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Acknowledgments................................................................................................................................. ii Table of Contents.................................................................................................................................. iii A Vision for San Leandro...................................................................................................................V-1 Chapter
1 Introduction.................................................................................. 1-1 A. Introducing the San Leandro General Plan .................................................... 1-1 B. Context for the General Plan ........................................................................... 1-3 C. How to Use the General Plan .......................................................................... 1-8 D. The General Plan Update Process ..................................................................1-10 E. Organization of the Plan.................................................................................1-14 F. Implementing and Amending the Plan .........................................................1-17 2 San Leandro in Perspective......................................................... 2-1 A. Our Role in the Region..................................................................................... 2-1 B. History .............................................................................................................. 2-3 C. Population......................................................................................................... 2-8 D. Economy ..........................................................................................................2-12 E. Land Use ..........................................................................................................2-14 F. Transportation System....................................................................................2-17 G. Environment....................................................................................................2-18 H. Development Potential....................................................................................2-20 3 Land Use Element........................................................................ 3-1
FRAMEWORK
3-2 .....................................................................................................................................
A. Overview........................................................................................................... 3-2 B. Major Planning Concepts................................................................................. 3-3 C. City Structure...................................................................................................3-15 D. Land Use Diagram and Definition of Categories ..........................................3-20 Attachment E
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RESIDENTIAL NEIGHBORHOODS .................................................................................... 3-35 ........................................................................................................................................................
A. Overview....................................................................................................................... 3-35 B. San Leandro’s Neighborhoods .................................................................................... 3-35 C. Planning Issues............................................................................................................. 3-48 D. Goals, Policies, and Actions......................................................................................... 3-53 Goal LU-1: Community Standards....................................................................... 3-53 Goal LU-2: Neighborhood Character................................................................... 3-57 Goal LU-3: New Housing Opportunities............................................................. 3-60 Goal LU-4: Mitigation of Public Facility Impacts ................................................ 3-63 Goal LU-5: Citizen Participation........................................................................... 3-65 EMPLOYMENT AND MIXED USE DISTRICTS.................................................................. 3-67 ........................................................................................................................................................
A. Overview....................................................................................................................... 3-67 B. Employment and Mixed Use Districts ........................................................................ 3-68 C. Planning Issues............................................................................................................. 3-78 D. Goals, Policies, and Actions......................................................................................... 3-83 Goal LU-6: Downtown Revitalization.................................................................. 3-83 Goal LU-7: Innovation Districts............................................................................ 3-90 Goal LU-8: Retail and Service Districts ................................................................ 3-95 Goal LU-9: San Leandro Shoreline ..................................................................... 3-102 Goal LU-10: Land Use Compatibility................................................................. 3-105 Goal LU-11: Growth Management..................................................................... 3-107 FOCUS AREAS..................................................................................................................... 3-109 A. Downtown.................................................................................................................. 3-109 B. San Leandro BART Station Area ............................................................................... 3-115 C. East 14th Street Corridor............................................................................................. 3-119 D. Bayfair BART Station Area ........................................................................................ 3-125 E. San Leandro Shoreline ............................................................................................... 3-127 F. Marina Boulevard Corridor....................................................................................... 3-131 G. MacArthur Corridor................................................................................................... 3-135 H. Mid-Washington Corridor......................................................................................... 3-138 BEYOND THE CITY LIMITS............................................................................................... 3-141 ........................................................................................................................................................
