PREPARED BY: SANDRA CASTANEDA DATE OF MEETING: 05/27/25
SUBJECT:
TITLE
RESOLUTION APPROVING MAJOR DESIGN REVIEW TO ALLOW THE CONSTRUCTION OF A NEW 5,158 SQUARE FOOT RETAIL BUILDING WITH FOUR SEPARATE TENANT SPACES AND SURFACE PARKING FOR 17 OFF-STREET PARKING SPACES ON TWO ADJACENT PARCELS LOCATED IN THE SP2- SAN PABLO AVENUE SPECIFIC PLAN, MIXED USE CENTER NORTH DISTRICT, ALONG WITH A FINDING THAT THE PROJECT IS EXEMPT UNDER CEQA GUIDELINES SECTION 15332 AS INFILL DEVELOPMENT, AT 14535-14555 SAN PABLO AVENUE, SAN PABLO, APNS: 413-352-013 AND413-352-012.
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, is adequately served by all required utilities and public services, would not result in any significant effects on traffic, noise or air quality, and would be consistent with general plan and zoning regulations. Furthermore, the project is consistent with the General Plan and zoning designations of Mixed-Use Center North, development of which were evaluated as part of the Environmental Impact Reports for the San Pablo General Plan and San Pablo Avenue Specific Plan, prepared in 2011.
Label
Location: 14535-14555 San Pablo Avenue
APN: 413-352-013/ 413-352-012
Zoning: SP-2, Mixed-Use Center North
CEQA: Exempt under Section 15332
Owner: Tu x Tu Investment LLC
Applicant: Tommy Tu
Agent for Applicant: Tiffany Redding, Architect, Owner/Partner, FOG Studio
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 new 5,158 square foot retail building with surface parking for 17 off-street parking spaces on two adjacent parcels located at 14535-14555 San Pablo Avenue (APNs: 413-35 2-013 and413-352-012). The project includes a single-story retail commercial building, 25 feet and 6 inches in height, with four separate suite spaces that would be available for commercial tenants.
Surrounding Zoning and Land Uses:
The subject parcel is located in the “Mission Plaza” focus area of the San Pablo Avenue Specific Plan and is within the Mixed Use Center North land use designation. Surrounding zoning and land uses from the site are as follows:
North: SP2-San Pablo Avenue Specific Plan - Residential Mixed Use; restaurant
South: SP2-San Pablo Avenue Specific Plan - Mixed Use Center North; commercial Shops, Pizza Hut
East: SP2-San Pablo Avenue Specific Plan- High Density Residential; church
West: SP2-San Pablo Avenue Specific Plan - Mixed Use Center North; general retail
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.
SITE LOCATION AND PROJECT DESCRIPTION
The project site is located in the northern portion of San Pablo at the southwest corner of San Pablo Avenue and Rumrill Boulevard in a commercial corridor area. The new building would be located at the northeast corner of an existing triangular shaped cluster of parcels with a number of existing commercial uses, including a discount store (the 98 Bargain Center), Pizza Hut, a Nail Salon, a Karate Studio and two vacant retail suites.
The site falls within the boundaries of the San Pablo Avenue Specific Plan, a document designed to guide development along the San Pablo Avenue corridor. The Plan designates the land use for this site as Mixed Use Center North, which aims to establish an active destination center with stores, restaurants/cafes or other active uses that promote an active pedestrian environment. The surrounding area can be described as a diverse economic neighborhood with a mix of “mom-and-pop” stores and national chains with a strong food emphasis. It is close to Contra Costa College and is along a main route to San Pablo elementary schools. There is a mix of residential and businesses in the area with heavy traffic as the project site sits across two busy intersections along San Pablo Avenue and Rumrill Boulevard.
The proposed project would consist of a new stand-alone commercial building containing 5,158 square feet of floor space divided into four separate tenant spaces or suites. The building would be one story, reaching 25 feet and 6 inches in height. The project site would also include a surface parking lot for 17 cars, a trash enclosure and service area, perimeter landscaping, and architectural features that mark the prominent corner of San Pablo Avenue and Rumrill Boulevard with strong vertical elements and a public art installation opportunity. A merger of the two subject parcels to create a single development parcel will be required as a condition of approval for the project.
Along with the application form, the applicant has submitted a detailed plan set including site plan, floor plans, renderings, elevations, stormwater control plan, landscape and irrigation plan, and a Trip Generation and VMT (Vehicles Mile Travel) Analysis report (see Attachments D and E)
BACKGROUND
Both subject parcels are owned by Tu x Tu Investments, LLC, a local property owner that also owns the existing 98 Bargain Center discount store adjacent to the site. Both parcels are currently vacant and unimproved. 14535 San Pablo Avenue (APN 413-352-013) was previously developed with a coin-operated car wash pursuant to Use Permit #607, which was approved in 1964. The zoning designation at the time was C-1, Light Industrial. The car wash structure remained on site until 2009, and it has since been demolished. The second parcel that is part of this request, 14555 San Pablo Avenue (APN 413-352-012), does not have any development records.
