PREPARED BY: MEL MACKSON DATE OF MEETING: 04/22/2025
SUBJECT:
TITLE
APPROVAL OF MAJOR DESIGN REVIEW AND A 23rd STREET SPECIFIC PLAN COMPATIBLE USE DETERMINATION TO ALLOW THE CONVERSION OF AN EXISTING 1,386 SQUARE FOOT WAREHOUSE INTO AN OFF-SITE KITCHEN FOR A LOCAL RESTAURANT CHAIN, AND THE CONVERSION AND EXPANSION OF AN EXISTING 192 SQUARE FOOT STORAGE BUILDING INTO A 734 SQUARE FOOT TAKEOUT RESTAURANT, TO BE LOCATED IN THE SP-1, 23RD STREET SPECIFIC PLAN, COMMERCIAL MIXED-USE DISTRICT, ALONG WITH A FINDING THAT THE PROJECT IS EXEMPT UNDER CEQA GUIDELINES SECTION 15303 NEW CONSTRUCTION OR CONVERSION OF SMALL STRUCTURES, AT 2229 DOVER AVE AND 1927 23RD STREET, SAN PABLO, APNS: 411-201-014 & 411-201-013
CEQA: This project is categorically exempt under the California Environmental Quality Act Guidelines Section 15303, New Construction or Conversion of Small Structures as it involves the conversion and minor expansion of an existing warehouse building and an accessory building of less than 2,500 square feet to a new commercial use.
Label
Location: 2229 Dover Ave & 1927 23rd Street
APN: 411-201-014 & 411-201-013
Plan Case: PLAN2412-0003
Zoning: SP-1, Commercial Mixed Use
CEQA: Exempt under Section 15303, Class 3
Owner: Eric Tu
Applicant: Xianli Zeng, Senior Designer, Orange Engineering
Staff Contact: Mel Mackson, Assistant Planner
Recommendation
Conduct public hearing; adopt Resolution
Body
REQUESTED ACTION
A request for approval of Major Design Review and a compatible use determination for the conversion of an existing 1,386 square foot (sq. ft.) warehouse into an off-site or “central” kitchen for a local restaurant chain at 2229 Dover Ave, and the conversion and expansion of an existing 192 sq. ft. storage building into a 734 sq. ft. takeout restaurant for the same operator at 1927 23rd Street, APNs 411-201-014 & 411-201-013. The parcel is designated Commercial Mixed Use in the San Pablo General Plan and it is zoned SP-1, 23rd Street Specific Plan, Commercial Mixed Use.
Surrounding Zoning and Land Uses:
The subject parcel is located in the 23rd Street Specific Plan. Surrounding zoning and land uses from the site are as follows:
North: SP1-23rd Street Specific Plan - Commercial Mixed Use (Parking lot)
South: SP1-23rd Street Specific Plan - Commercial Mixed Use (Shop & Save Liquor; Carmelita’s Beauty Salon)
East: SP1-23rd Street Specific Plan - Commercial Mixed Use (Donut Shop; Residential)
West: Commercial Mixed Use (Multifamily Residential)
PUBLIC HEARING NOTICE
Notices regarding this public hearing were mailed to owners of properties within a 300-foot radius of the site on Wednesday, April 9, 2025. In addition, a Public Hearing Notice was published in the West County Times newspaper (West Contra Costa edition of the East Bay Times) on Saturday, April 12, 2025.
SITE LOCATION AND PROJECT DESCRIPTION
The project site is located at the northwest corner of Dover Avenue and 23rd Street. The project site consists of two parcels, with a third additional parcel to the north serving as a parking lot. All three parcels are owned by the applicant, Eric Tu. Existing buildings on the site include a 1,386 sq. ft. vacant warehouse and the adjacent 1,204 sq. ft. Chang Thai restaurant which front Dover Avenue, and a 192 sq. ft. storage room that fronts 23rd Street. The existing Chang Thai restaurant is not part of the scope of the project and will remain unchanged.
The site falls within the boundaries of the 23rd Street Specific Plan, a document designed to guide development along the corridor surrounding the 23rd Street arterial, adopted October 1, 2007. The Plan designates the land use for this site as Commercial Mixed Use.
The proposed project would include converting the existing vacant 1,386 sq. ft. warehouse into a central off-site kitchen that would prepare salsa and meat for the local restaurant chain, “Taqueria La Cocina”, which currently has one location in El Cerrito and one in Pinole. The central kitchen’s proposed floorplan would include a work area, a walk-in freezer, a walk-in cooler, a warehouse area with shelving, and an ADA accessible restroom.
