PREPARED BY: GRIFFEN DEMPSEY DATE OF MEETING: 05/27/2025
SUBJECT:
TITLE
CONSIDERATION OF MAJOR DESIGN REVIEW AND A CONDITIONAL USE PERMIT TO CONSTRUCT A NEW 28,500 SQUARE FOOT, 40-FOOT-HIGH GYMNASIUM AND MUSIC CENTER BUILDING EXCEEDING MAXIMUM HEIGHT AND GRANTING OFF-STREET PARKING REDUCTIONS AT AN EXISTING PRIVATE SCHOOL IN THE INSTITUTIONAL (I) DISTRICT AT 2851 SALESIAN AVENUE (APN: 417-161-001).
CEQA: This project is categorically exempt under the California Environmental Quality Act Guidelines Section 15314, Minor Additions to Schools, Class 14. This Class applies to minor additions to existing schools within existing school grounds where the addition does not increase the original student capacity by more than 25% or ten classrooms, whichever is less.
Label
Location: 2851 Salesian Ave
APN: 417-161-001
PLAN No: PLAN2504-0011
Zoning: Institutional
CEQA: Exempt under Section 15314. Minor Additions to Schools.
Owner: Salesian College Preparatory
Applicant: Michael Hannah, mihmic Architecture Inc.
Staff Contact: Griffen Dempsey, Assistant Planner
Recommendation
Conduct public hearing; adopt Resolution
BODY
REQUESTED ACTION
A request for approval of a Major Design Review and a Conditional Use Permit to allow for the expansion of an existing Private School use to construct a new 28,500 square foot, 40-foot-high gymnasium and music center building on the site of an existing private school basketball court and parking area located at 2851 Salesian Avenue (APN: 417-161-001). The request also includes off-street parking reductions to accommodate the new gymnasium/music center, and an increase in the maximum roof height of the structure above 27 feet in the Institutional zone. The parcel is designated Public/Institutional in the San Pablo General Plan and is zoned I, Institutional.
Surrounding Zoning and Land Uses:
The project site is currently occupied by the basketball courts and a portion of a parking area for Salesian College Preparatory, a private Catholic high school that is located on four parcels straddling the boundary of San Pablo and Richmond, just one of which is located in San Pablo. The existing school buildings are fully located in Richmond, while the sports fields and much of the parking lot are located within San Pablo. Surrounding Zoning and Land Uses are as follows:
North: R-2, Two-Family Residential; townhome complex
South: City of Richmond RL2, Single Family Low Density Residential; single-family homes
East: SP2- San Pablo Avenue Specific Plan, Mixed Use Center South and Institutional; San Pablo City Hall, Wildcat Creek Trail, and medical buildings
West: City of Richmond PCI, Public, Cultural, and Institutional and RL2, Single Family Low Density Residential; Salesian College Preparatory school buildings and single-family homes
ENVIRONMENTAL DETERMINATION
CEQA: This project is categorically exempt under California Environmental Quality Act Guidelines Section 15314, Minor Additions to Schools, Class 14. This Class applies to minor additions to existing schools within school grounds where the addition does not increase the original student capacity by more than 25% or ten classrooms, whichever is less.
PUBLIC HEARING NOTICE
Notices regarding this public hearing were mailed to owners of properties within a 300-foot radius of the site on May 14, 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, May 17, 2025.
BACKGROUND
Salesian College Preparatory, is a private Catholic high school that is primarily located on a separate parcel in Richmond. The San Pablo portion of the 21-acre Salesian campus is 10.86 acres in area and currently contains a football field, running track, tennis courts, basketball courts, and portions of the baseball field and parking lots for the school. Salesian College Preparatory was founded in 1960, but the history of the site predates the school. The school buildings, located in Richmond, were constructed between 1939 and 1954 as a seminary for men wishing to join the Salesian order, a religious congregation in the Catholic Church. The San Pablo parcel has been part of the Salesian site since 1927, when the land was first purchased by the Salesian order, but remained largely undeveloped until 1970, when the football field was constructed. The running track was added to the property in 2008.
The existing gymnasium and music facilities for the school are undersized and outdated. The current gym was built in 1939 and does not meet modern size standards for basketball courts and does not have sufficient audience capacity for playoff games and graduations. The school’s band currently uses a portable trailer for its classroom and practice space. For these reasons, the applicant is pursuing the construction of a larger and more modern facility that can comfortably meet the needs of the school for sports games, large events, the band program, and more.
