BART line directly to the north, single‐family housing to the east and south across Halcyon Drive, and commercial retail development and additional single‐family housing to the west across Washington Avenue. A non-operating railroad and elevated BART line along the northeastern property line separate the site from the multi-family housing (Parkside Commons Apartments) to the north and the single family homes to the east (Halcyon Park neighborhood). The Amtrak Capital Corridor mainline is adjacent to the southwestern portion of the site. The project site is currently developed with several prominent industrial buildings associated with the former manufacturing use, which have recently been vacated and are proposed for demolition as part of this project. Almost all of the residential housing surrounding the industrial property were developed since the plant first opened in 1950.
BACKGROUND
The Project site is currently developed with 13 partially connected manufacturing, warehouse and commercial buildings with a combined total of 328,000± square feet. The site was originally developed by Kraft Foods, Inc. (General Foods) which constructed some of the existing buildings in 1949 and began Maxwell House Coffee and Jell‐O production in 1950. At full production capacity, the plant provided employment for about 200 people. Coffee processing continued at the facility for over 60 years, with a period of downsizing after 1990. Coffee production was eventually phased out, and the company merged with Heinz in 2015 to form the Kraft Heinz Company. Operations at the 100 Halcyon plant ceased in 2016. At that time, the plant employed 130 people and operated 24 hours day, seven days a week. The towers at the center of the property containing silos and heating and cooling towers are currently the tallest buildings in the City of San Leandro.
Developer’s Intent and Purpose
The applicant and property owner propose a project that they believe will provide highly flexible space that can accommodate various industries including food, fabrication, manufacturing, research and development (technology), fulfillment and wholesale trade distribution (see attached Applicant’s Supporting Statement). The proposed wireless facility will replace those currently attached to the existing tower structures.
DETAILS OF THE PROPOSAL
Site Plan
The proposed project involves the construction of three high‐pile industrial shell warehouse buildings (see Exhibits B and C). Building 1 would be 121,643 square feet; Building 2 would be 137,091 square feet; and Building 3 would be 293,940 square feet, for a total building footprint of just under 553,200 square feet. Approximately 10 percent of each building would be dedicated to office space, for a total of about 497,880 square feet of industrial space and 55,300 square feet of office space. All three buildings have been designed as flexible industrial spaces, designed to accommodate a range of tenants. The site plan reflects this flexibility, with a layout of parking, loading docks and loading areas designed for both typical warehouse tenants and other uses. All three buildings have been designed and oriented so that the proposed loading docks face the interior and will not be readily visible from adjacent properties.
Building 1
Building 1 at the northwest quadrant of the site would have a footprint measuring approximately 255 by 472 feet (see Exhibit D). The setbacks would be as follows: 20 feet from the Washington Avenue right-of-way line; 200 to 210 feet from the northwestern side property line; and approximately 570 feet from the northeastern side. These setbacks comply with the minimum required in the IG District, which are 10 feet for the street frontage and zero setback for the side or rear (as per Zoning Code Section 2-732). Building 1 would be separated 175 to 235 feet from Building 3 and approximately 240 feet from Building 2.
The south side includes 21 loading docks and two ramps, one at the east end and one at the west end for truck access into the building. The eastern corner at the center of the property is designed for an architecturally integrated tower feature that would house multiple wireless communications providers’ antennae facilities (i.e., AT&T, Sprint, T-Mobile) within its interior (See Exhibit H). The three other corners are designated office spaces for the warehouse building.
Building 2
Building 2 at the southwest quadrant of the site would have a footprint measuring 255 by 519 feet (see Exhibit I). The setbacks would be as follows: approximately 33 feet from the Halcyon Drive right-of-way line; 20 feet from the western side property line shared with the Union Pacific Railroad; and 55 feet, 9 inches from the eastern side property line shared with the adjacent 18 unit single-family residential subdivision (Olivia Street, Muscari Street). These setbacks comply with the minimum required setbacks in the IG District, which are 10 feet for the street frontage and zero for the side or rear (as per Zoning Code Section 2-732).
With a varied parapet, Building 2 is about 43.5- to 46 feet tall. A portion of Building 2 does not comply with the industrial height limit setback from residential buildings and a height exception is requested. Conditional Use Permit approval is required in order to exceed the 25 foot maximum height limit for a portion of the eastern edge of the building located within 100 feet of an R District building (as per Zoning Code Section 2-734 B.). The closest edge of Building 2 is 60 feet from the residential property line and about 75 feet from the nearest home. The portion of the building located within this height limit setback is about 2,000 square feet, less than 2% of the building’s area.
