PREPARED BY: Sandra Castaneda Marquez DATE OF MEETING: 12/09/2025
SUBJECT:
TITLE
RESOLUTION APPROVING MAJOR DESIGN REVIEW AND PARKING WAIVER FOR A 12-UNIT APARTMENT PROJECT. THE APARTMENTS WOULD BE SIDE-BY-SIDE TOWNHOUSE STYLE WITH TWO ATTACHED APARTMENT UNITS PER BUILDING AND SIX SEPARATE STRUCTURES TOTAL, TO BE LOCATED AT 2424 CHURCH LANE, SAN PABLO, APN: 417-090-024.
CEQA: This project is categorically exempt under the California Environmental Quality Act Guidelines Section 15332, In-Fill Development Projects as it involves development on a site that is five acres or less, is surrounded by urban uses, has no habitat value for endangered, rare, or threatened species, is adequately served by all required utilities and public services, would not result in any significant effects on traffic, noise, air or water quality, and would be consistent with general plan and zoning regulations.
Label
Location: 2424 Church Lane
APN: 417-090-024
Plan Number: PLAN2501-0003
Zoning: R-3, Multifamily Residential
CEQA: Exempt under Section 15332, In-Fill Development Projects
Owner: Creekside Village, LLC
Applicant: Mark Lee, Architect
Staff Contact: Sandra Castaneda Marquez, Associate Planner
Recommendation
Conduct public hearing; adopt Resolution
Body
REQUESTED ACTION
A request for approval of Major Design Review for the construction of a 12-unit apartment project, including 22 covered parking spaces and a private and commonly accessible open space. The apartments would be side-by-side townhouse style with two attached apartments units per building and six separate structures total. Five of the structures (10 units) would be three stories with three bedrooms each and a two-car garage in the ground level, and one of the structures would be two stories with one two-level three-bedroom unit and one single-story one-bedroom unit. The applicant is requesting a parking waiver from the requirement to provide a covered parking space for the one-bedroom unit. The site is owned by Creekside Village, LLC, and the project is designed by Mark Lee of Lee Architecture, Inc.
According to Section 17.20.030 of the San Pablo Zoning Ordinance, Major design review shall be required for new construction of multiple-family projects with five or more residences, in all zoning districts. Staff recommendation is for Planning Commission to approve the Major Design Review, subject to the conditions of approval included in the resolution.
The hearing for this application was opened during the October 28, 2025 Planning Commission meeting and continued to the next regular meeting. The November 25, 2025 meeting was cancelled and continued to December 9, 2025.
Surrounding Zoning and Land Uses:
This parcel is currently located in a split zoned lot, with both Multifamily Residential (R-3) zoning. Surrounding zoning and land uses from the site are as follows:
North: I- Institutional; Alano Club of Contra Costa County
South: SP2- San Pablo Avenue Specific Plan; High Density Residential; Church Lane Properties Apartments.
East: R-3- Multifamily Residential; Willow Rd. Mobile Home Park.
West: R-4 - High Density Residential; Gerken’s Mobile Home Court
PUBLIC HEARING NOTICE
Notices regarding the October 28th public hearing were mailed to owners of properties within a 300-foot radius of the site on October 15, 2025. A Public Hearing Notice was published in the West County Times newspaper (West Contra Costa edition of the East Bay Times) on Saturday, October 18, 2025. The Planning Commission continued the hearing at their October 28th meeting and notices regarding the December 9th public hearing were mailed to owners of properties within a 300-foot radius of the site on November 24, 2025.
BACKGROUND
The subject site is largely vacant and previously contained a single-family residence on the eastern portion. There is an existing laundry room building for the adjacent Willow Mobile Home Park located in the western portion of the site. This facility will be relocated to the Willow Mobile Home Park once the project starts construction. The only Planning records on file for this site include a Zoning Verification letter request in 2024, the finalized Lot Line Adjustment that occurred in 2024, and the General Plan Amendment adopted by City Council on July 7, 2025, which includes the redesignation of the eastern portion of the parcel from Institutional to Medium Density Residential, and the Zoning Amendment that was adopted by City Council on August 4, 2025 (effective September 3, 2025), which changed the Zoning designation to R-3 for the eastern portion of the property to be consistent with the General Plan designation of Medium Density Residential.
The Planning Commission held a public hearing and considered this item on August 26, 2025. There were 3 public comments regarding this item with concerns regarding on-site parking and access to the project and traffic congestion around the project area. The Planning Commission heard the public comments and received a staff presentation. The applicant requested changes to the suggested conditions of approval regarding ADA accessibility and stormwater compliance and the Planning Commission suggested that staff work with the applicant to review the conditions of approval and revise the project as needed. The public hearing was continued and noticed for October 28, 2025. At the October 28 Planning Commission meeting staff requested that the hearing be continued to the next scheduled meeting as the applicant was still working with the Contra Costa Fire Protection District to satisfy Fire access requirements. During this meeting 1 speaker gave public comment about the project with similar concerns to the previous hearing regarding parking and traffic congestion. After hearing the comment, the Planning Commission voted to continue the hearing, and the motion passed.
