Title
PLN15-0053; Conditional Use Permit and Site Plan Review; to construct mixed-use residential with office on the ground floor at 1650 San Leandro Boulevard. The residential component would include six attached, three-story condominium units comprising approximately 1,700 to 2,113 square feet of living area, where four units include three bedrooms and two of the units includes four bedrooms. Each unit would have a designated one-car garage. The office would be located along the frontage and on the ground floor, comprising 143 square feet for the use of residents. Six residential units in a mixed-use project requires a Conditional Use Permit on a 6,700 square foot parcel in the in the DA-4 District (one unit per 1,800 square foot of lot area is the maximum allowable on a parcel with less than 20,000 square feet of area; exceeding this density requires a Conditional Use Permit; Zoning Code Section 2-642 B. 10.). In addition, new development in the DA-4 District requires Site Plan Review (Z.C. Sections 2-698 C. and 5-2502). Assessor’s Parcel Number 75-28-10-2; Thomas Dolan Architecture (applicant), B. Walia (property owner). DA-4 Downtown Area District.
1. Adoption of the finding that this project is categorially exempt under CEQA Guidelines, Article 19, Section 15332 In-Fill Development Projects;
2. Adoption of the attached Recommended Findings of Fact for Conditional Use Permit and Site Plan Review, PLN15-0053; and
3. Approval of Conditional Use Permit and Site Plan Review, PLN15-0053, subject to the Recommended Conditions of Approval.
Staffreport
SUMMARY AND RECOMMENDATION
The applicant proposes to develop a vacant property at the east side of San Leandro Boulevard, north of Thornton Street, with a mixed-use development including six attached, three-story residential condominium units and a small office space along the frontage for the use of residents. Four of the units would include three bedrooms and two units would be four bedrooms. Each unit would be assigned a one-car garage at the ground level. Due to the mixed-use proposal and its density being greater than the maximum permitted for lots less than 20,000 square feet, the proposal is subject to Conditional Use Permit. In addition, the proposed development being in the DA-4 District is subject to Site Plan Review. The subject property is across the street from the BART Station and situated in the City’s Downtown Transit Oriented Development (TOD) Strategy Area.
The proposed project draws from the City’s TOD Strategy. Various amenities and design components are implemented to enhance the quality of life for the residents and the appearance of the project. Parking is kept out of sight to preserve the pedestrian environment. The project provides in-fill housing on an underutilized property across the street from BART and AC Transit. The proposed architecture would enhance the appearance of the San Leandro Boulevard corridor. Staff recommends that the Board of Zoning Adjustments approve the Conditional Use Permit and Site Plan Review to develop the property with mixed-use residential units, subject to the attached recommended conditions and findings.
APPLICANT'S SUPPORTING STATEMENT
See attached.
RELATIONSHIP TO SURROUNDING AREA
The subject property is vacant and undeveloped. This site encompasses 6,700 square feet (0.15 acre), measuring 50 feet in width, fronting San Leandro Boulevard, and 134 feet in depth. Adjacent to the north is a two-story, four-unit apartment building; to the south are five two-story, attached rowhomes which were built in 2001 as part of the Thornton Place Planned Development; to the northeast is a duplex; adjacent to the east is a single-family residence; and to the southeast is a five-unit condominium complex. Across the street to the west is the southerly end of the San Leandro BART station and parking lot.
The entire block is zoned DA-4 Downtown Area District with the exception of the five attached rowhomes that front Thornton Street which are zoned DA-4(PD) Downtown Area, Planned Development Overlay District.
BACKGROUND
Downtown San Leandro Transit-Oriented Development Strategy (TOD Strategy)
On September 4, 2007 the San Leandro City Council approved the “San Leandro Transit Oriented Development Strategy” which is a plan that addresses planning and design issues in the area between downtown and the San Leandro BART station. The purpose of developing the TOD Strategy is to provide growth in the transit rich downtown for sustainable development. Downtown San Leandro is an ideal location for TOD because the area is served by a variety of transportation sources, including AC Transit and BART, and because it is located near shopping and professional services. With development of housing around the San Leandro BART station, it is expected that this new residential population will increase the amount of downtown business activity, thereby creating a walkable and pedestrian-friendly downtown environment. As new housing units are built, there will be both an increase in transit ridership and in the local population that will enhance the market for downtown shops and services and act as a catalyst for downtown revitalization.