Building 2 would be separated from Building 3 by about 175 to 235 feet. As shown on Exhibit I and J, the north side of the building includes 25 truck loading docks and two ramps, one at the east end and one at the west end for access into the building, and the four corners are designated as potential office spaces to serve the building.
Building 3
Building 3, the largest of the three buildings, is located on the eastern half of the site along the existing BART line. Building 3 is proposed to have a footprint measuring approximately 275 by 1,036 feet (see Exhibit M). The building would be setback 68 to 75 feet from the north property line; 60 feet from the eastern property line shared with non-operating Western Pacific Railroad right-of-way; 100 feet from the southeastern property line shared with Oleander Drive residents; and 115 feet from the southwestern propriety line shared with the Muscari Street residents. These setbacks comply with the minimum required setbacks in the IG District, which are zero from side or rear property lines from properties not zoned residential (Z.C. Section 2-732). Unlike Building 2, Building 3 fully complies with the industrial height limit setback from residential, since the building is greater than 100 feet from residential buildings along the southeastern and southwestern property lines (Z.C. Section 2-734 B.).
As shown on Exhibit M and N, the west side of Building 3 includes 50 loading docks and three ramps, one at the north end, one in the center and one the south end for truck access into the building, and five potential office space locations at the four corners and a center location along the eastern side.
Circulation and Parking
The site will be accessed via 40 foot wide driveways on Washington Avenue and Halcyon Drive. This design allows for ingress and egress that would not affect the operation and the traffic flow at the intersection of both streets. The Washington Avenue and Halcyon Drive frontage setbacks would be landscaped (Exhibits R and BB).
The onsite circulation would be around the perimeter of the site and through the center (spine) roadway adjacent to the east ends of Buildings 1 and 2. The onsite circulation is designed to accommodate both cars and large trucks. There are car parking fields north of Building 1 near Washington Avenue, south of Building 2 near Halcyon Drive, south of Building 3 and around its north and east edges. The truck and trailer parking spaces are located near the truck loading docks between Buildings 1 and 2, and opposite the docks on Building 3.
Two different site plan parking variations have been prepared (Exhibits B and C) to show the flexibility of the site with options to provide two different scenarios ranging from 667 parking spaces (519 automobile spaces plus 148 semi-truck trailer spaces) to 764 parking spaces (689 automobile spaces plus 75 semi-truck trailer spaces), respectively. Exhibit C shows 170 more automobile spaces in-lieu of 73 semi-truck spaces between Buildings 1 and 2, in the event that a labor intensive use occupies the property. These amounts do not include the 96 spaces at the loading docks of the three new buildings.
The proposed project could include 38,000- to 55,300-square feet of office and mezzanine space and 497,880- to 515,200-square feet of flexible warehouse space. For an industrial building of this size, the City of San Leandro Zoning Code requires 644 to 682 parking spaces (one space per 300 square feet for office/mezzanine and one space per 1,000 square feet for industrial usage). Based on the site plans, the project could provide 689 parking spaces, which exceeds the City minimum requirement of 644 to 682 spaces (Exhibit C). The lesser 519 parking space scenario plus 148 semi-truck spaces and 76 spaces at the dock doors provides a cumulative number of 743 spaces on the site (Exhibit B). The site is served by AC Transit’s 85 and 89 bus lines. The project will be required provide a minimum of 35 bicycle parking spaces (5% of the required vehicle parking), distributed throughout the project site to accommodate bicycle commuters. The General Plan identifies the future East Bay Greenway trail to be located adjacent to the property along the existing BART line, extending from Oakland to Hayward, which would provide the site with improved access for bicycle and pedestrian commuters when completed.
Infrastructure Improvements
The proposed project will provide safety and infrastructure improvements to the adjacent streets and railroad crossing at Halcyon Drive. The site plan includes public right-of-way dedication and street widening along Halcyon Drive, primarily involving an improved and extended right turn lane and the removal of an unused rail spur leading into the project site. These improvements will enhance and improve safety and traffic flow at the Niles Subdivision railroad crossing at Washington and Halcyon (currently utilized by Union Pacific Railroad and Amtrak). As shown on Exhibit AA, the westbound to northbound right-turn lane on Halcyon Drive will be extended to 180 feet excluding the clear zone width at the railroad crossing. This work will allow for a longer queuing length for westbound to northbound turns onto Washington Avenue. At present, the queue lengths that develop in the right turn lane obstruct westbound vehicle movements, thus increasing the delay for drivers. These improvements will prompt the relocation of utilities, railroad equipment and signs. The disconnected rail spur that used to serve the site and associated railroad crossing signals on Halcyon Drive will also be removed.
