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Report regarding consideration and recommendation of approval to City Council of a Zoning Text Amendment to make minor revisions to South San Francisco Municipal Code (SSFMC) Section 20.110 (Civic Districts) related to building height, consideration of a Variance, and Design Review for the redevelopment of the Boys and Girls Club facility at 201 West Orange Avenue in the Parks and Recreation (PR) Zoning District in accordance with Title 20 of the SSFMC, and determination under the California Environmental Quality Act (CEQA) that the project is categorically exempt as an Infill Development Project. (CEQA Guidelines Section 15332.) (Adena Friedman, Chief Planner)
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MOTIONS FOR THE COMMISSION TO ADOPT STAFF RECOMMENDATIONS:
1. Move to adopt a resolution determining the project is exempt from CEQA.
2. Move to adopt a resolution recommending adoption of a Zoning Text Amendment and approval of project entitlements.
RECOMMENDATION
Recommendation
Staff recommend that the Planning Commission conduct a public hearing and take the following actions:
1. Move to adopt a resolution making findings and recommending that City Council find that the project qualifies for a categorical exemption, pursuant to the California Environmental Quality Act (CEQA) Guidelines Section 15332, In-Fill Development Projects, and does not require further environmental analysis; and
2. Adopt a resolution making findings and recommending that City Council adopt an ordinance amending the Zoning Ordinance (ZA25-0002) and recommending that the City Council adopt a resolution approving a Planning Project (P24-0102) including a Variance (VAR25-0002) and Design Review (DR24-0030), subject to the attached draft Conditions of Approval.
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PROJECT OVERVIEW AND BACKGROUND
Project Description
The Boys and Girls Club of the Peninsula (BGCP), represented by Hunter Properties (together, the Project Applicant), is proposing to redevelop the existing Orange Park Clubhouse, located at 201 West Orange Avenue. BGCP is a not-for-profit organization that partners with local schools to provide free, high-quality after-school and summer programs for students from kindergarten through high school. BGCP provides programming at the Orange Park Clubhouse six days a week (Monday - Saturday).
The existing Orange Park Clubhouse was constructed in 1961 and consists of a three-building campus: Building 1 is a single-story academic building and Clubhouse main entry and lobby, Building 2 is a high-bay gymnasium with a small two-story classroom, office, and storage space, and Building 3 is a small single-story structure used primarily for storage. The current facility is approximately 21,300 square feet (sq. ft.) and serves approximately 200 students, from kindergarten through eighth grade.
The BGCP is proposing to improve and expand the current facility, including expanding programming to high school students. The project proposes to demolish the existing Buildings 1 and 3, to be replaced with new two-story wood-framed buildings, with slightly larger footprints than the current buildings. Building 2 (the Gymnasium) will remain, and BGCP is proposing cosmetic improvements. Both new buildings would be connected internally to the Gymnasium. The project also includes site improvements such as parking lot re-striping, widening the perimeter concrete walkway, accessibility improvements, utility and infrastructure improvements, and landscaping improvements. A new trash enclosure is proposed to the west of Building 3. The new project square footage is 38,890, and the new facility would serve an additional 150 students, for a total of 300 students. The applicant has entered into a lease agreement with the City to lease the West Orange Library site during construction, to ensure that uninterrupted BGCP services and programming will continue for children and families.
Site Overview
The project site is an approximately three-acre site located at 201 West Orange Avenue, including a 2.75-acre portion of APN 093-331-110, and the .25-acre APN 093-331-150. The BGCP leases the Orange Park Clubhouse from the City of South San Francisco, which owns the properties, as well as the other properties comprising Orange Memorial Park. The project site is adjacent to Orange Memorial Park, across Memorial Drive and Centennial Way Trail. Single-family homes on C Street are located adjacent to the project site to the southwest, and a church is located next to the project site on West Orange Avenue. Los Cerritos Elementary School is located directly across West Orange Avenue from the Clubhouse. The site is accessed via a two-way drive-aisle from West Orange Avenue, with parking located in front of the Clubhouse, and also in the north and west portions of the site. Parking is shared between the Clubhouse and Orange Memorial Park.
