Recent legislation, SB 330, prevents jurisdictions from downzoning residential property.
Zoning changes concerning density/FAR will be carried over as appropriate, as they were not included in the proposed objective standards.
Review of Past Accomplishments
Draft Housing Element C-29
Program Description and Objectives Progress and Continued Appropriateness
59.01-C Changes to the North
Area (NA) Zoning
Districts
Amend the NA-1 and NA-2 zones (parcels
fronting East 14th Street between San Leandro
Creek and Durant Avenue) so they more
effectively implement the General Plan and
North Area Plan.
Changes to be considered should include:
Eliminating the NA-1 zone, since it was
effectively replaced when the Downtown
TOD Strategy was adopted and now
applies to only one small parcel.
Requiring a minimum density of 18 units
per acre to match the SA- zones and to
implement Transportation Element Action
13.04-B.
Reducing the setbacks on smaller lots in
the NA-2 zone to increase the developable
envelope. The existing setbacks (20 feet
front yard and 15 feet side yard) may be
appropriate on large, consolidated
properties but may be an impediment to
development of smaller infill parcels along
East 14th Street. Design guidelines should
be used to ensure that development is
appropriately buffered and steps down to
neighboring lower density uses.
Other changes to the zoning standards may also
be considered, subject to further community
input and discussion.
The City will explore amending the North Area Plan, originally adopted in the early 1990s (and the East 14th South Area Development Plan), in the 6th cycle Housing Element.
59.01-D Micro Units Develop regulations for micro units (apartments generally ranging from 250 to 400 square feet)
which recognize the growing demand for this
type of housing among small households and the
relative affordability of such units compared to
traditional studios and one-bedroom
apartments.
See progress of this policy in the associated actions listed below.
In late 2016, the City amended its zoning code to add a density bonus for residential developments constructing units less than 750 square feet in size.
Based on the information from the APR it appears this action was not completed; the program should be included, and it is recommended that the City commit to making these changes within one year of the Housing Element Update deadline.
City of San Leandro
2023-2031 Housing Element Update
C-30
Program Description and Objectives Progress and Continued Appropriateness
59.01 E Monitoring the
Effectiveness of
Minimum Density
Standards
Monitor the impacts of minimum density
standards on development activity in the
Downtown TOD area to ensure they are
reasonable and reflective of market conditions.
In 2022, the City adopted objective standards for multi-family development utilizing a SB2 grant. Evaluation of existing development standards was summarized in a Development Constraints Memo. Minimum density standards have not created an impediment to housing, but stakeholder interviews and site test fits indicate that increased maximum density standards would further support development in the Downtown TOD area. Zoning amendments to increase maximum density, floor area ratios, and heights in key growth areas are being prepared concurrent with the Housing Element Update.
This is an ongoing effort by Community Development Planning Division staff to monitor impacts of zoning standards on development and propose zoning amendments to address areas of concern. It is recommended that this action be incorporated into a program to review development standards to ensure that they do not pose a constraint to development.
59.01 F Additional Density in
Established
Neighborhoods
Develop zoning amendments which would
facilitate the construction of additional dwelling
units in single family neighborhoods.
In 2020, the City amended its Accessory Dwelling Unit Zoning Code to align with state laws intended to foster ADU construction.
Based on the completion of this action, Action 59.01-F Is recommended to be revised based on recently approved legislation (SB 9, 2021).
59.02 A Amendments to the
Parking Requirements
Consider, and if appropriate amend, the parking
standards in the San Leandro Zoning Ordinance
to incorporate the following change:
Allow a greater percentage of the parking spaces
in multi-family housing near transit stations or
along transit corridors to be uncovered.
Eliminate guest parking requirements for
buildings with less than 4 units.
Lower the parking requirements for studio
apartments from 1.5 to 1.25 spaces/ unit.
Provide greater incentives and provisions for
shared parking for mixed use projects and
projects in transit-oriented development areas.
The City completed Zoning Code Amendments in Fall 2015 and therefore fulfilled this Action Item. In 2020-21, the City worked on preparation of objective standards for multi-family development utilizing a SB 2 grant. Evaluation of existing parking standards was summarized in a Development Constraints Memo and further parking reduction amendments for transitproximate projects will be considered as a separate policy effort.
Based on the completion of this action, Action 59.02 A is recommended to be eliminated or revised based on the 2020 APR preparation of additional objective standards.
59.03 A Permit Streamlining Maximize the potential benefits of the City’s permit tracking system, one-stop permitting
center, and website to facilitate permit
processing and the issuance of building permits.
The City's One-Stop Permit Center continues to provide a centralized location for multiple departments to communicate to the public about various aspect of development. Staff that can be accessed in the One-Stop Permit Center include Fire, Engineering, Housing and Economic Development.