SITE LOCATION AND PROJECT DESCRIPTION
The subject parcel is located at 2851 Salesian Avenue and contains the existing sports facilities and parking area for Salesian College Preparatory school. The school contains a second large parcel and two smaller parcels that are located in the City of Richmond and are not part of the proposed project. The proposed project site would cover about one-acre and would be in the central portion of the 10.86-acre San Pablo parcel on an area currently occupied by the school’s basketball courts and a portion of its parking lot.
The proposed project would consist of a new 28,500-square foot gymnasium and music center. The single-story, 40-foot-tall structure would include a 1,382-seat auditorium/gymnasium and a number of additional and accessory rooms, including a weight room, band room, dance studio, locker rooms, offices and conference rooms, team rooms, concessions, restrooms, and storage areas. The project does not propose to alter existing site landscaping; a small amount of new landscaped area will be provided around the new building. The site plan included in Attachment B includes a parking and circulation plan showing how the existing parking area would be reconfigured to accommodate the new structure. The proposed gymnasium would not front any public street and would not be easily visible from the public right-of-way, as it is located deep within a large parcel surrounded by trees and landscaping.
According to the Applicant, the project does not propose to increase the number of staff or students at the school. The new gymnasium and music center would provide improved facilities for existing school functions. The applicant has submitted an Operations Plan detailing the operating hours and the types of uses that will occur in the new building. The proposed operations are as follows:
Typical school operations:
Monday - Friday 8:30 AM - 3:00 PM
Weight room:
Monday - Friday 7:00 AM - 10:00 PM
Athletic events:
Weekday evenings and Saturday daytime (exact times vary)
Special events:
10-20 times per year, exact days and times vary
According to the Applicant, the project would provide enhanced facilities for pre-existing activities and operations, rather than introducing significant new programs or events. The project does not propose significant increases in types or hours of operations over what already exists on the site, except that the new gymnasium and auditorium would allow for Salesian to host certain sports playoff games and hold larger indoor graduations. The exact frequency and number of attendees for such events may vary.
GENERAL PLAN CONFORMANCE
The site is designated on the General Plan as Public/Institutional. The proposed use is consistent with the following policies:
Guiding Policies
Land Use
LU-G-9 Provide for the development of civic and institutional land uses to meet the educational, medical, social, economic, cultural, and religious needs of the community.
Parks, Schools, Community Facilities, & Utilities
PSCU-G-2 Facilitate the provision of a broad range of community-serving facilities to meet local needs, including, but not limited to, schools, community centers, and libraries.
Implementing Policies
Land Use
LU-I-7 Require design review of all new construction and visible exterior alterations of large non-residential buildings.
Parks, Schools, Community Facilities, & Utilities
PSCU-I-22 Prioritize the development of new, upgraded, or revitalized community facilities and infrastructure in neighborhoods that are currently underserved or where they can be put to maximum use.
PSCU-I-18 Promote sustainable practices in the design, construction, and renovation of both public and private community-serving facilities.
ZONING CONFORMANCE
The existing use of the property at 2851 Salesian Avenue as part of a private school dates back to 1960, with use as a seminary prior to the incorporation of the City of San Pablo. The property is currently zoned as I - Institutional. The Private School use is allowed in this category subject to a conditional use permit. The existing use does not have a conditional use permit on file as its establishment predates the City’s Zoning Ordinance requirement, but the Zoning Administrator has determined that a conditional use permit is required for the proposed project due to the building’s height above 27 feet and the proposed reduction in parking requirements. The conditional use permit proposed for the project would be issued only for the gymnasium building and use and not for the remainder of the campus and would not apply to other parcels.
Development standards in the Institutional zone are set forth in Section 17.36.040 of the Zoning Code. A breakdown of the relevant standards and the project’s compliance is provided in the table below:
|
DEVELOPMENT STANDARDS FOR I - INSTITUTIONAL ZONE |
|
Standards |
Zoning Code Requires |
Proposed |
Complies? |
|
Minimum parcel area (sf) |
None |
473,062 sq. ft. |
Yes |
|
Maximum building height (feet) |
27 ft. |
40 ft. |
No; CUP required |
|
Front yard setback (feet) |
0 ft; when in abutting residential district, 20ft |
270 ft. |
Yes |
|
Rear yard setback (feet) |
0 ft; 10 ft when abutting a residential use or district |
275 ft. |
Yes |
|
Side yard setbacks (feet) |
0 ft; 10 ft when abutting a residential use or district |
75 ft. |
Yes |
|
Parking spaces |
502 spaces |
153 spaces |
No; CUP required |
According to Zoning Ordinance Section 17.54.030 and Nonresidential off-street parking requirements Table 17.54-A, the Schools, Private use requires 1 space per staff, plus 1 per 7 students for high schools, plus 1 per 4 fixed seats in auditorium or gymnasium or 1 per 6 linear feet of bench. According to Zoning Ordinance Section 17.08.050, Nonconforming Parking, where a nonconforming use is expanded, changed or replaced, the new structure or use shall comply with the current parking requirements. Thus, the project must only account for the increase in auditorium bench seating when calculating the updated parking requirement.