The second request of the proposed project includes the conversion and expansion of the existing 192 sq. ft. storage building fronting on 23rd Street into a 734 sq. ft. take-out restaurant counter for the Taqueria La Cocina restaurant. The take-out restaurant would include a work area and an ADA accessible restroom. Just south of the building along 23rd Street would be a small outdoor dining area with two picnic tables. Customers would pick up take-out orders from a west-facing take-out window and would have the option of dining at one of the picnic tables outside.
Along with the application form, the applicant has submitted a detailed plan set including a site plan, floor plans, and elevations, (see Attachments C and D). Provision of a stormwater control plan and full landscape plan are included as conditions of approval.
BACKGROUND
The project site is composed of two parcels: 2229 Dover Avenue and 1927 23rd Street, APNs 411-201-014 and 411-201-013, respectively. The parcel immediately to the north of the project area, 1935 23rd Street (APN 411-201-012), is also owned by the applicant and is used as a parking lot (with 18 spaces) for the uses on the two southern parcels. The 2229 Dover Avenue parcel currently contains a commercial structure comprised of a Thai restaurant and a vacant warehouse. The 1927 23rd Street parcel contains six parking spaces for the Thai restaurant, as well as a 192 sq. ft. storage building.
The existing warehouse/restaurant building was first constructed in 1949, and expanded in 1968. In 1991 T&N Auto Accessories operated on the property and received a building permit for alterations to the windows and door of the building. In 2006 Baan Thai Restaurant was located on the property and received a permit for tenant improvements. Additional permits on record include new signs and a re-roof for tenants that previously operated on the property. All permits were finaled.
GENERAL PLAN CONFORMANCE
The General Plan designation for the site is Commercial Mixed Use. This designation is intended to provide opportunities for retail, commercial, office, residential, and public uses. The proposed project of a central kitchen and a take-out restaurant are uses that would be harmonious with the designation of the General Plan. The following General Plan Guiding (G) and Implementing (I) policies apply to this request:
Guiding Policies for Economic Development
ED-G-5 Preserve and enhance qualities that make San Pablo an ideal place to do business
ED-G-8 Support local business and foster a positive relationship between the business community and the City government.
Implementing Policies:
ED-I-25 Strive for a balanced mix of local, regional, and national retailers that offer a diversity of product and pricing choices for residents.
ED-I-26 Undertake strategic initiatives to attract new retail and commercial development:
• Promote catalyst projects at key locations to stimulate private investment;
• Encourage quality retail and restaurant uses to locate near existing successes; and
• Build on synergies that could occur between complementary businesses.
ED-I-30 Continue to support efforts to improve and upgrade older businesses along San Pablo Avenue and 23rd Street.
Guiding Policies for Land Use & Physical Design:
LU-G-2 Ensure planned land uses are compatible with existing uses and provide for appropriate transitions or buffers for new uses, as needed.
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.
Implementing Policies:
LU-I-7 Require design review of all new construction and visible exterior alterations of large non-residential buildings.
LU-I-8 Provide incentives for new pedestrian-friendly anchor retail at important road intersections to attract retail clientele and maximize foot traffic.
LU-I-9 Encourage new residential, commercial and related forms of development in a manner which fosters both day and appropriate night time activity; visual presence on the street level; appropriate lighting; and minimally obstructed view areas.
LU-I-47 Use the development standards and design guidelines established by the 23rd Street Specific Area Plan for development review along 23rd Street
The proposed project would be responsive to these policies by developing a new commercial kitchen facility and a new take-out restaurant. These developments would fit well into their surroundings, provide infill and reuse of underutilized commercial spaces, further activate the street corner, and provide employment opportunities. The project would add to the urban vitality of this portion of 23rd Street by adding pedestrian-oriented commercial frontage that is accessible to pedestrians and transit, as well as to motorists. The project would be appropriately landscaped and would help to modernize and improve this prominent intersection along 23rd Street. The proposed project will foster appropriate day time activities, providing an outdoor patio for outdoor dining, more restaurant food options for City residents and a visual presence on the street level. It would provide appropriate lighting, and will not obstruct view areas or access to the existing commercial uses.
23rd STREET SPECIFIC PLAN/ZONING CONFORMANCE
The site is within the 23rd Street Specific Plan area and is part of the Commercial Mixed Use district. This Specific Plan provides a long-term strategy to revitalize and increase the development potential of a major commercial corridor in the City of San Pablo. According to the Plan, the 23rd Street corridor has the potential to become a vibrant community hub for residents, with improved access to parks and public open space, a safe environment for walking and biking, and an active street life with cultural amenities. The strategy utilizes several of the City’s available tools to facilitate the development of a well-organized, clearly identifiable and economi-cally viable mixed-use corridor.
Relevant policies in the 23rd Street Specific Plan that apply to this request include the following:
Goal LU-1: A land use mix that encourages pedestrian activity and a lively mixed use corridor.
