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Report regarding consideration of resolutions making findings and recommending that the City Council adopt an Environmental Impact Report, including a Statement of Overriding Considerations and Mitigation and Monitoring Reporting Program, and approve applications for a General Plan Amendment, Zoning Map Amendment, Design Review, Transportation Demand Management Plan, Vesting Tentative Map, and Development Agreement for the proposed Infinite 131 Project to redevelop the 17.67-acre Produce Terminal site at 131 Terminal Court in the Lindenville sub-area with up to 1.7 million square feet of office / R&D and associated amenity uses, and to rezone five adjacent private parcels at 120 Terminal Court, 196 Produce Avenue, 160 Produce Avenue and 140 Produce Avenue from Mixed Industrial High (MIH) to Business Technology Park High (BTP-H). (Billy Gross, Principal Planner)
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MOTIONS TO ADOPT STAFF RECOMMENDATIONS:
1. Move to adopt the resolution recommending certification of the EIR.
2. Move to adopt the resolution recommending adoption of the Lindenville Specific Plan Amendments, General Plan Amendments, Zoning Map Amendments, Development Agreement, and approval of Planning entitlements.
RECOMMENDATION
Recommendation
Staff recommends that the Planning Commission conduct a public hearing and adopt the following resolutions recommending City Council actions:
1. Adopt a resolution making findings and recommending that the City Council certify the Environmental Impact Report (EIR23-0001), including adoption of a Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program.
2. Adopt a resolution making findings and recommending that the City Council approve the entitlements request for the Infinite 131 Project (P23-0003) including General Plan Amendment (GPA25-0002), Specific Plan Amendment (SPA25-0001), Design Review (DR23-0002), Transportation Demand Management Plan (TDM23-0002), and Vesting Tentative Map (PM23-0001), adopt an ordinance amending the Zoning Map (ZA23-0001), and adopt an ordinance approving a Development Agreement (DA23-0002).
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PROJECT OVERVIEW
Infinite 131 Project Application Overview
The project applicant, US 131 Terminal Court Owner, LLC (Steelwave), has submitted an application for a new research and development (R&D) campus at 131 Terminal Court, which is within the Lindenville Specific Plan Area. The project site currently contains the existing Golden Gate Produce Terminal, consisting of approximately 126,750 square feet (sq. ft.) of industrial and operational uses, along with approximately 116,500 sq. ft. of open-air structures (e.g., loading docks, trash compactor areas), on a 17.67 acre site. The project site is bounded by Terminal Court and the Park N Fly use to the north, the 101 Terminal Court property and U.S. 101 to the east, a navigable slough to the south, and existing commercial and industrial development to the west.
The project is referred to as the "Infinite 131 Project" and would consist of the demolition of the existing structures and the construction of approximately 1.7 million sq. ft. of office/ research and development (R&D) uses and amenities within seven buildings, ranging from one to six stories, along with two parking garages and additional surface parking. The Infinite 131 Project would require general plan, specific plan, and zoning code amendments to change the existing land use and zoning designations from Mixed Industrial High (MIH) to Business Technology Park High (BTP-H) and allow development of the R&D campus. In addition, five parcels north of the project site at 120 Terminal Court, 196 Produce Avenue, 160 Produce Avenue, and 140 Produce Avenue (off-site redesignation parcels), which are currently designated and zoned as MIH, would also seek general plan, specific plan and zoning code amendments to be redesignated as BTP-H. The proposed project would not include the construction of any new uses on the off-site redesignation parcels, but the CEQA analysis includes the rezoning of these parcels.
Relationship to Infinite 101 Project
Steelwave received entitlements for the Infinite 101 Project, located at 101 Terminal Court (immediately adjacent to the east of the 131 Terminal site), in September, 2023. As approved, the Infinite 101 Project would allow approximately 743,000 sq. ft. of office/R&D space and associated amenities on a 9.98-acre lot.
Each of the Infinite 101 and Infinite 131 Projects have been structured as stand-alone projects that comply with the underlying development standards on their own, but upon full build-out of the two projects the overall site design would ultimately result in a seamless campus on the two sites. The proposed Development Agreement terms apply to both the Infinite 131 and the Infinite 101 Projects.
