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Report regarding consideration and recommendation of approval to City Council for a Zoning Map Amendment, Planned Development, Tentative Parcel Map, Design Review, and Transportation Demand Management Program to construct 70 single-family townhouse units located at 500 Railroad Avenue in the T4 Lindenville (T4L) Zoning District in accordance with Title 20 of the South San Francisco Municipal Code (SSFMC) and finding the project is consistent with the certified General Plan Environmental Impact Report, pursuant to the California Environmental Quality Act (CEQA) Guidelines Section 15183. (Victoria Kim, Associate Planner)
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MOTION FOR THE COMMISSION TO ADOPT STAFF RECOMMENDATION:
1. Move to adopt the resolution recommending a CEQA determination; and
2. Move to adopt the resolution recommending adoption of a Zoning Map amendment and approval of Planning entitlements.
RECOMMENDATION
Recommendation
Staff recommends that the Planning Commission conduct a public hearing and take the following actions:
1. Adopt a resolution making findings and recommending that City Council find that the project is consistent with the certified 2040 General Plan Environmental Impact Report and does not require further environmental analysis pursuant to CEQA Guidelines Section 15183; and
2. Adopt a resolution making findings and recommending that City Council adopt an ordinance amending the Zoning Map (RZ25-0002) to rezone two vacant parcels as a Planned Development (PUD24-0001) and recommending that the City Council adopt a resolution approving a Planning Project (P23-0061) including Planned Development (PUD24-0001), Tentative Parcel Map (PM25-0001), Design Review (DR24-0026) and Transportation Demand Management Program (TDM23-0007), subject to the attached Conditions of Approval.
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BACKGROUND/DISCUSSION
Project Description
Newlife Investments, LLC (applicant) submitted an application proposing 70 single-family attached townhouse units within a former railroad spur at 500 Railroad Avenue (Assessor’s Parcel Numbers 014-061-070 and 014-072-050). The Gateway (project name) proposes 70 townhouse units split amongst five separate buildings along Railroad Avenue with a new five-foot sidewalk on the northern property line and an eight-foot fence to the rear yard in the south. Within the five separate building masses, The Gateway proposes 42 two-bedroom units and 28 three-bedroom units; see Table 1 below for more detail. The two-bedroom units are approximately 1,250 sq. ft., and the three-bedroom units are approximately 2,200 sq. ft. A two-car tandem parking garage is proposed for each unit on the ground level with electric vehicle (EV) ready equipment and all 70 single family townhouses are proposed to be fee-simple, for-sale units.
Table 1. Unit Matrix
Site Overview
The project site consists of two former railroad parcels, with a total area of 88,944 sq. ft. (approximately 2 acres). The parcels are located between South Linden Avenue and South Spruce Avenue on the southern side of Railroad Avenue, with a total length of approximately 1,500 ft. and a depth of only 50 ft. The site has been left unused and vacant since Union Pacific Railroad decommissioned the Southern Pacific South San Francisco branch line in 1990. The current site condition is unpaved and filled with grass and trees. The neighboring land uses are primarily light industrial uses in the east, west and south, and one to two-story residential structures to the north. North Canal Street and Colma Creek are within 0.1 miles of the project’s spur area in the south and the project property is within the Colma Creek watershed. The subject site abuts a retaining wall to the south, and the primary access to each unit would be from Railroad Avenue.
Entitlement Request
The requested entitlements for the project are as follows:
• CEQA Determination
• Zoning Map Amendment to rezone from T4 Lindenville (T4L) to Planned Development District
• Planned Development for:
o Reduction of minimum density
o Increase of maximum street side build-to area
o Reduction of minimum rear setback
o Increase of maximum building size and massing
o Increase of maximum building separation
o Increase of maximum fence height on the south side (rear) of the development
o Reduction of minimum building modulation/articulation
• Tentative Parcel Map to subdivide the two parcels into 70 building parcels and seven common area parcels
• Design Review
• Transportation Demand Management Program
ZONING CONSISTENCY ANALYSIS
Planned Development / Zoning Map Amendment
Pursuant to SSFMC Chapter 20.140 (Planned Development District), City Council is the decision-making body to adopt a Planned Development (PD) District, and a tentative subdivision map and all supporting documents are required to be submitted along with a PD application. The intent of a PD District is to provide for one or more properties to be developed under a plan that provides for better coordinated development and incorporates development standards crafted to respond to site conditions. By creating a PD District, the City is able to apply more flexible and creative development regulations without excessively constraining developers, to secure the benefit of modern large scale-site planning for a challenging site.