SITE LOCATION AND PROJECT DESCRIPTION
The 27,385 square-foot project site is located along Church Lane, at the northeast corner of Church Lane and Willow Road. Surrounding development includes high density residential housing and mobile home parks, and well as Institutional uses such as the Alano Club of Contra Costa and St. Joseph Cemetery & Funeral Center. (See Attachment B, Site Location). Along with the application form, the applicant also submitted a property owner authorization letter, architectural plan set (including site plan, floor plans, exterior color elevations), civil engineering plans, and landscape and park plan (see Attachments E through H).
The project consists of a total of twelve (12) apartment units, eleven (11) of which measure between 1,139 and 1,156 square feet and feature three bedrooms and two bathrooms, and one of the units would be 513 square feet and have only one bedroom and one bathroom. The total building area of the project would be 7,161 square feet. Five of the proposed buildings would be three stories, with a two-car garage and washer and dryer on the ground level; kitchen, dining, and living room along with one bedroom and one bathroom on the second floor; and two additional bedrooms and one additional bathroom on the third level, along a private open space deck. The sixth building would be two-stories in height, with one three-bedroom unit with a two-car garage and washer and dryer on the ground level; three bedrooms, three bathrooms, kitchen, dining and living area in the second floor, and one single-story one-bedroom unit attached on the ground floor. The project also includes 4,315 square feet of common open space for the residents of the project. The commonly accessible open space will include an open green area, an arbor structure for shade, picnic tables and benches. There is a bus stop adjacent to the project parcel on Church Lane which will remain, and a five-foot wide strip of landscaped area along Willow Road that has been dedicated to the City as public right of way. This landscaped area provides further buffer between the road and the project.
The design of the building will be in a modern architecture style with American Craftsman elements, such as angled roof lines and Hardie plank lap siding featured between the windows, along the roof, and around the front door. The landscape plan features plantings surrounding the perimeter of the property and delineating the walkways between each building and front yards of each unit with a variety of trees, flowers, shrubs, and ground cover plantings.
GENERAL PLAN CONFORMANCE
The General Plan designation for the site is Medium Density Residential. This designation is intended to provide for a mix of housing types and may accommodate small lot single family, attached single family or townhomes, duplexes, triplexes, fourplexes apartment buildings, or condominiums. The following General Plan Guiding (G) and Implementing (I) policies apply to this request:
Urban Form:
LU-G-1
Promote a sustainable, balanced land use pattern that responds to existing and future needs of the City, as well as physical and natural constraints.
LU-G-2
Ensure planned land uses are compatible with existing uses and provide for appropriate transitions or buffers for new uses, as needed.
Community Design:
LU-G-3
Preserve and strengthen the City’s overall image and create a safe, walkable and attractive urban environment for the current and future generations of residents.
Residential Neighborhoods:
LU-G-4
Protect and enhance quality of life in the city’s residential neighborhoods.
LU-G-5
Promote a variety of housing types and prices within neighborhoods to serve the economic needs of all segments of the community.
LU-1-12
Allow for a range of residential development intensities throughout the community to cultivate a mix of housing types at varying sales price points and rental rates, provide options for residents of all income levels, and protect existing residents from displacement.
LU-I-14
Facilitate the development of 3 and 4-bedroom homes and accessory dwelling units that cater to larger, multi-generational families.
LU-I-16
Encourage building placement variations, roofline variations, architectural projections, and other embellishments to enhance the visual interest along residential streets.
LU-I-18
Ensure that new development in or adjacent to established neighborhoods is compatible in scale and character with the surrounding area by:
• Promoting a transition in scale and architectural character between new buildings and established neighborhoods; and
• Requiring pedestrian circulation, transit access, and vehicular routes to be well integrated.
LU-I-21
Support residential infill on vacant and underused lots within existing neighborhoods.
Infill should be sensitive to the design elements (building elements, setbacks, and heights) of adjacent properties. Use of accessory dwelling units, by-right duplexes, and missing middle density residential can help add housing and enhance affordable housing opportunities in existing neighborhoods.
Housing Element- Housing Action Plan Goals
Housing Goal #1. Increase housing supply and facilitate production of at least 800 new homes by 2031.
Policy 1-2: Promote development of a variety of housing types, sizes, and densities that meet community needs based on the suitability of the land, including the availability of infrastructure, the provision of adequate services and recognition of environmental constraints.
