Title
PLN20-0044; Consideration of a Conditional Use Permit, Site Plan Review Permit and a Height Exception to demolish the existing one-story industrial warehouse and construct a two-story, 47’-6” tall, 221,495 square-foot industrial warehouse comprising 4,200 square feet of office space on the ground floor and 3,400 square feet of office space on the second floor and associated site, circulation, parking, and landscaping improvements on a 9.8-acre site located at 1919 Williams Street. Zoning District: IG; Alameda County Assessor’s Parcel Numbers (APNs): 77A-700-9-6 and 79A-332-2-9; Applicant: Tyneise Beyer, HPA Architecture. Property Owner: Duke Realty 1919 Williams LP.
Staffreport
SUMMARY AND RECOMMENDATION
The applicant is requesting a Conditional Use Permit, Site Plan Review Permit and a Height Exception to demolish the existing one-story industrial warehouse and construct a two-story, 47’-6” tall, 221,495 square-foot industrial warehouse comprising 4,200 square feet of office space on the ground floor and 3,400 square feet of office space on the second floor and associated site, circulation, parking, and landscaping improvements on a 9.8-acre site located at 1919 Williams Street, zoned Industrial General (IG).
Staff recommends that the Board of Zoning Adjustments adopt the following resolutions:
1. Resolution 2022-004 certifying an Environmental Impact Report and adopting California Environmental Quality Act (CEQA) findings on impacts and mitigation measures for the proposed Project, alternatives findings, a Statement of Overriding Considerations (SOC), and a Mitigation Monitoring and Reporting Program (MMRP) for 1919 Williams St., PLN20-0044.
2. Resolution 2022-005, approving a Conditional Use Permit, Site Plan Review Permit and a Height Exception Permit for 1919 Williams Street, PLN20-0044, based on the Findings of Fact and subject to the recommended Conditions of Approval.
APPLICANT'S SUPPORTING STATEMENT
See attached applicant statement dated May 22, 2022.
RELATIONSHIP TO SURROUNDING AREA & BACKGROUND
The project site comprises of two lots and is located at the southwestern corner of Merced and Williams Street in an area zoned Industrial General (IG). The project site is surrounded by industrial uses to the north, east, and west. Properties to the south are zoned Industrial Transition (IT) and Community Commercial (CC) at the intersection of Marina Boulevard and Merced Street. The project site is approximately two miles southwest of the San Leandro Creek and approximately one mile northeast of the Oyster Bay Regional Shoreline bordering the San Francisco Bay.
The project site is currently developed with a one-story warehouse and office mixed-use building, which occupies 236,294 square feet or 55 percent of the site. In addition to the warehouse is a loading dock site and two parking lots on the northern and southwestern edges of the site.
California Register of Historical Resources
An Historic Resources Evaluation of the project site was completed by MacRostie Historic Advisors, LLC in April 2021 (attached). The report provides a historic and architectural analysis of the subject property and evaluates the property for its historic significance. The report includes a review of the existing building’s history, as well as its current and potential historic status. The property was evaluated for potential historic significance according to criteria established by the California Register of Historical Resources and the city of San Leandro’s requirements for historic resources designation, per the San Leandro Municipal Code Sections 4-26-705 and 4-26-710.
The report found the existing building qualifies for listing in the California Register of Historical Resources because it possesses significance under Criterion 3 (Architecture) and retains integrity as defined by the California Office of Historic Preservation.
A Phase I Cultural Resources report was prepared for the Project, which included a records search and historic evaluation of the property. The property does not appear to have been previously evaluated and was not identified in the City’s prior Historic Resources Surveys. There are no locally designated landmarks or merit resources within the general vicinity of the Project site.
The original one-story building at 1919 Williams St. was constructed in 1952 with two connected uses: an office and a warehouse. Aerial photographs taken shortly after that time show the industrial building was among the first to be constructed in this part of the City, in a transition from agricultural fields. In 1963, 1982, and 1985 respectively, additional sections were built to expand the footprint of the warehouse portion of the building. The function and use of the building has been consistent since 1952, housing various companies involved with the warehousing and distribution of agricultural, industrial and vehicle parts and equipment. The property was most recently occupied by CNH Parts & Service which operated at this location since 2010. Prior tenants were involved with similar business activities, dating back to the original occupant, the Republic Supply Company of California.
The existing building was designed by George Vernon Russell for the Republic Supply Company of California, which served as their Northern California headquarters. A modernist garden and parking lot was located adjacent to the office wing. The warehouse was notable for the use of natural lighting. In 1953, after the completion of the building, the American Institute of Architects awarded Russell an Award of Merit for “architectural excellence.” The design was described as incorporating “features combining beauty and livability, two factors that experts claim have a definite influence on worker efficiency and industrial relations problems.” The design was included in a US Government Exhibit at a Berlin, Germany Trade Fair in 1953.