The project site has a long, narrow shape with a spur, due to its previous use as a railroad right-of-way. Due to the unusual shape and the site constraints, the applicant proposes a Planned Development with the following exceptions to the T4 Lindenville (T4L) zoning district development standards (SSFMC Section 20.135.020), Citywide site and building objective design standards (SSFMC Section 20.310), and fence height standards (SSFMC Sections 20.300.006 (Fences, Walls and Hedges)
T4L Development Standards:
• Reduction of minimum density (min. 80 du/ac): proposed minimum density 35.8 du/ac
• Increase of maximum street side build-to area (max. 10 ft.): proposed 54 ft.
• Reduction of minimum rear setback (min. 15 ft.): proposed five ft.
• Increase of maximum building size and massing (max. width 35 ft.): proposed building widths range from 168 ft. to 325 ft.
• Increase of maximum building separation (max. 10 ft.): proposed building separations from 20.5 ft.
Citywide Objective Design Standards:
• Reduction of minimum building modulation/articulation
• Building Façade between 75 ft. and 300 ft. (min. 4 ft. recess in depth and min. 8 ft. building height difference): proposed 0-ft. recess in depth and 2 ft. building height difference
• Building Façade greater than 300 ft. (min. 40 ft. recess in depth and min. 8 ft. building height difference): proposed 0-ft. recess in depth and 1 ft. building height difference
• No units with all Universal Design requirements
o At least one entrance without steps and a flat threshold: proposed zero compliant units
o Living space all located on a single floor, or stair landings big enough to accept lifts: proposed all habitable spaces on multiple floors
o 60-by-60-inch turning space at doors and dead ends: some spaces at doors and dead ends are proposed without the 60-inch turning space
Fence Height:
• Increase of maximum fence height (max. 6 ft.): proposed 8 ft.
The former railroad spurs only have a depth of 50 ft. which restricts the project’s ability to achieve compliance with the lot development standards such as density and minimum rear setback, which are typically applied to standard-shaped lots. The applicant also requests increasing the maximum street build-to area, building size and massing and building separation requirements to comply with an open space requirement in accordance with SSFMC Section 20.135.030 (Rowhouse) and Section 20.135.050 (Public Open Space Types). The project proposes no building recess on all front facades and reducing a minimum building modulation and articulation design standards. The subject site is gently sloping which would complement the required building articulation and create natural height variations. Lastly, no unit proposes to meet all of the universal design standards due to the unusual shape of the site.
Building Design Standards
The project buildings would be three to four-story structures including a two-car parking garage on the ground level. The height range of the five buildings would be between 34.5 ft. to 45.3 ft., and each of the five individual building blocks has a different design with distinct colors and materials (Ref. Associated Entitlements Resolution, Exhibit 2). The maximum allowable height in the T4L zoning district is 65 ft. and the proposed building height ranges are below the maximum height per SSFMC Section 20.135.020, Transect Zoning Districts.
The total living area for all five buildings is 114,355 sq. ft. and the total two-car private garage area is 40,749 sq. ft., totaling 155,104 sq. ft. The proposed floor area ratio (FAR) is 1.86 which is within the maximum allowable 3.5 FAR. The proposed 55.5 % lot coverage is under the maximum lot coverage (70%) according to the Lindenville Specific Plan Section 4.2.3, Form-Based Zone Development Standards.
The proposed exterior designs have nine different building materials and colors and each building has a different combination of at least five different colors and materials, which complies with the minimum three building materials and textures requirement per SSFMC Section 20.310.002.I. The most common proposed building materials for all buildings would be stucco, brick and wood veneer, and grey siding. All the building designs are incorporated with architectural integrity and unified palette (360-degree design) and include a water heating system by solar panels on the roof as a sustainability feature according to SSFMC Section 20.310.002 (Ref. Associated Entitlements Resolution, Exhibit 2).