Architectural Design
As illustrated in the project Plan Set (Associated Entitlements Resolution, Exhibit B), the existing single-story Buildings 1 and 3 are proposed to be replaced with two-story buildings, with a maximum height of 30’ (plus an additional 6’ for mechanical screening). The primary finishes of the new building will be grey and off-white plaster walls, with copper, bronze, and black painted panels and dual-glazed clear glass storefront window systems. The gymnasium (Building 2) will be repainted, and improvements may include window and skylight replacement, and new roofing.
Landscape Improvements
The proposed landscape plan is designed to enhance the experience for the children attending programs at the Clubhouse, be compatible with the nearby Orange Memorial Park, and create a buffer for adjacent land uses. The east side of the site adjacent to West Orange Avenue will include new planted areas and a new outdoor cafeteria space with artificial turf and raised planter beds. New trees and a six-foot tall wooden fence are also proposed along the rear lot line (southern edge of the site), adjacent to the neighboring church and residential uses on C Street. A screening hedge will be located between Building 3 and the trash enclosure, at the western side of the site. All planted areas are designed to be low water use and will be compliant with the City’s Water Efficient Landscape Ordinance (WELO).
Circulation and Parking
Vehicle access to the project site is via a two-way drive from West Orange Avenue (proposed site circulation is illustrated in the Exhibit B, Plan Set, Sheet A1.40, in the associated Entitlements Resolution). When dropping off or picking up students in cars, parents or caregivers will enter the parking lot, drive to the end of the drive aisle, loop around at the end of the parking lot, and drop students off at the building entrances. This will ensure that students being picked up or dropped off do not have to cross traffic to access the building.
The site’s location adjacent to the Centennial Way Trail makes it easily accessible to cyclists and pedestrians, as well as cars. The circulation plan illustrates the new paved accessible pedestrian path that will be provided from West Orange Avenue. The path will provide direct pedestrian access to all the building entrances.
There are 108 parking spaces located on the project site currently. These are shared parking spaces, used by the BGCP as well as visitors to Orange Memorial Park. The project includes realigning and re-striping the parking spaces adjacent to the building, to meet the project needs. This will provide 41 parking spaces in front of the buildings, with a small parking area located west of Building 3, for van parking. All parking areas will meet all accessibility and electric vehicle (EV) parking requirements and will include two ADA-accessible parking spaces (one van, and one standard size), two EV spaces (including one ADA-accessible space), and six parking spaces for future EV parking.
In addition to the spaces serving the BGCP, the project will also re-stripe all of the parking within the site, in order to establish a clear circulation route for student pick-up and drop-off and improve site efficiency. There total parking within the site proposed as part of the redevelopment project will be 106 spaces (two fewer spaces than are currently on-site). In addition to vehicle parking, the BGCP project will provide 12 short-term bike parking spaces, and six long-term bike parking spaces at the main entrances and lobbies of Buildings 1 and 3.
Entitlements Request
The Project is seeking the following entitlements, discussed in detail in this staff report:
• CEQA Determination
• Design Review
• Variance for reduced rear setback
• Zoning Text Amendment, to allow additional height for mechanical equipment in the Civic Districts
ZONING CONSISTENCY ANALYSIS
Existing and Proposed Use
The BGCP project site is located in the Parks and Recreation (PR) Zoning District. The PR District is reserved for parks and recreation facilities, including parks, public golf courses, and greenways. The BGCP is a unique use, and it mostly closely resembles two distinct land uses: Indoor Sports and Recreation, and Daycare Facility, both of which are permitted land uses in this district. The Project’s gymnasium fits the definition of indoor sports and recreation facility, and the after-school programming that the BGCP provides falls within the category of a daycare facility as it is non-school programming for children and provides care for children outside of the normal school day. The land uses will remain the same, following the project redevelopment and expansion of the facility.