Associated with the adoption of the TOD Strategy specific plan were new zoning standards, DA Downtown Area District, which implement the TOD Strategy specific plan. These new standards include increased height limits, higher residential densities, reduced parking standards, and other zoning standards. These standards were adopted so that property owners would know exactly how to design new developments, or redevelop existing sites, while minimizing the uncertainty of the discretionary review process.
DETAILS OF THE PROPOSAL
Site Plan
The six-unit building would be situated along the northerly edge of the rectangular lot. Along the southerly edge, a common driveway via San Leandro Boulevard would serve access to the units (see attached exhibits). The driveway would access the one-car garages at the ground floor of the building. There is an existing eight-foot tall pre-cast concrete soundwall along the southerly interior property line shared with the five rowhome units that face Thornton Street.
Setbacks
The proposed building would maintain a front setback from the San Leandro Boulevard right-of-way line of zero to five feet. South of the driveway the second floor above the small office would have a zero setback and on the north side of the driveway the ground floor would have a five-foot setback. This complies with the San Leandro Boulevard Design Goal (page 112 of the Downtown TOD) where buildings must be setback from the inside face of the sidewalk 10 feet minimum to 15 feet maximum. The existing face of the sidewalk is approximately 13 feet from the right-of-way line. The front entry porches and stairs to the small office and to the front unit are recommended in the TOD Design Guidelines to extend into the setback as proposed. The shallow setback area will be planted to provide a buffer between the residence and the sidewalk.
The northern side yard setback on the ground floor would vary from three feet to six feet. The second floor would also have varying setbacks up to three feet from the north side property line. This edge provides the required Building and Fire Code egress.
The southern side yard has setbacks from zero to nine feet. On the ground floor the office and garage for the rear unit would be on the property line. On the second floor the bedrooms, above the office and the garage, will have the same zero setback and the outdoor decks for interior units 2 through 5. On the third floor, the rear unit would have a covered deck to the side property line. Along this southern edge there will be three openings to the ground floor so that Fire Department will have access via a ladder.
The eastern rear yard at ground level will have a 10-foot setback that will be improved with landscaping. A portion of it will be common garden area. At the second floor the rear of the building will have two bays that project three feet into the setback. At the third floor, the southeastern covered deck would have the same three foot projection into the setback.
Proposed Dwelling Units
The townhouse units will be two- to three-story with 2,113 square feet of living area for the front unit, 1,724 square feet of living area for the rear unit, and 1,700 square feet for the four units in between (see Exhibit A, where the floor area tabulations per floor for each unit are listed). The front and rear units comprise four bedrooms and three bathrooms. The four units in between the front and rear units include three bedrooms and three and one-half bathrooms. On the ground floor, each unit is designated a one-car garage. The second floor of each unit will have the living room, kitchen, and dining area and the third floor of each unit will have bedrooms (see Exhibits F, G and H to see specific layouts for each floor). Private open spaces are provided as second floor decks to the second to fifth units on the second floor and on the third floor of the sixth unit.
Office Space
The proposed office space will be 143 square feet and only available for use by resident(s) of the townhouses. The office space would not be for lease or for sale to someone that does not reside on the condominium property.
Architecture
The exterior elevations of the multi-family residential building will have a Craftsman-style appearance with the use of projecting bay elements, vertical windows with wood trim, complex gabled roof design, knee-braces (brackets) for the deep eaves at the gabled ends. The new building also includes a front porch and stoop to San Leandro Boulevard and a design that de-emphasizes the garages. Perspective views, elevations and a colors and materials board are included with this report (see attachments).
Height
The third floor plate line will be approximately 29 feet. The new tallest ridgeline will be at 36 feet, eight inches. Thus the height of the building is the average of the two: 32 feet, 10 inches. The DA-4 District permits building heights of 60 to 75 feet. In this specific block, the TOD Strategy provides for 60-foot maximum height (Figure 8, page 55).
Landscaping
The proposed landscape plan conceptually shows the planting composition to include trees and flowering shrubs where space can accommodate them on the site (i.e., front and rear yard setbacks). The landscape area open to the sky along the southern edge of the site that shows plants and a fountain will need to be removed from the design to improve vehicle access and circulation in the driveway area for garage spaces. The paving for the entire driveway area and a portion of the rear yard setback will be concrete pavers, a permeable paving treatment which will also enhance the appearance of the development.