Policy LU-1.1: Allow for a mixture of retail shops, office and residential uses that complement one another and contribute to an active pedestrian environment.
Goal LU-2: A land use mix that contributes to an increase in housing op-portunities and jobs and fosters a more viable economy.
Policy LU-2.1: Encourage mixed-use development in the Plan Area that provides residential uses affordable to residents of different incomes.
Goal UD-1: Physical development that is designed to facilitate a safe and active pedestrian environment.
Policy UD-1.1 Encourage development that provides wider sidewalks, outdoor seating or displays, façade variation and other components that contribute to the pedestrian environment on 23rd Street
Goal CIR-2: Adequate parking that does not compromise the creation of a pedestrian-friendly environment on 23rd Street.
Policy CIR-2.1: Encourage development that provides parking areas behind buildings.
Goal ED-2: New jobs and housing opportunities in the Plan Area.
Policy ED-2.1: Encourage mixed-use developments that provide a range of housing opportunities for residents of varying incomes.
The proposed project would be responsive to the Specific Plan policies by providing employment opportunities and increased dining options along the corridor, including an outdoor dining option. The proposal strengthens the presence of pedestrian-scale commercial storefronts along 23rd Street while also providing more than adequate parking for customers.
COMPATIBLE USE DETERMINATION AND DEVELOPMENT STANDARDS COMPLIANCE
The 23rd Street Specific Plan expressly allows restaurant uses on the ground floor in the Commercial Mixed Use district. However, it does not include any type of commercial kitchen on the list of permitted uses, but it does state that “[o]ther similar and compatible uses deemed by the Planning Manager to meet the purpose and intent of the Specific Plan” may be permitted (SP-1 page 6-4). According to the 23rd Street Specific Plan: “The purpose of this [Commercial Mixed Use] land use designation is to provide neighborhood-serving retail use together with residential use that is primarily on upper levels. Office use and stand alone residential uses are also allowed.” Further, the overall purpose of the Specific Plan focuses on “re-establishing 23rd Street’s identity as a compelling place for shoppers, investors and visitors.” The Specific Plan expressly allows specialty food retail (bakeries and gourmet food stores), as well as restaurant uses.
The kitchen is intended to support several local restaurants and the takeout building, both of which will generate employment and enjoyment opportunities on this block. The kitchen use is compatible with the surrounding existing and proposed uses, including the existing restaurant and residential neighborhood, and furthers the purposes of the Specific Plan set forth above. In fact, the kitchen use is nearly identical to a traditional restaurant use or other food retail uses that contain such a kitchen, and would thus not cause any new or additional environmental impacts to the site that have not already been evaluated.
In accordance with San Pablo Municipal Code section 17.16.070(B), the Planning Manager is referring the determination on the compatibility of the central kitchen use to the Planning Commission to accompany the Major Design Review.
For the above reasons, staff recommends that the Planning Commission find that the central kitchen use is compatible with the 23rd Street Specific Plan.
Development standards in the Commercial Mixed Use district are set forth in Chapters 5 and 6 of the 23rd Street Specific Plan. A breakdown of the relevant standards applicable to the expansion of the existing 192 sq. ft. storage building into a 734 sq. ft. takeout restaurant is provided in the table below:
|
DEVELOPMENT STANDARDS FOR SP-1 CMU DISTRICT |
|
Standards |
Specific Plan Requires |
Proposed |
Complies? |
|
Minimum parcel area (sq. ft.) |
N/A |
4,125 sq. ft. |
N/A |
|
Minimum commercial building depth |
30 ft. |
30 ft. |
YES |
|
Maximum building height (feet) |
50 ft. |
10 ft. 5 in. |
YES |
|
Maximum Stories |
4 stories |
1 story |
YES |
|
Floor Area Ratio |
2.5 max |
0.81 |
YES |
|
Front yard setback (feet) |
0 ft. |
0 ft. |
YES |
|
Rear yard setback (feet) |
0 ft. |
22 ft. |
YES |
|
Side yard setbacks (feet) |
0 ft. |
0 ft. |
YES |
Parking Compliance
Off-street parking requirements are contained in Section 8 of Chapter 6 of the 23rd Street Specific Plan. This section states that requirements for renovation, enlargements or use changes apply only to net new floor area and/or the incremental increase in parking demand that accompanies a higher intensity use. In addition, on-street parking may be counted toward the parking requirement.
The project site contains six parking spaces for the existing Chang Thai restaurant, with an additional eighteen spaces on the parcel to the north of 1927 23rd Street. Three parking spaces will be eliminated with the expansion of the existing storage building. This will leave a total of 21 off-street parking spaces.