Library-Historical Commission
Per Section 4-26-1405 of the San Leandro Municipal Code, eligible projects involving a potentially significant historic resource are referred to the Library-Historical Commission for review prior to consideration before the Board of Zoning Adjustments, the decision making body. The Project was brought before the Library-Historical Commission on January 19, 2021. The Library-Historical Commission voted unanimously to accept Staff’s recommendation to the Library-Historical Commission to motion to accept the “Historic Resources Evaluation” completed in April 2021 by MacRostie Historic Advisors, LLC and recommend to the Board of Zoning Adjustments the following for Site Plan Review and Conditional Use Permit for PLN20-0044:
1. Building Documentation. The applicant shall prepare archival documentation of as-built and as-found conditions of the property at 1919 Williams Street. Prior to issuance of demolition permits, the City of San Leandro shall ensure that documentation of the buildings and structures proposed for demolition is completed that follows the general guidelines of Historic American Building Survey (HABS)-Level III documentation. The documentation shall include high resolution digital photographic recordation, a historic narrative report, and compilation of historic research. The documentation shall be completed by a qualified architectural historian or historian who meets the Secretary of the Interior’s Professional Qualifications Standards for History and/or Architectural History (36 CFR Part 61). The original archival-quality documentation shall be offered as donated material to organizations and repositories that will make it available for current and future generations, including the City of San Leandro and the San Leandro Historical Society where it would be available to local researchers. Prior to the issuance of demolition permits, the City shall confirm documentation has been provided to all applicable organizations, including the City of San Leandro and the Historical Society.
2. Unanticipated Discovery of Archaeological Resources. If cultural resources are encountered during ground-disturbing activities, work within 50 feet of the find shall be halted, and an archaeologist meeting the Secretary of the Interior’s Professional Qualifications Standards for archaeology (National Park Service 1983) shall be contacted immediately to evaluate the find. If the discovery proves to be significant under CEQA, additional work, recommended by the qualified archaeologist, the City, and if appropriate, local Native American Tribes, such as data recovery excavation, Native American consultation, and archaeological monitoring may be warranted to mitigate significant impacts to cultural resources.
3. Unanticipated Discovery of Tribal Cultural Resources. In the event that cultural resources of Native American origin are identified during construction, all earth disturbing work within 50 feet of the find shall be temporarily suspended or redirected until an archaeologist has evaluated the nature and significance of the find and an appropriate Native American representative, based on the nature of the find, is consulted. If the City, in consultation with local Native Americans, determines the resource is a tribal cultural resource and thus significant under CEQA, a mitigation plan shall be prepared and implemented in accordance with state guidelines and in consultation with Native American groups. The plan would include avoidance of the resource or, if avoidance of the resource is infeasible, the plan would outline the appropriate treatment of the resource in coordination with the archaeologist, if applicable, and the appropriate Native American tribal representative(s). The plan shall be reviewed and approved by the City and the consulting Native American tribal representative(s) prior to implementation.
DETAILS OF THE PROPOSAL
Site Plan
The project would involve demolition of the existing one-story office and warehouse mixed-use building and associated surface parking. After demolition, the project would involve construction of a two-story 221,495 square-foot industrial warehouse, 30 dock high loading doors, and new surface parking lots. The proposed warehouse structure would have a height of 47.5 feet and include 4,200 square feet of ground floor office space, 3,400 square feet of second floor office space, and 213,895 square feet of warehouse space. The proposed structure would maintain approximately the same height on all sides of the building. Its exterior would be characterized by exposed brick, galvanized steel metal-plate-siding, grey paint, and blue glazed windows. A tenant has not been identified for the building at the time of this report. Operational hours and activities would be typical of a warehouse land use.
Access, Circulation, and Parking
Regional access to the site would be provided via Interstate 880, and local access would be provided via Williams Street and Merced Street. The project site would be accessible via three driveways, one on Williams Street, and two on Merced Street. The project would include the construction of 30 dock high loading doors on the western portion of the proposed project and surface parking would be located along the western, southern, and eastern perimeter. Surface parking for the proposed project would include 74 standard parking stalls, 59 compact parking stalls, four accessible standard stalls, two accessible van stalls, one accessible standard electric vehicle (EV) stall, one accessible van EV stall, 16 electric vehicle charging stations, and 14 clean air/vanpool stalls. The 30 dock high loading doors would be constructed on the western portion of the proposed project, and surface parking would be located on the western, southern, and eastern perimeter. An existing San Leandro Links shuttle bus stop for commuting employees is located on Williams Street adjacent to the property.