BACKGROUND/DISCUSSION
Infinite 131 Project Description
Building Architecture and Site Design
The Infinite 131 Project compliments the previously entitled design of the Infinite 101 Project, with buildings that have primarily glass facades, thereby bringing an abundance of natural light into each building. Building exteriors would also incorporate combinations of terra cotta, aluminum panels, wooden columns and beams to evoke a modern aesthetic. As with the Infinite 101 Project, the buildings are curved, which creates interesting courtyards between the building masses and provide significant usable on-site open space.
Landscaping and Open Space
The life-science campus would be tied together as an independent project and with the Infinite 101 Project through a cohesive network of landscaping and open space. A center landscaped courtyard would be located along the interior of the project site and framed by the shape of the proposed buildings to prioritize pedestrian- and bike-friendly connections and outdoor amenities. The campus open space includes multiple planting concept areas, including riparian forest, coastal meadow and redwood groves that will provide a different feel throughout the site. The courtyards contain raised planters with benches, seating areas with movable furniture, wind screen elements, bike racks, as well as in-ground plantings that serve as bio-retention areas. Open space areas are organized to connect internally, with pathways and crosswalks, and are also designed to connect to the surrounding development area.
As discussed below in the "Environmental Review" section, the existing Golden Gate Produce Terminal is considered a historical resource for CEQA compliance. One of the proposed mitigation measures is the design and installation of a public interpretation program on the project site to document the history of the Golden Gate Produce Terminal. Such a public interpretation program would be required to be at least partially located in publicly accessible open spaces throughout the project site. The final design and location of such a public interpretation program would be subject to City Council review and approval prior to the construction of any phases of the Infinite 131 Project.
The project would also provide infrastructure upgrades, and circulation improvements to the pedestrian and bicycle networks and neighborhood connectivity. The proposed site design, architectural details, and landscaping plans are all detailed in the project plan set, prepared by SOM Architects (Exhibit D to the Entitlements Resolution).
Site Access and Circulation
The project site is currently only accessed from Terminal Court, which branches off Produce Avenue prior to the beginning of the southbound onramp to U.S. 101. A second site access point is proposed from Shaw Road along a former rail right-of-way that will connect to the southwest corner of the site. Internal roads would be configured in a loop pattern, providing vehicular access to buildings, parking, and on-site amenities. Pedestrians and cyclists are separated from vehicle traffic, with separate sidewalks and pathways, as well as speed humps and raised crosswalks included on internal roadways to prevent high vehicle traffic speeds where there may be conflicts with other road users. Bike rooms would be located throughout the life science buildings and the parking structures, and bike racks provided near building entrances, and within plazas.
The Project site is located within 1/2-mile of the San Bruno BART station and 2/3-mile of the South San Francisco Caltrain station. Employees and visitors to the site will be encouraged to access the site via public transportation, or through non-single occupancy vehicles, as will be reflected in a comprehensive Transportation Demand Management (TDM) program.
Entitlements Request
The Infinite 131 Project is seeking the following entitlements:
* General Plan Amendments
* Lindenville Specific Plan Amendments
* Zoning Map Amendments
* Transportation Demand Management (TDM) Program
* Vesting Tentative Map
* Design Review
* Development Agreement
* CEQA Determination
GENERAL PLAN, LINDENVILLE SPECIFIC PLAN AND ZONING AMENDMENTS
The current General Plan Land Use Designation, Lindenville Specific Plan Land Use Designation and Zoning Classification for the project site and off-site redesignation parcels is Mixed Industrial High (MIH). During the initial 2040 General Plan Update process to select a preferred land use alternative, the City contemplated high-density mixed-use land uses for these parcels immediately west of U.S. Highway 101. The current property owner and occupant, Golden Gate Produce Terminal ("GGPT"), indicated via letter (Attachment 1 to this staff report) that they intended to remain at this location indefinitely. Because the GGPT has been designated a legacy use within South San Francisco since at least the 1999 General Plan, and such a use is not generally compatible with residential uses due to incompatibilities in hours of operation, the 2040 General Plan ultimately designated the property Mixed Industrial to allow for the continued conformity with the existing users.
The Lindenville Specific Plan was adopted in 2023, and it includes the following policy specific to the GGPT:
Policy LU-5.2: Golden Gate Produce Terminal and Park N' Fly sites. Encourage parcel assemblage of the Park 'N Fly site (160 Produce Avenue) and the Golden Gate Terminal site (131 Terminal Court) and encourage developers to create a master plan and appropriate environmental analysis for office and R&D uses on the site.