GENERAL PLAN CONFORMANCE
The General Plan designation for the site is Mixed Use Center North. This designation aims to establish an active destination that caters to a student population and allows high-intensity mixed-use development at or near the 1.6-acre Mission Plaza site, adjacent to Contra Costa College. Stores, restaurants/cafés or other active uses are required on the ground floor to promote an active pedestrian environment. The proposed development of a retail building with space for up to four commercial suites is a use that would be consistent 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-2 Recruit community-serving retail, neighborhood serving commercial, healthcare, and entertainment businesses and activities that meet the needs of residents
ED-G-5 Preserve and enhance qualities that make San Pablo an ideal place to do business
ED-G-10 Support and contribute to a clean, attractive, and safe environment for residents, business owners, employees, and choppers.
Implementing Policies:
ED-I-3 Attract new businesses, focusing on businesses that:
• Possess a high growth potential, such as medical-related businesses, regional and local serving retail. Hotel and conference facilities, entertainment-related businesses, and businesses or schools that provide educational and training to the local workforce;
• Generate net fiscal benefits to the City through increased tax revenues;
• Provide opportunities for skilled training;
• Created higher-paying and/or higher quality jobs for local residents;
• Complement or augment existing goods and services in San Pablo;
• Create minimal negative impact on the environment; and
• Require minimal public investment.
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.
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-25 Identify and promote desirable sites for employment-generating commercial, industrial, and other business wishing to locate in San Pablo.
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-10 Continue to involve the Police Department in the development review process to ensure new buildings are designed with security and safety in mind.
The proposed project would be responsive to these policies by developing a new commercial building with multiple retail tenant spaces that will serve the neighborhood and region and provide employment opportunities. The project would fit well into its surroundings and would provide infill development of two vacant parcels. The project would add to the urban vitality of this portion of San Pablo Avenue by providing for a 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 important intersection. The proposed project will foster appropriate daytime activities and a visual presence on the street level. It would provide appropriate lighting and will not obstruct view areas or access to the existing retail uses.
SAN PABLO AVENUE SPECIFIC PLAN CONFORMANCE
The site falls within the San Pablo Avenue Specific Plan area, which was adopted in September of 2011 to provide a vision, goals, and implementation measures for creating a vibrant, accessible, and sustainable mixed-use corridor. The plan aims to revitalize areas along San Pablo Avenue with higher-intensity development to promote stronger economic activity, street life, and transit ridership, among other goals. On a broader scale, Bay Area Metro (Association of Bay Area Governments (ABAG) and the Metropolitan Transportation Commission (MTC) is also focusing on San Pablo Avenue as one of three regional corridors to implement their Plan Bay Area Sustainable Communities Strategy (see <https://www.planbayarea.org/> ). The corridor is designated as a Priority Development Area.
The subject site is within an opportunity site and focus area identified as the “Mission Plaza” area in the San Pablo Avenue Specific Plan. Opportunity sites are defined in the Plan as vacant or underutilized parcels that have the potential to undergo a land use or intensity change over a near- to long-term horizon. The Focus Areas of the Specific Plan have the greatest opportunities for development and illustrate what buildout opportunities might look like, in terms of their scale and character. The land use (and zoning) designation for the site is shown as Mixed Use Center North. As identified in the San Pablo Avenue Specific Plan, this designation allows for a range of commercial uses with an emphasis on region-serving uses. The Specific Plan describes the Mission Plaza opportunity site as follows:
This 1.56-acre triangular-shaped block, located at the junction of San Pablo Avenue, Broadway Avenue, and Rumrill Boulevard, is highly visible and accessible, and is located just one block from Contra Costa College and the new College Center Shops development. About half of the block is owned by the San Pablo Redevelopment Agency.
The following guiding (G) and implementing (I) policies of the San Pablo Avenue Specific Plan are relevant to the proposed project:
Guiding Policy for Land Use:
2-G-1 Promote development of San Pablo Avenue as an attractive boulevard, lined with a diverse array of uses that promote vibrant street life, and maintain eyes on the street at all times.
2-G-3 Promote pedestrian- and transit-friendly development that enhances the public realm.
Guiding Policy for Urban Design and Building Development Standards:
4-G-4 Develop the Mission Plaza sites with ground floor commercial uses designed to capitalize on the student population, and residential uses above.
4-4-I-11 Ensure that the San Pablo Avenue frontage of the block is lined with commercial space
4-I-12 Capitalize on the block’s narrow corners to maximize visibility of commercial spaces.