A. Overview..................................................................................................................... 3-141 B. Ashland....................................................................................................................... 3-145 C. Hillcrest Knolls/Fairmont Ridge................................................................................ 3-150 D. Western Castro Valley................................................................................................ 3-151
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E. Former San Leandro Rock Quarry.............................................................................3-152
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4 Transportation Element............................................................... 4-1 A. Overview...........................................................................................................4-1 B. Transportation Demographics.........................................................................4-4 C. Transportation and Land Use..........................................................................4-7 D. Moving Toward Complete Streets................................................................. 4-10 E. Travel Modes .................................................................................................. 4-11 F. Traffic Forecasts and Planned Improvements .............................................. 4-33 G. Transportation and the Urban Environment ................................................ 4-43 H. Goals, Policies, and Actions ........................................................................... 4-51 Goal T-1: Coordinating Land Use and Transportation.......................... 4-51 Goal T-2: Complete Streets...................................................................... 4-55 Goal T-3: Bicycle and Pedestrian Circulation......................................... 4-58 Goal T-4: Public Transportation.............................................................. 4-63 Goal T-5: Streets and Highways.............................................................. 4-67 Goal T-6: Neighborhood Traffic Management....................................... 4-71 Goal T-7: Traffic Safety............................................................................ 4-73 Goal T-8: Interagency Coordination ....................................................... 4-75 5 Economic Development Element ............................................... 5-1 A. Overview...........................................................................................................5-1 B. Economic Profile...............................................................................................5-3 C. Key Economic Development Issues............................................................... 5-15 D. Goals, Policies, and Actions ........................................................................... 5-25 Goal ED-1: Business Attraction and Diversification.............................. 5-25 Goal ED-2: Economic Prosperity............................................................. 5-28 Goal ED-3: Innovation............................................................................. 5-31 Goal ED-4: Vibrant Retail Centers .......................................................... 5-34 Goal ED-5: Business Amenities............................................................... 5-38 Goal ED-6: Workforce Development...................................................... 5-41 6 Open Space, Conservation, and Parks Element........................ 6-1 A. Overview...........................................................................................................6-1 B. Open Space........................................................................................................6-3 C. Parks ..................................................................................................................6-4 D. Natural Resources........................................................................................... 6-16 E. Conservation and Sustainability.................................................................... 6-29 F. Goals, Policies, and Actions ........................................................................... 6-39 Goal OSC-1: Rehabilitation of Existing Parks ........................................ 6-39 Goal OSC-2: Development of New Parks............................................... 6-43 Goal OSC-3: Regional Parks.................................................................... 6-47
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Goal OSC-4: Joint Use...............................................................................6-49 Goal OSC-5: San Leandro Creek..............................................................6-52 Goal OSC-6: Plant and Animal Communities ........................................6-55 Goal OSC-7: Resource Conservation and Greenhouse Gas Reduction.6-57 Goal OSC-8: Energy..................................................................................6-62 7 Environmental Hazards Element............................................... 7-1 A. Overview........................................................................................................... 7-1 B. Natural Hazards............................................................................................... 7-2 C. Man-Made Hazards ........................................................................................7-14 D. Emergency Preparedness................................................................................7-26 E. Noise ................................................................................................................7-29 F. Goals, Policies, and Actions............................................................................7-44 Goal EH-1: Mitigation of Natural Hazards.............................................7-44 Goal EH-2: Wildfire Hazards...................................................................7-47 Goal EH-3: Air Quality.............................................................................7-48 Goal EH-4: Water Quality........................................................................7-51 Goal EH-5: Hazardous Materials.............................................................7-55 Goal EH-6: Emergency Preparedness......................................................7-57 Goal EH-7: Noise Compatibility..............................................................7-61 Goal EH-8: Transportation Noise ............................................................7-64 Goal EH-9: Aviation Noise.......................................................................7-66 8 Historic Preservation and Community Design Element ......... 8-1 A. Overview........................................................................................................... 8-1 B. Historic Preservation........................................................................................ 8-2 C. Community Design.......................................................................................... 8-6 D. Goals, Policies, and Actions............................................................................8-32 Goal CD-1: Historic Preservation Program.............................................8-32 Goal CD-2: Defining the City’s Role........................................................8-36 Goal CD-3: Public Awareness of Local History......................................8-39 Goal CD-4: Economics of Preservation ...................................................8-42 Goal CD-5: Sense of Place ........................................................................8-43 Goal CD-6: Quality Construction and Design ........................................8-47 Goal CD-7: A More Visually Attractive City ..........................................8-50
