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Project Title: |
Development Plan for Kumon Math and Reading Center of Danville |
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County File(s): |
CDDP23-03042 |
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Applicant: Owner: |
Cathy Hu - Kumon Math and Reading Center of Danville Scott Feller |
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Zoning: |
Planned Unit District P-1, Cannabis Exclusion Combining District -CE |
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General Plan: |
Mixed-Use Medium Density (MUM) |
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Site Address/Location |
4125 Blackhawk Plaza Circle, Suite 180, Danville (Assessor’s Parcel Number: 203-780-060) |
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California Environmental Quality Act (CEQA) Status: |
Categorical Exemption, CEQA Guidelines Section 15301(a) - Existing Facilities. |
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Project Planner: |
Everett Louie, Planner III - phone: (925) 655-2873 and email: everett.louie@dcd.cccounty.us |
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Staff Recommendation: |
Approve (See section II for full recommendation) |
I. PROJECT SUMMARY
The applicant requests approval of a Development Plan for a substantial modification to the Final Development Plan #CDDP85-03009 to allow a Kumon Math and Reading Center of Danville, an educational service which will be located in a tenant suite in an office building in the Blackhawk Plaza commercial center.
II. RECOMMENDATION
The Department of Conservation and Development, Community Development Division (CDD) staff recommends that the Zoning Administrator:
1. OPEN the public hearing for the Development Plan (County File #CDDP23-03042), ACCEPT public testimony, and CLOSE the public hearing.
2. DETERMINE that the proposed project is exempt from the California Environmental Quality Act (CEQA) under CEQA Guidelines Section 15301(a);
3. APPROVE the Development Plan (County File #CDDP23-03042), based on the attached Findings and Conditions of Approval; and
4. DIRECT staff to file a Notice of Exemption with the County Clerk.
III. GENERAL INFORMATION
A. General Plan - The subject property is located within a Mixed-Use Medium Density (MUM) General Plan land Use designation.
B. Zoning District - The subject property is located within the P-1 Planned Unit District and the -CE Cannabis Exclusion Combining District.
C. California Environmental Quality Act (CEQA) - The proposed project is exempt under CEQA Guidelines Section 15301(a) - interior and exterior alterations. The proposed project will utilize an existing office space and convert it into an afterschool tutoring space. There will be no expansion to the office and the project only includes minor interior alterations. Therefore, the project is exempt under CEQA Guidelines Section 15301(a) which exempts interior use changes.
D. Lot Creation: The subject property is lot 6 of Subdivision 6586 recorded on July 14, 1986.
E. Previous Applications:
1. RZ73-1840 (1840-RZ): A Rezoning of 4,775 acres from General Agriculture (A-2) to Planned Unit (P-1) and a Preliminary Development Plan for 4,200 dwelling units, a 47-acre commercial area, school sites, and other public uses that eventually became the unincorporated community of Blackhawk, was recommended for approval by the County Planning Commission on May 28, 1974 and approved by the Board of Supervisors on September 10, 1974.
2. RZ78-2182 (2182-RZ): A Rezoning of a portion of the RZ73-1840 area and a Preliminary Development Plan for the Country Club at Blackhawk, to consist of 985 dwelling units, a private golf course and clubhouse, a 17-acre neighborhood commercial center, school sites, and private open space, was recommended for approval by the San Ramon Valley Planning Commission on April 19, 1978 and approved by the Board of Supervisors on June 6, 1978.
3. DP78-3035: A Final Development Plan for the Country Club at Blackhawk that included a 17-acre area at the northeast corner of Blackhawk Road and Camino Tassajara for a commercial center was approved by the San Ramon Valley Planning Commission on July 12, 1978.
4. SD78-5352 (Subdivision 5352): A Subdivision for the County Club at Blackhawk was approved by the San Ramon Valley Planning Commission on July 12, 1978.