Recent state legislation has streamlined housing development for ADUs and allowed additional units per lot. Recent legislation allows lot splits and two-unit developments and requires that the City monitor and report through the Housing Element Annual Progress Report. The City has adopted code changes to implement State legislation.
Based on the progress and on-going nature of this action, Action 59.03 A is appropriate to carry into the upcoming housing element cycle. It is recommended that the City adopt an SB9 Review of Past Accomplishments
Draft Housing Element C-31
Program Description and Objectives Progress and Continued Appropriateness monitoring program. Combine the permit streamlining actions (including Action 59.04 C) into one program and revise the wording.
59.04 A Fee Reviews Regularly review and update local development and permitting fees to ensure that they are
competitive with other communities in the East
Bay.
The City’s Master Fee Schedule is reviewed annually. The City Council budgeted funds in FY21-22 to conduct a development impact fee review and/or study. The City anticipates beginning this review process in FY22-23.
Based on the progress and on-going nature of this action, Action 59.04 A is appropriate to carry into the upcoming housing element cycle.
59.04 B Fee Reductions for
Affordable Housing—
City
Develop a policy to reduce certain fees for
affordable housing projects, provided that such
reductions will not adversely affect the City’s
ability to provide services to the project.
The City’s Master Fee Schedule is reviewed annually. See Action 59.04-A about fee review and/or study.
Based on the progress and on-going nature of this action, Action 59.04 B is appropriate to carry into the upcoming housing element cycle.
59.04 C Fee Reductions for
Affordable Housing—
Other Agencies:
Work with the East Bay Municipal Utility District
(EBMUD) and other utilities to explore possible
reductions to connection and system capacity
fees for housing projects which include a
substantial number of affordable units.
The City’s Master Fee Schedule is reviewed annually.
Based on the progress and on-going nature of this action, Action 59.04 C is appropriate to carry into the upcoming housing element cycle. Combine the permit streamlining actions (including Action 59.03-A and -B) into one program and revise the wording
59.06 A Multi-family Design
Guidelines
Continue to use the adopted multi-family design
guidelines in the Downtown TOD and East 14th
Street South areas. Develop additional guidelines
that apply more broadly to multi-family projects
on infill lots.
Through the “Building Homes and Jobs Act” Planning Grants Program (S B2), the State has provided grant funding for the City to evaluate the Zoning Ordinance to develop objective design and development standards intended to stimulate high quality multi-family residential and mixed-use development. New objective design and development standards for each Zoning District that accommodates multi-family and/or mixed-use development were adopted in January 2022. Updated standards focused on development feasibility and addressed the topics identified in Action 59.06-A.
Based on the progress and on-going nature of this action, Action 59.06 A is appropriate to carry into the upcoming housing element cycle.
59.07-A Correction of
Infrastructure
Deficiencies
Ensure that the San Leandro Capital
Improvement Program includes the projects
needed to correct existing infrastructure
deficiencies and facilitate the development of
housing on the sites identified in this Element.
Particular attention should be given to upgrading
infrastructure in the Downtown BART station
area.
With respect to the sites identified in the housing element:
The City has identified that the sanitary sewer collection system must be upsized to accommodate full build out of the City’s RHNA allocation for the 6th Housing Element Cycle.
Funding for 90% of these locations is scheduled to be appropriated in FY 22-23. Note that some of the sites do not receive service from the City as they are in the Oro Loma Sanitary Sewer District. The City is unaware of any deficiencies in the Ora Loma system.
The City hasn't identified any roadway capacity deficiencies. The system wide average pavement condition index is 54 which is fair but at risk.
The City does not supply water, gas, or electricity and is unaware of any deficiencies in these systems.
The storm drain system is adequate to convey storm water except for locations that are within the 100-year flood plain as identified by the FEMA flood insurance rate map. The City City of San Leandro
2023-2031 Housing Element Update
C-32
Program Description and Objectives Progress and Continued Appropriateness is evaluating options for reducing the risk of flooding at these locations but funding sources to conduct this evaluation is unclear at the time this document was drafted.
Based on the progress and on-going nature of this action, Action 59.07 A is appropriate to carry into the upcoming housing element cycle.
59.09-A Remediation of Soil
Contamination
Explore possible funding sources and other ways
to assist prospective housing developers in
addressing soil contamination problems on
potential housing sites.
Since 2016, the City has been working with ABAG, that received EPA grant funds to assist Oakland, Hayward, San Leandro and Alameda County with Phase 1 and/or Phase 2 environmental assessments. The City received the EPA grant to do a Phase 1 environmental for an adjacent City-owned site that is proposed to become a public park next to the proposed new 687 rental housing unit development at 915 Antonio.
