Title
Subject: 2818 Mandela Parkway-Live/Work Project
From: Community and Economic Development Agency
Recommendation: Conduc t a Public Hearing and upon conclusion Approve for Fianl Passage (Second Reading) an Ordinance adjusting the Zoning District Boundary Line for the live/work project located at 2818 Mandela Parkway so that the S-16 Zone (Industrial-Residential Transition Zone) extends over the entire site, consistent with the approved live/work project (AP #007-0587-002-05)
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CITY 0 F OAKLAND F F I C 7- _1'c@C17 f CLERX
AGENDA REPORT
20,93MV-29 PM I: 42
TO: Office of the Cirv Manager
ATTN: Robert C. Bobb
FROM: Community and Economic Development Agency
DATE: June 10, 2003
RE: AN ORDINkNCE ADJUSTING THE S-16 ZONING DISTRICT
BOUNDARY LINE AT 2818 MANDELA PARKWAY
SUMMARY
A zoning district boundary line adjustment is requested to extend the S-16 overlay zone to
encompass the entirety of a 2.54 acre development site at 2818 Mandela Parkway.
Currently, the S- 16 zone extends across approximately two-thirds of the site. The Planning
Commission has approved a 90 unit Live[Work facility on this property (Case CMDV03-
048). The Planning Commission approved a Conditional Use Permit, Design Review, and
Variance on April 2, 2003 and recommended approval of the subject boundary line
adjustment. The requested boundary line adjustment will provide the S- 1 6 zoning district
over the entire project.
FISCAL IMPACTS
There are no costs to the City of Oakland associated with this request. Approval of an
ordinance adjusting the S- 16 zoning district boundary line will allow for the construction of
a 90 unit Live[Work facility on the site, which will provide for construction related
employment, and additional real estate tax revenues and business tax revenues upon
completion of the project.
BACKGROUND
In February, the City received applications to develop a 90-unit Live/Work facility on a 2.54
acre site. All of the site has an M-30, General Industrial zoning designation and about two-
thirds of the site includes an S-16 zoning district designation. The proposed boundary line
adjustmentwouldcontinuetheS-16desipationovertheentiresite. T'heS-16designation
is the Industrial-Residential Transition Zone and provides the opportunity to develop new
Live/Work facilities in appropriate transitional areas. Without the S- 16 zoning designation
over the entire site, the proposed project could not continue as planned. Most of the site also
has an S-4 Design Review overlay designation.
The site is presently used for container storage and trucking purposes. It contains two
structures, roughly 10,000 square feet in size; these buildings would be demolished. The
approved site plan shows attached two arid three story structures (from 3 to 9 units) in nine
linear clusters. with five drive/access wavs benveen the clusters that would provide access to
the garages and exterior parking spaces. One of these accessways would run
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81h
to Ettie, and two would run from Street to Ettie and are proposed in a one way direction.
The remainin- two drivewavs are shorter in length and do not run through street to street.
One is proposed from 28'h Street and one is proposed from Ettie Street. A central walkway
runs diagonally down the center of the site providing a landscaped area between clusters of
uni ts.
The site is an asymmetrical shape and surrounded on three sides by streets. To the north is
an adjacent live/work complex, to the south is 2 81h Street, to the cast is Ettie Street and to the
west is Mandela Parkway.
Surrounding uses include insurance offices and a printing press across Mandela, the Alta
Wholesale Building Construction Materials business across Ettie Street and a
retail/who[esale use across 28"' Street.
The City has been working with Caltrans to finalize the street and median improvements on
Mandela Park-way. Construction of these improvements is scheduled to begin this year. The
frontage improvements for this segment of Mandela call for a ten foot sidewalk with an
additional ten feet devoted to a landscaped strip and pockets for parallel parking. The
project plans include the approved Mandela frontage improvements.
General Plan Analysis
The project site is designated within the Business Mix area in the General Plan Land Use
Diagram. This designation is intended "to create, preserve and enhance areas of the City
that are appropriate for a wide variety of businesses and related corranercial and industrial
establisliments." The desired character and uses include a mix of businesses such as light
industrial, bioscience, research and development, environmental technology and other uses
of a similar business character. Live/work development is designated as a non-residential
use so it can be compatible with the Business Mix designation. The General Plan does not
specifically allow or disallow new live/work construction in the Business Mix areas; zoning
regulations require a Conditional Use Permit to review the appropriateness of the use at a
particular site. The proposed project is consistent with the following applicable General
Plan objectives and policies:
* Obiective N5 Minimize conflicts between residential and non-residential activities
while providing opportunities for residents to live and work at the same location. The
proposed project will provide 90 live/work units that are appropriately designed for this
transitional area. Specifically, living areas are buffered from the street and work areas are
located on the ground floor with convenient access along interior accessways.
a Policv N5.3 Supporting Live/Work Development. 77ie citV should support and
encourage residents desiring to live and work at the same location where neither the
residential use nor the work occupation adversely affeers nearby properties or the
character o.( the surrounding area. This project will provide 90 new live/work units
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within an industrial district and as pe=itted by the S-16 Industrial-Residential Transition
zone that covers most of the site.
a Obiective N9 Promote a strong sense of community within the City of Oakland, and
support and enhance the district character of different areas within the city, while
promoting linkages between them. The Mandela Parkway is a new arterial linking key
areas of West Oakland, the downtown, and important transportation links (West Oakland
BART and Interstate 880.) There are important new opportunities to place new
development along this corridor, thereby increasing the sense of cornmurlity and
supporting revitalization efforts. Mixed use development, such as the proposed live/work
project, is part of building a balanced community that fits within the transition areas
between industrial and residential uses.
