DATE: OCTOBER 22, 2024
DEPARTMENT: COMMUNITY DEVELOPMENT DEPARTMENT
FROM: LISA BRINTON, COMMUNITY DEVELOPMENT DIRECTOR
THROUGH: COURTNEY GROSSMAN, PLANNING MANAGER
BY: BOBBY LATINO, ASSOCIATE PLANNER
TITLE: SPECIFIC PLAN AMENDMENT 2023-002 (SPA 2023-002): REQUEST TO AMEND THE GATEWAY CENTER SPECIFIC PLAN TO ALLOW VEHICLE WASHING SUBJECT TO A CONDITIONAL USE PERMIT AND OTHER RELATED AMENDMENTS; CONDITIONAL USE PERMIT 2023-022 (CUP 2023-022): REQUEST TO CONSTRUCT AND OPERATE A 3,588 SQUARE FOOT VEHICLE WASHING BUILDING WITH OUTDOOR VACUUMS LOCATED AT 115 EAST BORONDA ROAD IN THE COMMERCIAL RETAIL (CR) ZONING DISTRICT AND GATEWAY CENTER SPECIFIC PLAN OVERLAY DISTRICT (SP-8) RECOMMENDED MOTION:
A motion to approve a Resolution affirming the findings and:
Finding Specific Plan Amendment 2023-002 categorically exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15305 (Minor Alterations in Land Use Limitations) that was already analyzed through the GCSP Mitigated Negative Declaration; Approving Specific Plan Amendment 2023-002 to amend the Gateway Center Specific Plan (GCSP) as follows: allow Vehicle Washing subject to a Conditional Use Permit (CUP), authorize a site specific 75% (9-space) parking reduction, change building orientation and modify access driveways to accommodate Vehicle Washing building traffic circulation on-site; Finding Conditional Use Permit 2023-022 categorically exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15332 (In-fill Development Projects); and Approving Conditional Use Permit 2023-022 to construct and operate a 3,588 square foot Vehicle Washing building with outdoor vacuums.
EXECUTIVE SUMMARY:
Vance Shannon (Applicant), on behalf of Quick Quack Car Wash, is proposing to construct and operate a 3,588 square foot Vehicle Washing building with outdoor vacuums located at 115 E. Boronda Road in the Gateway Shopping Center. The site is in the Commercial Retail Zoning District and falls under Specific Plan Overlay District 8 - Gateway Center Specific Plan Overlay. However, the Gateway Center Specific Plan (Specific Plan), adopted in October 2011, restricts Vehicle Washing as an accessory use to a Convenience Store use subject to a Conditional Use Permit (CUP). Therefore, the Applicant is requesting an amendment to the Specific Plan to allow Vehicle Washing as a primary use subject to a CUP. Additional amendments requested include authorizing a site specific 75% (9-space) parking reduction, allowing a shift in building orientation away from the street, and modifying access driveways to accommodate Vehicle Washing traffic circulation on-site. Lastly, an application for a CUP to construct and operate the proposed 3,588 square foot Vehicle Washing building with outdoor vacuums is requested. The CUP cannot be considered without approval of the Specific Plan Amendment.
BACKGROUND:
The GCSP (SPEC 2010-001) was adopted on October 11, 2011, by the Salinas City Council (Resolution No. 20112). The Specific Plan provides a bridge between the Salinas General Plan and applications for individual development permits within the Specific Plan Area, applying greater specificity to the policies and concepts for retail development in the Salinas General Plan. The Specific Plan provides a complete description for development of the Specific Plan Area, including 1) a description of the proposed retail and open space areas, 2) design policies and standards, 3) infrastructure needs, and 4) implementation and administrative processes. The Specific Plan also identifies project objectives to guide development. Key Project Objectives are listed below:
Provide a shopping center in proximity to other regional retail centers expanding and diversifying the retail and services available at this central location, and to its proximity to the other retail centers, generally reducing overall vehicle miles traveled.
Provide for expanded retail growth and increased local retail expenditures that will generate additional sales tax revenues for the city.