In addition, the project driveway on Washington Avenue, will be improved by constructing it as a full‐access driveway rather than a right‐turn in/right‐turn out driveway, necessitated by striping a two‐way left‐turn lane on Washington Ave between 143rd Ave and the railroad crossing north of Chapman Road. The two‐way left turn lane would be accommodated by removing parking on west side of Washington Avenue. These changes would distribute vehicular access to project site among two driveways, and delays at the Halcyon Drive driveway intersection would be reduced.
Elevations
The exterior of the building will consist of decorative concrete tilt-up walls. Attention was given to the northwest and west elevations at the end of Building 1 facing Washington Avenue and west elevation at the end of Building 2 facing the Halcyon Drive and Washington Avenue intersection so that these prominent elevations would appear articulated, unlike a typical tilt-up industrial building. In addition, portions of these walls will be appointed with murals - approximately 75 feet on Building 1 and 100 feet on Building 2. The east elevation of Building 3 will also have two murals, 75 to 100 feet long, as this side faces the elevated BART line and the future East Bay Greenway (a planned bicycle and pedestrian pathway that extends from Oakland to Hayward), the non-operating railroad line. The proposed articulation will consist of a combination of colors, details, finishes and materials as identified in attached Exhibits BB, CC, DD and EE, Perspectives, Colored Elevations and Colors and Materials Board, respectively. The colors range from white, varying cool gray colors and green and brown earth-tones. In addition to the concrete walls, there will be two-story blue reflective glazing at corners of the buildings for the future office spaces. The glass is framed with white clear anodized (silver) mullions and have white projecting canopies. Besides the two-story glazing, there will be vertical formlined elements that add shadows and texture to the elevations. These are also where the earth-tone colors would be applied to complement these other features at the corners of the buildings.
The truck dock elevations facing the interior of the site plan will be painted the white and gray colors. The roll-up doors will be painted the same white color (Wash Basin, Frazee) to match the building color.
Height
The typical height for the buildings are 43 feet, six inches to 44 feet, six inches tall. For articulation to the roofline, there are minor incremental increases at the corners of the building to 46 feet, six inches for the vertical architectural features and up to 49 feet for the one-foot wide columns which project from these features’ wall plane, to create a shadow. With approval, these heights will comply with Z.C. Section 2-734 C. where the City may allow a maximum building height of fifty (50) feet in the IG District.
However, as mentioned earlier in this report Z.C. Section 2-734 B. limits the height of Building 2, a portion of which is within one hundred (100) feet of an R District building, to twenty-five (25) feet. When measured 100 feet from the footprint of homes at 14871, 14873, and 14875 Olivia Street, less than 2% of a portion of the 137,091 square foot building exceeds 25 feet in height, comprising approximately 2,000 square feet of southeast corner of the building.
Wireless Communications Facility and Height Exception
The proposed project includes a proposed wireless communications facility to be located within a 70 foot tall stealth tower feature constructed on the eastern interior corner of Building 1, closest to the center of the project site. The proposed tower feature would serve as a replacement for the existing wireless antennae installed on the roof of the existing General Foods plant. Although architecturally-integrated wireless antennas are a permitted use in the IG zoning district (as per Zoning Code Section 4-1686), the proposed 70 foot tower feature requires Conditional Use Permit approval for a height exception. Wireless carriers will utilize temporary portable antennae facilities to be placed on site during demolition and construction.
The location of the tower feature is noted on Exhibit F, Roof Plan Keynote10, “Proposed Location of Cell Tower.” As shown on Exhibit H, the facility would be 70 feet tall from ground level, rising 31 feet 6 inches above the Building 1 roofline. The facility would be fully screened and contained within a 20 x 20 foot square fiberglass tower that will be architecturally designed and constructed to blend in with the appearance of the building. Zoning Code Section 4-1686 F. 2. C. provides that building-mounted and roof-mounted wireless telecommunications facilities, including any screening devices, may not exceed a height of fifteen (15) feet above the roof or parapet, whichever is higher, of the building on which it is mounted unless approved through a Conditional Use Permit. The applicant has prepared a Line of Sight study, Exhibit Q, which demonstrates the appearance of the location of the architectural tower feature when viewed from Halcyon Drive or Washington Avenue.