STAFF ANALYSIS
The General Plan designates the property in the Residential High Density (RH; orange color in City’s website and maps). The zoning designation is DA-4 Downtown Area District. Per Zoning Code Section 2-642 B.10., mixed-use residential with retail and/or office on the ground floor requires a Conditional Use Permit (CUP). In addition, a CUP is required on lots with less than 20,000 square feet that exceed the maximum density of 24 units per acre. Additional density may be approved for projects having additional open space or other amenities. In this case, the 6,700 square-foot site would permit a maximum of four units (rounded up from 3.7 units); however the property owner and applicant have exercised the option to apply for a CUP for the additional density to six units. In addition, Site Plan Review is required for development plans in the DA-4 District for general consistency with the Design Guidelines for the Downtown TOD Strategy (Zoning Code Sections 2-698 C. and 5-2502).
Conditional Use Permit
The proposal satisfies the off-street parking requirement. Required parking is at 1.0 space per unit being adjacent to BART (Zoning Code Section 4-1704). The 36-foot height of the ridge for this project is below the 60-foot maximum height (Z.C.S. 2-682). The front yard setback of zero to five feet conforms to the TOD Strategy (Z.C.S. 2-680 F.) The rear yard setback of seven to 10 feet conforms to the prevailing block which range from zero to three feet (Z.C.S. 2-680). The northern side ranges from three to six feet; the southern side has some segments of its setback at zero feet. The side yards are permitted to have zero setbacks (Z.C.S. 2-680). The DA-4 District does not have a maximum floor area to site area ratio (FAR). The project has a 1.61 FAR.
In addition to satisfying the Zoning Code requirements, the project has the various amenities and attributes to off-set the exception to grant the proposed density which exceeds the four unit maximum (24 units/acre).
Per Z.C.S. 2-698 D., projects subject to Site Plan Review shall include amenities and design criteria that enhance the quality of residents living or the appearance of the project. Projects shall include at least seven (7) of these amenities. Amenities provided to support the project includes:
• Use of solar energy in the design of the building. The south facing rooftops below the main ridgeline will include the solar panels (see Exhibits D and I).
• Concrete pavers in central and common driveway. The plans call for Calstone Pavers known as Antique Mission (see Exhibit C). They have varying tones of color and are not monochromatic.
• A fountain/water feature. It would be situated at the center of the site along the southern property line in a landscaped area that is open to the sky (see Exhibits E and J). Although the landscaped area will be changed to pavers, staff will work with the applicant to consider another artistic or focal point element at the location that may be raised and elevated so that it would not impede vehicle circulation.
• Common landscaped open space. In addition to landscape proposed for the front setback, there would be common usable open space in the southeasterly rear corner of the property for residents.
• Use of three (3) or more colors. There will be four colors by Benjamin Moore: Mills Spring Blue (blue with hint of green) standing seam metal roof; Orange blossom (terracotta-like) stucco body; Mexicana (red tile) trim (i.e., gabled roof fascia, eaves, knee-braces, windows and trim); and Wynwood (deep brown) heavy timber trellis (see Exhibit C).
• Use of three (3) or more materials on the façade. Multiple materials are proposed: standing seam metal roof; stucco exterior walls; various wood applications in the trim, knee-braces, front porches, true divided windows, and heavy timber trellis (see Exhibit C).
• Practical and usable furniture in common open space. The applicant stated that furnishings would include wooden benches, chairs and table.
• Bay windows in articulated elevations Bay windows are provided (see Exhibits C and D).
Architecture/Design
The project architecture is well-conceived in the Craftsman-style and comprehensively applied to all four sides of the building with knee braces beneath the roof eaves, the projecting bays and cantilevers, and true-divided vertical hung windows. It is a well-articulated building with a variety of architectural treatments that satisfies the TOD development guidelines and enhances the San Leandro Boulevard streetscape. They are as follows:
• The front elevation includes entrances, stoops and porches facing the street for the front-facing residence and the flexible office space. Together these encourage pedestrian use of the sidewalk.
• The design has varying wall planes and roof lines which provides visual interest. Especially the roof eaves and brackets which will create shadows.