Promote the type of commercial development that creates additional employment opportunities within the local community.
Provide a shopping center that incorporates sustainable development and energy efficient principles to the extent reasonably practicable.
Incorporate design elements related to lighting, screen walls, landscape buffers, access, and circulation, etc. that mitigate impacts on existing and future surrounding uses.
Provide a commercial area that encourages pedestrian activity and maximizes visibility and natural surveillance to the extent feasible through appropriate building orientation, design, scale, and landscaping, and connections to bus stops, the Citywide system of bicycle lanes, and planned connections to the adjacent, future development of the West Area Specific Plan project area. These characteristics will make the project consistent with principles of Crime Prevention through Environmental Design and New Urbanism, as described in the General Plan and the New Urbanism District Regulations of the Zoning Code.
Provide a site plan that efficiently utilizes the land area creating a compact development that minimizes the overall footprint of the project.
A 152,328 square foot anchor tenant (Lowe’s) building, parking lot, detention basin, and other on and off-site improvements were constructed in 2017-2018 through an administrative Site Plan Review in conformance with the Specific Plan. The Specific Plan recognized the possible future need to respond to changing conditions and expectations during its implementation. To address this possibility, provide flexibility, and facilitate revisions, this Specific Plan provides the framework alterations, minor amendments, and major amendments of the Gateway Center Specific Plan. A Specific Plan Amendment (SPA 2019-001) was approved by City Council on April 16, 2019, (Resolution No. 21590). The first amendment authorized an alternative building and sign design and a change in pedestrian lighting for the construction of a 2,995 square foot restaurant pad building with drive-through (Foster’s Freeze) and a 505 square foot speculative retail pad building.
The subject property is designated Retail by the Salinas General Plan and is in the Commercial Retail base Zoning District and SP-8 overlay Zoning District. The Specific Plan contains development regulations and design standards that address many of the development requirements for the Specific Plan Area. As to those matters that are not addressed in this Specific Plan, Zoning Code standards and requirements for Commercial Retail (CR) apply to the retail portions of the Plan Area. The following provides an overview of the land uses and zoning districts adjacent to the project site:
North: Undeveloped / NE (Neighborhood Edge – West Area specific Plan Overlay) South: Harden Ranch Shopping Center and residential uses / CR and R-H-1.8 and R-M-3.6– SP-1 (Commercial Retail, Residential High Density, Residential Medium Density – Harden Ranch Specific Plan Overlay) East: Undeveloped / NE (Neighborhood Edge – West Area specific Plan Overlay) West: Mobile home park and single-family detached dwellings / R-M-2.9 and R-L-5.5 (Residential Medium and Low Density) Planning Commission Action and Recommendation
As reflected in the attached Planning Commission Resolution 2024-009 and Minutes, the Planning Commission recommended to City Council approval of SPA 2023-002 and CUP 2023-022 on September 18, 2024.
Project Description
The project plans show a 3,588 square foot, single story, Vehicle Washing building, 17 outdoor vacuum stalls, 2 parking spaces and 1 ADA accessible parking space, a trash enclosure, and landscaping located on a 55,483 square foot lot at 115 East Boronda Road. The proposed wash building would include a conveyor belt, spinning wraps, and three access entry drive aisles. Access would be provided via internal drive-aisles within the shopping center. The entrance of the car wash begins at the northeast corner of the site and extends along the property line to maximize queuing. The building would be 108 feet in length, with a 50-foot queue for vehicles to circulate through the wash tunnel. The hours of operation are proposed to be 7:00 a.m. to 9:00 p.m. daily. Refer to the project plans attached to the draft Conditional Use Permit for additional detail.
Specific Plan Amendment 2023-002
Per Section 2.2.3, Table 2 of the GCSP, Vehicle Washing is allowed as an accessory use to a Convenience Store use subject to a Conditional Use Permit. The Applicant is requesting to amend the Specific Plan to allow Vehicle Washing as a primary use subject to approval of a Conditional Use Permit. In addition, the Applicant is requesting the Specific Plan be amended to allow for 1) a site specific 75% (9-space) parking reduction, 2) building orientation to face away from the street, 3) and modify driveway access locations and width to accommodate on-site circulation of Vehicle Washing operations.