Landscaping and Open Space
Public Open Space
The project site would provide an approximately 50 ft. by 50 ft. publicly accessible open plaza at the intersection of Railroad Avenue and Linden Avenue (Ref. Associated Entitlements Resolution, Exhibit 3). The public open space would include landscaping features such as seating, lighting, and landscape planter and bioretention areas. SSFMC Section 20.135.050 (Public Open Space Types) requires at least one public open space, and the proposed plaza is compliant with this requirement.
Private Open Space
A minimum of 80 sq. ft. private open space per unit (total 5,600 sq. ft.) and 80 sq. ft. of common open space per unit (total 5,600 sq. ft.) are required per SSFMC Section 20.135.030.F (Rowhouse). The Gateway proposes to provide private open space with balconies on each unit and the total private open space area for the project would be 6,486 sq. ft. (see Table 2 below), exceeding the requirement. Five common private open spaces are located between each of the building masses and adjacent to Building 5 in the west. The common private open spaces would consist of seating, landscaping, and lighting and be 15,320 sq. ft., which exceeds the minimum common open space requirement.
There would be a 15,320-sq. ft. stormwater area located on the property’s spur area; it would be gated and not accessible to residents and the public.
|
Unit Type |
No. of Unit |
Private Open Space (sq. ft.) |
Total (sq. ft.) |
|
Type 2a |
10 |
41 |
410 |
|
Type 2b |
32 |
105 |
3,360 |
|
Type 3a |
16 |
97 |
1,552 |
|
Type 3a.1 |
12 |
97 |
1,164 |
|
|
|
|
6,486 |
Table 2. Private Open Space by Unit Types
Tree Removal
The townhome development would result in the removal of 77 out of the 98 existing trees on the site. This includes the removal of 19 trees that are considered “protected” per SSFMC Section 13.20.080, Tree Preservation. To mitigate this, the applicant will be required to plant either 57 trees in 15-gallon size (planting three trees per one protected tree removal) or 38 trees in 24-inch box (planting two trees per one protect tree removal). This requirement is included in the Conditions of Approval (Ref. Associated Entitlements Resolution, Exhibit 1).
Site Access and Parking
The project site is located within a Transit Station Area, as it is less than a half-mile to the South San Francisco Caltrain Station. Pedestrians can access the project site via a proposed 5 ft. sidewalk along the south side of Railroad Avenue and residents can park up to two vehicles per unit in each unit’s two-car parking garage (Ref. Associated Entitlements Resolution, Exhibit 2). Pursuant to SSFMC Section 20.330.004 (Required Parking Spaces), a minimum of 1.5 parking spaces and maximum two car spaces per unit are allowed for three or more bedrooms and 1,101 sq. ft. or larger dwelling units. All of the proposed 70 units are larger than 1,101 sq. ft. so the proposed two car garage for each unit is allowed and meets the requirement.
Transportation Demand Management (TDM) Program
The applicant submitted Transportation Analysis which includes a Transportation Demand Management (TDM) plan. The City’s TDM ordinance (SSFMC Chapter 20.400) requires a TDM plan for any residential development with 20 or more units. The applicant’s TDM plan estimates that the project site generates 34 trips during the morning peak hour and 40 trips at the afternoon peak hours, 504 daily trips in total. The TDM plan is based on the City’s Transportation Analysis Guidelines, intended to achieve a minimum of 20 points for residential projects (Tier 1), which is consistent with the requirements of the City’s TDM ordinance. The submitted TDM plan is satisfying 21 points out of 20 required points (Ref. Associated CEQA Resolution, Exhibit 2, Appendix F).
The TDM plan includes a range of measures that are appropriate to the site and consistent with the TDM ordinance, including transit pass subsidies, locating the project within a half mile of the Caltrain Station, a long-term bicycle parking space within each unit’s garage, and constructing a new sidewalk to improve pedestrian connections. The TDM Plan will be subject to annual reporting and monitoring for the first six years (five years after occupancy) pursuant to the City’s TDM ordinance (SSFMC Section 20.400.006). Conditions of approval are included, requiring the implementation of the TDM Plans (Associated Entitlements Resolution, Exhibit 1).