The Non-Residential Parking Requirements state that one space for every 400 square feet is required for Commercial, Retail, Office and all other Non-Residential Uses. The central kitchen would consist of 1,386 sq. ft. of commercial space, so four parking spaces are required. The take-out restaurant would add 734 sq. ft. of commercial space, which would require two parking spaces. Four spaces are also required for the existing Chang Thai restaurant. This brings the total to 10 required parking spaces for all of the uses on the parcels. With 21 proposed off-street spaces, the project would meet all Specific Plan parking requirements and provide more than sufficient parking.
MAJOR DESIGN REVIEW
The applicant proposes to renovate an existing vacant 1,386 sq. ft. warehouse at 2229 Dover Avenue into a central kitchen for a local restaurant chain, and to expand an existing 192 sq. ft. storage building into a 734 sq. ft. take-out restaurant at 1927 23rd Street. The buildings are located at the northwest corner of Dover Avenue and 23rd Street.
Section 17.20.030. B.2of the San Pablo Zoning Ordinance requires Major Design Review of commercial projects that involve more than 250 square feet of ground area. Section 17.20.030.C states that the Planning Commission shall ensure that the proposed development meets 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 with the San Pablo General Plan, 23rd Street Specific Plan, and Zoning Ordinance are addressed above. Several of the policies within these plans 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 23rd Street Specific Plan area by offering an additional restaurant option with outdoor seating and employment opportunities for both the take-out restaurant and the central kitchen. The project would also serve to intensify an existing underutilized commercial development consistent with the Specific Plan vision, bringing development closer to the street front at a pedestrian scale. The architectural design of the structure, the colors, and proposed materials to be used would be visually harmonious with the surrounding development patterns.
As depicted in the elevations submitted as part of the Design Review application included in Attachment C, the existing single-story warehouse building, which is composed of Concrete Masonry Unit (CMU) walls, would be painted in an eye-catching shade of green to match the branding colors of the Taqueria La Cocina restaurant that the kitchen would serve. The main entry to the central kitchen would be located at the southeast corner of the building facing Dover Avenue, with a staff entrance located at the northwest corner of the building, facing the parking lot. The floor plans submitted by the applicant show a work area, a walk-in freezer, a walk-in cooler, a warehouse area with shelving, and an ADA accessible restroom.
The take-out restaurant exterior walls would be composed of a three-coat stucco system, and would be painted the same shade of green as the central kitchen, also to match Taqueria La Cocina’s branding. A staff entrance would be located at the south-facing side of the building, and the take-out window would be located on the west side of the building, facing the three parking spaces on the 1927 23rd Street parcel. The floor plans submitted by the applicant show a work area and an ADA accessible restroom. Just to the south of the building would be a small dining patio with two picnic tables, which would be buffered from 23rd Street by a landscaped bed with planted shrubs, as well as some existing palm trees.
The 23rd Street Specific Plan does not require any particular architectural style, but does identify a variety of architectural design guidelines that are being applied to the project. Below are the guidelines that are most pertinent to this development:
Building Materials
Variety Guideline 1.1 A variety of durable building materials, with distinctive colors and textures, is encouraged on 23rd Street.
Variety Guideline 1.2 New construction should include bright colors, as well as materials such as ceramic tiles, that reflect existing commercial development.
Lighting
Lighting Guideline 1.1 Adequate lighting should be provided for building signage, storefront display, pedestrian entry access and travel in parking lots
Lighting Guideline 3.1 Lighting should provide illumination for security and safety, while avoiding light intrusion into off-site areas.
Lighting Guideline 3.4 Lighting should be adequate for security, particularly at entrances, but not overly bright
Parking Lots
Location Standard 1.1 Parking lots shall be located behind or next to buildings, whether in parking structures or surface lots.
Landscape Aesthetics
Guideline 2.7 Creative design and the use of native plants and drought tolerant plants are encouraged.
ENVIRONMENTAL DETERMINATION
The proposed project has been determined to be categorically exempt from the provisions of the California Environmental Quality Act (CEQA), in accordance with CEQA Guidelines, pursuant to Section 15303, Class 3, New Construction or Conversion of Small Structures, as it involves the conversion and minor expansion of an existing warehouse building and an accessory building of less than 2,500 square feet to a new commercial use.
CONCLUSION
Staff recommends that the Planning Commission determine the proposed project to be categorically exempt from the provisions of CEQA and approve the Major Design Review and Administrative Use Permit for the conversion of an existing 1,386 sq. ft. warehouse into a central kitchen for a local chain restaurant, and the conversion of an existing 192 sq. ft. storage building into a 734 sq. ft. takeout food kitchen, along with the conditions of approval identified in the attached proposed Resolution (Attachment A).
ATTACHMENTS
A. Resolution PC25-05
B. Site Location
C. Project Application and Description
D. Planning Submittal: Site Plan, Floor Plans, Elevations, Menu
E. Proof of Publication from West County Times