The project proposes a net increase in auditorium bench seating of 1,860 lineal feet, which requires 310 new parking spaces according to the parking requirements. Salesian currently has 192 parking spaces on the school campus, split across both the Richmond and San Pablo parcels. With the increase in auditorium seats proposed, the total parking requirement would be 502 spaces. The project proposes to reduce the number of existing spaces by 39 net spaces (20 spaces will be added and 59 spaces will be removed), with an end result of 153 parking spaces, including 6 accessible spaces. This is 349 spaces fewer than would be required, meaning the project must pursue a parking reduction.
Parking Reductions
The total number of spaces required at project buildout is 502 spaces. The project proposes 153 spaces.
Zoning Ordinance Section 17.54.050 Parking waivers and reductions states that the Zoning Administrator may waive or reduce certain parking requirements. As part of this submittal, the applicant is requesting three (3) parking reductions:
1- 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. This waiver would allow a one (1) space reduction for this proposal
2- If a bicycle rack is provided, one (1) parking space may be waived.
3- Additional parking reductions. The city may consider additional reductions to parking standards subject to the issuance of a use permit, as follows:
a. The application shall be accompanied by a parking study prepared by a qualified parking or transportation expert.
b. The applicant can include an agreement for shared off-site parking.
The first two of the requested parking reductions would allow for a reduction of total required spaces from 502 to 451 spaces. For the third requested parking reduction, the applicant has provided a Traffic Study prepared by Abrams Associates Traffic Engineering, Inc. The study demonstrates that the project would not present any increase in average weekday parking demand and traffic counts, as there would be no changes in student enrollment or staffing levels as a result of the project. According to the Study, the typical demand for the project would be met by the 153 spaces provided, as most daily users of the gymnasium and music center would be staff and students who would already be on-site and using the existing parking. Thus, typical use of the project would not require any additional parking spaces Heightened demand would only occur occasionally during special events, during which special parking procedures would take place. As a condition of approval, the Applicant has been required to prepare a special event parking management plan.
The proposed parking layout includes a total of 153 parking spaces, with one of six ADA accessible. Based on the parking study provided by the applicant and Abrams Associates Traffic Engineering and by Salesian, the number of spaces provided would be sufficient to meet the demand generated by the new gymnasium and music center use. Therefore, City staff recommend granting of the requested parking reductions.
MAJOR DESIGN REVIEW
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 with the San Pablo General Plan and Zoning Ordinance are addressed above, and the parcel is not subject to any community design plans or specific plans. 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 proposes a single-story structure with two primary sections. One section contains the gymnasium and auditorium, with a gabled roof peaking at 40 feet in height. The second section contains numerous additional rooms, including locker rooms, the band room, weight room, dance room, offices, and more, and has a gabled roof that measures 31 feet at peak. The walls are clad in vertical insulated metal paneling painted in taupe to match the existing campus buildings. The eastern edges of each gable have a stepped parapet design. Low triple-hung windows in groups of four wrap the lower portion of the building, while the gymnasium/auditorium portion is windowless. The front entrance is inset with an outward projecting form and located in the lower wing towards the middle of the structure. The gables are decorated with a cross and the coat of arms of Salesian College Preparatory.
The strong and simple form of the structure, window design and colors to match the existing historic campus structures, rooftop parapets, and proposed materials to be used would be visually harmonious with the surrounding development patterns and would not materially adversely impact the City, its neighborhoods, or its residents.
Section 17.20.030B.6 of the San Pablo Municipal Code states that Major Design Review shall be required for all development in a public and semipublic zoning district. There are no design guidelines for these zoning districts; therefore, only the general design review findings must be met.