GENERAL PLAN /LINDENVILLE SPECIFIC PLAN CONSISTENCY ANALYSIS
The General Plan land use designation for the project site is Medium Density Mixed Use within the Lindenville Sub-Area, and the proposed townhouse project is consistent with the City’s General Plan vision to create a residential neighborhood in the northern part of Lindenville. The Medium Density Mixed Use designation is defined as a broad range of commercial, office, and residential uses and public spaces serving both surrounding neighborhoods and visitors from nearby areas. The project scope is aligned with the vision of the Mixed-Use description and General Plan goals and policies:
• Policy LU-1.1: Support mixed use activity centers. Support a network of vibrant mixed use activity centers located throughout the city. Mixed use centers should include business and services, housing, healthy food, parks, and other gathering places.
• Policy LU-1.2: Connectivity in complete neighborhoods. Improve walk, bike, and accessibility in complete neighborhoods.
• Policy LU-1.7: Create new Lindenville and East of 101 mixed use neighborhoods. Facilitate the construction of new mixed-use neighborhoods in Lindenville and East of 101 that are well connected to services, transit, amenities, public buildings, and parks and recreational facilities.
• GOAL LU-2: Equitable transit-oriented communities near transit centers, including SamTrans stops and Caltrain and BART stations, that mix high quality development, affordable housing, community services, and improved mobility options.
• GOAL LU-4: High-quality residential neighborhoods.
• Policy LU-4.5: Neighborhood compatibility. Require new development to be compatible and well-integrated with existing residential neighborhoods.
• Policy LU-4.9: Encourage amenity space for physical activity / healthy living in multifamily development. Encourage new multifamily development to provide amenity space (gyms, active spaces, outdoor open space, flex working spaces, etc.) which promote physical activity and healthy living options.
• Policy LU-4.10: Encourage walkable connections in multifamily development. Encourage new multifamily developers to provide convenient, walkable connections to nearby trails, transit, and open space to promote active lifestyles.
• GOAL LU-8: A network of attractive, pedestrian-oriented, human-scale and well-landscaped streets and civic spaces throughout the city for all ages and abilities.
• Policy LU-8.2: Create an attractive pedestrian environment.
• Policy LU-8.5: Provide plazas and gathering places.
• Policy LU-8.10: Ensure adequate infrastructure and utilities.
• Policy LU-8.12: Ensure adequate lighting.
• GOAL LU-9: High level of quality in architecture and site design in all renovation and construction of buildings.
• Policy LU-9.1: Create new and update existing design guidelines and development standards.
• Policy LU-9.2: Encourage architectural and visual interest in new development.
• Policy LU-9.3: Require quality building materials. Require high-quality, long-lasting building materials on all new development projects in the city.
• Policy SA-22.2: Encourage lot assembly to facilitate housing and mixed-use development in Lindenville.
• Policy SA-22.5: Require buffering of residential uses in Lindenville.
• Policy MOB-3.4: Use parking management tools to manage limited street space in residential neighborhoods.
• Policy PR-4.7: Provide publicly accessible, private open space.
• Policy CHEJ-3.5: Discourage development of sensitive uses near sources of pollution.
• Policy CHEJ-4.2: Require remediation before development.
• Policy CHEJ-4.3: Reduce exposure from hazardous materials.
• Policy ES-5.3: Use a waterwise planting palette during new construction.
The Gateway project is within the Mixed Use Neighborhood Area of the Lindenville Specific Plan which allows for transitioning the predominant industrial uses to a mixture of housing, retail and services, open spaces, civic uses and industrial uses. The proposal would be a transitional development in Lindenville providing multi-residential units consistent with the Specific Plan goals and policies:
• GOAL LU-6: New development provides community benefits for Lindenville residents, employees, and the broader South San Francisco community.
• Goal OS-1: Lindenville provides a high level of service with generous parks and open space for residents, employees, and visitors through a connected network of open spaces.
• Goal OS-4: The City supports resourceful solutions to providing parks and open space experiences that are market-responsive and that leverage the diversity of uses in Lindenville.