The exception to the 70 foot tall architectural cell tower on Building 1 and the building height for the southeast corner portion of Building 2 may be approved by the Board of Zoning Adjustments through a Conditional Use Permit, as per Z.C. Section 4-1658 (Exceptions to Height Limits). It provides that these structures not cover more than 10 percent of the area of the structure to which they are accessory to and may exceed the maximum permitted height by no more than ten (10) feet, unless the Board of Zoning Adjustments approves a Conditional Use Permit that authorizes additional height. (Ord. 2001-015 § 1) The 400 square foot architectural tower feature on Building 1 amounts to 0.03 percent (less than 1.0 percent) of the building, and the 2,000 square foot portion of Building 2 located in the reduced height setback area amounts to about 1.5 percent of the building.
Due to the prominence of this proposed tower feature and the cubic architectural design, staff is recommending a condition of approval to enhance the appearance of the tower to include either a roof or parapet and clock faces to provide some additional functionality as a clock tower. The proposed condition would require the applicant to work with staff on a final design prior to issuance of a building permit. The City has conditioned similar vertical wireless facilities to include clock faces in two other cases at: 1057 MacArthur Boulevard, above Starbucks and 933 Manor Boulevard, Manor Square Shopping Center.
Murals
The applicant has selected The Mural Company to paint artwork (murals) on the exterior walls of the buildings (see Exhibits GG-KK). The artwork would be on the designated concrete panels, 75 to 100 feet in width, and extend from ground level to the top of parapet. The artwork will have a theme of human hands being used for industry, technology, and the cycle of the four seasons. Building 1 would have the Industrial Age (wrench/Winter image), Building 2 would have the Digital Age (Spring image), the Building 3 southern mural would be the Reaching Human Potential (Summer image), and the Building 3 northern mural would be the Indigenous People (Fall image).
Land Use
The Applicant’s attached Supporting Statement lists potential land uses for future tenants. The majority of the Applicant’s proposed uses for the site are permitted in the IG-AU District, though the Vehicle uses and Warehouse uses will require Conditional Use Permit approval. The requested Conditional Use Permit would grant the applicant the inclusion of Vehicle/Heavy Equipment Repair, Dealers and Rentals, as well as Warehouse-Storage Facilities, Warehouse-Wholesale/Retail Distribution Facilities for the assumed future tenants.
Any future uses not requested or analyzed under this project application that require a Conditional Use Permit will be required to return to the Board of Zoning Adjustment for consideration. Uses that require Administrative Review, such as Retail Sales or Commercial Recreation, are evaluated at the staff level as per the Zoning Code. Should potential issues arise in the future, the Zoning Code grants the City and the Board of Zoning Adjustments the authority to revisit any Conditional Use Permit to address those issues.
No specific tenant contracts have been identified by the applicant at this time. The applicant intends the large unobstructed spaces within the buildings to accommodate advanced manufacturing and similar industrial uses. The utility services available will allow the facility to accommodate a wide variety of manufacturing uses. The property’s substantial water, sewer, and electrical capacity tends to attract tenants such as food manufacturers.
Landscaping
The conceptual landscape plan shows trees, shrubs and groundcovers planted along the frontage of the property (See Exhibit R - Conceptual Landscape Plan). The trees are specified to be spaced every 30 lineal feet along the Halcyon and Washington Avenue frontages within the front planter and bio-swale areas. Short to medium tall shrubs would buffer and screen the parking fields adjacent to Halcyon and Washington Avenue. The parking fields and the perimeter driveways will have trees to provide parking lot shading and to complement and soften the linear driveways of the site plan and the expansive elevation of Building 3. Accent trees and accent ground plantings will be further coordinated at the two driveways and the corresponding corners and parts of the buildings containing the glass and steel architecture for the potential office areas. The northwestern planter, planters between Building 1 and 2, the southeastern corner planter and portions of the landscaped frontage setback will be planted as bio-swales to satisfy storm water runoff management and retention areas.
STAFF ANALYSIS
Conditional Use Permit
Although most of the Applicant’s proposed land uses are permitted under the Zoning Code, a few potential land uses, such as those involving warehousing, distribution, vehicles, and heavy equipment, require prior approval of a Conditional Use Permit. Current General Plan Policy discourages large parcels from being developed purely as passive storage warehouses, which tend to have lower employment rates than other types of industrial land uses. The City’s goals and policies for new industrial development is to attract advanced manufacturing and related industrial uses. Staff supports granting a Conditional Use Permit with the understanding that some level of warehousing, storage and distribution is necessary to accompany any given industrial manufacturing facility. Given the high demand and cost of industrial real estate in a newly constructed building, a passive warehouse use is unlikely at this location. Uses identified for this project site were evaluated through the recent 2035 General Plan Update and the project proposal has been found to conform to the assumptions made through that evaluation.