• A number of hung and divided windows face the street and would provide a sense of security and they enhance the articulation of the façade.
• Parking is kept out of sight to preserve the pedestrian environment. The design de-emphasizes the automobile. The driveway access is minimized. The view of paving and garage doors are screened by design of the building.
Downtown San Leandro TOD Strategy
The proposed project is in accordance with the Downtown San Leandro TOD Strategy adopted September 2007. The project is at an optimal location across the street to the San Leandro BART station and to numerous AC Transit bus lines, in addition to walking distance to the downtown shops and services. This project will contribute to San Leandro growth in a way that allows more residents to rely on transit for their everyday trips and errands. The new residences will enhance the walkability of the area and strengthen the link between the BART station area and downtown.
Site Plan Review
Per the analysis previously in this report, the proposed mixed-use residential development would enhance the San Leandro Boulevard corridor. The development would be compatible with the existing mix of residential development on the block and immediate neighborhood since it meets the setback, height, and coverage requirements in the DA-4 District. The elevations of the proposed project are well-articulated and appointed with Craftsman architectural treatment. Vehicles and garage doors are de-emphasized in the design.
Engineering and Transportation Department
The Engineering and Transportation Department provided three recommendations for the proposed plans to improve vehicle circulation and vehicle egress. They are as follows:
1. The planter with the fountain is required to be paved to allow better maneuverability for the back-up of the third garage, left turn into the fourth garage, and direct access to the sixth garage space. Although landscaping will be removed, it is not required for the project. Thus the concrete pavers will be expanded. Perhaps an elevated, vertical, and recirculating fountain or other raised focal element can be placed in this location.
2. The utility room adjacent to the office space is required to be reduced a minimum of two feet in depth so that 22 feet of clear back up space can be provided for the first garage, similar to the backup distance provided for the other perpendicular garage spaces.
3. The front steps to the stoop and porch is required to be relocated in a northern direction away from the driveway. In addition, the wood pickets to the porch railing, steps, and railings for the office space are required to be a more open design. Together, these two recommendations are to provide improved sight distance for drivers exiting the driveway.
Implementing these recommendations as reflected in the Conditions of Approval, the Engineering and Transportation Department has found vehicle access for this development adequate.
Fire Access and Emergency Egress
The Building and Safety Services Division and the Fire Department, with the recommended Conditions of Approval, have found that the site plan and the building design comply with Building and Fire Codes.
Landscape Plan
The landscaping along the front setback complements the architectural design, with an appropriate balance of trees, shrubs, and ground cover. The trees are appropriate and specified at 15-gallon size. The minimum size for the shrubs is recommended to be five-gallon and the ground covers at one gallon or from flats with the necessary spacing to cover the planter areas in a growing season. The landscape plan includes the use of decorative pavers for nearly the entire project for the driveway and a portion of the rear yard.
Perimeter Property Line Treatment
The southerly property line is already developed with a soundwall. The proposal calls for new six-foot tall fencing along the southern rear property line and the northern side property line.
Condominium
Per the Subdivision Map Act and the City’s Subdivision Ordinance, a condominium subdivision of five parcels or more (six on one existing parcel) will require a Tentative Map. The review of the Tentative Map will be by the Planning Commission at a public hearing and afterwards the City Council in a similar public hearing for its consideration. Subsequently, a Final Map (Tract Map) is required for the six condominium units. At the Final Map application, the By-Laws to form a Condominium Association for the six owners and Covenants, Conditions and Restrictions (CC&Rs) to govern the ownership and use of the condominium will be required. A Final Map only requires City Council consideration and is typically agendized as a Consent Calendar item.
Affordable Unit Requirement
For residential developments of for-sale projects of two to six units, the Inclusionary Housing Ordinance requirements may be satisfied by paying an in-lieu fee. The fee is the median sales price of a condominium/townhome dwelling unit in San Leandro, minus the Affordable Ownership Cost, multiplied by the fractional inclusionary units required. The fractional inclusionary unit required for the six-unit project would be 0.90 (6 x 0.15). At the time of this report the in-lieu fee amounted to $61,806.
GENERAL PLAN CONFORMANCE
The following General Plan policies are relevant to this residential project:
Policy 1.04: Front Yards
Encourage the attractive treatment of front yards and other areas in residential neighborhoods that are visible from the street. Establish limits on the paving of front yard areas.