Landscape
The project proposes to replace and update the existing landscaping and groundcover with 25 trees concentrated around the eastern and southern borders of the project site. In total, 37 trees would be located in the project parking lot. These trees would be a mix of bay laurel, trident maple, crape myrtle, flowering plum tree, redbud, and crabapple. At their maturity, the trees would be projected to reach a maximum height of 15 to 20 feet. The remainder of the 34,283 square feet of landscaping would consist of a mixture of large shrubs, drought tolerant shrubs, grass, and perennials. The project would include 17,022 square feet of bioswales, primarily as one large bioswale area on the western portion of the project site in the parking area. An outdoor break area is also proposed.
STAFF ANALYSIS
Conditional Use Permit
In the IG zoning district, a Conditional Use Permit (CUP) is required to construct a new building of any size to accommodate warehouse uses. Because the prior warehouse and distribution use was legally established in 1952 prior to the current Zoning Code requirements, there is currently no CUP associated with the property. The requested CUP would memorialize the established warehouse and distribution land use and bring the property into conformance with the current Zoning Code requirements.
Because the proposed Project involves a new industrial building consistent in size, use and function with the existing facility and is surrounded by other similar industrial uses, staff finds the Project will not have a significant impact on surrounding industrial businesses nor result in an increase in vehicle traffic in the surrounding area. The footprint of the proposed warehouse is smaller than the footprint of the existing warehouse. A traffic memorandum prepared by the Applicant’s consultant team determined that the proposed project would have a reduced overall employment when compared to the existing warehouse use and result in a net decrease in vehicle miles traveled in comparison to the existing facility.
For these reasons, the Project proposal was analyzed and found by staff to be appropriate and compatible with the surrounding area, with the implementation of the recommended conditions of approval. Recommended conditions of approval have been provided by the Planning Division, Fire Department, Engineering and Transportation, Building and Safety, and the Public Works Department.
Site Plan Review
A Site Plan Review Permit is required for any industrial development that requires a Conditional Use Permit approval and is required for the development of new structures greater in size than 5,000 square feet in Industrial Districts. After demolition of the existing warehouse, the project would involve the construction of a two-story 221,495 square-foot industrial warehouse and associated site improvements and landscaping. The proposed warehouse structure would include 4,200 square feet of ground floor office space and 3,400 square feet of office space on the second floor along with 213,895 square feet of warehouse space. There are a total of 171 parking stalls and 30 trailer parking stalls purposed. The purposed footprint of the building is 218,095 square feet.
The proposed building exterior is characterized by exposed brick, galvanized steel metal-plate-siding, two shades of grey paint (light and dark), and blue reflective glazed windows with aluminum black anodized mullions. The main entrance of the building is distinguished by the installation of a black metal canopy at the east elevation. There is a total landscaped area of 34,283 square feet which is eight percent of the site and it includes small accent trees, deciduous, evergreen, and columnar trees, and parking lot and streetscape planting strips. The applicant’s proposed site plan elements were analyzed by staff and found to be in compliance with minimum requirements of the Zoning Code, achieving the intent of those requirements by providing a development compatible with its surroundings. The new building will have improved water and energy efficiency over the current structure and provide electric vehicle charging facilities.
Height Exception
The proposed warehouse structure would have a height of 47.5 feet. The proposed structure would maintain approximately the same height on all sides of the building. The maximum height permitted in the IG zoning district is 35 feet but the Zoning Code allows building heights in IG up to 50 feet with approval from the Zoning Enforcement Official. Since this project requires approval from the Board of Zoning Adjustments, the requested Height Exception, along with the Site Plan Review Permit and Conditional Use Permit must all be reviewed and approved by the highest decision-making body which is the Board of Zoning Adjustments. The applicant’s proposed height exception was analyzed by staff to be compatible with its surroundings and within the maximum allowed height of 50 feet.
GENERAL PLAN CONFORMANCE
The subject property is designated General Industrial (IG) in the City’s General Plan Land Use Map. Chapter 3 of the General Plan states that this designation permits “a wide range of manufacturing, transportation, food and beverage processing, technology, warehousing, vehicle storage, office-flex, and distribution uses,” subject to performance standards to avoid adverse off-site effects. This permit approval would allow for a new construction of a warehouse of on a 9.8-acre site, consistent with the General Industrial land use designation. In addition, the following General Plan goals and policies would apply (note: ED-Economic Development; LU-Land Use):
GOAL LU-7. Sustain dynamic innovation districts which place San Leandro on the leading edge of the Bay Area’s manufacturing and technology economy.
Policy 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.
Policy 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.
Policy 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.
Policy 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.
GOAL ED-1. Attract jobs and investment across all economic sectors.
Policy 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.
Policy ED-1.2 Maintaining San Leandro’s Competitive Advantage. Maintain and protect San Leandro’s inventory of larger scale 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.