Analysis:
GCSP Project Objectives Analysis
GSCP Project Objectives
Compliance
Provide a shopping center in proximity to other regional retail centers expanding and diversifying the retail and services available at this central location, and to its proximity to the other retail centers, generally reducing overall vehicle miles traveled.
Compliant.
Provide for expanded retail growth and increased local retail expenditures that will generate additional sales tax revenues for the City.
Compliant.
Promote the type of commercial development that creates additional employment opportunities within the local community.
Compliant.
Provide a shopping center that incorporates sustainable development and energy efficient principles to the extent reasonably practicable.
Compliant.
Incorporate design elements related to lighting, screen walls, landscape buffers, access, and circulation, etc. that mitigate impacts on existing and future surrounding uses.
Compliant.
Provide a commercial area that encourages pedestrian activity and maximizes visibility and natural surveillance to the extent feasible through appropriate building orientation, design, scale, and landscaping, and connections to bus stops, the Citywide system of bicycle lanes, and planned connections to the adjacent, future development of the West Area Specific Plan project area. These characteristics will make the project consistent with principles of Crime Prevention through Environmental Design and New Urbanism, as described in the General Plan and the New Urbanism District Regulations of the Zoning Code.
Not Compliant.
The Project would remove an internal driveway, which also results in the removal of pedestrian pathways connecting structures in conflict with Figure 1.3 and 4.2 of GCSP.
The proposed building orientation away from the street minimizes visibility/natural surveillance consistent with principles of Crime Prevention through Environmental Design and New Urbanism, as described in the General Plan and the New Urbanism District Regulations of the Zoning Code.
Note: Refer to the related Specific Plan Amendment. The application includes a request to amend the GCSP to achieve compliance with the above items.
Provide a site plan that efficiently utilizes the land area creating a compact development that minimizes the overall footprint of the project.
Substantially Compliant.
The building location provides 50-feet of queuing. The project includes outdoor vacuum stalls, parking, and landscaping.
GCSP Basic Principles of New Urbanism Analysis
The 2002 Salinas General Plan defines New Urbanism (Page 367, “N” Definitions) as:
An international planning movement to reform the design of the built environment to raise quality of life and standard of living by creating better places to live. New urbanism involves "place-making", a reordering of the built environment to promote the creation and restoration of diverse, walkable, compact, mixed use communities containing housing, workplaces, shops, entertainment, schools, parks, and civic facilities essential to the daily lives of residents within easy walking distance (within 10 minutes or approximately ¼ mile) of each other. Also referred to as Traditional Neighborhood Development, new urbanist communities provide a mix of well-designed uses and a variety of housing types within easy walking distance of a discernible center. Higher density development is generally at the center with progressively less intense development at the edge. Connectivity between uses is provided via an interconnected network of roadways and bicycle and pedestrian trails. Sustainable development and alternative modes of transportation are also encouraged by New Urbanism.
The Zoning Code was updated based on the 2002 General Plan New Urbanism principles, which became effective on December 7, 2006. Consistent with the General Plan requirement for Future Growth Area development, the Gateway Center Specific Plan states that development is to incorporate the basic principles of the New Urbanism in as much as those principles are applicable to commercial sites with single anchor retail use and identified the following design elements to respond to those principles:
GCSP Basic Principles of New Urbanism
Compliance
The varied building placement and massing provides visual interest and architectural variety and relate to the design themes of the anchor retail user.
Substantially Compliant.
Varied building placement away from the street with massing provides visual interest and architectural variety.
The commercial structures and landscape planters screen and minimize views to the parking field for the anchor retail use while preserving views to that structure from the entrances.
Compliant.
Internal pedestrian pathways connect retail structures and provide access to the bus stops.
Not Complaint.
The project would remove an internal driveway, which also removes pedestrian pathways connecting structures in conflict with Figure 1.3 and 4.2 of GCSP.
Note: Refer to the related Specific Plan Amendment. The application includes a request to amend the GCSP to achieve compliance with the above item.