Subsequent to adoption of the General Plan and the Lindenville Specific Plan, GGPT indicated via letter (Attachment 2 to this staff report) that they have determined that remaining at the 131 Terminal site is no longer feasible due in part to the age and condition of the facility, which requires complete renovation. They have entered into an agreement with Steelwave to re-envision the property into a life science campus.
As indicated above in the "Project Overview and Background" section, Steelwave obtained entitlements for the Infinite 101 Project in 2023. That site currently has as a General Plan, Lindenville Specific Plan and Zoning designation of Business Technology Park High (BTP-H), which allows for "High-density corporate headquarters, research and development facilities, and offices." To facilitate a unified life science campus on both the 101 Terminal Ct and 131 Terminal Ct sites, Steelwave is requesting amendments to the General Plan, Lindenville Specific Plan and Zoning Map to revise the land use designation and zoning for the 131 Terminal Ct property from MIH to BTP-H.
In keeping with Lindenville Specific Plan Policy LU-5.2, staff is also recommending that the five parcels north of the project site comprising the Park 'N Fly site and Shell gas station site also be redesignated as BTP-H. This change to the off-site redesignation parcels has been included in the environmental analysis, as discussed in more detail in the "Environmental Review" section below.
Lastly, staff is recommending that General Plan Sub-Area Element Policy SA-25.2 be amended as follows, to be consistent with the subsequently adopted Lindenville Specific Plan Policy LU-5.2:
Policy SA-25.2: Continue to recognize the Golden Gate Produce Terminal as a legacy use. Recognize the Golden Gate Produce Terminal as a legacy use; permit it as a conforming use, allowing for expansion and contraction as necessary. If in the future the Golden Gate Produce Terminal stops operation at this site, require any new uses or new development of the site to be in conformance with the Mixed Industrial Business Technology Park High Designation
Subject to these amendments, the General Plan, Lindenville Specific Plan and Zoning Map would each be consistent with one another.
ZONING CONSISTENCY ANALYSIS
Business Technology Park High (BTP-H) District / Site and Building Design Standards
The maximum base floor area ratio (FAR) in the BTP-H district is 0.5, with up to 2.0 permitted with community benefits, and the height maximum is the maximum permitted by FAA regulations. As proposed, the project would be developed at a FAR of 2.0, consistent with the FAR permitted per a community benefits agreement (or in this case, a Development Agreement), per SSFMC Section 20.395.003(A)(2). The height of each building has been preliminarily determined to be consistent with FAA regulations.
In addition to the development standards in the BTP-H zoning district, the Zoning Ordinance contains general citywide site and building design standards, to supplement district-specific standards (SSFMC Section 20.310). These standards contain requirements for building entrances, open space design and orientation, on-site circulation and parking, building materials and textures, and architectural integrity. The design of the project meets these standards, with a focus on high-quality design and materials, usable open spaces, and pedestrian and bicycle connections to and throughout the site. The project is designed to meet the BTP-H district zoning standards, as well as the citywide development standards.
Vehicle Parking
The Zoning Ordinance includes parking ratios that reflect the need to provide fewer parking spaces in order to incentivize and support alternative modes of transportation and reduce single-occupancy vehicle trips. SSFMC Section 20.330.004 (Required Parking Spaces) states that parking ratios required in the Zoning Ordinance are parking maximums.
The maximum parking ratio for R&D uses is 1.5 spaces / 1,000 sq. ft. of gross floor area (SSFMC Table 20.330.004 Required On-Site Parking Spaces). The project is proposing 2,434 spaces for the approximately 1,632,000 sq. ft. of office/R&D area, in keeping with the maximum parking ratio. The project is also providing an additional 542 parking spaces for other amenity uses which lack parking maximums, accommodating about 17 percent of the total capacity of these spaces based on maximum occupancy allowed. Together, the proposed 2,976 parking spaces would accommodate approximately 42 percent of the expected peak occupancy of the project, in support of the TDM requirements discussed below. The Infinite 131 Parking Management Plan memorandum from Fehr & Peers is provided as Attachment 3 to this staff report. Staff has included a condition of approval requiring that all identified amenity spaces must be open to the public for these additional parking spaces to be allowed; if at any time the amenity spaces are restricted so as to only be available to campus tenants, the associated additional parking spaces must be removed and replaced by landscaping/open space improvements.