4-I-46 Maintain a consistent street frontage along the length of San Pablo Avenue, with development brought to the property line and parking located at the side or rear of parcels.
4-I-50 For buildings with street frontage on San Pablo Avenue, ensure that the primary entrance is on San Pablo Avenue, visible from the right-of-way, and at-grade or accessible by ramps. Secondary entrances may be located on side streets or may be internal to master-planned developments on large parcels.
The proposed project would be consistent with the guiding goals and implementing policies of the San Pablo Avenue Specific Plan. The development would be well integrated into the established pedestrian-oriented context by placing the retail building on the street edge of San Pablo Avenue, thereby promoting more vibrant street life and connectivity between commercial spaces and the public realm. The main entrance to the proposed building will face San Pablo Avenue and will be in keeping with the Development Standards included within the San Pablo Avenue Specific Plan. The project would be of a pedestrian-friendly scale and would be in closer proximity to the street fronts of both San Pablo Avenue and Rumrill Boulevard than typically found elsewhere along the corridors.
ZONING CODE CONFORMANCE
The property is in the SP-2 Mixed Use Center North (San Pablo Avenue Specific Plan) and the General Plan land use designation is Mixed Use Center. The development vision of the Mixed Use Center North District is described as follows:
Mixed Use Center North. The Mixed Use Center North designation aims to establish an active destination that caters to a student population and allows high-intensity mixed-use development at or near the 1.6-acre Mission Plaza site, adjacent to Contra Costa College. Stores, restaurants/cafés or other active uses are required on the ground floor to promote an active pedestrian environment. (See Chapter 4: Urban Design and Building Development Standards for a detailed description of the desired active pedestrian environment.) Typical heights are expected to be four stories, with portions of buildings reaching 60 feet. The maximum FAR (for residential and non-residential uses combined) is 2.5; no separate residential maximum density is specified, to enable maximum use of FAR by smaller housing units geared to students. The minimum required commercial FAR is 0.3.
Development standards in the Mixed Use Center area are set forth in Table 4-1 of the San Pablo Avenue Specific Plan. A breakdown of the relevant standards and project compliance is provided in the table below:
|
DEVELOPMENT STANDARDS FOR SP-2 MIXED USE CENTER DISTRICT |
|
Standards |
SP/Zoning Code Requires |
Proposed |
Complies? |
|
Block Length |
400 feet |
215.58 feet both parcels combined |
Yes |
|
Max Lot Coverage |
90% |
40.8% |
Yes |
|
Front Setback |
0-5 feet min |
0 feet |
Yes |
|
Side Yard Setback |
0 feet, 10 min feet when abutting residential |
70 feet to the south; 0 feet to the north |
Yes |
|
Rear Setback |
0 feet, 10 min feet when abutting residential |
3 feet, 6 inches +/- |
Yes |
|
Maximum building height (feet) |
60 feet |
25 feet 6inches |
Yes |
|
Maximum Stories |
4; 6 in selected locations, set back at least 100 feet from any property line |
One |
Yes |
As identified above, the proposed project would be in conformance with the applicable development standards for the SP2 - Mixed Use Center North district as an infill project. The proposal is a new stand-alone commercial building on two vacant parcels in a developed area with adjacent commercial uses. There would be no new block or lot created with this infill development proposal, but the project parcels within the existing block comply with the development regulations regarding block length and lot coverage.
Parking Compliance:
The proposed new building would be 5,158 square feet in area and will include access to 17 parking spaces on a surface parking lot on the south side of the building (see Site Plan). Table 3-3 of the San Pablo Avenue Specific Plan provides off-street parking standards that are relevant to the site. According to this table, the proposed use would be considered “Retail Sales - General” and would require one space for every 400 to 600 square feet, with reference to the Municipal Code (Zoning Ordinance) for further details. The San Pablo Avenue Specific Plan’s parking requirements are applicable and would require 14 parking spaces. The project’s proposed 17 parking spaces would thus exceed the minimum amount required under “Retail Sales- General”.
In addition to the designated parking area, the project would provide bicycle parking and would be adjacent to or in close proximity to transit stops. Under Section 17.54.050, proximity to transit can reduce parking requirements by 10 percent and provision of bicycle parking can reduce parking requirements by one space. However, more than enough parking will be provided by the proposed project so that these parking adjustments are not necessary for this project.
MAJOR DESIGN REVIEW
The applicant proposes to construct a new 5,158 square-foot retail building at 14535-14555 San Pablo Avenue. The new one-story building would include four retail suite spaces and will be located with its façade facing San Pablo Avenue and surface parking on the south side of the project side, along the side of the building.
