Title
PLN24-0614 - Design Review and Use Permit - 800 Atlantic Avenue - Applicant: Alameda Recreation & Parks Department. Public hearing to consider Design Review and Use Permit Application No. PLN24-0614 to allow the construction of an approximately 32,450 square-foot aquatic center with parking lot, landscaping, and perimeter fencing located at the northwest corner of the Jean Sweeney Open Space Park at 800 Atlantic Avenue. CEQA Determination: The City of Alameda has prepared an Addendum to a Mitigated Negative Declaration pursuant to Section 15164 of the CEQA Guidelines and no further environmental review is required.
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To: Honorable President and Members of the Planning Board
From: Allen Tai, Planning Building and Transportation Director
EXECUTIVE SUMMARY
The Planning Board held an initial workshop on December 9, 2024, to review the preliminary design of the Aquatic Center, followed by a second workshop on March 10, 2025. At that time, the Alameda Recreation and Park District (ARPD) presented a revised concept plan reflecting cost-related adjustments that redesigned certain planned features. Based on feedback from the Planning Board and the public, the design team has since refined the project plans further. Additionally, an Addendum to the previously adopted Mitigated Negative Declaration (MND) for the Open Space Park has been prepared in accordance with the California Environmental Quality Act (CEQA). The Addendum concludes that the revised project does not introduce new significant environmental impacts, and no further environmental review is required. Staff recommends the Board adopt the Addendum to the MND and approve the updated project plans pursuant to Use Permit and Design Review findings and conditions.
BACKGROUND
On July 15, 2014, the City Council adopted an MND and mitigation measures in compliance with CEQA and approved the Jean Sweeney Open Space Park, which is a 22-acre community park featuring trails, picnic areas, open space, a community garden, natural playgrounds, and lawns. The 2.35-acre area now proposed for the Aquatic Center was originally planned to include a park structure, fruit tree orchard, lawn area, and a 60-space parking lot.
Over the past three years, ARPD has been developing plans for the Aquatic Center on this western portion of the park, near Wilma Chan Way and Atlantic Avenue. Since late 2022, the City Council has taken several actions to move the project forward, including selecting the site, identifying funding, reviewing design concepts, and approving key contracts. The project has also undergone significant community engagement facilitated by ARPD, and including Planning Board workshops held on December 9, 2024, and March 10, 2025.
On June 9, 2025, ARPD submitted revised plans reflecting feedback from those Planning Board workshops. The updated design is included in the plan set and supporting materials (Exhibits 1 & 2).
The site is designated Public Parks & Open Space in the General Plan and zoned O, Open Space District. Construction of the Aquatic Center requires Use Permit and Design Review approval by the Planning Board. A lot line adjustment has also been submitted for approval by the Planning Director and City Engineer to reconfigure parcel lines within this section of Jean Sweeney Park.
Project Summary
The project involves the construction and operation of a new, all-electric, 32,450 sq. ft. Aquatic Center located on a 2.35-acre site at Jean Sweeney Open Space Park. It includes a one-story, approximately 5,750-square-foot L-shaped building with a multi-purpose room, office, staff and lifeguard areas, restrooms, and locker rooms.
Outdoor amenities feature a 30-meter swimming pool, an activity pool, seating for 180 spectators, and a scoreboard for competitive events. Perimeter fencing includes a perforated wind wall on the west and south and sound-buffering metal panels along the north side, ranging from 10 to 15 feet in height with planting along the base.
Additional site improvements include landscaping, 110 bicycle parking spaces (10 long-term and 100 short-term), and an on-site parking lot with 71 spaces. The facility will also have access to 125 overflow parking spaces on a neighboring property via a lease with the College of Alameda.
Aquatic Center Operations
The Aquatic Center would operate daily (except City holidays), providing swim lessons, practices, public swimming, and small community events. Proposed operating hours are Monday through Friday from 5:30 AM to 9:30 PM, Saturday from 7:00 AM to 9:30 PM, and Sunday from 7:00 AM to 8:00 PM. Average attendance is estimated at 35 to 45 people per hour, with 100,000 to 150,000 annual visitors and a summer daily average of 450 people.
The facility may host up to two large swim meets per year, typically one to two days on weekends from 9:00 AM to 6:00 PM, with up to 180 attendees onsite at a time and a total of around 500 visitors per event. Amplified sound would be used during competitions and events.
DISCUSSION
Pursuant to Alameda Municipal Code Sections 30-4.19 and 30-37.2, the proposed Aquatic Center structures and perimeter fencing require Use Permit and Design Review approval by the Planning Board. Because the Design Review Manual does not specifically address this type of facility, the Board should focus on the project’s overall compatibility with the site and surrounding area.
Since the March 10 Planning Board workshop, staff and the project design team have worked to revise the project in response to the following comments, which are further described below.