Based on the progress and on-going nature of this action, Action 59.09 A is appropriate to carry into the upcoming housing element cycle. It is recommended that this action be combined with 59.05.
Goal 60: Fair Housing - Ensure that all persons, within their abilities and means and without discrimination, have freedom of choice as to where they live.
60.01-A Contract with Fair
Housing Services
Provider
Continue to contract with a fair housing services
provider such as Eden Council for Hope and
Opportunity (ECHO) Housing for fair housing
assistance and the investigation of discrimination
complaints, and for tenant-landlord counseling
and mediation services
In the 2015-2023 RHNA Planning Cycle, the City maintained a contract with ECHO Housing, a regional non-profit fair housing agency, to provide fair housing services in an effort to reduce housing discrimination. ECHO Housing fielded fair housing cases with intake, assessment and counseling. Of those cases where there were findings of housing discrimination, they were reported to Fair Employment and Housing Commission, Office of Fair Housing and Equal Opportunity, or other Fair Housing legal providers.
Based on the progress and on-going nature of this action, Action 60.01 A is appropriate to carry into the upcoming housing element cycle.
60.06-A Fair Housing Training Work with ECHO Housing to conduct fair housing training sessions for landlords and property
owners, tenants and homebuyers, realtors, and
the public at large. In addition, support ECHO’s
targeted audits to gauge the level of
discrimination in the rental housing market.
In the 2015-2023 RHNA Planning Cycle, the City maintained a contract with ECHO Housing to provide presentations on issues related to Fair Housing to property management companies, area realtors/brokers, and interested first time homebuyers.
Based on the progress and on-going nature of this action, Action 60.06 A is appropriate to carry into the upcoming housing element cycle. It is recommended that this policy be combined into a consolidated Fair Housing program.
60.06-B Fair Housing Outreach Use public service announcements, newspaper ads, educational fliers, and other media to raise
community awareness about fair housing and
the need for affordable units.
In the 2015-2023 RHNA Planning Cycle, the City maintained a contract with ECHO Housing to provide public service announcements, education flyers and supports other media outreach on the availability of their Fair Housing counseling and education services.
Based on the progress and on-going nature of this action, Action 60.06 B is appropriate to carry into the upcoming housing element cycle. It is recommended that this policy be combined into a consolidated Fair Housing program.
Appendix D
Development Analysis
Development Analysis
Draft Housing Element D-1
1 Development Analysis
Appendix D analyzes recent recycling trends in Alameda County to justify San Leandro sites inventory. The City of Hayward is emphasized in the analysis due to its similarity with San Leandro in location, size, and development patterns. East 14th Street in San Leandro continues into Hayward as Mission Boulevard, the main commercial corridor in the city. Downtown Hayward and the Mission Boulevard Corridor are areas identified by the City of Hayward as priority areas for residential and mixed-use development, similar to the Downtown, East 14th Street Corridor, and BTOD areas in San Leandro.
Recent development patterns in Hayward and the greater Alameda County suggest that similar development is likely to occur in San Leandro during the next housing cycle.
Examples of Recent Recycling Trends in Alameda County
Recent projects in the East Bay Area region were identified based on certain comparable factors to nonvacant parcels in the Sites Inventory, such as existing uses, lot size, and land use designation.
Development trends in adjacent cities such as Hayward indicate that there will be increased growth in transit-rich areas. While the market for higher-density, transit-oriented, market-rate development in San Leandro is less established than in the City of Hayward, the examples below identify sites that have been redeveloped in Hayward with existing conditions, development standards, and transit-oriented development goals comparable to the San Leandro sites.
There are several examples of large housing developments in the City of Hayward on Mission Boulevard, which is an extension of East 14th Street in San Leandro. The East 14th Street / Mission Boulevard and Fremont Boulevard Corridor is a critical arterial corridor that traverses five jurisdictions in central and southern Alameda County (unincorporated Alameda County and the cities of San Leandro, Hayward, Union City, and Fremont). The corridor provides robust transit options: three bus transit providers, seven BART stations, two Capitol Corridor stations and one commuter rail station (shared with Amtrak), and public and private shuttles. This corridor includes 14 Priority Development Areas across the five jurisdictions.1
Table D-1 compares development standards for the City of San Leandro Sites Inventory and a select number of example developments in San Leandro and Hayward. These development activities have taken place since the certification of the 5th cycle Housing Element. As described in Section 4.2.3 above, the City is adopting zoning and land use changes to increase allowed FAR, density, and height. The allowable density for sites in San Leandro’s 6th Cycle Housing Element after zoning changes will range from 24 to 125 du/ac which compares favorably to the allowable density in these development trend examples (17 to 108 du/ac). A note for clarification: the DA-6 and B-TOD Zoning do not have maximum densities and instead rely on minimum densities to ensure appropriate intensity of development in proximity to BART. For the purpose of assuming build out capacity on sites located in these districts, a maximum density of 125 du/ac was used based on an assumed density for the maximum allowable FAR.