As shown in the building elevations, renderings, and sections, the proposed project brings a simple form that references the historic styles of the main Salesian school buildings, which are constructed with Art Deco and Mission Revival elements. The gymnasium is a single-story structure with a gabled roof, with the music center and accessory rooms contained in a wing that is stepped down from the auditorium section. Ground-level windows overlook the football field and adjacent parking areas from a number of rooms within the eastern wing, including the weight room, band room, dance studio, and training room. The unique triple-hung windows, grouped in four, match the design of the main school building. Stepped gables on each of the eastern rooflines with a simple cornice add definition to the roofline and further tie in the design elements of the existing structures.
The structure will be clad in insulated wall panels painted with a smooth finish to match the taupe color of the existing Salesian school building and gymnasium. The matching color, similar window design, and referential parapets create a sense of architectural cohesion between the new structure and the historic structures on site, helping to create a campus-like atmosphere. The orientation of the structure further enforces this feel, as it encloses the space between the existing main school structure and cafeteria building and creates a flow of students and staff between the structures during typical school operations.
The building is sufficiently set back as to provide adequate sunlight and privacy to neighboring properties, as it is situated deep within the large project site, several hundred feet from the closest residential uses. The proposed site plan allows for adequate vehicle circulation within the site.
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. 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.
CONDITIONAL USE PERMIT
San Pablo Zoning Code Section 17.36.030 requires a Conditional Use Permit for Private School uses in the Institutional zone. The existing Private School use on the site predates the City’s Zoning Regulations and does not have a use permit and may therefore be considered a legal nonconforming. However, a new Conditional Use Permit is required for the proposed gymnasium use. The CUP does not apply to any other portion of the campus, or any other parcels.
Additionally, per Zoning Code Section 17.36.040, a conditional use permit is also required to allow for a height over 27 feet in the institutional zone. The applicant is also requesting parking reductions that are subject to a conditional use permit pursuant to Section 17.54.050.I. For the foregoing three reasons (the new gymnasium use, height limit exceedance, and parking reductions) and pursuant to Zoning Code Sections 17.36.030, 17.36.040, and 17.54.050, a conditional use permit is required.
Zoning Ordinance Section 17.20.040 requires the Planning Commission to make a finding that the establishment, maintenance, or operation of the use applied for will not, under the circumstances of the particular case, be detrimental to the health, safety, peace, morals, comfort, and general welfare of persons residing or working in the neighborhood of such proposed use or be detrimental or injurious to property and improvements in the neighborhood or to the general welfare of the City.
Findings to support the granting of a Conditional Use Permit in this case include the following:
A. The establishment, maintenance or operation of the gymnasium use will not, under the circumstances of the particular case, be detrimental to the health, safety, peace, morals, comfort and general welfare of persons residing or working the neighborhood of such proposed use or be detrimental or injurious to property and improvements in the neighborhood or the general welfare of the city.
B. The gymnasium use would be a continuation of a use that has existed on the site since 1960 without any significant land use conflicts, and the proposed project would enhance this existing use.
C. The proposed project would enhance the existing site by providing modern athletic and arts facilities for the existing school, improving the student experience and raising the profile of the institution.
D. The proposed gymnasium use would be responsive to General Plan policies calling for the development of institutional land uses to meet the educational and recreational needs of the community.
E. The proposed gymnasium use would be compliant with Zoning Ordinance development regulations pertaining to such uses with approval of the parking reduction and height increase.
F. 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 15314, Minor Additions to Schools.
G. Public notice of hearing has been given by mail to the applicant, local affected agencies and to all property owners within 300 feet of the subject property and has been published in the West County Times (West Contra Costa edition of the East Bay Times) in accordance with the requirements of Government Code Section 65905.
ENVIRONMENTAL DOCUMENTATION
City staff analysis shows 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 15314, Minor Additions to Schools, as it involves a new school building constructed within the existing school grounds that will not increase the number of classrooms by more than 10 or the total student capacity of the school by more than 25%. The proposed project would provide enhanced sports and music/dance facilities but would not be introducing new classrooms or expanding the student capacity.
CONCLUSION
Staff recommends approval of the project, including the Major Design Review and the Conditional Use Permit for the proposed Gymnasium/Music Center use, the height increase, and the parking requirement reductions, subject to the conditions of approval identified in the attached proposed Resolution (Attachment A). Any changes to the approvals must first be submitted to the City of San Pablo for review.
ATTACHMENTS
A. Resolution PC25-08
B. Site Plan
C. Plan set: Renderings, Elevations, Site Plan, Floor Plan
D. Parking & Traffic Study
E. Letter of Explanation & Operations Plan
F. Application & Property Owner Authorization
G. Proof of Publication from West County Times