Decorative and pedestrian-scaled planters, seating areas, bicycle racks, and other site furnishings will be provided.
Substantially Compliant.
The plans indicate the provision of consistent bike racks. Decorative/consistent benches and other site furnishings would be a condition of the CUP.
Pathways and sidewalks provide connections to a future off-site pedestrian circulation system, which will extend throughout the West Area Specific Plan and the FGA.
Compliant.
Vehicle Washing Use
Per Section 2.2.3, Table 2 of the GCSP, Vehicle Washing is only allowed as an accessory use to a Convenience Store use subject to a Conditional Use Permit. Applicant’s proposal is to amend the Specific Plan to allow stand-alone Vehicle Washing subject to approval of a Conditional Use Permit without the use having to be accessory to a Convenience Store.
Barghausen Consulting Engineers, Inc., prepared a Project Narrative dated July 16, 2024. The project seeks an amendment to Table 2 in Section 2.2.3 of the GCSP, which currently allows the development of a car wash only in conjunction with a gasoline service station (convenience store). Integrating a car wash with a gasoline service station entails a more intensive, vehicle-oriented service with additional environmental impact considerations. This typically involves 8 to 12 fueling dispensers, accommodating 16 to 24 vehicle fueling positions, along with multiple 20,000-gallon underground storage tanks and a 4,000-square-foot convenience retail space, often offering alcohol and tobacco products. Moreover, such facilities typically operate 24/7 versus the proposed 7:00 a.m. to 9:00 p.m. daily.
Parking Reduction
Per Section 4.3.3 of GCSP, projects will provide parking at a ratio of one space for every 292 square feet of gross building floor area. This parking ratio is slightly less than the standard City ratio of one space for every 250 square feet of gross building floor area. The proposed 3,588 square foot Vehicle Washing building requires 12 off-street parking spaces per the Specific Plan. Applicant’s proposal is to amend the Specific Plan to provide 3 off-street parking spaces, resulting in a 75% (9-space) parking reduction.
The Project Narrative described the Vehicle Washing operation and provided justification for the requested parking reduction. The proposed use provides a service where customers remain in their vehicle for the duration of the service. Customers will have the option to utilize free-to-use vacuum stations upon exiting the vehicle wash. The vacuum services (17 stalls) are limited to paid customers and members that first utilize the vehicle washing service. No retail or other services are provided that would require parking spaces. This means that the parking demand for the project is limited to employee needs only. The project anticipates two to three employees to be on site at any one time. The project provides a total of three parking spaces to satisfy employee parking demand. In addition, the Lowe's project to the north includes 20 additional parking stalls than were required. If additional staff parking is required, they could utilize those spaces, which is consistent with the shared parking provisions of the GCSP.
Building Orientation and Pedestrian Activity
Per the Objectives in Section 1.1.3 Project Objectives of the GCSP, projects are to provide a commercial area that encourages pedestrian activity and maximizes visibility and natural surveillance to the extent feasible through appropriate building orientation, design, scale, and landscaping, and connections to bus stops, the Citywide system of bicycle lanes, and planned connections to the adjacent, future development of the West Area Specific Plan project area. The Applicant’s proposal would reorient the building away from the street and does not provide amenities promoting pedestrian activity.
The Project Narrative states that due to the project site's width constraints, it is not feasible for the Quick Quack car wash building to abut the front property line. The Vehicle Wash building is 108 feet in length, with a required approach of 50 feet for vehicles to circulate through the tunnel. Additionally, due to the unique use characteristics of a car wash, locating the building along the frontage would also require vehicles to enter and exit the car wash along the street with no direct access to the right-of-way. Customers would be required to exit the tunnel onto the adjacent property. The currently proposed site orientation with the building set back from the street allows for the queuing lanes to be located internal to the site with an exit that connects to the existing shopping center shared drive aisle improvements. This layout allows for optimal vehicle circulation while minimizing the potential for any adverse impacts to the right-of-way or other tenants within the shopping center.