5. GP85-0007 (7-87-SR): A General Plan Amendment to change the land use designation of 26 acres, just north and east of the existing Commercial (CO) designation on a 20-acre area at the northeast corner of Blackhawk Road and Camino Tassajara, from Single-Family Residential-Low Density (SL) to Commercial (CO) was recommended for approval by the San Ramon Valley Planning Commission on May 1, 1985, and subsequently approved by the Board of Supervisors. The properties involved include Assessor’s Parcels 203-050-072, 203- 050-080, and 203-050-043.
6. RZ85-2624 (2624-RZ): A Rezoning of a 20-acre property located contiguous to properties at the northeast corner of Blackhawk Road and Camino Tassajara from General Agricultural (A-2) to Planned Unit (P-1) and a Preliminary Development Plan for a 45.5-acre Blackhawk Plaza commercial center was recommended for approval by the San Ramon Valley Planning Commission on May 1, 1985 and approved by the Board of Supervisors on May 21, 1985. The property involved is Assessor’s Parcel 203-050-043.
7. CDDP85-03009: A Final Development Plan for redesign of the Blackhawk Plaza commercial center at the northeast corner of Blackhawk Road and Camino Tassajara and consisting of 45.5 acres was approved by the San Ramon Valley Planning Commission on May 1, 1985. The commercial center consists of Assessor’s Parcels 203-050-072, 203- 050-080, and 203-050-043.
8. CDSD85-6586 (Subdivision 6586): A Subdivision including the Tentative Map for 14 lots that comprise the Blackhawk Plaza commercial center was approved concurrently with CDDP85-03009 by the San Ramon Valley Planning Commission on May 1, 1985. The properties that were subdivided comprise a 45.5 acre area consisting of Assessor’s Parcels 203-050-072, 203- 050-080, and 203-050-043.
9. CDDP19-03016: A Development Plan to modify Final Development Plan CDDP85-03009 to allow a non-office use in Suite 180 of the 4125 Blackhawk Plaza Circle office building was approved by the Zoning Administrator on October 21, 2019.
IV. SITE/AREA DESCRIPTION
The office building at 4125 Blackhawk Plaza Circle is located on Lot 6 of Subdivision 6586. The building is in the northwest corner of the Blackhawk Plaza commercial center, and north of the northwesterly parking lot for the main Blackhawk Plaza retail commercial buildings. This office building is one of three hillside office buildings north of the Blackhawk Plaza retail commercial buildings and is surrounded by substantial landscaping, including mature trees, both towards the parking lot to the south, and Blackhawk Plaza Circle to the north. The three hillside office buildings are of a similar, commercial bungalow architectural style. The two-story buildings have pitched shingle roofs, and appear as one-story buildings from Blackhawk Plaza Circle, and as two-story buildings from the northwesterly Blackhawk Plaza parking lot.
The hillside office buildings are accessed from Blackhawk Road and Camino Tassajara via Blackhawk Plaza Circle, which loops through the Blackhawk Plaza commercial center. Parking for the office buildings is located along Blackhawk Plaza Circle, with 90-degree perpendicular parking spaces in front of the buildings and on the opposite side of the street. In addition, a circular parking lot is located west of the 4125 Blackhawk Plaza Circle office building.
Both floors of the 26,000 square-foot two-story office building at 4125 Blackhawk Plaza Circle are divided into a number of tenant suites. The office building is on a hillside above the main Blackhawk Plaza retail commercial buildings. Elevations range from 700 feet along Blackhawk Plaza Circle north of the building to 660 feet in the northwesterly parking lot south of the building. The area of the main Blackhawk Plaza retail commercial buildings is relatively flat and slopes downward to the south towards Camino Tassajara.
V. PROJECT DESCRIPTION
The applicant requests approval of a Development Plan to allow the operation of the Kumon Math and Reading Center of Danville in suite 180, located on the western side of the lower-level floor. The Kumon Math and Reading Center of Danville is an educational instruction business that is a non-office use.
The tenant suite includes multiple rooms and one large main room which will be utilized for the following uses:
• 1 large classroom (1335 square feet);
• 2 smaller classrooms (170 and 180 square feet);
• 2 storage spaces (120 and 130 square feet);
• 1 waiting area (235 square feet);
• 1 office (235 square feet).