Although not proposed with this application, potential uses such as retail sales and commercial recreation will require a separate Administrative Review approval through the Planning Division. Through the Administrative Review process specified in the Zoning Code, staff has the ability to review and condition modifications to the site to ensure that the potential uses are compatible, provide adequate parking, and do not result in issues.
The Conditional Use Permit to consider granting the height exception for the wireless communications facility tower feature on Building 1 and a small portion of the southeastern corner of Building 2 are recommended for approval. These portions of the buildings requiring conditional approval for height exceptions comprise a small fraction of the overall development. Staff finds the overall height of the three proposed buildings and the wireless tower feature to be appropriate, especially given that the overall height and massing of the proposed project will be less than the existing industrial buildings which are 90 to 127 feet in height.
The existing industrial plant, with four to seven-story buildings, have housed wireless antennas for AT&T, Sprint and T-Mobile since the early 1990’s. As part of this application, the applicant and wireless carriers worked with staff on a comprehensive co-location plan to replace the wireless facilities into a single architectural tower feature proposed on Building 1. The purpose was to avoid free-standing monopoles or lattice towers, which would give a cluttered appearance to the new development. The proposal is an opportunity to “stealth,” or conceal the antennas in an appropriate manner. The tower design is architecturally-integrated into the building and will appear unobtrusive. The central location of the tower feature will further reduce the visual impact on surrounding properties. The Line of Sight study, Exhibit Q, demonstrates the architectural tower element would not be readily visible form Halcyon Drive or Washington Avenue.
The 2,000 square feet at the southeastern corner having a height of 44-feet, six-inches to the roofline and incidental step up to 46 feet, six-inches to 49 feet equals 1.5 percent of the total footprint of Building 2. This is a minor portion of the building to be considered for an exception. The proposed building would maintain 75- to 80-feet separation from the rear walls of 14871-14875 Olivia Street.
Parking and Circulation
The site will be improved with adequate street access and circulation for large trucks and is able to provide enough off-street parking to accommodate most industrial uses. The proposed parking supply of up to 689 parking spaces exceeds the 644 required parking spaces. Staff based their analysis of parking and traffic on the project’s maximum buildout of available office space, which could be up to 55,320 square feet if the available office space is maximized through the use of mezzanines (a second story installed within the designated office portions of the building). This approach is mirrored in the Initial Study, although the project proposal identifies only 38,000 square feet of office space.
In the event future tenants may require additional parking, staff has recommended appropriate measures to evaluate and accommodate parking should future problems arise. The applicant has submitted feasible alternative parking layouts with their application which are demonstrated to be feasible should the need arise. Staff is recommending a condition of approval that allows the City to monitor the parking supply and require additional parking, if necessary to meet the requirements of future tenants. This condition includes the ability to consider alternative options, such as providing employee shuttle services to BART or constructing parking shelving systems, if necessary. Staff has also included conditions of approval requiring the installation of at least 35 bicycle parking spaces (5% of vehicle parking). Given the project’s proximity to transit and the planned East Bay Greenway, the project site is well positioned to take advantage of alternative commuting options.
The Halcyon Drive frontage of the subject property is within a City required Plan Line which requires street widening. The submitted design shows the applicant will provide the required right-of-way dedications, sidewalks and related infrastructure as identified in attached Exhibit AA. In the forefront of the landscaped setback will be new curb, gutter, sidewalk and undergrounded utilities along both street frontages. Railroad crossing safety equipment and utilities will be coordinated together with the street widening project. These improvements and the provided landscaping setback comply with the City’s efforts and vision to create and maintain attractive complete streets corridors along Washington Avenue and Halcyon Drive and will improve safety at the railroad crossings.
The currently proposed right-in/right-out driveway on Washington Avenue will be converted into a full access driveway. In order to efficiently allow southbound left-turns into the project site and westbound left-turns out of the project site, a two-way left-turn lane would be striped on Washington Avenue between 143rd Avenue and the railroad crossing directly north of Chapman Road.
The driveway improvements described above have beneficial results being located as far away as possible from the intersection and from the active railroad line. First, the design improves the efficiency and operation of the intersection. Secondly, the design will prevent potential conflicts with vehicles and the trains entering and exiting the site.