Park and Recreation District Development Standards
SSFMC Section 20.110 (Civic Districts) contains development standards for the PR Zoning District. The proposed project meets the development standards, with two exceptions, the rear setback and the maximum building height, discussed in detail below.
Rear Setback - Variance Request
The required rear setback in the PR district is zero, or ten feet when abutting a residential district. Since the project site abuts a residential district (RM-22, to the south of the site), the applicable rear setback is ten feet. Currently, Buildings 1 and 2 are built to the property line at the rear setback. The existing setback for Building 3 is 16 feet (meeting the setback requirement).
Buildings 1 and 3 are proposed to be demolished and redeveloped. The proposed setback for Building 1 is five feet (which does not meet the setback requirement of ten feet), and the proposed setback for Building 3 is 11 eleven feet (meeting the setback requirement). Building 2 is remaining, with only minor exterior changes. If Building 1 were proposed to be redeveloped as an exact replacement (same footprint, square footage, and single-story), the new building would be permitted to be rebuilt in the same location, with the non-conforming setback. However, since Building 1 is being proposed as a larger, two-story building, it must meet setback requirements.
The applicant has applied for a variance for the reduction in the rear yard setback. Per SSFMC Section 20.500.001 (Variances - Purpose), approval of a variance is intended to provide a mechanism for relief from the strict application of the Zoning Ordinance, where strict application will deprive the project of privileges enjoyed by similar properties, because of the subject property’s unique and special conditions.
The approving body must be able to make the following findings to approve a variance (SSFMC Section 20.500.004 - Variances, Required Findings):
• There are special circumstances applicable to the property, including its size, shape, topography, location, or surroundings
• Such unique circumstances were not created by the owner or applicants
• The variance does not constitute a special privilege granted to the recipient, inconsistent with limitations upon other properties in the vicinity and zone where the property is located
• The authorization of the variance will substantially meet the intent and purpose of the zoning district in which the subject property is located and will not be materially detrimental to persons residing or working in the vicinity, to adjacent property, to the neighborhood, or the public welfare in general
• The proposed project has been reviewed in compliance with the California Environmental Quality Act and the City’s adopted environmental review guidelines
To support the variance request, the BGCP has submitted a Justification of Variance Findings (Associated Entitlements Resolution - Exhibit C), which includes a written justification and a graphic that illustrates the site constraints. The justification includes a description of the special circumstances, which would make strict application of the Zoning Ordinance detrimental to the use of the property for a modernized Clubhouse facility. Specific site constraints include a PG&E easement, the BART tunnel, the BART zone of influence, and the trapezoidal shape of the parcel, which all limit the developable portions of the property. These site constraints were not created by the applicant; they are pre-existing conditions that have been in place for many years, long before the BGCP leased the property and operated the Clubhouse.
The front of Building 1 is not able to extend any further beyond the current building footprint, as it would require the parking area to be extended into the BART tunnel parcel, which BART does not permit. It would also extend into the PG&E easement, and the terms of the easement do not permit any new utilities to run within or cross the easement. While the required rear setback is ten feet, the applicant is proposing a five-foot setback for Building 1. Currently, there is zero setback, so while a five-foot setback does not meet code requirements, it is more conforming than the current setback. The project includes a landscape buffer between the building and the property line, as well as a six-foot fence at the property line. Staff supports the variance request, as the strict interpretation of the Zoning Ordinance would not allow for the expanded BGCP Clubhouse use, which is needed to serve children and families in a modernized facility and expanded programs to high school students.