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9 Community Services and Facilities Element............................. 9-1 A. Overview...........................................................................................................9-1 B. Public Safety......................................................................................................9-2 C. Education ..........................................................................................................9-8 D. Library and Information Services.................................................................. 9-13 E. Recreation and Human Services.................................................................... 9-15 F. Infrastructure .................................................................................................. 9-22 G. Goals, Policies, and Actions ........................................................................... 9-27 Goal CSF-1: Police and Fire..................................................................... 9-27 Goal CSF-2: Schools ................................................................................. 9-30 Goal CSF-3: Library Services................................................................... 9-32 Goal CSF-4: Information Technology ..................................................... 9-34 Goal CSF-5: Recreation and Human Services ........................................ 9-35 Goal CSF-6: Infrastructure....................................................................... 9-39 10 Housing Element ....................................................................... 10-1 (note: the Housing Element is a separate document. Chapter 10 explains its purpose and provides a link to the document)
11 Implementation.......................................................................... 11-1 A. Overview ....................................................................................................... 11-1 B. Implementation Tools................................................................................... 11-2 C. General Plan Annual Report and Periodic Evaluation............................. 11-24 12 Environmental Justice ............................................................... 12-1 Overview................................................................................................................ 12-1 Environmental Justice Communities.................................................................... 12-2 Environmental Justice Context............................................................................. 12-6 Goals, Policies, and Actions ................................................................................ 12-27 Pollution Exposure and Air Quality..................................................... 12-27 Physical Activity and Public Facilities.................................................. 12-33 Food Access............................................................................................ 12-41 Civic Engagement and Investment Prioritization................................ 12-42 Safe and Sanitary Homes....................................................................... 12-47 Appendices
A. Mitigation Monitoring and Reporting Program..........................................................A-1
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List of Figures
1-1 Planning Area........................................................................................................................1-7 2-1 Regional Location..................................................................................................................2-2 2-2 Evolution of the City, 1872-2015...........................................................................................2-7 3-1 Priority Development Areas.................................................................................................3-5 3-2 City Structure ...................................................................................................................... 3-17 3-3 Land Use Diagram .............................................................................................................. 3-23 3-4 Residential Neighborhoods ................................................................................................ 3-36 3-5 Retail and Service Districts................................................................................................. 3-75 3-6 Focus Areas........................................................................................................................ 3-110 3-7 Unincorporated San Leandro Planning Area.................................................................. 3-142 3-8 Unincorporated Area Land Use Designations ............................................................... 3-146 4-1 Bicycle Network .................................................................................................................. 4-13 4-2 Rail and Transit Network ................................................................................................... 4-19 4-3 Street Classification............................................................................................................. 4-25 4-4 Truck Routes........................................................................................................................ 4-29 6-1 San Leandro Park System.....................................................................................................6-5 6-2 Creeks, Drainageways, and Watersheds .......................................................................... 6-19 6-3 Habitat Cover Types ........................................................................................................... 6-21 7-1 Earthquake Probabilities.......................................................................................................7-3 7-2 Hayward Fault Location and Liquefaction Hazards .......................................................... 7-5 7-3 Very High Fire Hazard Severity Zones ...............................................................................7-9 7-4 FEMA-designated FloodPlains........................................................................................... 7-11 7-5 Noise Contours-2015........................................................................................................... 7-33 7-6 Noise Contours-2035........................................................................................................... 7-35 8-1 Historic Resources.................................................................................................................8-7 8-2 Community Design Features.............................................................................................. 8-19 9-1 Community Facilities............................................................................................................9-7 12-1 San Leandro Environmental Justice Communities ........................................................... 12-4 12-2 CalEnviroScreen Scores in San Leandro............................................................................ 12-5 12-3 Large Quantity Hazardous Waste Generators by Census Tract in San Leandro.......... 12-12 12-4 CalEnviroScreen Groundwater Threats in San Leandro ................................................ 12-13 12-5 Housing Cost Burden in San Leandro ............................................................................. 12-16 12-6 Overcrowded Households in San Leandro ..................................................................... 12-17 12-7 Asthma Rates and Diesel Particulate Matter in San Leandro......................................... 12-20 12-8 Park Access in San Leandro.............................................................................................. 12-22 12-9 Linguistic Isolation in San Leandro ................................................................................. 12-26