Site Plan Review
The purpose of Site Plan Review is to ensure that all of the elements of the site plan are in compliance with the minimum standards of the Zoning Code and have been arranged to achieve the intent of the Code’s requirements. The required findings necessary to approve a Site Plan Review proposal are contained within Section 5-2512 of the Zoning Code.
The proposal conforms to the required IG Industrial General base zoning district setbacks, coverage, and landscaping requirements, with the exception of the wireless tower facility on Building 1 and a portion of the southeast corner of Building 2 discussed previously in this report. As noted in the recommended findings, staff finds that the buildings comply with the established Site Plan Review standards, including articulation, window placement, detailing, and visual interest. Staff further finds the proposed exterior materials, finishes and colors to be compatible with the surrounding commercial, residential and industrial structures. As mentioned earlier in this report, the provided building setbacks comply and exceed the minimum setback requirements. The buildings’ lot coverage amount to 41.5 percent, which is less than the 75 percent maximum lot coverage permitted in the IG District. The new landscaped areas are well designed and include stormwater retention with appropriate bio-swale filtration, comprising approximately 8 percent (106,674 square feet) of the site. This exceeds the minimum landscaping requirement of 5 percent of the 30.74 acre site.
Staff finds the design of the industrial buildings to be well articulated. The prominent elevations that face Washington Avenue and Halcyon Drive will be appointed with artwork in the form of an appropriate industrial-themed mural and a number of architectural features that add visual interest facing outward form the property. In addition, artwork will also be appointed to the east elevation facing the elevated BART line and the future East Bay Greenway. The use of the colors, glazing, materials, and the architectural features at the corners and the middle of the buildings breaks up the expansive look. It is a modern design that enhances the image of the area and creates an attractive campus-like environment for the industrial center.
Fencing, Outdoor Uses and Storage
Outdoor activities can be a concern with industrial projects, however the site planning and the heights of the buildings in this case would limit noise and off-light affects to adjacent uses. Specifically, the truck loading and parking areas are located in the center of the development and with +45 foot tall buildings, noise and lights should not impact adjacent properties. The adjacent residences to the southeast on Olivia and Muscari Streets, constructed in 2003, were constructed with 10- to 12-foot tall soundwalls which were intended to mitigate noise from the Kraft General Foods property. The remainder of the perimeter along the south terminating at the eastern railroad right-of-way appears to be chain link fencing. Staff is recommending a condition of approval that a soundwall be constructed at this edge to provide better separation from the adjacent residential development. It would be approximately 550 feet of new solid wall. The eastern edge along the railroad right-of way would be eight foot tall wrought iron or tubular steel, a common standard for industrial fencing in San Leandro. In addition, staff is recommending a condition of approval prohibiting the outdoor storage of equipment and that all uses be conducted within the buildings.
Fire Department
The Fire Department reviewed the site plan and elevations and found adequate access to the site. The fire sprinkler system’s design and installation in the building will be required plan check submittal, inspection and final approval by the Fire Department, prior to issuance of a building permit for the proposed building.
Landscape Plan
The landscaping concept would complement and soften the new industrial buildings. A final landscape and irrigation design for the project will be required for plan check, and subject to compliance with the City’s Landscape Ordinance and State Model Water Efficient Landscape Ordinance (MWELO), prior to issuance of a building permit for the proposed buildings. Staff recommends a condition of approval that the minimum size of the trees in the final landscape plan clearly be specified as a 24-inch box size. In addition, the necessary adjustments on the placement of the trees shall be considered so as not to obstruct the line of sight to the murals on the outside walls of the building from the respective streets, Washington Avenue and Halcyon/Floresta.
Sign Program
As a part of the Site Plan Review application, a sign program was prepared for the project (see Exhibits LL-VV). The program includes individual letters for wall signs and edge signs for building addresses (at the edge of front awnings/ canopies). There will be two monument signs for identification, one at each driveway entrance, and low profile signs in the landscaped areas on the property for directional purposes. The materials and colors for the monument signs will be steel and glass with white, grey and dark grey colors that will blend in with the architectural design of the project. In addition the placement of the wall signs at the corner parapets of the buildings are appropriate locations that blend in with the architecture.