Building Height for Mechanical Screening
Per SSFMC Section 20.110.003 (Development Standards - Civic Districts), the maximum building height in the PR district is 30’. The Zoning Ordinance contains direction for measuring building height (SSFMC Section 20.040.005, Rules of Measurement):
Building height is measured from the average level of the highest and lowest point of that portion of the lot covered by the building to the highest point on the roof or the top of the parapet wall or mechanical equipment screening wall.
Additionally, equipment screening is also subject to the requirements of SSFMC Section 20.300.012 (B) (Screening of Mechanical and Electrical Equipment):
All exterior mechanical and electrical equipment shall be screened or incorporated into the design of buildings so as not to be visible from the public right-of-way or public open spaces. Equipment to be screened includes, but is not limited to, all roof-mounted equipment, air conditioners, heaters, utility meters, cable equipment, satellite dishes, telephone entry boxes, backflow preventions, irrigation control valves, electrical transformers, pull boxes, and all ducting for air conditioning heating, and blower systems. Screening materials shall be either dense landscaping or constructed of materials that are consistent with the exterior colors and materials of the building.
During the review of the BGCP project, staff determined that a maximum building height of 30’ does not allow for a two-story, modernized building, as roof-mounted equipment (such as for heating and air conditioning units) would exceed this height requirement. The standard floor-to-ceiling height for this type of new construction is 14’ - 15’, thus building height for a two-story building without roof-mounted equipment would already reach 30’ (and not allow for any roof-mounted equipment). The height of the proposed BGCP project is 30’ to the top of the parapet; however, the required mechanical equipment screen reaches a height of 35’ (existing and proposed building heights are illustrated in the Associated Entitlements Resolution, Plan Set, Exhibit B).
The entitlements for this project include a request for a Zoning Text Amendment that would allow for a moderate height exception for equipment screening, for buildings of a 30’ height or less within the Civic Districts. This exception would be subject to Design Review, and any project seeking this exception would also be required to meet the screening requirements outlined above.
The proposed amendment would add a footnote to SSFMC Table 20.110.003: Development Standards - Civic Districts, as follows:
|
Table 20.110.003: Development Standards - Civic Districts |
|
Standard |
PQP |
S |
PR |
OS |
Key |
|
Max. Main Building (ft/stories)1 |
30 ft; 80 ft between El Camino Real and Mission |
30 ft |
30 ft |
30 ft |
|
1. For buildings 30 feet or less: an additional 5 feet, or 20% of the height of the building, whichever is greater, is permitted for equipment screening, subject to Design Review Approval.
As proposed, the BGCP project would meet the requirements of this amendment, as the height of the equipment screening is 35’, and was reviewed and recommended for approval by the Design Review Board. Staff supports this amendment, as it allows for the construction or modernization of two-story buildings in the Civic District, which support public and semi-public uses throughout the City.
Parking
Vehicle Parking
SSFMC Section 20.300.004 (Required Parking Spaces) provides parking space requirements for each land use type. BGCP is a unique use, with unique parking requirements. Building 1 will serve K-8 students and will function similarly to a Day Care Center in terms of parking requirements. SSFMC Section 20.300.004 requires a maximum of one space / employee for Day Care Centers, as well as a pick-up and drop-off plan. There are currently approximately fifteen staff members providing K-8 programming, and this number will remain the same. Thus, a maximum of fifteen parking spaces are needed to serve the K-8 staff. The pick-up and drop-off plan is illustrated on the Plan Set; parents and caregivers access the existing drive aisle at West Orange Avenue and make a circular loop through the parking lot to pick up K-8 grade students in front of the new Building 1, and exit back out onto West Orange Avenue.