When calculating the number of units that could be realistically achieved on each parcel identified in the Sites Inventory, this analysis assumes a development capacity of 70 percent of the maximum 1 East 14th St./Mission Blvd and Fremont Blvd Multimodal Corridor Project, Alameda County, 2020. https://www.alamedactc.org/wpcontent/uploads/2021/02/1476000_E14_Mission_Fremont_Blvd_Brochure_20201231_v4.pdf City of San Leandro
2023-2031 Housing Element Update
D-2
number of units allowed (with the proposed changes to land use and zoning district development standards). The Sites Inventory conservatively estimates that developments in San Leandro will reach 70 percent of the maximum allowed density. Projects completed in Hayward achieved a maximum allowed density of 97 to 109 percent. Therefore, the estimates for the Sites Inventory are conservative compared to other similar development projects in the city and region, and it is likely that actual densities reached will be higher based on development trends and available density bonuses pursuant to state law.
Table D-1 Recycling Trends and San Leandro Sites Inventory Comparison Project Allowable Maximum du/ac Actual du/ac
Percent
du/ac achieved
903 Manor Boulevard, San
Leandro
24 du/ac 17 du/ac 71%
Legacy at Hayward, Hayward 54 du/ac 54 du/ac 100%
Alta Mira, Hayward 100 du/ac 80 du/ac 80%
Cadence, Hayward 65 du/ac 71 du/ac 105%
Range of Recycling Trends
Examples
24-108 du/ac 17-108 du/ac 71-105%
City of San Leandro Sites
Inventory
Rezone allowable density:
24-125 du/ac
Rezone assumed realistic
density: 17-88 du/ac
Assumed density
achieved: 70%
Du/ac – dwelling units per acre
FAR – Floor Area Ratio
The development of non-vacant parcels in San Leandro and Hayward are described in detail below. 903 Manor Boulevard, San Leandro
Approved in 2020 and currently under construction, this townhome project includes 39 units across six buildings, including six below market-rate units. This development is the most recent example of mixed-income residential development in the city of San Leandro. The development will replace Manor Bowl, a bowling alley which was originally constructed in 1960. The lot is zoned Community Development Analysis
Draft Housing Element D-3
Commercial (CC) and has a Planned Development (PD) Overlay, which allows for 24 du/ac and maximum development height of 50 feet. The 39-unit project on the 2.3-acre site will have a density of 17 du/ac, reaching 70.8 percent of the allowable units for the parcel and a height of 37.7 feet.
Legacy at Hayward, Hayward
This project located at 28168 Mission Boulevard in Hayward replaced a low-FAR auto-accessories store with a five-story building integrating a parking structure and a variety of residential amenities.
The project includes 97 market-rate units near the South Hayward BART Station. The project site is zoned MB-CC and designated Sustainable Mixed Use (SMU) in the General Plan. The 1.8-acre development reaches 97 percent of the allowable density, reaching a built density of 53.7 du/ac.
The project includes an FAR of 2.0. Gross density of the development is approximately 54 du/ac.
Alta Mira, Hayward
City of San Leandro
2023-2031 Housing Element Update
D-4
Completed in 2017, the Alta Mira project represents an example of high-quality, affordable transitoriented development. This 1.9-acre site, located at 28939 Mission Boulevard, includes 152 units affordable to residents with incomes 30 to 50 percent of Alameda County’s median income. The project is within one-quarter mile of the South Hayward BART station and provides a variety of amenities and supportive services to both seniors and families, including a new public park. The project site is zoned Planned Unit Development (PD) and designated SMU in the General Plan. The achieved a gross density is approximately 80 du/ac.
Cadence, Hayward
The Cadence project was developed in conjunction with Alta Mira (Alta Mira satisfied the developer’s affordable housing requirements) and is located 28850 Dixon Street, Hayward. This mixed-use development replaces 2.9 acres of vacant land and surface parking with 206 market-rate units, extensive amenities, and ground floor retail space. This project site is zoned Planned Unit Development (PD), is in the Transit Oriented Development Overlay 1, and designated SMU in the General Plan. The achieved density of the development is 71 du/ac, which is 109 percent of the maximum of 65 du/ac. The maximum allowable height in this zone is 68 feet and the FAR is 2.75.
These examples of recycling activities on non-vacant parcels are representative of the conditions included in the Sites Inventory. The conditions and characteristics of the underutilized commercial sites identified in Appendix B are similar to those that have been provided as examples in this section and that have been redeveloped in recent years.