Architecture and Landscaping:
1. Improve building architecture, materials, and landscaping
2. Incorporate sustainable design features
3. Provide spectator shading
4. Clarify solar infrastructure and AMP's involvement
Transportation and Parking:
5. Analyze traffic, pedestrian, and bicycle safety
6. Include a visitor drop-off area
7. Assess actual parking demand
8. Increase long-term bicycle parking
9. Develop a Transportation Demand Management (TDM) Program
Noise:
10. Study potential noise impacts
General Plan Consistency:
11. Demonstrate alignment with the General Plan and City mode shift goals
Response to Comments on Architecture & Landscaping
The architects have submitted updated plans featuring improved building design and materials. The Atlantic Avenue elevation has been enhanced to create a civic presence, with varied massing, updated materials, prominent signage, new landscaping, and preservation of existing trees. The exterior now includes a variety of building volumes, interlocking accent metal panels, and more windows.
Revisions also include a single-level pool deck with shaded spectator seating and a stepped-back footprint to preserve green space at the Jean Sweeney Park entrance near Atlantic Avenue. While additional park improvements are not included due to budget constraints, the design features a prominent entry plaza, decorative pavers, bay-friendly landscaping, and space for public art.
Sustainable building features now include the following green building measures:
• All electric domestic hot water and pool heating
• All electric space heating and cooling
• Water efficient fixtures to reduce potable water use
• Water efficient landscaping to reduce irrigation
• Energy efficient building performance
• Low Volatile Organic Compound (VOC) emitting building materials
• Computer system to control lighting and temperature
The architect also clarified that the AMP’s solar demonstration project is currently on hold and no longer part of this proposal.
Overall, the proposed design is compatible with surrounding development, reflecting the scale and style of nearby commercial buildings along Atlantic Avenue. Architectural elements such as masonry walls, corrugated metal panels, aluminum windows, and a decorative parapet complement neighboring office structures, including the sound-attenuating metal fence along the northern property line.
Response to Comments on Transportation
The Planning Board requested additional analysis on transportation and traffic safety, which was provided by Fehr & Peers through a Vehicle Miles Traveled (VMT) Memorandum (Exhibit 3) and a Transportation and Parking Memorandum (Exhibit 4) dated June 3, 2025.
The VMT Memorandum concluded that the Aquatic Center qualifies as a local-serving use with a less-than-significant VMT impact, as it will primarily serve Alameda residents. While regional events like swim meets are anticipated, they occur infrequently, estimated two times a year, and represent a small portion of overall vehicle trips. The site is also well-connected to the Cross Alameda Trail and nearby transit.
The Transportation and Parking Memorandum found that the project will provide adequate access and circulation, supported by the following improvements (Exhibit 4):
• Vehicle drop-off area at the main entrance
• New 100-foot westbound left-turn lane on Atlantic Avenue
• Red curb and “No Stopping Anytime” signs to protect bike lanes
• Enhanced crosswalk with high-visibility markings, rectangular rapid flashing beacons (RRFBs), and a raised center median
• 10 long-term and 100 short-term bike parking spaces, including BikeLink lockers for standard and oversized bicycles
A Transportation Demand Management (TDM) Program was also submitted, containing strategies to promote non-vehicular access such as walking, biking, carpooling, and transit use (Exhibit 5). The TDM measures address the safety improvements above and are included as project conditions of approval.
Response to Comments on Parking
The Planning Board requested an analysis of the project’s anticipated parking demand. While the zoning ordinance does not specify parking requirements for parks and open space, the original park approval included a 60-space surface lot in this location. The Aquatic Center project adds 11 spaces, for a total of 71 spaces onsite. An additional 125 overflow spaces will be available in an adjacent parking lot through a lease agreement with the College of Alameda to provide surplus capacity that aligns with peak swimming demand during the summer and weekends. The project also includes 10 long-term and 100 short-term bicycle parking spaces.
Although a Transportation Demand Management plan would be implemented for the project to encourage alternative modes of transportation by employees and visitors, the Transportation and Parking Memorandum by Fehr & Peers assumes approximately 90% to 95% of visitors and staff are expected to drive. ARPD anticipates the remaining share will be arriving by bike (5%), on foot (2%), or via transit (3%). The Fehr & Peers analysis concludes that the 71 on-site spaces will meet demand for most of the day, with 12 to 19 cars expected to use overflow parking during peak times and larger swim meets held twice a year. Overall, the combined parking supply is sufficient to accommodate the facility’s needs and is right-sized for the proposed Aquatic Center. The proposed number of parking spaces is not excessive nor would it induce more driving than otherwise occur based on the anticipated demand and typical travel behavior for similar swim facilities.