Building 2 is proposed as a teen center, and the parking requirements will be more similar to a high school, since some of the students will be able to drive themselves. SSFMC does not include a specific parking requirement for a school, but instead requires a Parking Management and Monitoring Plan, including a parking needs analysis. The BGCP CEQA Analysis (Associated CEQA Resolution, Exhibit A) includes a parking analysis which states per Institute of Transportation Engineers (ITE) parking rates, high schools generate a total parking demand ranging between 0.16 and 0.32 parking spaces per student, depending on whether its location is in an urban or suburban location. This range accounts for the total parking demand, including teachers, staff and students. Since the BGCP is in an urban location, is close to the high schools it serves, and is well-served by public transit, bicycle, and pedestrian facilities, the parking demand would be at the low end of the parking range, and the appropriate parking demand is .16 spaces / student. In this case, with a high school population of 150 students, the parking demand for the teen center would be 24 parking spaces. Altogether, the maximum parking demand for the redeveloped BGCP will be 39 spaces, and 41 spaces are provided on-site for this use.
As previously mentioned, the larger site will include 106 spaces, and parking is shared between BGCP and Orange Memorial Park. If all spaces at the BCGP are in use, BGCP visitors may park in the larger Orange Memorial Park parking areas, and visitors to Orange Memorial Park are also able to park in BGCP parking spaces during times when the BGCP facility is not being used, including evenings and weekends. The proposed parking on-site is sufficient to serve the BGCP redevelopment, without overparking the site.
Bicycle Parking
SSFMC Section 20.330.007 (Bicycle Parking) requires short-term bicycle parking spaces at the rate of five percent of total required or provided parking spaces (whichever is higher), with a minimum of four short-term bicycle spaces. BGCP is proposing 12 short-term bicycle spaces, significantly exceeding the minimum requirement (which would be four short-term spaces). Four short-term bicycle spaces are located at the entrance to Building 1, and eight short-term bicycle spaces are located at the entrance to Building 3. As indicated on the Plan Set, the short-term bicycle spaces are designed to meet Zoning Ordinance requirements in terms of location, anchoring and security, and size and accessibility.
Long-term bicycle parking spaces are also required at a rate equivalent to at least five percent of required or maximum permitted vehicular spaces, as applicable. In this case, five percent of 41 parking spaces would be two parking spaces. BGCP is proposing six long-term parking spaces, exceeding the minimum requirement. The long-term bicycle parking spaces are located inside the entrances to Buildings 1 and 3, and will meet Zoning Ordinance standards for location, covered spaces, security, and size and accessibility. The proposed long- and short-term bicycle parking will encourage students and staff to ride their bicycles to the facility and take advantage of the location near the Centennial Way Trail.
GENERAL PLAN CONSISTENCY ANALYSIS
The General Plan land use designation for the BGCP project site is Parks and Recreation. The purpose of this designation is parks, recreation complexes, public golf courses, and greenways. The BGCP project is consistent with this designation, as it provides recreational opportunities for children, within a park setting, and is consistent with the following General Plan policy direction:
• GOAL PR-1: South San Francisco equitably provides improved parkland, recreational facilities, and services for all residents.
• Policy PR-9.6: Partner with San Mateo County and other organizations to provide quality childcare and preschool services. Partner with San Mateo County and other local and regional organizations to provide high-quality childcare and preschool services to South San Francisco residents and workers.
• Policy ECS-5.1: Develop partnerships for education. Develop formalized partnerships with local businesses and non-profit organizations to support South San Francisco Unified School District students, particularly disadvantaged communities identified in the Community Health and Environmental Justice Element and underserved groups.
• Policy ECS-5.2: Provide a variety of youth programming. Provide a variety of programming to ensure all children and youth in South San Francisco have educational and recreational opportunities, particularly disadvantaged communities as identified in the Community Health and Environmental Justice Element and underserved groups.
DESIGN REVIEW
The Design Review Board reviewed the BGCP project at its meeting in March, 2025. The Board supported the project, and recommended approval to the Planning Commission (DRB letter is Attachment 1 to this staff report). The Board had several comments regarding landscaping, screening, and EV parking. The applicant addressed the DRB comments in a subsequent submittal, reflected in the current Plan Set. As proposed, the project meets the required findings for Design Review.