Bicycle Parking
The Infinite 131 project includes short-term and long-term bike parking options for employees and visitors. SSFMC Section 20.330.007 includes standards for bicycle parking:
* Any establishment with 10 or more employees shall provide long-term bicycle parking in an amount equivalent to five percent of required vehicular spaces.
Based on this requirement, Infinite 131 is required to provide 149 long-term bicycle parking spaces, which will be located throughout the project site, along with 27 short-term parking spaces. SSFMC Section 20.330.007 (Bicycle Parking) includes design and location, and security requirements for long- and short-term bicycle parking. As designed, the Infinite 131 Project meets these requirements, and a project condition of approval is included to ensure that these requirements are met during project construction.
TRANSPORTATION DEMAND MANAGEMENT PLAN
SSFMC Section 20.400 establishes regulations related to Transportation Demand Management (TDM) plans, using a points-based TDM planning approach to ensure that each development project contributes its fair share toward reducing vehicle trips and vehicle miles traveled (VMT), while providing flexibility to be sensitive to the local development context, project type, and scale of the project. Required points are intended to align with the approximate level of auto travel reductions needed to achieve consistency with city, regional and state environmental goals. The TDM ordinance includes four tiers of compliance for different types and scales of development, based on their anticipated effects on the City's transportation network.
The Infinite 131 project is classified as a Tier 4 project, as it is an R&D project with at least 400,000 sq. ft. of floor area. Tier 4 projects include the most stringent TDM requirements, such as:
* A total of 50 points
* Annual monitoring to achieve a maximum of 50 percent of employees commuting via driving alone
* Annual monitoring of a site-specific trip cap
The proposed TDM Plan, prepared by Fehr & Peers (Associated Amendments and Entitlements Resolution, Exhibit F) includes a checklist, which achieves the required 50 points through a mix of required and optional trip reduction measures designed to reduce the number of peak hour vehicle trips, auto dependency, and the need for commuting by single-occupancy vehicle for project employees and visitors. The project design, transit-oriented location and programmatic TDM elements encourage alternative modes of transportation including walking, bicycling, micro-mobility options, carpooling, vanpooling, remote work, and public transit.
VESTING TENTATIVE MAP
As part of the overall entitlements, the applicant has submitted a Vesting Tentative Map that encompasses both the Infinite 101 and Infinite 131 Project sites, prepared by Ware Malcomb and their consultant team, dated August 25, 2025, to separate the existing two parcels into eight separate lots.
All of the proposed lots are detailed in the Vesting Tentative Map plan set, on Sheet C1.1, (Associated Amendments and Entitlements Resolution, Exhibit E). Per Section 20.090.004 of the SSFMC, the minimum lot size in the BTP-H zoning district is 10,000 sq. ft., with a minimum lot width of 50 ft. Each of the proposed lots meets the development standards. The Engineering Division has reviewed the Vesting Tentative Parcel Map application and has included relevant conditions of approval.
DESIGN REVIEW BOARD
The Design Review Board (DRB) reviewed the project on July 18, 2023. As the overall design complemented the previously approved 101 Terminal Project, the Board was supportive of the overall project, site planning and architecture. The only comment was to request taller trees where allowed by Fire Code on the north side of the parking structure. The DRB comment letter is included as Attachment 4 to this staff report.
SUSTAINABILITY / CLIMATE ACTION PLAN
The proposed project is consistent with recent sustainability regulations that have been adopted at State and local levels. Examples include Senate Bill 375, passed in 2008, which aims to create more efficient communities by providing alternatives to using single occupancy vehicles. Projects that link higher density development to transit help meet this goal. At the local level, the General Plan policies and implementing zoning for this area focus on linkages to both San Bruno BART and South San Francisco Caltrain, other regional transit including SamTrans, and community amenities.
The Infinite 131 Project is designed as a high-density transit-oriented development, located proximate to both BART and Caltrain stations, several bus routes and commuter shuttles, residential development in the Downtown, and retail and services. The proposed project would be designed to achieve a minimum Leadership in Energy and Environmental Design (LEED) version 4.1 Building Design and Construction Core and Shell Gold rating as well as WELL v2 Core Gold certification. Proposed sustainability measures include an all-electric building design, on-site renewable energy in the form of rooftop photovoltaic panels, and high-performance building envelope and HVAC systems, as well as other measures.