Response to Comments on Noise
To ensure the project is compatible with the surrounding neighborhood, a noise and vibration assessment was conducted by Illingworth & Rodkin, Inc. (I&R) on April 14, 2025 (Exhibit 6). The assessment analyzed the project’s compliance with the City noise thresholds and determined that the project would meet requirements for both the Alameda Municipal Code (AMC) and the General Plan with the installation of a metal panel corrugated fence along the northern property line to attenuate the noise from early morning lap swimming. Therefore, project impact from noise would be a less-than-significant impact.
Response to General Plan Consistency
The project is consistent with the Alameda General Plan 2040. The site is designated Public Parks and Open Space, which allows recreational uses like the proposed Aquatic Center. The project supports General Plan Land Use policies LU-2.a and LU-2.b, which promote equitable, safe access to community facilities citywide. Locating the Aquatic Center at Jean Sweeney Open Space Park brings a public swimming facility within walking distance of nearby neighborhoods.
The project also advances Open Space Goal 1: Maintain & Enhance by improving the City’s park and recreation options. It directly implements Open Space Policy OS-15, which calls for the development of a City Aquatic Center to meet community and AUSD swimming needs. Bicycle access is supported through 10 long-term and 100 short-term parking spaces, consistent with Policy LU-16.d on Transportation Demand Management Programs.
The proposed Aquatic Center also aligns with the Mobility and Conservation & Climate Change Elements of the General Plan. Its location adjacent to the Cross Alameda Trail and near transit on Webster Street encourages active transportation and alternative modes of transportation. Planned safety improvements along Atlantic Avenue will enhance pedestrian and bicycle access. These features support policies ME-6.a (All Ages and Abilities Network), ME-6.c (Safe Crossings), ME-14.c (Community Awareness and Education), ME-21.g (Bicycle and Scooter Parking), CC-7.c (Complete Streets), and CC-7.f (Climate-Friendly Active Modes of Transportation).
Overall, the project is consistent with the applicable goals and policies of the General Plan.
Conclusion
In conclusion, staff believes the proposed Aquatic Center design is compatible with the surrounding neighborhood, and proposed site and right of way improvements ensure a harmonious transition between the different land uses. The proposed Aquatic Center is consistent with the General Plan by enhancing recreational access, supporting sustainable transportation, and meeting community swim needs. The project also reflects architectural design that complements the character of Jean Sweeney Open Space Park, promotes environmental sustainability, and incorporates features that ensure accessibility, safety, and usability year round. Overall, the project represents a well-integrated public facility that supports the City’s broader goals for recreation, connectivity, and high-quality public spaces.
PUBLIC NOTICE AND COMMENTS
Property owners and residents/tenants within 300 feet of the project boundaries were notified of the public hearing and given the opportunity to review and comment on the proposal. Comments received as of the writing of this report is provided in the exhibits to this report.
ENVIRONMENTAL REVIEW
In July 2014, the City Council by Resolution No. 14955 adopted a MND and Mitigation Measures in compliance with CEQA for the Jean Sweeney Open Space Park. In accordance with Section 15164 of the CEQA Guidelines, an Addendum to the MND has been prepared in the manner required and as authorized under CEQA, and the Planning Board is being provided the MND, Mitigation Measures and Addendum to review prior to making a decision on the Use Permit and Design Review to allow the construction of the Aquatic Center on the subject property. A transportation analysis was conducted by Fehr & Peers as part of the Addendum analysis and determined the new Aquatic Center is considered a local serving use and presumed to have a less than significant impact on Vehicle Miles Traveled to the surrounding area. In addition, a Noise & Vibration Assessment conducted by Illingworth & Rodkin, Inc. determined that the project can meet noise level requirements and would have a less than significant impact to surrounding properties. Furthermore, the adopted mitigation measures were incorporated into the MND approved for the Jean Sweeney Open Space Park project, and conditions of approval for this project will require compliance with the adopted mitigations measures. In conclusion, the Use Permit and Design Review application does not raise important new issues about the potentially significant impacts on the environment that have not been previously disclosed in the MND and no further environmental review is required (Exhibit 7).
CLIMATE IMPACT
The Aquatic Center facility will be all electric with an energy efficient building and incorporate water efficient fixtures and landscaping to reduce water use which contributes to the City meeting the goals of the Climate Action and Resiliency Plan.
RECOMMENDATION
Hold a public hearing and adopt the draft resolution adopting the CEQA Addendum and approving Design Review and Use Permit Application No. PLN24-0614 for an approximately 32,450 square-foot Aquatic Center with parking lot, landscaping, and perimeter fencing located at the northwest corner of the Jean Sweeney Open Space Park at 800 Atlantic Avenue (Exhibit 8).
Respectfully Submitted,
Steven Buckley, Secretary to the Planning Board
By,
Henry Dong, Planner III
Exhibits:
1. Project Plans
2. Design Supplemental Documents
3. Vehicle Miles Traveled Memorandum
4. Transportation and Parking Memorandum
5. Transportation Demand Management Program
6. Noise and Vibration Assessment
7. CEQA Addendum Document
8. Draft Resolution