GENERAL PLAN Conformance
The proposed development project conforms to the 2035 General Plan goals and policies listed in the Innovation Districts and Economic Development sections. The project would provide San Leandro opportunities to expand or locate new manufacturing and technology businesses. The location is ideal with interstate access, truck routes, and convenient access to the Bay Area’s water ports, airports, universities, and public transportation. The project would be a significant investment in redeveloping the expansive industrial property that could accommodate flexible space for technology-driven businesses. In addition, the project consists of a comprehensive plan that includes landscaping, façade improvements, and investments in street improvements. The IG-AU District permits various flexible industrial uses that enable the project to house innovative businesses.
The following are the specific General Plan goals and policies applicable to the proposed project:
Land Use
Goal LU-7: Innovation Districts. Sustain dynamic innovation districts which place San Leandro on the leading edge of the Bay Area's manufacturing and technology economy.
Policies:
LU-7.1 Leveraging Locational Assets. Build on the locational strengths and transportation features of San Leandro's industrial area to support the area's continued development as a major advanced manufacturing, technology, and office employment center.
LU-7.2 Adaptive Reuse. Encourage private reinvestment in vacant or underutilized industrial and commercial real estate to adapt such property to changing economic needs, including the creation of flex/office space and space for technology-driven businesses.
LU-7.3 Zoning Flexibility. Ensure that industrial zoning regulations are flexible enough to achieve the vision of San Leandro’s industrial area as an “innovation ecosystem”, where new methods of production, operations, and design are supported.
LU-7.8 Sense of Place. Create a stronger sense of place and a more positive regional image in the industrial districts through improved site planning, landscaping, architecture, façade improvements, fencing and screening, and design, as well as investments in streetscape improvements.
LU-7.11 Mid-Washington Business District. Sustain the mid-Washington corridor between San Leandro Boulevard and Halcyon Drive/Floresta Boulevard as a mixed industrial and commercial district. While the existing commercial zoning may be retained in this area, it is envisioned as a diverse business corridor including a variety of uses, including manufacturing, warehousing and distribution, heavier commercial activities, and general commercial and service uses.
Economic Development
GOAL ED-1: Attract jobs and investment across all economic sectors.
Policies:
ED-1.1 Leveraging San Leandro’s Assets. Build on San Leandro’s strengths, including its central location, transportation infrastructure, affordability, industrial land supply, and business-friendly reputation to leverage economic growth and private investment in the city.
ED-1.2 Maintaining San Leandro’s Competitive Advantage. Maintain and protect San Leandro’s inventory of largerscale industrial sites and buildings with easy access to freeways, rail, airports, and seaports. Discourage the conversion of industrial uses to commercial and residential uses except where part of a carefully targeted citywide strategy.
ED-1.3 Industrial Land Use Efficiency. Encourage more efficient use of the City’s industrial land supply, creating higher employment densities and high quality jobs, while discouraging the use of large sites and buildings for storage and other low intensity uses. Ensure that zoning and other development regulations support higher utilization of sites zoned for commercial and industrial activities.
GOAL ED-3: Adapt, reimagine, and reinvent traditional business models to put San Leandro on the leading edge of the innovation economy.
Policies:
ED-3.1 Innovation Ecosystem. Foster the creation of an “innovation ecosystem” in San Leandro’s employment districts, where businesses collaborate with one another to improve their products, workplace performance, and the quality of the work environment.
ED-3.2 Business Infrastructure. Develop the infrastructure necessary to transform San Leandro into a center for innovation and creativity, including high-speed communications, sustainable energy systems, high performing utilities, and convenient access to business networks and support services.
ED-3.3 Leading Edge Economic Sectors. Continue efforts to attract businesses on the leading edge of the Bay Area economy, including advanced fabrication, clean tech, information services, advanced transportation, and maker businesses.
ENVIRONMENTAL REVIEW
Pursuant to Section 15063 of the California Environmental Quality Act (CEQA) Guidelines, the City prepared an Initial Study (preliminary environmental analysis) and finds that, although the proposed Project could have a significant effect on the environment, there will not be a significant effect in this case because revisions in the project have been made or agreed to by the City, and that a Mitigated Negative Declaration of environmental impact and Mitigation Monitoring Plan should be adopted by the Board of Zoning Adjustments.
PUBLIC OUTREACH
For the Board of Zoning Adjustments meeting, notices were mailed to all residents, property owners and business owners within 500 feet of the subject property and to nearby homeowner associations including Halcyon-Foothill, Floresta, and Floresta Gardens. In addition, the Chamber of Commerce was mailed a notice. A Notice of Public Hearing was posted on the property frontage along Washington Avenue and near the entrance on Halcyon Drive. A legal advertisement was published in the East Bay Times Daily Review newspaper. At the time of the filing of this report, staff received one emailed request for information about the project from a resident to the east of the site. Information about the project was provided and no comment was received.