IMPACT FEES
The Infinite 131 Project 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 draft Conditions of Approval (Exhibit H to the Associated Amendments and Entitlements Resolution) list out the relevant impact fee estimates, summarized below:
* Childcare Fee: $2.5M
* Citywide Transportation Fee: $58.6M
* Commercial Linkage Fee: $28.5M
* Public Safety Impact Fee: $2.1M
* Parks Fee: $5.8M
* Library Impact Fee: $232,000
* Public Art Requirement: On-site, or in-lieu contribution of .5% of construction costs
DEVELOPMENT AGREEMENT
Steelwave is requesting to enter into a Development Agreement with the City. Key features of the Development Agreement include:
* Incorporation of the Infinite 101 entitlements into the overall Development Agreement terms (all other Infinite 101 entitlements would remain in place)
* Twelve (12) year term, with the option for an additional five (5) years if 700,000 square feet of life science uses have been constructed within seven (7) years of the effective date
* Payment of all applicable Development Fee rates at time of permit issuance
* Child Care Space Design and Construction, minimum capacity of fifty-five (55) children, or payment of $4,000,000
* Point of Sale for Project Construction for Sales Tax Allocation
* All-Electric Buildings
* Payment of Community Benefit Monetary Contributions, as follows:
o First Payment of $1,000,000 by the 1st anniversary of the effective date
o Second Payment of $1,000,000 by the 3rd anniversary of the effective date
o Third Payment of $1,000,000 by the 5th anniversary of the effective date
* In lieu of paying the Third Payment as of the fifth (5th) anniversary date, Developer may elect to provide written notice to the City of its desire to terminate the Agreement
* All fees paid are non-refundable but can be transferred to a new project owner/developer
The draft Development Agreement is included as Exhibit G to the Associated Amendments and Entitlements Resolution. The parties are in substantial agreement on the agreement deal terms, but are still finalizing some of the language in the draft Development Agreement. The language of the Development Agreement will be finalized at the time it is considered by the City Council.
ENVIRONMENTAL REVIEW
Draft Environmental Impact Report
A Draft Environmental Impact Report (DEIR) analyzing the potential environmental impacts of the Infinite 131 Project and the change in land use designation of the off-site redesignation parcels was prepared by the environmental consulting firm ICF. The purpose of an EIR is to disclose information to the public and to decision makers about the potential environmental effects of a proposed project. An EIR does not recommend either approval or denial of a proposed project; rather, it is intended to provide a source of independent and impartial analysis of the foreseeable environmental impacts of a proposed course of action. Per the requirements of CEQA, the City circulated the DEIR from June 20, 2024 - August 5, 2024, for a 45-day public review period. The Planning Commission held a public hearing on August 1, 2024 to take comments on the DEIR during the public review period
The DEIR provides a project-level analysis of the proposed Infinite 131 Project as well as the off-site transportation and circulation improvements, pursuant to Section 15161 of the CEQA Guidelines, and is intended to provide the environmental review needed under CEQA to support all necessary approvals and entitlements for implementation of the Infinite 131 Project. The DEIR also provides a program-level analysis of the redesignation and rezoning of the five off-site parcels, pursuant to Section 15168 of the CEQA Guidelines, and is intended to be used for streamlined environmental review for future phases of development within these off-site redesignation parcels. The DEIR is available online and is also attached as Exhibit A to the Associated CEQA Resolution.
The Infinite 131 DEIR identifies all of the mitigation measures that will be implemented to reduce the environmental impacts associated with the proposed project. ICF has prepared a Mitigation and Monitoring Plan (MMRP) to ensure that mitigation measures will be properly implemented. The MMRP is attached to the Associated CEQA Resolution (Exhibit D). The MMRP is organized to correspond to environmental issues and significant impacts discussed in the EIR, and the City will use it to track mitigation measures, timing for implementation, responsible party, the action, and ongoing monitoring responsibility.
Response to Comments (RTC)
Following the public review period, ICF prepared a Response to Comments (RTC) document, to respond in writing to comments on environmental issues, and revise the DEIR as necessary to provide additional clarity. The RTC document also provides limited responses, for informational purposes, to general comments on the draft EIR received during the public review period that were not related to environmental issues. The RTC document also includes EIR text changes made in response to the comments; the changes and minor errata items do not result in significant new information with respect to the proposed project, including the level of significance of project impacts or any new significant impacts. The RTC document, together with the DEIR, comprise the Final EIR (FEIR), which is attached to the Associated CEQA Resolution (Exhibit B).