- Policy I/C1.4 Investing in Economically Distressed Areas of Oakland. Economic
investment, consistent with the City's overall economic strategy, should be encouraged,
and, where feasible, should promote viable investment in economically distressed areas
of the City. This project is sponsored by a private developer who is making a substantial
investment in an under-utilized site.
- Obeective I/C2 Maximize the usefulness of existing abandoned or underutilized
industrial buildings and land. This project will result in the redevelopment of an
underatilized industrial site.
e Poliev I/C3.4 Strengthening Vitality. The vitality of e-,risting neighborhbod mLred use
and community commercial areas should be strengthened and preserved. This live/work
project will provide a good transition between the commercial/industrial uses along
Mandela Parkway and the residential uses in the surrounding areas, thereby strengthening
both areas.
Zoning Analysis
The 2.54 acre site is zoned M-30, General Industrial with two overlay zones: S-4 provides
for design review and S-16 is an Industrial-Residential Transition Zone. As previously
stated, the S-16 designation extends across about two-thirds of the site. The S-16 zone is
intended to provide "a compatible transition between residential and industrial zones by
limiting the impacts of new nonresidential development . . . . . and provide opportunities
for new joint living and working quarters."
The Planning Commission voted to recommend approval of the boundary line adjustment by
a 6-0 vote, in order to allow the S- 16 zone to cover the entire site of the approved project.
KEY ISSUES AND IMPACTS
Positive Aspects of Proiecr
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The project is located on Mandela Parkway, which will be improved by Caltrans beginning
later this year. Roadway improvements include wide sidewalks, landscaping, and parallel
parking. These improvements will hirther enhance the entire corridor and complement this
type of project. The project presents an important opportunity to use an underutilized site in
a transition area and redevelop it with a new live/work community in a scale that will create
a positive impact for this portion of Mandela Parkway. The project provides a good
transition between the light industrial and residential uses in the neighborhood. It will
provide a significant contribution to an improved image and the revitalization along
Mandela Park-way. Specifically, the project will provide needed housing in a live/work
community whereby most residents do not need to commute to work. This type of
community functions as a good small business incubator.
Community and Staff Concerns
Those issues that have been raised during the review of the project include the fact that
live/work facilities increase the property values in business/light industrial areas; businesses
cannot pay as much as livefwork uses and business area land may get converted to more
residential land use. In addition, in certain areas, large sites on major corridors should be
protected and preserved for future retail and business development. Also, residents may
complain about adjacent business activities, such as truck traffic or late night loading and
unloading.
SUSTAINABILITY OPPORTUNITIES
Economic: The expanded S-16 zoning boundary will facilitate the development of a 90-unit
LivefWork project, resulting in construction jobs, new housing and business stock, and an
increased tax base for the City.
Eaytgnm@@: Through the City's sustainability programs, assistance and advice is
provided to new projects to ensure waste reduction, energy efficiency, and resource
conservation. In addition, several conditions of approval imposed by the Planning
Commission on the project require specific measures to be satisfied. These include
limitations on the amount of waste generated from the demolition of the existing buildings
and new construction, a requirement for CarShare participation (minimum 2 vehicles), and
measures to minimize constniction period noise, air quality, and parking and traffic impacts.
Social EQui : Planning requirements, in general, provide opportunities for community
input and thereby consider social equity as part of project review as land use regulations are
applied city-wide. In the case of this project, a community meeting was held regarding the
project on'February 1-1, 2003. In addition, the April 2"' Planning Commission provided
additional opportunity for public input into the project, including the zoning district
boundarv tine adjustment.
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June 10, 2003 Pace No. 5
DlSi@,BLLITY AND SENIOR CITIZEN ACCESS
The project will be required to meeting applicable Federal and State requirements related to
handicap accessiblity.
RECOMNILENDATION
Staff concluded that development at this site would be a critical catalyst for revitalization. It
is a site between a residential and industrial area; therefore it is a good transition use. Staff
recommends that the City Council adopt the ordinance adjusting the boundary line of the S-
16 zoning district.