Pedestrian Pathways/ Driveway Closure / Driveway Location and Width Per Table 3 Gateway Project Development Regulations of the GCSP, pedestrian pathways and interior driveways shall be limited to those shown in Figure 1.3 (see project site area below in Figure 1.3) and shall be a minimum of 24 feet wide with aprons that conform to City standards. Pedestrian pathways are shown in Figure 4.2 of the GSCP (see below). The Applicant’s proposal is to close off pedestrian pathways and an existing driveway, relocate another, and increase the width of the relocated driveway from 24-feet wide to 44-feet wide.
GCSP Figure 1.3 GCSP Figure 4.2
Applicant’s Proposal
The Project Narrative explains that a wider drive aisle is required to provide access into a three-lane vehicle queuing area for vehicles to queue while they wait to go through the vehicle wash. If the interior access driveway were constructed to be 24 feet wide, it would reduce the amount of vehicle queuing space and would increase the risk of vehicles stacking onto the shopping center's drive aisles and onto East Boronda Road. This request is consistent with Section 37-50.520(c)(4), which states that a driveway's design shall be directly related to the amount of reservoir space for drive-through service facilities.
Conditional Use Permit 2023-022
The Applicant has also applied for Conditional Use Permit (CUP) 2023-022 to construct and operate a 3,588 square foot Vehicle Washing building with 17 outdoor vacuums. The City Council Commission must take action on the Specific Plan Amendment in the affirmative for the related Conditional Use Permit (CUP) 2023-022 to be considered for approval.
Staff’s review of the application, materials, and plans for the Conditional Use Permit is based on the General Plan, General Plan EIR, Chapter 37 of the Municipal Code (Zoning Code), GCSP, and the GCSP MND. Review included all applicable development and design standards for the project as well as the overall site plan, drainage, and related improvements. Besides the items specified in the Applicant’s request for the Specific Plan Amendment, the items were reviewed as follows:
Design
The design proposes modulated parapet heights, stucco pilasters, warm earthen tones, hip roofs, and arched accent geometry consistent with conceptual elevations and section shown in Figure 3.4 through 3.10 and consistent with Section 3.3 Architectural Standards and Section 3.3.1 Architectural Themes of the GCSP. The design also includes utilization of auburn awnings over glazed portions of the linear façade consistent with Section 3.3.2 Buildings of the GCSP. See proposed design in relation to the GCSP design below:
Design Illustrations
Site Furnishings
The project plans do not show compliant trash receptacles or pedestrian lighting per Figure 3.11 and Section 3.4.2 of the GCSP; however, if approved, these improvements will be conditioned for compliance.
The plans show compliant building lighting (sconces) and solid waste and recycling enclosure consistent with Section 3.4.3 and Figure 3.12 of the GCSP. A condition is included in the draft CUP requiring a letter be provided from Republic Services indicating that the solid waste and recycling enclosure meets their service requirements.
Landscaping
Project includes a minimum of one deciduous tree (minimum 15-gallon in size) for every five spaces in landscape islands; the islands shall a minimum dimension of five feet exclusive of curbs consistent with Zoning Code Section 37-50.690(g)(4) and Figure 3.1 and Section 3.2.7 of the GCSP.
Project includes an approximate 20-foot-wide landscape planter along East Boronda Road and the proposed new lot line and an approximate 12-foot-wide landscape planter along the internal drives with conforming landscape screening consistent with Section 3.2.5 and Figure 3.1 of the GCSP.
Lot Line Adjustment
Prior to issuance of a building permit, condition of approval requires submittal of a Lot Line Adjustment to be processed and recorded to reflect proposed lot lines shown on the site plan.
Findings
The City Council must establish findings to approve an application for a Specific Plan Amendment to:
Allow a Vehicle Washing use subject to a Conditional Use Permit (CUP); Authorize a site specific 75% (9-space) parking reduction; Change building orientation away from the street; and
Modify access driveways to accommodate Vehicle Washing building.
Subsequently, the City Council must establish findings to approve an application for a Conditional Use Permit to construct and operate a 3,588 square foot Vehicle Washing building with outdoor vacuums. See attached City Council Resolution for Approval.