Significant and Unavoidable Impacts
A significant and unavoidable impact is an impact that cannot be mitigated to a less than significant level if the project is implemented, because no feasible mitigation has been identified. The Infinite 131 Project EIR identifies several impacts related to Air Quality, Cultural Resources, and Transportation that would be significant and unavoidable even with mitigation that would result if the project were implemented.
Air Quality
Operational impacts from the proposed project are primarily a result of area-source emissions (use of consumer products, architectural coatings, landscaping equipment), as well as stationary-source emissions (emergency diesel generators), mobile-source emissions (daily employee trips to and from the site) and laboratory operations. Together, all of these operational impacts result in daily reactive organic gas (ROG) emissions from the proposed project that exceed the Bay Area Air Quality Management District's (BAAQMD) allowed threshold (Impacts AQ-2 and C-AQ-2). This impact can be partially reduced through implementation of mitigation measures that require low-volatile organic compound (VOC) coatings, low-VOC cleaning supplies and use of zero-emission landscape equipment, but total ROG emissions would continue to be above the BAAQMD threshold and there are no additional measures to reduce these emissions further.
The project also could expose sensitive receptors to substantial pollutant concentrations (Impacts AQ-3 and C-AQ-3), specifically with particulate matter (PM2.5) emissions from exhaust and fugitive dust sources that exceed the BAAQMD threshold for worker receptors within 1,000 feet of the project site. While a mitigation measure is proposed to reduce dust emissions during construction, no mitigation measure has been identified that would reduce exposure to PM2.5 concentrations during normal project operations (on-road vehicle trips to and from the site).
Cultural Resources
The existing Golden Gate Produce Terminal is recommended as eligible for listing in the California Register of Historical Resources (CRHR) and the National Register of Historic Places (NRHP) and is therefore considered a historical resource for CEQA compliance. Based on this, the demolition of Golden Gate Produce Terminal within the project site would result in a substantial adverse change to the historical resource (Impact CULT-1).
Two separate mitigation measures are proposed, the first requiring written and photographic documentation of the significant and character-defining features of the property and recordation of the historic and architectural characteristics, and the second requiring the design and installation of a public interpretation program on the project site. These mitigation measures would reduce adverse impacts to the greatest extent possible, but this impact would remain significant and unavoidable.
Transportation
The proposed project was not identified or studied in the General Plan Update or Lindenville Specific Plan, and the intensification of uses would occur in a location with insufficient access and circulation facilities, limited transportation options and challenging connectivity to the regional transportation network. Therefore, the project conflicts with the goals and policies of the General Plan and Lindenville Specific Plan (Impacts TRANS-1 and C-TR-1). As mitigation, the project would be required to implement various actions consistent with those identified in the General Plan, Lindenville Specific Plan and Active South City Plan. One of these actions is the construction of a Class IV separated bikeway along Airport Blvd and Produce Ave from Terminal Court to Baden Ave, connecting the site to the South San Francisco Caltrain Station Plaza. The project would also fund engineering studies for a new trail crossing of US 101 south of the project site, and for a new southbound US 101 off-ramp connecting to a future Utah Ave Overpass. With implementation of these measures, the project would adequately address its effects. However, part of this right-of-way is under the jurisdiction of Caltrans and another part is under the jurisdiction of the City of San Bruno, and neither jurisdiction has a mechanism for funding this mitigation. Therefore, the impact would be significant and unavoidable because the City of South San Francisco cannot ensure its implementation.
The other potentially significant impact related to transportation is a substantial increase to hazards due to a geometric design feature or incompatible uses (Impacts TRANS-3 and C-TR-3). The project would increase vehicle trips at several streets and freeway ramps with unsignalized intersections adjacent to the project site. Implementation of new traffic signals along Produce Avenue and San Mateo Avenue would reduce the potential for conflicts and queueing at affected intersections. However, part of this right-of-way is under the jurisdiction of Caltrans and the jurisdiction of the City of San Bruno, and neither jurisdiction has a mechanism for funding this mitigation. Therefore, the impact due to design hazards would be significant and unavoidable because the City of South San Francisco cannot ensure full implementation of the mitigations.
Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program
A Statement of Overriding Considerations (SOC) has been prepared for the Infinite 131 Project pursuant to Public Resources Code Section 21081. The SOC is included with the required CEQA Findings and attached to the Associated CEQA Resolution as Exhibit C. The City Council must adopt the Statement of Overriding Considerations for those impacts identified as significant and unavoidable in the Infinite 131 Project EIR and the project cannot be approved unless a SOC is adopted which balances the benefits of the proposed project against the unavoidable impacts.