Policy 1-5: Continue to encourage the provision of a variety of housing choices and types in the community, including innovative forms of housing.
The proposed project would be responsive to these policies by developing 12 new apartment units on a site that will be well-integrated into its surroundings, and in close proximity to amenities, such as the San Pablo Library, College Center Shopping Plaza, Community Center, Helms Middle School, and commercial uses along San Pablo Avenue and San Pablo Dam Road. As noted above, the project would also offer on-site amenities for its residents, including a small playground and open space area.
The design of the project would be compatible with the surrounding neighborhood. In terms of housing, the project would provide additional housing options for rent by developing a medium density residential project. In addition, the project would provide progress in meeting the City’s Regional Housing Needs Allocation (RHNA) numbers which are to be implemented by the Housing Element during the sixth cycle of 2023 to 2031. According to the City’s most recent RHNA report, the City had developed 179 units of 746 allocated units since 2023 (about 24%). There are 567 units remaining to be produced by 2031. The proposed 12 qualifying units would count towards the progress needed for meeting the housing needs allocation for this 6th RHNA cycle.
For the reasons mentioned above, Planning Staff finds that the proposed use is consistent with the San Pablo General Plan land use and housing-related policies.
ZONING CODE CONFORMANCE
The property was redesignated from a split zoning of the R-3 Multifamily Residential and Institutional districts to be entirely R-3, effective September 3, 2025. The current General Plan land use designation is Medium Density Residential. The Multifamily Residential district is described as follows:
R-3 District. The R-3 multifamily residential district is intended to implement the medium-density multifamily residential land use designation in the general plan by providing opportunities for residential development characterized by a mix of housing types, including townhouses, apartments, and condominiums. The maximum density allowable in this district is twenty-four dwelling units per acre. Accessory dwelling units and accessory uses are also allowed.
Development standards in the R-3 zoning district are set forth in Table 17.32-B of the Municipal Code. A breakdown of the relevant standards is provided in the table below:
|
DEVELOPMENT STANDARDS FOR THE R-3 ZONING DISTRICT |
|
Standards |
Zoning Code Requires |
Proposed |
Complies? |
|
Minimum parcel area (sf) |
10,000 |
27,385 |
Yes |
|
Maximum building height (feet) |
48 ft |
37’-4” ft |
Yes |
|
Max Stories |
6 |
3 |
Yes |
|
Density (DU/acre) |
Up to 24 |
21.94 |
Yes |
|
Maximum Lot Coverage |
70% |
30.05% |
Yes |
|
Open Space (sf) |
Common: 300 sf per unit Private:100 sf per unit |
Common: 357 sf per unit Private: 100 sf per unit |
Yes |
|
Front yard setback (feet) |
15 ft |
15 ft |
Yes |
|
Rear yard setback (feet) |
15 ft |
20’-9” ft |
Yes |
|
Side yard setback (feet) |
5 |
North side yard: 10 ft South side yard: 15 ft |
Yes |
As identified above, the proposed project would be in conformance with the development standards for the R3 - Multifamily Residential district.
PARKING
The City is in the process of amending certain residential parking requirements in the Zoning Ordinance. The proposed amended Zoning Ordinance will be considered for adoption by the City Council on December 15, 2025, and if adopted, it would become effective January 14, 2026. The applicant is proposing to avail itself of these new requirements and approval of the project is thus contingent upon the amended Zoning Ordinance becoming effective.
Proposed Section 17.54.020(F) Residential off-street parking requirements, Multiple-family Dwellings will require two (2) parking spaces for each unit with two or more bedrooms, and one (1) parking space for each studio or one-bedroom unit. A minimum of one space per unit shall be covered.
The proposed project contains 11 three-bedroom units, and the proposal provides two covered parking spaces for each one of these units. The project also contains a one-bedroom unit, which requires one covered parking space. The applicant is requesting a waiver for the required parking space for the one-bedroom unit.
According to Zoning Ordinance section 17.54.050, governing parking waivers and reductions, there are three parking waivers and reductions that this project qualifies for that will serve to remove the parking requirement for the one-bedroom unit.
1) Section 17.54.050B- On-street parking adjacent to the property can count toward the parking requirement.
2) Section 17.54.050F- Proximity to transit. For buildings located within one-quarter mile of a transit stop, the number of parking spaces may be reduced by ten percent.
3) Section17.54.050G- If a bicycle rack is provided, one parking space may be waived.
In total, the project requires 23 parking spaces and is proposing 22 spaces. The request is to waive the required space for the one-bedroom unit. This unit was required to be redesigned, and parking was removed due to drive-aisle access requirements by the Fire Protection District. Based on the allowed waivers listed above, the project would be able to receive the requested waiver as there is a bus stop along Church Lane immediately in front of the project site, there is existing on-street parking adjacent to the property on Willow Rd, and staff has included a condition of approval for the project to provide a bicycle rack. A condition of approval stating that the project approval is not effective unless and until the City adopts the amended parking requirements has also been included in the resolution.