Policy 2.05: Alterations, Additions and Infill
Ensure that alterations, additions and infill development are compatible with existing homes and maintain aesthetically pleasing neighborhoods.
Policy 3.01: Mix of Unit Types
Encourage a mix of residential development types in the City, including single-family homes on a variety of lot sizes, as well as townhomes, row houses, live-work units, planned unit developments and multi-family housing.
Policy 3.04: Promotion of Infill
Encourage infill development on vacant or underused sites within residential areas.
Policy 13.04: Transit Oriented Development
Ensure that properties along heavily used public transit routes are to be developed in a way that maximizes the potential for transit use. Such development should be of particular high quality, include open space and other amenities, and respect the scale and character of nearby neighborhoods.
Policy 53.03: Inclusionary Housing
In Lieu Fees for Affordable Housing Implement City policy on the payment of in-lieu fees as an alternative to meeting the City inclusionary housing requirements on-site. While the City encourages inclusionary units to be provided on-site, this may not be feasible in all instances (for instance, when the project contains fewer than six units). Formal criteria for allowing in-lieu fees are established and a consistent formula for determining the fees has been adopted.
The proposal will provide infill residential development which would have a density compatible with the existing immediate residential neighborhood. The design is within the allowable envelope of the existing zoning district. The architectural design is well articulated and detailed. The project would improve an underused property and enhance the San Leandro Boulevard streetscape. The project provides mixed-use including an opportunity for ownership of six individual units and an office for the use of its residents. The mixed-use development would be well served by BART and AC Transit by being situated across the street.
ENVIRONMENTAL REVIEW
This project is categorically exempt from the California Environmental Quality Act (CEQA) per CEQA Guidelines, Article 19, Section 15332 In-Fill Development Projects.
PUBLIC OUTREACH
The following public outreach was performed: a legal advertisement for the public hearing was placed in the Daily Review newspaper; notification letters were mailed to the property owners and businesses owners within 500 feet of the subject property, the Peralta Citizens Association; and public notification placards were posted on the utility poles adjacent to and near the subject property.
The architect and the property owner arranged for a public outreach meeting on Tuesday evening, February 9, 2016 in the Deaf Counseling and Advocacy Referral Agency (DCARA) Community Center, north of the subject property. Invitations for the meeting were mailed to the property owners and businesses owners within 500 feet of the subject property. It was attended by one resident and property owner from Carpentier Street. The resident had questions about the project and did not have any objections to the proposal.
RECOMMENDATION
The proposed project draws from the City’s TOD Strategy. Various amenities and design components are implemented to enhance the quality of life for the residents and the appearance of the project. Parking is kept out of sight to preserve the pedestrian environment. The project provides in-fill housing on an underutilized property across the street from BART and AC Transit. The proposed architecture would enhance the appearance of the San Leandro Boulevard corridor.
Staff recommends that the Board of Zoning Adjustments:
A. Adopt the finding that this project is categorially exempt under CEQA Guidelines, Article 19, Section 15332 In-Fill Development Projects;
B. Adopt the attached Recommended Findings of Fact for Conditional Use Permit and Site Plan Review, PLN15-0053; and
C. Approve Conditional Use Permit and Site Plan Review, PLN15-0053, subject to the Recommended Conditions of Approval.
ATTACHMENTS
Vicinity Map
Applicant’s Supporting Statement
Recommended Findings of Fact
Recommended Conditions of Approval
Exhibit A - Cover Sheet (Sheet A0.10)
Exhibit B - Photos, Existing Conditions/Surrounding Properties (Sheet A1.10)
Exhibit C - Colors and Materials (Sheet A1.20)
Exhibit D - Perspective Views (Sheet A1.30)
Exhibit E - Proposed Site Plan and Roof Plan (Sheet A2.00)
Exhibit F - Proposed Ground Floor and Site Plan (Sheet A2.10)
Exhibit G - Proposed Second Floor Plan (Sheet A2.20)
Exhibit H - Proposed Third Floor Plan (Sheet A2.30)
Exhibit I - Elevations (Sheet A3.10)
Exhibit J - Landscape Plan (Sheet L2.10)
Aerial Photograph
PREPARED BY: Elmer Penaranda, Senior Planner, Planning Services Division