Staff supports adoption of the SOC because the Infinite 131 Project will provide economic, social, technological, and other benefits that balance the significant and unavoidable impacts of the project. Project benefits that balance the impacts include:
* Alternative Transit Supportive Development. The proposed project would include various design features consistent with General Plan and Lindenville Specific Plan goals, as well as the Active South City Plan and TDM ordinance, in an effort to reduce VMT and resulting GHG emissions and provide connections to nearby BART and Caltrain stations. The proposed project's TDM plan would include measures such as providing first-/last-mile shuttle service to the San Bruno BART station and South San Francisco Caltrain station, fully subsidized transit passes, and on-site amenities for bicyclists and pedestrians.
* Sustainability. The proposed project would incorporate sustainability features to reduce energy consumption, water consumption, and waste generation. The proposed project, at a minimum, would achieve a LEED, version 4.1, Building Design and Construction Core and Shell Gold rating as well as WELL v2 Core certification. Other proposed sustainability measures would include an all-electric building design; on-site renewable energy in the form of rooftop photovoltaic panels; a high-performance building envelope and heating, ventilation, and air-conditioning system; ultra-efficient WaterSense-labeled flush and flow fixtures; low-water demand native and/or adapted vegetation with efficient irrigation systems; on-site recycling and composting facilities; and electric-vehicle charging infrastructure. In addition, the proposed project would also be designed to conserve resources and protect water quality through the management of stormwater runoff using low-impact development methods, where feasible, to allow stormwater filtering, storage, and flood control. Bioretention basins, flow-through planters, Silva Cell units, and other design features would be located throughout the project site.
* Groundwater Recharge. The proposed project would increase the pervious surface area on the project site by approximately 18 percent. The increase in pervious surface area would increase infiltration and recharge of the underlying aquifer. It would also reduce the amount of precipitation running into storm sewers or nearby surface waters. In addition, native and/or adapted vegetation and other landscape features, including trees, would provide opportunities for improved groundwater infiltration. Landscaped spaces would allow for an increase in groundwater recharge. New vegetation zones would slow water, allowing water to percolate into the ground, thereby providing increased benefits related to groundwater recharge. Furthermore, the proposed project would not substantially interfere with groundwater recharge because it would not increase groundwater demand or decrease the size of groundwater recharge areas.
* Remediation of Hazardous Materials. The project site has historically been occupied by industrial uses. Prior releases of hazardous materials have occurred within various portions of the project site, and contaminated soils and groundwater are known, or have the potential, to occur on-site. The proposed project would remove or remediate existing hazards in accordance with applicable regulatory requirements, and as outlined in the project's Phase II Environmental Site Assessment recommendations. In addition, the proposed project would also remove older buildings and structures within the project site that may contain asbestos-containing materials and/or lead-based paint, and ensure treatment or disposal of these substances in accordance with applicable regulatory requirements and the project's asbestos, lead, and PCB recommendations.
* Economic Development. The proposed project would provide a positive impact on the local economy by redeveloping an underutilized, transit-accessible location for R&D, biotechnology and office uses, creating a substantial number of new jobs across a diverse set of skills and experience levels during project construction and operations. By developing new state-of-the art facilities, the proposed project helps advance South San Francisco's economic development goals of enhancing the competitiveness of the local economy, maintaining a strong and diverse revenue and job base. The proposed project will also generate substantial regional economic benefits, as money spent by employees within the general project area circulates through the local economy.
* Fiscal Health. The proposed project would promote the City's fiscal health by enhancing property values, and generating increased property taxes, development impact fees, and other general fund revenues for the City. At stabilized occupancy, the proposed project would contribute millions of dollars per year to the City in ongoing general fund revenue, including through tax revenue generation. The proposed project would also generate impact and service capacity fee contributions as set forth in Exhibit C.2 of the Development Agreement to be utilized for affordable housing development; park, recreation, childcare, library, and public safety facilities; bicycle and pedestrian infrastructure; sewer capacity improvements, and school district facilities. The proposed project would privately fund all development and improvements described herein, at no cost to the City.
* Community Benefits Obligations. The project's Development Agreement establishes the proposed project would provide the City a total of $23 million in community benefits obligations, including specific improvements, features, and direct payments. The City has sole discretion to allocate and spend the community benefits payments for any authorized governmental purpose.