In addition, a Notice of Intent to adopt a Mitigated Negative Declaration was filed with the Alameda County Clerk’s Office on June 30, 2017, the subject property was posted, and a copy of the Initial Study Draft Mitigated Negative Declaration was made available for public review on the City website and at the Permit Center.
RECOMMENDATION
With the recommended conditions of approval, findings can be made to support approval of the proposed project. Staff recommends that the Board of Zoning Adjustments approve the project and make the following actions:
1. Adoption of the Initial Study, Mitigated Negative Declaration, and Mitigation Monitoring Plan;
2. Adoption of Recommended Findings of Fact for Approval of PLN17-0003; and
3. Approval of the Recommended Conditions of Approval for Conditional Use Permit and Site Plan Review PLN17-0003 to construct a three new industrial buildings totaling 553,200 square feet of warehouse buildings with loading docks and administrative offices.
ATTACHMENTS
Applicant’s Supporting Statement
Vicinity Map
Initial Study, Mitigated Negative Declaration
Recommended Findings of Fact
Recommended Conditions of Approval
Excerpts Zoning Code Section 2-714 IG(AU) District - Use Regulations
Exhibit A - Site Plan, Zoning Map (Sheet A0.0)
Exhibit B - Site Plan (Sheet A1.0)
Exhibit C - Alternative Site Plan (Sheet A1.0 ALT)
Exhibit D - Building 1 Site Plan (Sheet 1-A1.1)
Exhibit E - Building 1 Floor Plan (Sheet 1-A2.1)
Exhibit F - Building 1 Roof Plan (Sheet 1-A2.10)
Exhibit G - Building 1 Elevations (Sheet 1-A3.1)
Exhibit H - Building 1 Alternative for Cell Tower (Sheet 1-A3.2)
Exhibit I - Building 2 Site Plan (Sheet 2-A1.1)
Exhibit J - Building 2 Floor Plan (Sheet 2-A2.1)
Exhibit K - Building 2 Roof Plan (Sheet 2-A2.10)
Exhibit L - Building 2 Elevations (Sheet 2-A3.1)
Exhibit M - Building 3 Site Plan (Sheet 3-A1.1)
Exhibit N - Building 3 Floor Plan (Sheet 3-A2.1)
Exhibit O - Building 3 Roof Plan (Sheet 3-A2.10)
Exhibit P - Building 3 Elevations (Sheet 3-A3.1)
Exhibit Q - Line of Sight Study (Sheet DAB-A4.1)
Exhibit R - Landscape Plan (Sheet LC1)
Exhibit S - Topographic Survey (Sheet C1)
Exhibit T - Civil Engineer Site Plan (Sheet C2)
Exhibit U - Civil Details (Sheet C3)
Exhibit V - Sections (Sheet C4)
Exhibit W - Sections (Sheet C4.1)
Exhibit X - Grading and Drainage (Sheet C5)
Exhibit Y - Utility Plan (Sheet C6)
Exhibit Z - Storm Water Quality Control Plan (Sheet C7)
Exhibit AA - Right Turn Pocket Exhibit (EX1)
Exhibit BB - Colored Rendering Building 1
Exhibit CC - Colored Rendering Building 2
Exhibit DD - Colored Elevations
Exhibit EE - Photometric Plan (Sheet P-SL-2)
Exhibit FF - Colors and Materials Board
Exhibit GG - Distant Views of Murals on Elevations
Exhibit HH - Indigenous People/Fall Image-Mural
Exhibit II - Industrial Age (wrench)/Winter Image-Mural
Exhibit JJ - Digital Age/Spring Image-Mural
Exhibit KK - Reaching Human Potential/Summer Image-Mural
Exhibit LL - Signage Elements (Colors and Materials)
Exhibit MM - Signage Hierarchy (Signage Types)
Exhibit NN - Monument Sign Color Elevations
Exhibit OO - Monument Sign Elevations with Dimensions
Exhibit PP - Monument Sign Details
Exhibit QQ - Monument Sign Footings
Exhibit RR - Monument Sign Engineering
Exhibit SS - Directional Sign
Exhibit TT - Wall Sign Tenant Identification
Exhibit UU - Edge Sign Building Address Identification
Exhibit VV - Sign Location Plan (Key Map)
Photographs of Existing Site Conditions
PREPARED BY:
Elmer Penaranda, Senior Planner
Planning Services Division