Policy ED-1.10 Tax Revenues. Encourage development that generates sales tax, property tax, and other revenues that sustain municipal services.
GOAL ED-3. Adapt, reimagine, and reinvent traditional business models to put San Leandro on the leading edge of the innovation economy.
Policy 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.
Policy 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.
Policy 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 15161 of the California Environmental Quality Act (CEQA) Guidelines, an Initial Study was prepared for the Project. With the information identified in the Historic Resources Evaluation prepared by MacRostie Historic Advisors LLC. in April 2021, the Initial Study identified significant environmental impacts arising from the Project that could not be mitigated to a less-than-significant level. As a result, a draft Environmental Impact Report (EIR) was deemed necessary for preparation. The City circulated a Notice of Preparation (NOP) dated August 27, 2021 to public agencies and interested parties, with a legal notice posted in the East Bay Times, on the City’s website, the County Clerk, and at the California Office of Planning and Research (OPR) CEQAnet web portal. Comments received by the City of San Leandro on the NOP and Initial Study are provided in Appendix NOP of the Draft EIR and are summarized in Table 1-1 of the Draft EIR. These comments were taken into account during the subsequent preparation of the Draft EIR.
The City also conducted AB52 Tribal consultation for the proposed Project on September 14, 2021 to California Native American tribes that requested to be notified by lead agencies of proposed projects in their traditionally and culturally affiliated geographic area. At the conclusion of the 30-day consultation period, no requests for consultation were received.
The Draft EIR was made available for public review on March 1, 2022 and distributed to public agencies. Copies of the Notice of Availability (NOA) of the Draft EIR were mailed to a list of interested parties, groups and public agencies. The Draft EIR and an announcement of its availability were posted electronically on the City’s website, and a paper copy was available for public review at the San Leandro Community Development Department. The Notice of Availability of the Draft EIR was also posted at the office of the Alameda County Clerk and on the State’s CEQAnet portal (SCH No. 2021080547).
The 30-day CEQA public comment period began on March 1, 2022 and ended on March 31, 2022. The City of San Leandro received two comment letters on the Draft EIR. Copies of written comments on the Draft EIR received during the comment period, as well as responses to those comments, are included in Section 3 of the Final EIR Response to Comments, attached to Resolution 2022-004 “Exhibit C”. Copies of the Draft EIR, the Statement of Overriding Considerations and the necessary supporting findings have also been attached to Resolution 2020-004 recommended for adoption.
PUBLIC OUTREACH
This agenda item received standard noticing for the June 2, 2022 Board of Zoning Adjustments hearing, including a legal advertisement in the East Bay Times Daily Review newspaper, the posting of notices at City Hall and on the property, and mailing notification to property owners and businesses within 500 feet of the subject property. The City of San Leandro received two comment letters on the Draft EIR during the March circulation period. Staff did not receive any public comments regarding this hearing item subsequent to that time and prior to the release of this report.
RECOMMENDATION
Staff recommends the Board of Zoning Adjustments approve the proposed Project by adopting the following resolutions separately and in order:
1. Resolution 2022-004 certifying an Environmental Impact Report and adopting California Environmental Quality Act (CEQA) findings on impacts and mitigation measures for the proposed Project, alternatives findings, a Statement of Overriding Considerations (SOC), and a Mitigation Monitoring and Reporting Program (MMRP) for 1919 Williams St., PLN20-0044.
2. Resolution 2022-005, approving a Conditional Use Permit, Site Plan Review Permit and a Height Exception Permit for 1919 Williams Street, PLN20-0044, based on the Findings of Fact and subject to the recommended Conditions of Approval.
ATTACHMENTS
Vicinity Map
Applicant’s Supporting Statement
Plan Exhibits
Colored Elevations
Colors and Materials Board
Historic Resources Evaluation, MacRostie Historic Advisors, LLC, April 2021
Vehicle Miles Traveled (VMT) Memorandum Kimley-Horn
Resolution 2022-004 (22-345)
Draft Environmental Impact Report (EIR)
Final Environmental Impact Report (EIR) / Comments and Response to Comments
Mitigation Monitoring and Reporting Program (MMRP)
Findings Concerning Significant Impacts and Mitigation Measures
Statement of Overriding Considerations
Findings Concerning the Infeasibility of Alternatives
Resolution 2022-005 (22-344)
Recommended Findings of Fact
Recommended Conditions of Approval
Please visit <https://www.sanleandro.org/335/CEQA-Documents-Project-Studies> to view and download the Project’s environmental documents, including the Initial Study and supporting technical appendices. All documents are available for viewing at City Hall.
PREPARED BY:
Anne Wong, AICP
Associate Planner, Planning Division