MAJOR DESIGN REVIEW
The applicant proposes to construct a 12-unit apartment development, comprised of six separate buildings. Five of the Building would be three-story, and one would be two stories. Eleven (11) of the units measure between 1,139 and 1,156 square feet and feature three bedrooms and two bathrooms, and one of the units would be 513 square feet and have only one bedroom and one bathroom. The plan set elevations show that the maximum building height would be 37’-4” feet to roof peak. The residences would be accessed via Willow Road, with walkways between each building leading to the main entrance of each apartment unit. The common open space would be located at the northeast corner of the property. The open space area is set back away from the street but will be abutting the adjoining property’s driveway that gives access to Willow Mobile Home Park. Each unit will have individual trash bins that will be stored within each private garage.
The modern design of the building will include elements of American Craftsman style architecture and would be generally compatible with the surrounding neighborhood. As shown in the exterior elevations (Attachment F), design elements include angled roof planes; painted stucco siding in neutral tones; sections of Hardie plank lap siding around windows, roof eave, and front door; use of composite roof shingles; and walk out balconies with wood railings.
Landscape plans for the project (Attachment H) show generous landscaping throughout the site and along the perimeter. A total of 31 trees is proposed to be planted, in addition to numerous shrubs, grasses, perennials, and groundcover species.
Proposed outdoor amenities include open grass area for play, an arbor structure for shade, picnic tables, and benches.
Section 17.20.030(C) of the San Pablo Zoning Ordinance states that the Planning Commission shall ensure that the proposed development meet the following requirements:
1. Design guidelines. The proposal is consistent with applicable design guidelines.
2. Community plans. The proposal is consistent with any community design plan or specific plan.
3. General plan. The proposal is consistent with the land use, physical design, and economic development element and the open space element of the general plan.
4. Location and design. The location and design of proposed development gives particular consideration to privacy, views, and sunlight on adjoining properties and fosters the orderly and harmonious development and preservation of the public health and welfare of the city and its neighborhoods.
5. Design and colors. The architectural design of structures and their colors and materials are visually harmonious with surrounding development, landforms, and vegetation.
The project’s overall compliance to the San Pablo General Plan and San Pablo Zoning Code are addressed above. Several of the policies within the General Plan are aimed at fostering the orderly and harmonious development and preservation of the public health and welfare of the city and its neighborhoods. The project would fit well within the surrounding neighborhood by offering a needed housing choice in an attractive setting with high-quality design and lifestyle features. The architectural design of the structures and their colors and material would be visually harmonious with the surrounding development patterns and with the natural areas.
The project would meet the findings necessary for Major Design Review approval as noted above. It would be consistent with the relevant design guidelines and with the pertinent provisions of the San Pablo General Plan. The design is such that it would protect the privacy, views and sunlight of adjoining properties and would foster the orderly and harmonious development and preservation of the public health and welfare of the City and its neighborhoods.
ENVIRONMENTAL DETERMINATION
City staff has determined that the proposed project would be categorically exempt from the provisions of the California Environmental Quality Act (CEQA), in accordance with CEQA Guidelines pursuant to Section 15332, In-Fill Development Projects, as it involves development on a site that is five acres or less in size, is surrounded by urban uses, has no habitat value for endangered, rare, or threatened species, is adequately served by all required utilities and public services, would not result in any significant effects on traffic, noise, air quality, or water quality, and would be consistent with general plan and zoning regulations.
Pursuant to CEQA Guidelines Section 15332, City staff analysis shows that (a) the project is consistent with the applicable general plan, specific plan, and zoning designations, policies, and regulations; (b) the project occurs within City limits on a site that is less than five acres in size which is substantially surrounded by urban uses; (c) the project is located on a site that has no value as habitat for endangered, rare, or threatened species (d) approval of the project would not result in any significant effects relating to traffic, noise, air quality, or water quality; and (e) the site can be adequately served by all required utilities and public services.
CONCLUSION
Staff recommend that the Planning Commission approve PC25-14 for a Major Design Review and Parking Waiver for one space, along with the conditions of approval identified in the attached proposed Resolution (Attachment A). Any changes to the project or proposed changes to the approvals must first be submitted to the City of San Pablo for review.
ATTACHMENTS
A. Resolution PC25-14
B. Site Location
C. Project Application
D. Architectural Submittal: Site Plan, Floor Plans, Elevations, Sections, Color/Material Elevations
E. Civil Submittal: Grading, Drainage Management, Utility Layout, Parking Lot Paving
F. Landscape and Open Space Plan
G. Proof of Publication from West County Times