RespectfWly submitted,
9640!@@ loa@&
ROBERT C. BOBB, City Manager for the Community
and Economic Development Agency
APPROVED AND FORWARDED TO THE
COMMUNITY & ECONOMIC DEVELOPMENT
COMMITTEE
Prepared by:
Claudia Cappio, Manager, Major Projects
Community and Economic Development Agency
ORAICOUNCIL
JUL I 5 2003
0 NCIL
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APPROVED AS TO FORNIAND LE V RAFT
P@TRODUCED BY CO(--NCILMF:.,LBER
(FFIC CIT @ CLERK
ORDINANCE NO. C.M.SMIVY29 P,41:42
AN ORDINANCE OF THE CITY OF OAKLAND ADJUSTING THE ZONING
DISTRICT BOUNDARY LINE FOR THE LfVEiWORK PROJECT LOCATED AT 2818
NIA.NDELA PARKWAY SO THAT THE S-16 ZONE (INDUSTRIAL - RESIDENTIAL
TRANSITION ZONE) EXTENDS OVER THE ENTIRE SITE, CONSISTENT WITH
THE APPROVED LIVEIWORK PROJECT (AP # 007-0587-002-05)
WHEREAS, on Februrary 4, 2003, the City of Oakland received a series of applications
for a 90 unit live - work project located at 2818 Mandela Parkway, a 2.54 acre site;
WHEREAS, as part of the proposed redevelopment of this site from a trucking and
container storage use to a live/work use, the project applicant requested a Zoning Boundary
Adjustment (ZBA) that extends the S-16 Zone across the entire project site to allow a live/work
project
WHEREAS, on April 2, 2003, the Planning Commission granted a Conditional Use
Permit, Design Review and Variance for the live/work project, subject to the ZBA being
approved by the City Council, and recommended to the City Council that the ZBA be approved;
and
WHEREAS, the Planning Commission found that the rezoning will promote local and
regional welfare by allowing a live/work project on this site, thereby contributing to the
revitalization of the area and incorporating a development that is compatible with the Mandela
Park-way improvements and the mixture of industrial and commercial uses surrounding the site;
and
WHEREAS, the Planning Commission ftirther found that this ZBA leaves an appropriate
buffer between this site and the surrounding industrial and commercial area, thereby fidfilling the
intent of the S- 16 zone to establish a transition area between industrial and residential areas; and
WHEREAS, the Planning Commission fiurther found that the proposed live/work
project, by its nature as a primarily commercial use with a secondary residential use is the ideal
project within this transition area and that the design and features of this live/work project will
provide an integrated development that is of the design quality to aid in revitalization efforts
along the Mandela Parkway; and
WHEREAS, the City Council affirms and adopts the Planning Commission's findings
and further finds. based in part on the project plans, staff reports and record for the project
hereby incorporated by this reference, that the ZBA will promote local and regional welfare and
enable the development of a comprehensive, integrated plan; and
WHEREAS, the notice required by section 17.144.OJO has beg IC
ORNACII OIAC95 it DEVELCOPMAE
JUL I 5 20M din JU
THE CITY COUNCIL OF THE CITY OF OAKLAND ORDAJINS AS FOLLOWS:
Section L City of Oakland's Zoning Map is hereby amended by re-zoning the land in the area
shown on the map attached as Exhibit A and incorporated as follows:
FROM: Zone M-30/S-4 (General Industrial/Design Review)
TO: Zone M-30/S-4/S- 1 6 (General Industriat/Design Review and Industrial -
Residential Transition Zone);
The Planning Director shall change the Zoning Map accordingly pursuant to Chapter 17.144 of
the Oakland Municipal. Code.
Section II: This ordinance, including the re-zone described in Section I above, is based in part
on the findings set forth above, the CEQk Findings pertaining to the Infitl Exemption are
incorporated by this reference.
Section III: Except as specifically set forth herein, this ordinance suspends and supercedes all
conflicting resolutions, ordinances, plans, codes, law and regulations.
S
Section TV: If any provisions of this ordinance or application thereof to any per-son of
circumstances is held invalid, the remainder of this ordinance and the application of provisions to
the other persons or circumstances shall not be affected thereby.
Section V: This ordinance shall become effective 30 days after passage and within 15 days of
passage shall be published once with the names of the City Council Members voting for and
against it in the Oakland Tribune, a newspaper which is published in this City and in Alameda
County.
IN COUNCIL. OAKLAND, CALLFORNIA,
PASSED BY THE FOLLOWENG VOTE:
AYES -
NOES -
ABSENT-
ABSTENTION -
ATTEST:
CEDA FLOYD
City Clerk and Clerk of the Council
of the City of Oakland, California
ORAICOUNCp
JUL I 2003
7
NOMIC
COMMUN
DEVELOPM MTE
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4@1
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Notice and Digest
ORDIN.A-NCE NO.
AN ORDINANCE OF THE CITY OF OAKLAND ADJUSTING THE ZONING
DISTRICT BOUNDARY LINE FOR THE LIVE/WORK PROJECT LOCATED AT
2818 MANDELA PARKWAY SO THAT THE S-16 ZONE (INDUSTRIAL -
RESIDENTIAL TRANSITION ZONE) EXTENDS OVER THE ENTIRE SITE,
CONSISTENT WITH THE APPROVED LIVEfWOR-K PROJECT (AP # 007-0587-002-
05)
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