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List of Charts
1-1 Correspondence Between State-Mandated Elements and San Leandro Elements ......... 1-14 2-1 San Leandro Population, 1900-2015.....................................................................................2-6 2-2 Year of Construction of San Leandro’s Housing Stock..................................................... 2-11 2-3 Composition of San Leandro’s Housing Stock.................................................................. 2-11 2-4 Ratio of Jobs to Employed Residents in Alameda County Cities..................................... 2-14 2-5 Existing Land Uses in San Leandro ................................................................................... 2-16 4-1 Means of Transportation to Work for Employed San Leandro Residents......................... 4-5 4-2 Vehicles per Household in San Leandro..............................................................................4-6 5-1 Employment by Industry—San Leandro 2015....................................................................5-5 5-2 Sales Tax Per Capita in San Leandro, Alameda County, and California......................... 5-12 5-3 Sales Tax Capture and Leakage—San Leandro, 2015 ....................................................... 5-13 5-4 Educational Attainment in San Leandro, Alameda County, and the Bay Area.............. 5-24 7-1 Typical Sound Levels in an Urban Environment.............................................................. 7-32 7-2 San Leandro Land Use Compatibility Guidelines ............................................................ 7-36 9-1 Total Part One Crimes in San Leandro, 1990-2015..............................................................9-3 9-2 School Enrollment, 1996-2015...............................................................................................9-8 List of Tables
2-1 Development Forecasts for San Leandro, 2015-2035......................................................... 2-25 3-1 Acreages in Each Land Use Type....................................................................................... 3-22 3-2 Correspondence Between Land Use Diagram and Zoning Designation......................... 3-33 4-1 Average Daily Traffic Volumes on San Leandro Streets .................................................. 4-26 4-2 Level of Service Interpretation for Intersections and Freeways....................................... 4-36 4-3 Level of Service at Major San Leandro Intersections: 2015 and 2035............................... 4-38 4-4 Vehicle Miles Traveled in 2015 and 2035........................................................................... 4-40 6-1 Parks and Recreational Facilities in San Leandro ...............................................................6-7 8-1 Documented Historic Resources in San Leandro, 2015 ...................................................... 8-8 11-1 San Leandro General Plan Actions Requiring Coordination with Other Agencies...... 11-19
3-1
3 The Land Use Element is the centerpiece of the General Plan. It contains the maps and strategies that will shape the physical form of San Leandro over the next 20 years. The Chapter identifies those areas of the city where change will be encouraged and those areas where the existing land use pattern will be maintained and enhanced. More than any other part of the General Plan, this Chapter reflects the input provided by San Leandro residents and businesses during the General Plan Update process.
This Element contains five sections:
“Framework” describes the major themes of the General Plan and presents the Land Use Map.
“Residential Neighborhoods” contains goals, policies and actions for the city’s residential areas.
“Business and Industry” contains goals, policies, and actions for the city’s commercial and industrial areas.
“Focus Areas” contains strategies for specific areas of the city where change is likely during the next 20 years.
“Beyond the City Limits” provides general direction for San Leandro’s Planning Area and Sphere of Influence. These are unincorporated areas with issues that could affect San Leandro’s future.
LAND USE
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A reduced version of the Land Use Diagram for San Leandro is shown on Figure 3-3. A larger version, displaying individual parcels, may be viewed on the City’s website here.
A total of 18 land use categories appear on the Diagram, including six residential categories, three mixed use categories, three predominantly commercial categories, three industrial categories, and three public/ open space categories. Table 3-1 indicates the land area in each category.
There may be multiple zoning districts within each General Plan category, particularly in the commercial and mixed use areas. This will allow finer distinctions to be made between the specific land uses to be allowed and the development standards to be applied within each area of the city. The General Plan categories are correlated with the City’s zoning districts in Table 3-2. The Table indicates which zones are compatible and conditionally compatible with each General Plan category. The use of a zone noted as “conditionally compatible” would only be acceptable if the types of development allowed by that zone are consistent with General Plan goals and policies.
Land Use Categories
Residential Categories
The following six categories appear on the General Plan Diagram. Each definition includes a reference to a gross density, which includes the area taken up by streets, easements, and common open space, and net density, which is based on developable parcel area only. Gross density is intended to communicate the general character of the areas within each category and is used to describe entire neighborhoods or large subdivisions. It is intended to be descriptive and not regulatory. Net density is used to establish the maximum number of units that may be built on a single parcel in a given category. It is regulatory, and provides the basis for the applicable zoning districts in each category. Since a few of the designations contain multiple zoning districts, the maximum net density is not necessarily permitted on all parcels. In each case, the maximum net density may be exceeded by up to 35 percent underpursuant to state density bonus provisions for senior and/or affordable housing.