Time Consideration
The proposed project includes a request for a Specific Plan Amendment, which is a legislative act and is not subject to the Permit Streamlining Act (PSA).
Alternatives Available to the City Council
The City Council has the following alternatives:
Affirm the findings set forth in the attached Resolution, finding adequate environmental review pursuant to the California Environmental Quality Act (CEQA) has been addressed and approve Specific Plan Amendment 2023-002 and Conditional Use Permit 2023-022 with modifications; or Not approve Specific Plan Amendment 2023-002 and establish findings at the public hearing stating the reasons denying Specific Plan Amendment 2023-022.
CEQA CONSIDERATION:
The City of Salinas has determined that the project is categorically exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15305 (Minor Alterations in Land Use Limitations) for the Specific Plan Amendment that was already analyzed through the GCSP Mitigated Negative Declaration and Section 15332 (In-fill Development Projects) for the Conditional Use Permit.
CALIFORNIA GOVERNMENT CODE §84308 DOES NOT APPLY:
Yes.
STRATEGIC PLAN INITIATIVE:
This action supports the Council’s Strategic Goals of Economic Development through encouragement and development and operation of a Vehicle Washing use that benefits a diverse thriving economy that benefits all Salinas residents.
DEPARTMENTAL COORDINATION:
The proposed project has been discussed among the Current Planning, Permit Services of the Community Development Department, the Public Works Department, the City Attorney’s office.
FISCAL AND SUSTAINABILITY IMPACT:
Approval of this the Amendment and CUP has no direct impact to the General Fund. Application fees are collected for the specific plan amendment and conditional use permit to cover staff time for processing.
Fund
Appropriation
Appropriation
Name
Total Appropriation
Amount for recommendation
FY 24-25 Operating Budget Page
Last Budget Action (Date, Resolution)
N/A
N/A
N/A
N/A
N/A
N/A
N/A
ATTACHMENTS:
Applicant’s Project Narrative prepared by Barghausen Consulting Engineers, Inc., dated July 16, 2024 Proposed City Council Resolution for Approval with the following exhibits:
Exhibit 1: Amended Figure 1.3 of GCSP
Exhibit 2: Amended Figure 3.7.1 of GCSP
Exhibit 3: Amended Figure 4.2 of GCSP
Exhibit 4: Amended Section 1.1.3 of GCSP
Exhibit 5: Amended Section 2.2.3, Table 2 of GCSP
Exhibit 6: Amended Section 4.3.3. of GCSP
Draft Conditional Use Permit with the following exhibits:
Exhibit "A" Vicinity Map
Exhibit "B" Engineer’s Report, dated August 1, 2024
Exhibit "C" Cover Sheet (Sheet C 1.1)
Exhibit "D" Site Plan (Sheet A1.01)
Exhibit "E" Floor Plan (Sheet A2.00)
Exhibit "F" North and West Elevations (Sheet A3.00)
Exhibit "G" South and East Elevations (Sheet A3.01)
Exhibit "H" Canopy and Recycling and Solid Waste Enclosure Details (Sheet A3.03) Exhibit "I" Conceptual Landscape Plan (Sheet L1)
Exhibit "J" Mitigation Monitoring and Reporting Program Mitigation Measures Planning Commission Staff Report without attachments, dated September 18, 2024 Planning Commission Resolution No, 2024-009
Planning Commission Minutes (Draft), dated September 18, 2024 Cc: Quick Quack, Applicant
Rexford Title, Inc., Property Owner
I:\ComDev\Planning Share Space\Specific Plans and Precise Plans\Gateway Center Specific Plan\SPA 2023-002 and CUP 2023-022 - 115 E. Boronda Rd\CC\CC Staff Report - SPA 2023-002 and CUP 2023-022.docx Page | 3
Page | 1
CITY OF SALINASCOUNCIL STAFF REPORTCITY OF SALINASCOUNCIL STAFF REPORT
CITY OF SALINAS
COUNCIL STAFF REPORT
CITY OF SALINAS
COUNCIL STAFF REPORT