San Pablo Zoning Code section 17.20.030(B) requires Major Design Review by the Planning Commission for commercial development including any additions over 15 feet in height or involving more than 250 square feet of ground area, except that commercial development within a Specific Plan area may be subject to minor design review only. Although the proposed development is located within the San Pablo Avenue Specific Plan area, it has been referred to the Planning Commission for Major Design Review by the Zoning Administrator due to the significance and visibility of the proposed commercial building. 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, San Pablo Avenue 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 San Pablo Avenue Specific Plan by offering additional commercial retail spaces for a variety of potential tenants. The project would also serve to intensify an existing 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 D, the proposed building would be single story and contemporary in style with distinctive features and building articulation using large display areas and a mix of materials, including painted cement plaster, porcelain wall tile, aluminum awning, and metal wall panels. The proposed building would mark the prominent corner of San Pablo Avenue and Rumrill Boulevard with a strong vertical element and would offer an Art in Public Spaces opportunity in the Corner Tower element. The project design also maximizes the usable building area while meeting the parking requirement and de-emphasizing and shading the surface parking lot.
The proposed colors for the exterior of the building include grays, creams and oxidized metal (Corten) finishes which aim to reference other commercial facades along San Pablo Avenue with a more modern-industrial aesthetic. The main entries for all four suites would be on the south and east elevations fronting San Pablo Avenue. The building would be surrounded by perimeter landscaping and landscaping accents around the parking lot. The floor plan for the project shows up to four suite spaces with a potential to combine Suite A and B for a larger retail space, storage space in each suite, and a potential shared restroom for suites C and D. The overall site plan also includes a trash enclosure, a service and utility yard in the rear of the building, space for deliveries, and stormwater treatment areas.
The San Pablo Avenue 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 is a discussion of the guidelines that are most pertinent to this development:
Building Height, Massing, and Articulation- At 25 feet and 6 inches in height, the proposed building complies with the maximum building height of 60 feet. The proposed building is single story and up to six stories are allowed. The proposed pad building offers prominent front entrances and a prominent corner tower element facing San Pablo Avenue and Rumrill Boulevard as well as articulation in the building walls facing public streets.
Building Orientation, Entries, and Façades- The building orientation locates the building entrances closest to the corner of San Pablo Avenue and Rumrill Boulevard. The proposed building utilizes a variety of exterior materials that enhance the building façade and physical character of the building and its connectivity to the street and pedestrian access.
Parking- The proposed 5,158 square foot development will incorporate 17 off-street parking spaces, which would more than meet the requirement of the San Pablo Avenue Specific Plan for a minimum of 14 spaces. This parking would be located on the south side of the project site, to the side of the proposed building. In addition, the applicant submitted a Trip Generation and VMT analysis report that determined that the project would not have a significant impact on traffic, and it has been screened from further VMT analysis.
Landscaping- A landscaping plan was provided as part of the development application. The landscaping plan provides additional trees and bushes along the perimeter of the building and the parking area, along with climbing vines on the building wall facing the parking lot.
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 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, is adequately served by all required utilities and public services, would not result in any significant effects on traffic, noise or air quality, and would be consistent with general plan and zoning regulations. Pursuant to CEQA Guidelines Section 15332, staff recommends that the Planning Commission find as follows: (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 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 (see attached Trip Generation VMT Analysis); and (e) the site can be adequately served by all required utilities and public services.
Furthermore, the project is consistent with the General Plan and zoning designations of the Mixed Use Center North district, development of which were evaluated as part of the Environmental Impact Reports for the San Pablo General Plan and San Pablo Avenue Specific Plan, prepared in 2011. Pursuant to CEQA Guidelines Section 15168, none of the CEQA Guidelines Section 15162 factors requiring additional environmental documentation for the project are present.
Finally, the applicant has submitted a Trip Generation and VMT Analysis report for the Development prepared by Abrams Associates, which determined that the project is consistent with the Regional Transportation Plan (RTP) and Sustainable Communities Strategy (SCS). In addition, the analysis determined that, in accordance with CCTA’s (Contra Costa Transportation Authority) VMT model, the project is identified as a local serving retail that is less than 50,000 square feet and therefore qualifies for the VTM screening criteria. According to the VMT screening criteria, small local serving retail uses such as this proposed project, can be presumed to have a less-than significant impact, absent substantial evidence to the contrary.
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 for a new 5,158 square foot retail building with surface parking for 17 off-street parking spaces on two adjacent parcels, along with the conditions of approval identified in the attached proposed Resolution (Attachment A).
ATTACHMENTS
A. Resolution PC25-09
B. Site Location
C. Project Application
D. Planning Submittal: Site Plan, Details, Floor Plans, Elevations, Landscape Plan
E. Trip Generation and VMT Analysis
F. Proof of Publication from West County Times