NEIGHBORHOOD MEETING
The BGCP hosted a neighborhood meeting on May 13, 2025 at the current facility. Approximately 30 people attended, including neighbors and community members whose children attend programs at the facility. The BGCP presented the vision for the project, and answered questions about programming, construction, and project timeline. A summary of the meeting is attached to this staff report (Attachment 2).
CEQA ANALYSIS
Public Resources Code Section 21159.21 and CEQA Guidelines Sections 15301 through 15333 include a list of classes of projects that have been determined to not have a significant impact on the environment and are therefore exempt from further CEQA review. CEQA Guidelines Section 15332 identifies Class 32 categorical exemptions for projects characterized as infill development. This exemption is intended to promote infill development within urbanized areas.
A project can qualify for the Class 32 Infill Development categorical exemption if the following criteria can be met:
• 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.
• The proposed development occurs within city limits on a project site of no more than five acres substantially surrounded by urban uses.
• The project site has no value as habitat for endangered, rare or threatened species.
• Approval of the project would not result in any significant effects relating to traffic, noise, air quality, or water quality.
• The site can be adequately served by all required utilities and public services.
The applicant submitted an Infill Checklist and evaluation against the above criteria for City review (Associated CEQA Resolution, Exhibit A). The Checklist includes the following supporting technical analyses included as Appendices (Associated CEQA Resolution, Exhibit B):
• Appendix A: CalEEMod Construction-Period Emissions Calculations
• Appendix B: Geotechnical Investigation
• Appendix C: Phase 1 Environmental Site Assessment
• Appendix D: Historic Resource Evaluation
Based on the checklist, the Project is determined to be categorically exempt under Class 32 as an Infill Development Project pursuant to CEQA Guidelines Section 15332. The Project is consistent with the applicable General Plan goals and policies and Zoning standards and requirements; is located on a site of less than five acres surrounded by developed urban uses that can be adequately served by all required utilities and public services and that does not provide sensitive habitat for endangered, rare or threatened species; and will not result in any significant effects relating to traffic, noise, air quality or water quality. Thus, the Project qualifies as categorically exempt pursuant to CEQA Guidelines Section 15332, Class 32, Infill Development Project, no exceptions to that exemption apply, and no new or additional environmental document is required.
CONCLUSION
Redevelopment of the existing Boys and Girls Club will provide an updated, modernized facility for the South San Francisco community, and will enable expanded services and programming to a wider range of students. The proposed project is designed to be compatible with the location adjacent to Orange Memorial Park, with improved accessibility, landscaping, and parking and circulation areas. The proposal is consistent with General Plan goals and policies and Zoning Ordinance requirements and standards, with minor amendments. For these reasons, staff recommend that the Planning Commission take the following actions:
1. Adopt a resolution making findings and recommending that the City Council make a determination that the Project is categorically exempt under the provisions of CEQA, Section 15332, Infill Development; and
2. Adopt a resolution making findings and recommending that the City Council adopt an ordinance amending the Zoning Ordinance to make minor revisions to South San Francisco Municipal Code (SSFMC) Section 20.110 (Civic Districts) related to building height and recommending that the City Council adopt a resolution approving a Variance, and Design Review for the redevelopment of the Boys and Girls Club facility at 201 West Orange Avenue, subject to the attached Conditions of Approval.
Attachments:
1. Design Review Board Letter
2. Neighborhood Meeting Summary
Exhibits to Associated CEQA Resolution (Legistar File 25-827)
a. Infill Checklist
b. Infill Checklist Appendices
a. BGCP CalEEMod Construction Emissions
b. Geotechnical Investigation of the BGCP Site
c. Phase 1 Preliminary Environmental Site Assessment
d. Historic Resources Evaluation
Exhibits to Associated Entitlements Resolution (Legistar File 25-829)
a. Conditions of Approval
b. Project Plan Set
c. Variance Justification
d. Draft Zoning Text Amendment Ordinance