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desire to retain most of these areas for retail, service, office, and similar employment-generating land uses.
Neighborhood Commercial. This designation corresponds to small shopping centers or clusters of street front buildings with local-serving businesses and services. Allowable uses include groceries, local-serving offices, pharmacies, laundromats, dry cleaners, restaurants, and other businesses that serve the daily needs of nearby residential areas. The maximum allowable Floor Area Ratio (FAR) is 0.5. Residential uses and mixed use development may be considered within Neighborhood Commercial areas, subject to a maximum net density of 24.2 units per acre and an FAR limit of 0.5.
General Commercial. This designation corresponds to larger shopping centers, shopping districts, and commercial uses providing a broader range of goods and services and serving a broader market than the neighborhood commercial areas. Allowable uses include but are not limited to supermarkets, department stores, apparel stores, theaters, and non-retail services such as offices and banks. These areas also contain primarily auto-oriented uses such as hotels and
motels, car dealerships, auto service and repair
businesses, and construction suppliers. The uses
are generally designed for the convenience of
persons arriving by car. The maximum
allowable Floor Area Ratio (FAR) is 1.0.
However, there are multiple zoning districts in
this category, including several that are subject
to lower maximum limits. Some of the zoning
districts in this designation permit residential
uses, subject to conditional use permit
requirements and a maximum net density of
24.2 units per acre. In such cases, maximum
FARs also apply. Residential uses are not
permitted in all districts due to the potential for
conflicts with heavier commercial activities and
the need to retain land for local services and
revenue generation.
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Mixed Use Categories
There are four mixed use categories on the General Plan Diagram, corresponding to the areas of greatest development density and intensity in the city. Multi-family residential and commercial uses are encouraged in all four categories. Mixed use development (projects combining commercial and residential uses on a single parcel) is strongly encouraged in all four categories but is not mandatory unless specifically called out by a Specific Plan or Area Plan covering areas with these designations.
Within each area, zoning may be used to identify areas where residential uses are preferred (or required) and areas where commercial uses are preferred (or required). The intensity of development in mixed use areas is typically regulated by floor area ration rather than units per acre, although some mixed use zoning districts may incorporate both metrics.
Downtown Mixed Use. This designation corresponds to the area that has historically been the central business district of San Leandro. It allows a range of uses which together create a pedestrian-oriented street environment. These uses include retail shops, services, offices, cultural activities, public and civic buildings, and similar and compatible uses, including upper story residential uses. These activities may be located within the same building or within separate buildings on the same site or nearby sites. More specific guidance on the mix and design of uses is specified in General Plan policies for the Downtown area and in the 2007 Downtown TOD Strategy. A maximum FAR of 3.5 applies, although this maximum is not permitted in all zoning districts within this area.
Mixed use development with housing is encouraged in this area, with allowable residential densities ranging from 24 to 100up to 125 units per net acre, depending on the zoning district. The City also offers density bonuses of up to 20 percent above the General Plan maximums stated above (e.g., 28.8 to 120 units per net acre) where the average unit size is smaller than 750 square feet.1 Regardless of unit size, a maximum FAR of
3.5 also applies to mixed use development. This maximum is not permitted in all zoning districts within the Downtown Mixed Use area.
Several Downtown zoning districts have been established to respond to existing land uses and development opportunities, and to facilitate Downtown revitalization goals.
1 These bonuses may not be added to the state-required density bonus for affordable housing. Only one density bonus program may be applied to any given development.
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Transit-Oriented Mixed Use. The purpose of this designation is to provide for a mix of high-intensity land uses that capitalize on proximity to the San Leandro BART station. This designation maximizes the potential for transit-oriented infill development and achieves compatible transitions to adjacent residential districts through design standards and zoning.
Several zoning districts have been established for the Transit-Oriented Mixed Use areas. These districts emphasize the vertical mixing of different uses, with housing being the predominant use in some areas and office/retail the major use in others. The maximum floor area ratio in areas with this designation is 4.0, although intensities of 5.0 may be considered on sites adjacent to the BART station. Some of theThe transit-oriented zoning districts specify minimum densities (generally 60 to 8020 to 60 units per acre) and some specify minimum floor area ratios (generally 1.0) on larger parcels to ensure that land is used as efficiently as possible. The maximum number of residential units on any given property is dictated by floor area ratio limits in some zoning districts and maximum density limits in others.