• Policy DD-2.3: Façade composition. Shape building massing and/or architectural fenestration to provide visual interest, scale, and rhythm through building and/or building façade design. Use material, color, and solar shading to create a shared vocabulary unique to Lindenville.
• Policy DD-2.4: High-quality and sustainable architecture. Facilitate high-quality and sustainable architecture to create a coherent place, while allowing individual buildings to be unique.
• Policy DD-3.2: Open space access. Provide ample opportunity for residents to live active lifestyles by requiring dedications of new public park and open spaces and private common spaces.
• Policy DD-3.4: Ecological design. Design new development to support a healthy and biodiverse environment through landscape and planting design, reduction in impervious coverage, green roof, and other site and building design strategies. Support design strategies at grade, on the podium, and on the roof.
TENTATIVE PARCEL MAP
The applicant has submitted a Tentative Parcel Map, prepared by BKF Engineers, to subdivide the existing two parcels into 70 separate lots with seven common area parcels (Ref. Associated Entitlements Resolution, Exhibit 2). The proposed Tentative Parcel Map is in compliance with SSFMC Title 19, Subdivisions Ordinance and the State Subdivision Map Act. Pursuant to SSFMC Section 19.48.080 (Actions on Tentative Map), the Planning Commission is required to make a determination whether the proposed tentative map is in conformity with provisions of the Subdivision Map Act and SSFMC Title 19 as to design, drainage, utilities, road improvements and offers of dedication or deed. The Engineering Division has reviewed the project application including the Tentative Parcel Map and has included relevant Conditions of Approval (Ref. Associated Entitlements Resolution, Exhibit 1).
INCLUSIONARY HOUSING COMPLIANCE
SSFMC Chapter 20.380 (Inclusionary Housing Regulations) requires that “for sale” residential development of five or more units provide a minimum of 15% of the dwelling units as inclusionary units affordable to very low, lower, or moderate-income households. Of the 15%, half, or 50% of the inclusionary units are designated for moderate income households and the other half, or 50% are designated for lower income households.
SSFMC Section 20.380.011 (Inclusionary Housing Regulations, In-Lieu Fees) allows an in-lieu fee as an applicant’s alternative option to the required inclusionary units with City Council approval. The applicant proposes to pay the in-lieu fee option instead of providing inclusionary units and this option is added in the Conditions of Approval (Ref. Associated Entitlements Resolution, Exhibit 1). The current in-lieu fee is $424,840.11 per unit, which would be $4,673,241 total for this project per the current fee schedule. The actual fee may vary, depending on in-lieu fee in place at the time of payment. Per the City’s Inclusionary Housing Regulations (SSFMC Section 20.380.011, In-Lieu Fees), the fees must be paid at the time of building permit issuance.
SUSTAINABILITY / CLIMATE ACTION PLAN
The project is proposing completely electric-based buildings and would not have any connections to natural gas which would reduce risks for toxic air contaminants. Green building measures and features, for instance bioretention, water efficient and drought tolerant landscaping, and solar hot water heating systems with solar voltaic panels on the roof would be also incorporated into the project to reduce energy and water use.
The Climate Action Plan was updated and adopted in 2022 and sets a carbon neutrality goal and measures to reduce greenhouse gas (GHG) emissions. The project’s GHG impacts are addressed using elements under Threshold A, per CEQA Air Quality Guidelines (Ref. Associated Entitlements Resolution, Exhibit 2). Also, the project’s TDM checklist and proposed measures would contribute to maintaining air quality and reducing GHG emissions. The project is consistent with the Climate Action Plan goals and policies.
DESIGN REVIEW BOARD
The Design Review Board reviewed the Project on September 25, 2024 and supported the proposed design with recommendations for landscape plans (Ref. Attachment 1). The comments have been incorporated into the final drawing plan set (Ref. Associated Entitlements Resolution, Exhibit 2).
NEIGHBORHOOD MEETING
On October 21, 2024, the applicant held a community meeting providing an overview of the proposed residential project, obtaining feedback, and addressing any questions. Five members of the public attended; four were from the adjacent industrial business park to the south of the project site, and one represented Friends of Oldtown. The business owners were generally supportive of the proposed project and had questions related to tree removal, access between the two sites, and runoff from the improved site onto the business park property.