Restroom facilities are available in the building outside of the tenant suite. The application does not include any tenant improvements to the suite. On average, the business will have 6 employees per day and will instruct approximately 30 students per day. The typical student will stay on-site for up to an hour. The applicant proposes to operate the business Monday, Wednesday and Thursday from 3:00 PM - 7:00 PM and Saturdays from 11:00 AM - 1:00 PM.
VI. AGENCY COMMENTS
A. San Ramon Valley Fire Protection District (SRVFPD): In a letter dated July 20, 2026, the SRVFPD provided comments requesting that the applicant submit plans to the fire district for review and approval.
No comments were received from the following agencies: Conservation and Development Building Inspection Division, Contra Costa County Environmental Health.
VII. STAFF ANALYSIS AND DISCUSSION
A. Consistency with General Plan: When the Blackhawk Plaza was first built, the development was within the CO Commercial General Plan Land Use Designation under the former General Plan. The subject property is now located within the Mixed-Use Medium Density (MUM) General Plan Land Use designation which was changed under the Contra Costa County 2045 General Plan update. The MUM allows for various types of uses including a wide range of retail, personal service, office and public uses sized to serve nearby neighborhoods or the surrounding community. The hillside office buildings in the Blackhawk Plaza commercial center have been developed such that the buildings are consistent with the development standards of the CO at the time of construction and is consistent with the MUM General Plan Land Use designation as the existing building is being used for offices and other uses that serve the neighborhood and surrounding community. The proposed use of Suite 180 in the 4125 Blackhawk Plaza Circle would allow the operation of a math and reading educational instruction business within office spaces currently in the building. The project would not alter the density, site coverage, building height, or floor area ratio, and would not significantly change the employees per acre. The proposed instruction business would be consistent with the MUM designation, as an education service that is typically found in a smaller-scale neighborhood or community. Therefore, the operation of a Kumon Math and Reading Center is consistent with the MUM General Plan Land Use Designation. The project is also consistent with various General Plan Policies below.
• SC-P8.5 Encourage more daycares, preschools, and early childhood development centers to make childcare more accessible and affordable for working families.
Staff Comment: While the project does not offer traditional daycare or preschool services, the Kumon business offers after school and weekend educational services where students are cared for by the Kumon staff. The business will provide afterschool education to students in the Blackhawk area.
• LU-P8.2 Support development of neighborhood-serving commercial services in and adjacent to residential areas where they can be accessed easily using multiple modes of transportation.
Staff Comment: The project is to allow a Kumon business which is a neighborhood serving commercial educational instruction business. The Kumon business will be located within an existing commercial plaza that is easily accessed by residents within Blackhawk.
B. Consistency with Zoning: The 4125 Blackhawk Plaza Circle office building is located within the Blackhawk Plaza commercial center P-1 Planned Unit District. The intent and purpose of the Blackhawk Plaza commercial center P-1 District is to create and maintain a neighborhood commercial area that includes retail and personal service facilities, limited offices, and financial uses, serving the surrounding Blackhawk community. In the initial approval of the Blackhawk Plaza Final Development Plan CDDP85-03009, the site is designated for office use as shown on the Allocation of Offices diagram (Attachment B - CDDP85-03009 Land Uses). The Final Development Plan designated the office uses to be consistent with County Code Section 84-44.402 (Limited Office District - Permitted Uses), which allows offices including professional offices such as offices for law, architecture, dentistry medicine, engineering, and accounting; administrative executive, and editorial offices; and business offices for insurance, real estate, and investment brokers. Due to this distinction, an educational instruction business is currently not an allowed use within the office buildings.