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Corridor Mixed Use. This designation allows a mix of commercial and residential uses oriented in a linear development pattern along major transit-served arterials such as East 14th Street. A range of commercial and office uses is permitted, primarily serving neighborhood and community needs. Residential uses may be either free-standing or integrated into the upper floors of mixed use projects. Development should be designed to encourage walking and bicycle use, and should be sufficiently dense to support increased transit services along the corridors. A maximum allowable FAR of 1.02.5 applies in areas with this designation, although FARs of up to 1.5 may be permitted for projects incorporating housing.
Where a Specific Plan or Area Plan has been prepared for an area with this designation, an FAR of 1.5 may also be permitted, subject to the conditions of that Plan. Maximum residential density in this category is dictated by the above floor area ratio limits rather than limits on housing units per acre.
Bay Fair Transit-Oriented Development. This designation includes approximately 120 acres within the San Leandro city limits around the Bay Fair BART Station, including Bayfair Center, Fairmont Square and Fashion Faire Place, and other commercial properties along Hesperian Boulevard, Fairmont Drive, and East 14th Street in the Bayfair Center vicinity. The BART parking lot is also included. As of 2016, a TOD Specific Plan for this area was underway. The intent is to create a new vision for this area, including retail, office, higher density housing, open space, and public land uses. A more urban development form is envisioned, with pedestrian-scaled streets and an orientation toward BART access and transit use. A maximum FAR of 3.0 applies. Maximum residential density in this category is dictated by floor area ratio limits rather than upper limits on housing units per acre.
Industrial Categories
Three industrial categories have been identified, as described below.
Light Industrial. Light Industrial areas may contain wholesale activities, distribution facilities, research and development or e-commerce uses, business services, technology, and manufacturing operations which produce minimal off-site impacts. Campus-style industrial parks and professional offices also are permitted. A limited range of commercial uses also is permitted in these areas. Uses in areas with this designation must be capable of locating adjacent to residential areas without creating adverse effects. A maximum floor area ratio of 1.0 applies, although this
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TABLE 3-2 CORRESPONDENCE BETWEEN LAND USE DIAGRAM AND ZONING DESIGNATIONS Land Use Category
Corresponding Zoning
Designations
Conditionally Compatible
Zoning Designations
Garden Residential (RG) RO RS, PS
Low Density Residential (RL) RS, RS-40, RS (VP) RS (PD), RD, PS, CN Low-Medium Density Residential (RLM) RS (PD) RD, RS, PS Medium Density Residential (RM)
RD, RM-35003000, RM2500, RM-2000 RS (PD), RD, PS
Medium-High Density Residential (RMH) RM-1800 RM-2000, RM-2500, RM35003000, PS High Density Residential (RH) RM-875 (see Note 1) RM-1800 Neighborhood Commercial (CN) CN, P CC, CR, PS
General Commercial (CG) CC, CS, CR CN, PS, P
Downtown Mixed Use (MUD) DA-1, DA-2, DA-3, P RM-875, RM-1800, CN, PS Transit-Oriented Mixed Use (MUTOD) DA-2, DA-3, DA-4, DA-6 RM-875, RM-1800, PS Bay Fair TOD Mixed Use (BTOD) B-TOD
Corridor Mixed Use (MUC)
NA-1, NA-2, SA-1, SA-2,
SA-3, DA-2
RM-875, RM-1800, RM-2000,
RM-2500, RM-3000, CN, CC,
P, PS, IL
Light Industrial (IL) IL, IP IG, CC, CS, P, PS
General Industrial (IG) IG, IL, IP CC, CS, P, PS
Industrial Transition (IT) IT IG, CC, IL, IP
Public/Semi-PublicInstitutional (PI) PS Depends on type of use Parks and Recreation (PR) OS PS, CR
Resource Conservation (RC) OS PS
Source: City of San Leandro, 2016
Notes: (1) RM-875 had not yet been created at time of General Plan adoption. RM-1800 is considered the conforming zone until such time as the RM-875 District (1 unit per 875 square feet) is adopted.