ENVIRONMENTAL REVIEW
City Council certified a programmatic Environmental Impact Report (EIR) for the 2040 General Plan (State Clearinghouse #2021020064) in 2022 (Ref. Associated CEQA Resolution, Exhibit 1). The program EIR assessed the potential environmental impacts for the city over a 20-year planning period when the updates were implemented for the General Plan, Zoning Ordinance, and Climate Action Plan. No subsequent EIR is required to be prepared for a project where an EIR has been previously certified unless the lead agency finds substantial changes in circumstances that were identified and not previously analyzed or would create new or more severe environmental effects per Section 15183 of the CEQA Guidelines
A CEQA compliance checklist was prepared by David J. Powers & Associates, per CEQA Guidelines requiring the lead agency to use an environmental checklist or similar format to conduct an evaluation of consistency with a previously approved EIR (Ref. Associated Entitlements Resolution, Exhibit 2).
The checklist includes the following supporting technical analyses:
• Air Quality Assessment
• Arborist Report
• Geotechnical Engineering Investigation
• Phase I/II Environmental Site Assessments and Subsurface Investigation
• Noise and Vibration Assessment
• Transportation Analysis (TDM Plan)
The checklist provides substantial evidence that the project is within the scope of the previous environmental analysis including the General Plan EIR and Mitigation Monitoring Program. The compliance checklist also demonstrates that there are no effects which are peculiar to the project, or were not previously identified, or have become more adverse due to new, previously unknown information. Therefore, the project would not have significant impacts on the environment and no subsequent environmental review is required pursuant to CEQA Guidelines Section 15183.
IMPACT FEES
The development is subject to the City’s impact and development fees, which are used to offset the impacts of new development on City services and infrastructure. The Conditions of Approval (Ref. Associated Entitlements Resolution, Exhibit 1) list out the relevant fees for each of the following categories:
• Parks and Recreation Fee
• Childcare Fee
• Library Fee
• Public Safety Fee
• Citywide Transportation Fee
• Inclusionary Housing In-Lieu Fee
• Sewer Capacity Charge
• School District Fee
CONCLUSION
The Gateway, a 70-townhouse-unit project, is a creative redevelopment of ownership housing on a difficult, non-typical development parcel. The project site is located in Lindenville, which is identified as an opportunity sub-area to create new residential neighborhood to help achieve the City’s housing goals. As the project name indicates, the residential development would be a gateway to create housing opportunities and transition Lindenville into an active and inclusive community, as envisioned in the General Plan and Lindenville Specific Plan. Because of the site’s unique shape and size, staff supports the proposed Planned Development and appropriate land development regulations to ensure a high-quality for-sale residential development at the atypical, challenging site. This project would help provide much-needed ownership housing on a site that would be unlikely to be redeveloped with any other use.
Therefore, staff recommends that the Planning Commission take the following actions:
1. Adopt a resolution making findings and recommending that City Council find that the project is consistent with the certified 2040 General Plan Environmental Impact Report and does not require further environmental analysis pursuant to CEQA Guidelines Section 15183; and
2. Adopt a resolution making findings and recommending that City Council adopt an ordinance amending the Zoning Map (RZ25-0002) to rezone two vacant parcels as a Planned Development (PUD24-0001) and recommending that City Council adopt a resolution approving a Planning Project (P23-0061) including Planned Development (PUD24-0001), Tentative Parcel Map (PM25-0001), Design Review (DR24-0026) and Transportation Demand Management Program (TDM23-0007), subject to the attached Conditions of Approval.
Attachment:
1. Design Review Board Letter
Exhibits to Associated CEQA Resolution:
1. 2040 General Plan EIR (weblinks)
2. Compliance Checklist
A. Air Quality Assessment
B. Arborist Report
C. Geotechnical Report
D. Phase I/II Environmental Site Assessments (ESA) and Subsurface Investigation
E. Noise and Vibration Assessment
F. Transportation Analysis (TDM Plan)
Exhibits to Associated Entitlements Resolution:
1. Conditions of Approval
2. Project Plans and Tentative Parcel Map Plans
3. Open Space Urban Design Concept