The operation of Kumon Math and Reading Center is an educational instruction business that is not an office use as defined in the County Code. As such, an educational instruction business is not an allowed use within the Blackhawk Plaza commercial center pursuant to Final Development Plan CDDP85-03009. Accordingly, the applicant is requesting approval to modify the Final Development plan CDDP85-03009 to a non-office use in Suite 180 of the 4125 Blackhawk Plaza Circle office building. This request is similar to CDDP19-03016 which also requested to modify Final Development Plan CDDP85-03009 to allow for a math educational instruction business in Suite 210 of 4125 Blackhawk Plaza Circle office building (same building). CDDP19-03016 was approved by the Zoning Administrator on October 21, 2019. The Kumon educational instruction business is an education service that would enhance the viability of the commercial center, and thereby would be consistent with the intent and purpose of the Blackhawk Plaza commercial center P-1 District.
The Kumon business will occupy tenant Suite 180 and would occupy the interior of the office building at 4125 Blackhawk Plaza Circle and would not modify the exterior of the building or any other tenant suites in the building. As mentioned above, educational instructional businesses like Kumon have been approved in this building (CDDP19-03016 for a math instructional business) and an educational business operates similarly to other professional office/business/retail uses. The business size of approximately 30 students per day is comparable to the number of clients that would be accessing a dental or medical facility in one of the office buildings in the Blackhawk Plaza Commercial Center. Additionally, an educational business with approximately 30 students per day would not generate substantial amount of noise. The instruction provided would not be distinguishable from conducting business in any other tenant suite in the building. Lastly, the project proposes hours of operation that are consistent with other surrounding businesses hours of operation. The applicant proposes to operate the business Monday, Wednesday and Thursday from 3:00 PM - 7:00 PM and Saturdays from 11:00 AM - 1:00 PM which is similar with iBest Learning Center located at 4135 Blackhawk Plaza Circle Suite 150 (8:00 AM - 6:30 PM Monday through Friday) and Beyond Education Consulting located at 4125 Blackhawk Plaza Circle Suite 166 (9:00 AM - 9:00 PM Monday through Friday and 9:00 AM to 1:00 PM Saturday and Sunday). Kumon is not a business that operates in the early AM or later into the PM. Therefore, the project is consistent with the P-1 zoning. (See attachment E for businesses within the area with similar business hours).
The project is also within the Cannabis Exclusion Combining District (-CE). The project does not propose cannabis and as such, this combining district does not apply to this project.
C. Off-Street Parking: Use of Suite 180 within the 26,000 square-foot office building to allow the operation of a Kumon Math and Reading Center would have a minimal effect on parking, as the required number of parking spaces per the Off-Street Parking Ordinance (County Code Chapter 82-16) for the tenant space would be the same whether the business is an educational instruction business or a professional office. Additionally, the project is not expanding or adding any additional square footage and as such, would not require any additional off-street parking.
D. Appropriateness of Use: The project site is a commercial office building that is currently being used by Kumon Math and Reading Center and other professional and medical offices. The Kumon business will not add any additional square footage and the use and operational hours is consistent with other surrounding uses within the Blackhawk Plaza commercial center. Additionally, the proposed use provides services to the greater Blackhawk area, which is consistent with the General Plan Land Use Designation MUM which allows for area serving uses. Therefore, the proposed project is an appropriate use.
VIII. CONCLUSION
As proposed, the applicant requests approval of a Development Plan to modify Final Development Plan CDDP85-03009 to allow the operation of Kumon Math and Reading Center, an educational service within Suite 180 of the office building located at 4125 Blackhawk Plaza Circle. The proposed use is consistent with the purpose and intent of the P-1 Planned Unit District for the Blackhawk Plaza commercial center, and would be compatible with surrounding business in the 4125 Blackhawk Plaza Circle office building and the other two adjacent office buildings to the east in terms of business size, location noise and hours of operation. Staff recommends that the Zoning Administrator approve Development Plan CDDP83-03042, with the attached findings and conditions of approval.
Attachments:
A. Findings and Conditions of Approval
B. CDDP85-03009 Land Use Map
C. Maps - Parcel Maps, Aerial Map, Zoning Map, General Plan Map
D. Agency Comments
E. Similar Businesses within Blackhawk
F. Conditions of Approval CDDP85-03009
G. Project Plans