* Circulation Improvements & Public Transit Connectivity. The proposed project will advance the off-site improvements consistent with and as identified in the General Plan, Lindenville Specific Plan and Active South City Plan. These improvements will substantially enhance vehicular, bicycle and pedestrian circulation and access within and surrounding the proposed project and Specific Plan area. The proposed project will promote the use of non-single occupancy vehicle transportation, including through implementation of a Transportation Demand Management program to achieve 50% alternative mode usage.
* Provision of Open Space and Project Amenities. The proposed project would include two centrally located landscaped courtyards, prioritizing pedestrian and bike friendly connections with approximately 115,130 square feet of publicly accessible open space. The proposed courtyards and open space will provide areas for outdoor work, recreation and socializing. The proposed project will provide amenities, including a day-care center, fitness center, restaurant/caf?, conference rooms and ground floor lobbies, accessible from a network of interconnected pathways and central courtyards.
* Infrastructure Improvements. The proposed project will upsize, improve and/or reconfigure a wide range of wet and dry utilities services to increase capacity and also to modernize existing facilities by replacing, improving and/or undergrounding certain existing infrastructure, to serve off-site users as well as the project itself. Among other improvements, the proposed project will construct a new extension to the public 12-inch water main in Terminal Court; construct a new 18-inch sewer main through the southwest corner of the proposed project to a 21-inch main on Shaw Road; construct new stormwater facilities and storm drain mains; and include the installation of new connections for dry utility services.
AIRPORT LAND USE COMMISSION
On June 12, 2025, the City/County Association of Governments of San Mateo County (C/CAG) Board of Directors, acting as the San Mateo County Airport Land Use Commission (ALUC), determined that the Infinite 131 Project is consistent with the Comprehensive Airport Land Use Compatibility Plan for the Environs of San Francisco International Airport. The ALUC Resolution 25-35 is attached as Attachment 5 to this staff report.
CONCLUSION
The proposed Infinite 131 Project is consistent with General Plan and Lindenville Specific Plan policies to provide initial master planning and appropriate environmental analysis for office and R&D uses within the Produce / Terminal corridor. The Project proposes a state-of-the-art life science campus that combines with the previously entitled Infinite 101 Project to transform a underutilized site in the U.S. Highway 101 corridor. The Project aims to bring high-quality architectural design and significant public realm improvements to reimagine the Project site and the surrounding area as a destination accessible by foot, bicycle, or public transit. Given the Project's high visibility along the Highway 101 corridor and proximity to public transportation, the campus will serve as a landmark for the City of South San Francisco.
Therefore, staff recommends that the Planning Commission take the following actions:
1. Adopt a resolution making findings and recommending that the City Council certify the Environmental Impact Report (EIR23-0001), including adoption of a Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program.
2. Adopt a resolution making findings and recommending that the City Council approve the entitlements request for the Infinite 131 Project (P23-0003) including General Plan Amendment (GPA25-0002), Specific Plan Amendment (SPA25-0001), Design Review (DR23-0002), Transportation Demand Management Plan (TDM23-0002), and Vesting Tentative Map (23-0001), adopt an ordinance amending the Zoning Map (ZA23-0001), and adopt an ordinance approving a Development Agreement (DA23-0002.
Attachments
1. Golden Gate Produce Terminal Letter, October, 2020
2. Golden Gate Produce Terminal Letter, May, 2025
3. Infinite 131 Parking Management Plan, prepared by Fehr & Peers
4. Design Review Board Letter, July, 2023
5. ALUC Resolution 25-35
Associated Resolutions and Exhibits
1. CEQA Resolution (25-774)
a. Exhibit A: Infinite 131 Project DEIR and appendices, available online
b. Exhibit B: Infinite 131 Project FEIR
c. Exhibit C: Statement of Overriding Considerations
d. Exhibit D: Mitigation Monitoring and Reporting Program
2. Amendments and Entitlements Resolution (25-775)
a. Exhibit A: General Plan Amendments
b. Exhibit B: Lindenville Specific Plan Amendments
c. Exhibit C: Zoning Map Amendments
d. Exhibit D: Infinite 131 Project Plan Set
e. Exhibit E: 101-131 Terminal Vesting Tentative Map
f. Exhibit F: Transportation Demand Management Program
g. Exhibit G: Development Agreement
h. Exhibit H: Conditions of Approval