Title
Staff Report for an Ordinance Approving Zoning Map and Text Amendments for the Establishment of a Planned District by Rezoning the Subject Property from DA-1 (S) to "Planned Development District", and the Approval of a Planned Development Permit for a 27,664 Square Foot Retail Project Located at 1550 East 14th Street. Innisfree Ventures II, LLC - PLN2011-00039; APN 077 0540 009 00
Staffreport
RECOMMENDATIONS
On April 19, 2012, the Planning Commission adopted a Resolution recommending that City Council approve the proposed project, subject to the attached conditions of approval.
Staff recommends that the City Council take public testimony on the environmental documents and the overall merits of the project and consider the Planning Commission's recommendation that the City Council:
A. Find that the project is exempt from CEQA pursuant to Sections 21083 and 21084 of the Public Resources Code and Section 15332 of the CEQA Guidelines;
B. Approve a Rezone of the project site from DA-1 (S) (Downtown Area 1 with an "S" overlay zone) to PD (Planned Development District);
C. Approve a Planned Development permit to develop two retail structures totaling 27,664 sq. ft. subject to the recommended conditions of approval.
BACKGROUND
The project (also referred to herein as "Village Marketplace") has a total project site area of 75,442 sq. ft. (1.73 acres) and consists of two single-story retail buildings. Building A is a single tenant specialty grocer (Fresh and Easy neighborhood market) with 13,869 sq. ft. of retail area, and Building B is a multi-tenant retail building with a total of 13,795 sq. ft. of building area which will initially include Peet's Coffee and Tea and Chipotle's. The total building floor area of both buildings is 27,644 sq. ft. The project site will have a total building coverage of 36.6% of the total project site area.
On-site parking will consist of 84 parking spaces for a parking ratio of 3 parking spaces/1,000 sq. ft. of building area. New diagonal parking on Juana Avenue will provide an additional 24 parking spaces for a total of 108 parking spaces with a total ratio of 3.9 parking spaces /1,000 sq. ft. of building area.
The project site is currently zoned Downtown Area 1 with an S overlay (DA-1(S)) and has a General Plan designation of Downtown Mixed Use. The S Overlay designation was added by the City with the adoption of the City's Transit Oriented Development (TOD) Strategy and serves as a way to implement certain specific policy areas in the TOD area. The project site will be rezoned to Planned District and the General Plan designation will remain the same.
The project site was formerly used as a grocery store (Albertson's). The structure that previously existed on the project site was larger than what is proposed and the use remains the same as the previous use. The project is also on the AC Transit Rapid Transit line that runs along E. 14th Street. The project will have a bus stop at the corner of Dolores and E. 14th Streets that will be specially designed to reduce automobile traffic and accommodate bicycle and pedestrian access to the project site.
Analysis
Rezoning and Planned District
The City's Zoning Map designates the project site as DA-1(S) and the Applicant has requested a rezone of the project site to Planned District (PD). A Planned District is a special zoning designation that allows tailored development standards for parcels that have unique attributes and need special attention. In this case, the project site is the largest available parcel in downtown San Leandro and represents an opportunity for development that will encourage more people to shop and eat downtown. The uniqueness of the project site is also related to the TOD Strategy approved by the City in 2007. The TOD Strategy is focused on making downtown San Leandro a pedestrian-oriented place, serviced by special bus and BART service. The City is presently working on enhancing the downtown BART station area and making bicycle and pedestrian connections between BART and downtown that are safe and pleasant. The project would be a part of this strategy since it would offer destination uses while also acting as a catalyst for new uses in the area and more people coming to the downtown. In this respect, the development and use standards of the project site are consistent with the Downtown Mixed Use General Plan while also creating some flexibility to allow "transit" uses as that term evolves over the coming years.
The City Council may approve a rezoning from DA-1(S) to Planned District (PD) upon finding that the rezoning and plans are consistent with the adopted Land Use Element of the General Plan and other applicable policies of the General Plan, and is compatible with surrounding development. The project is consistent with the General Plan policies listed below, the Ordinance accompanying this staff report, and existing City policies and plans including the TOD Strategy.
Planned Development Permit
As mentioned above, Section 3-1006 of Article 10 of the City of San Leandro Zoning Code provides a mechanism through the Planned Development (PD) zoning process to allow the creation of a new district composed of customized development standards that reflect the local character and neighborhood form while meeting the special attributes of the project site. This ensures that such land uses and new structures are compatible with the surrounding context and are developed in an orderly manner and with high quality urban design. In this case, the Planned District creates the zoning and development standards and the Planned Development Permit approves the project uses, site plan, and architectural design.
Elevations
The proposed design takes elements from the local building vernacular and the City's historical Spanish contexts along West Estudillo Avenue, and elsewhere downtown. The City's design is evolving in this direction with the recent addition of the Creekside project at Davis and San Leandro Boulevard, and the approved Cornerstone at San Leandro Crossings residential project near the Downtown BART Station. There is a diversity of roof lines and the multi-tenant structure's individual retail spaces are segmented by using differing building materials, rooflines and glazing. Overall it is a visually interesting building.
Landscaping, Fencing and Signs
The project site plan includes a plaza area that is adjacent to the AC Transit bus stop on E. 14th Street. The plaza consists of stone (granite) seating areas, a small grove of trees and a water element that creates a spray when activated. The plaza will create a protected area for people to wait for bus service and will encourage shoppers to take public transportation to downtown San Leandro.
Additionally, the area at the corner of Juana Avenue and E. 14th Street, the site of the proposed Peet's Coffee shop, will include a landscaped outdoor seating area. This outdoor seating area will contain screening along the parking lot area along with a buffer to the traffic on Juana Avenue while also allowing access to Juana Avenue.
All signs will be subject to a City building permit and shall be consistent with the Downtown Sign Design Guidelines.
Lot Line Adjustment
A lot line is shown on the project site indicating a conceptual boundary of the two remaining parcels. However, no lot consolidation or lot line adjustment is proposed with this application.
Committee Review and Actions
No City Council Committee meetings.
Applicable General Plan Policies
General Plan Policies that encourage this type of development are:
6.01 DOWNTOWN PLAN
In accordance with the adopted Downtown Plan and Urban Design Guidelines and the Downtown San Leandro Transit Oriented Development Strategy, ensure that new Downtown Development is attractive and creates an image conducive to revitalization.
6.02 RETAIL-SERVICE IMPROVEMENTS
Develop and implement business development strategies that improve the mix of retail and service businesses Downtown, with an emphasis on higher-end retail shops, sit-down restaurants, and entertainment uses.
6.05 PEDESTRIAN-FRIENDLY ENVIRONMENT
Provide public and private improvements that create a safe, friendly, and pleasurable environment for pedestrians in Downtown.
6.06 URBAN DESIGN
Promote quality Downtown architecture that is well articulated, enhances the pedestrian setting, preserves the City's architectural heritage, and fits in with the scale and texture of existing historic structures. Discourage "franchise architecture" that will distract from creating a unique and distinctive Downtown setting.
8.05 NEIGHBORHOOD SHOPPING CENTERS
Promote reinvestment in the City's viable neighborhood shopping centers, with an emphasis on new retail uses that serve the adjacent neighborhoods and contribute to the overall vitality of the centers.
8.09-C: EAST 14TH STREET ZONING CHANGES
Pursue Zoning Code changes along East 14th Street which enable the desired development pattern to be gradually achieved. Zoning for the East 14th Street corridor should provide incentives for mixed use development, such as density bonuses and allowances for shared parking.
Environmental Review
This project is Categorically Exempt from CEQA pursuant to the Section 21083 and 21084 of the Public Resources Code and Section 15332 of CEQA Guidelines:
15332. In-Fill Development Projects. Class 32 consists of projects characterized as in-fill development meeting the conditions described in this section: (a) the project is consistent with the applicable general plan designation and all applicable general plan policies as well as with applicable zoning designation and regulations, (b) the proposed development occurs within city limits on a project site of no more than five acres substantially surrounded by urban uses, (c) the project site has no value as habitat for endangered, rare or threatened species, (d) approval of the project would not result in any significant effects relating to traffic, noise, air quality, or water quality, and (e) the site can be adequately served by all required utilities and public services.
The project site was also subject to an Environmental Impact Report (EIR) that was approved by the San Leandro City Council in September, 2007 pursuant to Resolution 2007-111. The 2007 EIR looked at an intensity of development on the project site that is greater than the amount of development proposed with the project and as such the project would have fewer impacts than was studied in the adopted EIR. The 2007 EIR looked at the project site as being a high density mixed-use site with both retail and residential uses that would be developed with a lot coverage exceeding 50%.
Board/Commission Review and Actions
On April 19, 2012 the Planning Commission held a public hearing to review the proposed rezone, Planned Development Permit, and CEQA exemption for the project site. The Planning Commission forwarded the item to the City Council with a recommendation of approval which passed with a vote of 6-0. The Planning Commission made the attached findings for approval and approved the attached recommended conditions of approval with direction that staff discuss with the applicant, and include where there is flexibility in the site plan and design, the Planning Commission's suggestions.
Summary of Public Outreach Efforts
· Notification of the May 21, 2012 City Council public hearing was sent to property owners and businesses within a 500-foot radius of the project site and posted at the property and its vicinity. A legal ad was also published in the local newspaper ten days prior to the Council meeting.
· Applicant has conducted private meetings with neighborhood groups.
· Notice of the April 19, 2012 Planning Commission hearing was sent to property owners and businesses within a 500-foot radius of the project site and posted at the property and it vicinity. The hearing notice for April 19, 2012 was sent to various public agencies and published in the local newspaper ten days prior to the public hearing.
· November 7, 2011 - City Council Meeting with update on the project, unanimously approved by Council to continue moving forward on the project.
· November 2, 2011 - Village Marketplace Community Meeting (follow up to September meeting).
· September 28, 2011 - San Leandro by Design Project Presented to the Public.
· September 27, 2011 - Village Marketplace Community Meeting.
· April 25, 2011 - City Council Work Session on Village Marketplace, consensus by Council to continue moving forward.
· November 16, 2009 - Approval of the Exclusive Negotiating Rights Agreement (ENRA) with Innisfree Ventures II, LLC.
ATTACHMENTS
· Exhibit A-Vicinity Map
· Exhibit B-Planned District Standards
· Exhibit C-Recommended Conditions of Approval
· Exhibit D-Excerpt of the Draft Minutes of the April 19, 2012 Planning Commission Meeting
· Exhibit E-Planning Commission Staff Report dated April 19, 2012, without attachments
· Project Plans (Exhibits F through P )
· Exhibit F - Multi-Tenant Building Floor Plan (A2)
· Exhibit G - Specialty Grocery Floor Plan (A3)
· Exhibit H - Multi-Tenant Building Exterior Elevations (A4)
· Exhibit I - Multi-Tenant Exterior Elevations (A5)
· Exhibit J - Specialty Grocery Exterior Elevations (A6)
· Exhibit K- Conceptual Landscape Plans (L1)
· Exhibit L- Enlarged Landscape Plans (L2)
· Exhibit M- Plant Palette (L3)
· Exhibit N- Site Photometric (EP1.0)
· Exhibit O - Fixture Cut Sheets (EPO.1)
· Exhibit P - ALTA Survey (C1)
PREPARED BY: Philip Millenbah, Senior Planner, Community Development Department